LUDA    
e-news
 
No. 03 / Oct-Nov 2003
 
Improving the Quality of Life in Large Urban Distressed Areas
LUDA is a research project of Key Action 4 "City of Tomorrow & Cultural Heritage" of the programme "Energy, Environment and Sustainable Development" within the Fifth Framework Programme of the European Commission.

 

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editorial


LUDA e-news is a free electronic newsletter, edited by the LUDA research team of the Institute of Ecological and Regional Development in Dresden (Germany). Every three months, the newsletter informs us about the project's progress, current affairs and interesting topics. Previous LUDA e-news are available via our project homepage www.luda-project.org. To subscribe please send an e-mail to luda-team@ioer.de

LUDA e-news No. 3 is published only a few days prior to the first public conference of LUDA in Florence, Italy and the project's third internal workshop. This issue informs about the first two deliverables of the LUDA research project and presents further project related links. Our current issue also presents as many as three essays.

The first article by Stefan Weber from Sächsische Aufbaubank (Saxon Redevelopment Bank) in Dresden discusses the important question of financing the clean-up and reuse of brownfields and contaminated sites. Current conditions of economic and urban development seem to require public contributions to bear additional costs of land recycling in any case.

The second article is contributed by Lubomír Jamecný, Dagmar Petrikova and Maroš Finka from Slovenská Technická Univerzita (Slovak University of Technology) in Bratislava. It addresses the emergence of brownfields and the need for redevelopment as an urgent task of spatial planning in industrial countries all over the world. Several development processes are characterised as reasons for problems in industrial regions and centres. The specific background and current situation in the Slovak Republic are taken into consideration.

The third essay by Julie Gannon from The Futures Academy of Dublin Institute of Technology is based on the concept of the "healthy city" that emerged as a result of the WHO Healthy Cities Network. The article aims to define a healthy city by discussing the essential components that contribute to the overall well being of a city. It also outlines ways in which more healthy cities can be achieved in the 21st century.

                             The IOER LUDA Team

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highlights


Public Conference


The City and the University of Florence will host the first public conference within the LUDA project on the 7th of November 2003. The conference under the thematic "Missing links - Development Problems and Planning Challenges of Large Urban Distressed Areas" or in Italian "Missing links - Problemi di Sviluppo e Sfide Urbanistiche nelle Aree Urbane Vaste e Dequalificate" will bring together municipal agents, planners, financiers, journalists, researchers and other experts from all over Europe and from South America. Technical, economic and social challenges of urban development and urban planning will be discussed in forums and round tables. LUDA e-news No. 4 will report in detail about the results of the conference.

Workshop in Florence

Connected with the public conference the third internal LUDA workshop will be held in Florence on the 6th and 8th of November. The research partners and city partners will discuss the progress and upcoming tasks in the respective work packages.

First Results of the LUDA Project

Two first reports regarding the framework of LUDA research are ready and going to be published soon on the project homepage under www.luda-project.org:

Deliverable 1 - "Report about the scope and distribution of LUDA in European cities" has as a main objective to consolidate the knowledge about the general framework and the distribution of large urban distressed areas in Europe. The elaboration of a preliminary definition for LUDA helps to find a common language within the project. The report is based on a literature review carried out with the support of the scientific partners of the project in their respective countries. As the LUDA project grows it will involve further reference cities from other countries and extent its European net of practitioners and researchers.

Deliverable 2 - The second report "Appraisal of urban rehabilitation literature and projects, including a glossary of terms and a preliminary set of indicators characterising LUDA" aims at describing the current state of art referring to Large Urban Distressed Areas in Europe. For this purpose it contains a preliminary literature review on the UK, Ireland, France, Germany, Austria, Portugal, Italy, Poland and Slovakia; countries where project partners are located. This literature review focuses on the core aspects of LUDA in Europe, on similarities and differences exemplified by experiences in those single countries. First the situation as it appears in Europe is described in general; secondly references from single countries are given. Furthermore the report outlines specific examples of urban rehabilitation.

Meeting Between the City of Dresden and the City of Florence

On the weekend of the 27th to the 28th of September the Urban Development Mayors of the twin cities Dresden and Florence Herbert Feßenmayr (Dresden) and Gianni Biagi (Florence) met in Dresden to present the politics and strategies of the two cities, to discuss the case study areas and talk about the following steps in cooperation of the two cities. The meeting was very successful in getting an understanding of the situation in the two cities and to define the further steps for the ongoing work in the LUDA project.

Website Facelift

The LUDA project's homepage at www.luda-project.org has been subject to extensive updating as regards contents and appearance. The user will find important information about the project and its network. In the section "debates" the LUDA project partners would like to invite everyone interested in urban rehabilitation to discuss the most important problems, as well as freely share his or her ideas. We will ask you to participate in our debates on central subjects, to give us your ideas and opinions as well as a different point of view on solutions and implementations of redevelopment projects.

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worth knowing

Literature Hints

Donatella Della Porta and Massimiliano Andretta: "Social Movements and Public Administration: Spontaneous Citizens' Committees in Florence"in: "International Journal of Urban and Regional Research" Vol. 25 No.2/2002 p. 244-265

Patrick le Galés: "European Cities. Social Conflicts and Governance". Oxford University Press, Oxford 2002. ISBN 0-19-925278-5
Commented in DISP 153/2003 by Prof. Dr. Frank Eckardt
"Does it really make sense to talk about the "European City"? Is it really a comprehensible term for understanding the changes occurring in our cities? (…) This book is irreplaceable for all who want to discuss the future of the European city on a profound scientific basis. It has the potential to be the recent and future main reference for debating the implications for an urban Third Way, in favour of innovative urban governance beyond neo-liberal globalism, kitsch heritage of the European City and the re-nationalisation of urban affairs."

EIB Operations Evaluation Department: "EIB financing of Urban Development Projects". Evaluation report.
The report can be downloaded at: www.empirica-institut.de/kufa/empi084hs.pdf
On behalf of the European Investment Bank (EIB) empirica (Germany), Nomisma (Italy) and Ove Arup (UK) have analysed 21 urban (re-)development projects and transportation infrastructure projects in Portugal, the UK, Spain, Italy, France and Germany.

Links

www.eurocities.org
Eurocities is the association of European metropolitan cities. It currently represents 97 cities from 26 European countries and, through its thematic sub networks, many more large, medium-sized and small cities in Europe. The network aims to improve the quality of life of the 80% of Europeans living in cities and urban areas by influencing the European agenda, and promoting the exchange of experience and best practice between city governments.

www.eura.org
The European Urban Research Association (EURA) was launched at an international conference held in Brussels, Belgium in September 1997. The proposal to create a new association of urban researchers was first discussed at an international seminar on 'Shaping the Urban Future' held in Bristol, England, in July 1994. The sixty academics attending that conference agreed that a new European network of urban scholars could fill a significant gap in the European context. The aims of the European Urban Research Association are:
- To provide an European forum for people from different disciplines and policy backgrounds to exchange information about and findings from research on towns and cities as the basis for closer co-operation;
- To encourage interdisciplinary and cross national approaches to research in and education for urban and regional studies as a professional and academic field;
- To bridge the gaps between academic, professional and policy interests, inform public debate and improve the quality of urban policy.

www.unesco.org/most
MOST is a UNESCO programme that promotes international, comparative and policy-relevant research on contemporary social transformations and issues of global importance. Created in 1994, it aims to:
- further understanding of social transformations;
- establish sustainable links between social science researchers and decision-makers;
- strengthen scientific, professional and institutional capacities, particularly in developing countries;
- encourage the design of research-anchored policy.

www.urban.org
The Urban Institute is an US-American non-profit non-partisan policy research and educational organization established to examine social, economic, and governance problems. It provides information and analysis to public and private decision makers to help them address these challenges and strives to raise citizen understanding of the issues and tradeoffs in policy making. One of the Urban Institute's ten policy centres is the Center on Metropolitan Housing and Communities. It investigates forces affecting quality of life in communities, access to opportunities they offer residents, and impacts of public policies. The centre co-sponsors the National Neighborhood Indicators Partnership, an effort to further the development and use of neighbourhood-level information systems in local policymaking and community building (www.urban.org/nnip).

www.rescue-europe.com
RESCUE intends to improve the quality of derelict land recycling in terms of the sustainability of the build environment and the quality of urban life. It will develop tools for the practical work of real estate owners, planners, architects, engineers and public authorities involved in the complex processes of brownfield regeneration projects. By reducing the costs of land rehabilitation, RESCUE will help to overcome the current obstacles in such projects, contribute to reduce the demand for greenfield development and therefore save natural resources. Based on concrete case study sites, the regeneration process will be broken down into the main steps of decision making and analysed along transnational work packages by interdisciplinary teams.

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essays

Presentation as Part of the International Conference "Green Brownfields II" on 18th June 2003 on the Topic of Financing

Stefan Weber

Normally the question of financing is subsequent to that of the proposed use of land. Isolated from the viewpoints of usage and marketing, our theme can, in most cases, be reduced to the call for money - money with which any supposed cost disadvantage in the exploitation of contaminated land can be compensated.

A cost disadvantage does indeed often arise. Ground that has been previously contaminated must be cleaned or replaced, while buildings and machine halls etc. have to be removed.

In so far as one is considering unique pieces of land in premier locations the costs can be passed on by investors to the market participants. However this will only rarely be the case. In particular, industrial waste-ground does not usually lie in first-rate locations in large metropolitan areas.

The search for financing usually follows a ritual path. Those cities and municipalities interested in new uses for contaminated land try to attract investors with public grants. As these public funds become increasingly scarce at a European, national and regional level, this approach is becoming ever more difficult.

The next solution focuses on an investor with high financial standing, who also possesses vision i.e. who only has one eye fixed on economic realities. As the market generally punishes the unprofitable investment of equity capital, the number of investors having such a degree of imagination is becoming smaller and smaller.

The last resort is to look for a bank prepared to take risks. This approach is based on the naïve expectation that, finally, banks will make use of their shady profits for the public good. Unfortunately the number of bankers who place a questionable public glory before the ability of their institution to support risks is - not least thanks to Basel II - ever decreasing.

It must be admitted that this picture is not particularly optimistic. However it remains a fact that investment in contaminated land is simply not as profitable as investment in uncontaminated land, because of the specific extra costs which generally arise. After the various presentations on technical, architectural, urban and public issues which have contained highly creative and sensible suggestions for usage, it is difficult for me to keep insisting on viewing the economic context. In particular because the economic point of view seems almost primitive. However the fact remains that in market economy investors must be oriented towards making profit. And such profit is determined by the relationship of costs to returns. As mentioned above, the returns in regard to the commercialisation of contaminated land do in general not lie above the level set by the marketplace. Therefore we are left with focusing on costs. And here I feel it is important to first ask the question - how can the size of the costs be influenced? As far as I am aware, in the legal system of the Federal Republic of Germany the emphasis is on the degree of pollution of land, rather than on how clean a piece of land must be with regard to its suitability for a particular usage. From the economic perspective it would make sense to view contaminated land in combination with the issue of its subsequent use, and not to transform the land to enable it to support every and all usage - rather the question of the elimination of dangerous substances should only be decided when the final use has been determined. In any case the costs of the decontamination should be reduced to an absolute minimum.

Often former owners and operators responsible for the contamination are no longer to hand, or cannot be forced to meet their responsibilities either legally or financially. It should be ensured in the future that the polluter-pays principle applies for the financing of recycling measures. From the viewpoint of competition it would be sensible if the European Commission drew up uniform standards and a corresponding stock of capital could be accumulated (when necessary through a system of insurance).

As long as previous owners cannot be made liable and new investors can only carry the additional recycling costs at the price of loss of profit, there only remains the public purse as financer. However, ever less public means are available owing to the unbalanced public budgets in almost the entire European Union. At the same time the number of support programmes is rising in inverse proportion to the supply of means.

Theoretically admissible, if of little practical relevance, is the issue of an improvement in the expectation of profit for potential investors. A general truth is: the better the investment climate and more stable the general economic conditions, the simpler it is to find investors for a new economic use of waste ground. The general economic conditions include, besides the classic factors of tax law and currency stability, the question of land rights. Limiting the usage of land to currently existing residential areas squeezes land as an economic resource and tends to make existing usable areas more expensive. In areas where only contaminated land is available for future use, the costs of recycling play a minor role; the lack of any alternative means they can be passed on in the land price. It should also be mentioned that such a restrictive land policy could prevent further urban sprawl.

However it must be pointed out that for the foreseeable future this is not a solution for the Free State of Saxony. The continual fall in population means that so many uncontaminated areas previously used for housing will become available over the next few years that even a very restrictive land policy will not lead to rising prices.

From an economic perspective I can only point out to you today that additional recycling costs will not be carried by investors, the banks or the marketplace. That only leaves public financing. To this end it is necessary to place the problem on the public agenda. In the meantime the competition between different interest groups for public funds has reached such a level, at least within the EU, that any chance of success can be discounted. Unless an unexpected shower of money falls, contaminated areas will in future only be recycled using public funds when those areas prove a danger to public order and safety. Urban development or regional development will unfortunately be forced to the sidelines.

I realise that this does not furnish a positive prospect. Perhaps in the situation it would have been better if you had invited Harry Potter.

Stefan Weber, Sächsische Aufbaubank (Saxon Redevelopment Bank), Dresden

 

Surveys, Analyses and Evaluation of LUDA -
Experiences from the Slovak Republic

Lubomír Jamecný, Dagmar Petrikova, Maroš Finka

Last 100 year in the development of the settlement structure have been characterised by considerable dynamic of evolution of knowledge which reflects in all areas of man's activity and leaves remarkable footprint also on the human settlements especially on the towns.

The redevelopment of obsolete industrial sites has become an urgent task for spatial planning not only in the accessing countries in the central and eastern Europe, but in the leading industrial countries all over the world. Last development in the economy and society brought new types of the sites - so called brownfields. As defined by the US Environmental Protection Agency (EPA), brownfield sites are abandoned, idled or underused industrial and commercial properties where expansion or redevelopment is complicated by real or perceived contamination. But the term "brownfield sites" is used for the sites, which have been exposed to industrial activities (Istrochem in Bratislava) and for the sites abandoned by railway uses (Bratislava - filiálka), harbour sites (Bratislava - old winter harbour), mining areas or military sites (Russian military sites in Slovakia) as well. The process of industrial decline during last 10 years marked by gradual under utilisation of industrial sites, declining competitiveness of industrial activities and the process of privatisation lead to the fracturing of industrial enterprises into separate companies and sub-companies, selling or leasing property to new owners and users, who are not interested in continuing industrial production in former location. It leads also to the establishment of new spatial extensive commercial uses such as warehouses or haulers. Reuse of brownfield sites, as the practice of many western countries shows, includes housing, commercial, mixed-use and industrial projects, creation of parks and recreational areas and restoration of wildlife habitats and open space. It needs not only to adjust the planning methods to their new needs but to derive new planning instruments, strategies and procedures. The development of the brownfield sites has become one of the major challenges in spatial planning. Reuse of the brown fields in the regions and cities undergoing structural changes (as industrial development transformed into the deindustrialization) is determined by various barriers for the development, although they have a great potential to shape the urban fabric. They often contain a mixture of various buildings, infrastructures, sealed surfaces, fences, walls, underground technical networks, industrial equipment and foundations, and other industrial, transport or mining residues often of varying toxicity. One of the most critical problems is soil contamination. Contamination cleanup is expensive and depend on the quantity and quality of contamination, kind of future uses, as some of them (housing, gardening, playgrounds) are very sensitive. The analyses of the soil contamination and its precise localisation is an important precondition for a decision about future development on a certain brownfield site, preparing a development strategy and comprehensive plan including appropriate requirements for the decontamination and for their financial assessment.

Reuse of brownfield sites brings huge environmental, social and economic profit -brings new impulses for regional or urban development, new uses to urban areas, where infrastructure already exists, increasing urban density allows more efficient use of existing social, transport and technical infrastructure, preserves undeveloped green space, protects it as a scare resource and common good, decelerates urban sprawl, improves environmental conditions in the former industrial spaces. Of course, the capacity or standards of existing infrastructure may by insufficient for new developments and existing surrounding urban fabric and uses set limits to their additional improvement. On the other hand the brownfield sites are often located in the attractive inner-city environment, which provides new impulses for their reutilization.

This set of physical conditions, ownership situation, multiple claims and interests and continuing industrial utilization on neighbouring plots determine the planning process of brownfields.
The Slovak Republic is no exception in Europe concerning the issues of the industrial regions and the centres that are under the process of restructuring. All the key identified tendencies in the important industrial centres in Europe can be traced in the Slovak Republic too. However, the course of the tendencies has been determined by the specific factors of geographical and political conditions and historical development.

Specific baseline of the background situation of the transformation processes of the industrial regions and of the centres of the Slovak Republic is possible to define by the following characteristics:

  • rapid post-war industrialisation,
  • relatively recent industrial and urbanisation processes,
  • rich tradition of specific industrial production,
  • many specific branches of industry with highly qualified labour,
  • reduction of state ownership, partly through privatisation and partly with the input of foreign capital,
  • high rate of specific industrial production - e.g. arm production,
  • existence of relatively compact industrial complexes with low diversification of economic basis,
  • high dependency of the regions on a few dominant industrial works,
  • combination of various initial points as the causes of transformation processes at the same time,
  • combination of transformation processes in industry with the overall social transformation processes in the SR and the EU accession processes,
  • establishment of the institutions of market economy and the freedom to start entrepreneurial activities,
  • one-way market orientated production towards the states of the East block and the Soviet Union before 1989,
  • break down of the former markets of the Council of Mutual Economic Aid,
  • particular natural and socio-political features of the SR territory - position in Europe, highly valuable natural areas, precious historical and cultural heritage, dependency of industry on import of raw materials,
  • social disparities became noticeable and their local separation within regions is visible,
  • split of the CSFR.

These factors determine also specialised problems and cluster of problems of the industrial regions and centres in the Slovak Republic.

Causes of the Problem Situation in Industrial Regions and Centres

When analysing the problem situation of the industrial centres and regions in the Slovak Republic we must first identify the factors initiating the structural changes. Even if it is clear that need of the structural changes follows from the structural changes of the society and its economic basis, these changes can have various causes and thus also various external symptoms, forms and consequences that requires various measures to overcome the negative impacts of these dynamic changes.

As the factors triggering the structural changes of the industrial regions and centres, it is possible to include the following processes:

  • structural changes as a consequence of world-wide transformation from the industrial society into the information society,
  • structural changes as a consequence of economic transformation of the Central and East European Countries towards the market economy. At the same time it is inevitable to take into account:
    - particular features of the transformation process in relation to the spatial impacts (e.g. geographical position, mechanisms of distribution, access to the markets),
    - problems and danger of uncontrolled processes (social, ecological and spatial processes),
  • structural changes as a consequence of greening of the economy - ensuring sustainable development as the background of structural changes (problem of nuclear energy development). Structural changes in the Slovak Republic are of various forms and have various effects, e.g.:
  • change in domination of economic sectors - tertiary and quarterly sectors in its economy and in the society too,
  • changes in the way of production (from mass-production towards small-production, flexibility of production, automation of industrial production, lowering of energy and raw material utilisation in industrial production, greening of industrial production,
  • changes in relation of labour and places of work,
  • changes of the attraction factors (pre-dominance of soft factors).

References

Kovác. B.; Komrska, J. - editors: Recent Developments in Urban and Rural Theories und New Trends in Spatial Planning, Central Euroepan Training Centre in Spatial Planning, Bratislava/ Hannover/ Newcastle/Grenoble 2000.

Belcáková, I.; Gál, P. - editors: Current Legislation and Standards of Spatial Planning in Social Transformation and European Integration, Central Euroepan Training Centre in Spatial Planning, Bratislava/ Hannover/ Newcastle/Grenoble 2000.

Dohnány, B.; Vodrážka, P. - editors: Tools, Methods and Procedures in Areas with Specific Regime, Central Euroepan Training Centre in Spatial Planning, Bratislava/ Hannover/ Newcastle/ Grenoble 2000.

Finka, M.: Tendenzen, Erwartungen und Hoffnungen bezueglich der Raumplanerausbildung vor dem Hintergrund der Erweiterung der EU, In: Kol.: Anforderungen zukuenftiger Raumplaner-ausbildung in Mittelosteuropa, Ergebnisse eines internatioalen Planerforums in Bratislava, ARL Hannover 2001.

Lubomír Jamecný, Dagmar Petrikova and Maroš Finka
Slovenská Technická Univerzita (Slovak University of Technology), Bratislava
Faculty of Architecture

 

Healthy Cities

Julie Gannon

Introduction

This article is based on a paper prepared by The Futures Academy for the 2003 International Healthy Cities Conference held in Belfast this year. It suggests that what we need in order to build a healthy future for our cities is a paradigm shift in the way we respond to the changing nature of the 21st century city. The World Health Organisation (WHO) Healthy Cities Network is one such response that aims to put health high on the agenda of European decision-makers. This innovative initiative involves a network of European cities that experiment with new ways of promoting health and improving urban environments. This article is based on this concept of the 'healthy city' that emerged as a result of the initiative. It aims to define a healthy city by discussing the essential components that contribute to the overall well being of a city. Furthermore, it outlines ways in which we can achieve more healthy cities in the 21st century. In order to fully appreciate the concept, the problems associated with unhealthy cities will also be highlighted. To conclude, several scenarios and policy measures will be presented based on the paper prepared by The Futures Academy to promote a futures approach towards planning and development for the future health of our cities.

Century of Cities

It is essential to make the city of today a more desirable place in which to live and work. This has become even more important in recent years owing to the emergence of the 21st century as the century of cities (Landry, 2002). With, for the first time, the majority of the world's population now living in cities and urban areas, the city can determine the present and future quality of peoples' lives. Effective urban planning and policy making is therefore crucial to improve the health standards, working conditions and quality of life for our urban populations. Owing to the fundamental changes occurring in the city at every level, in addition to the many pressures on our urban environments, old solutions to city problems no longer work. More creative methods of thinking are necessary for the city of the 21st century, in order to look afresh at urban possibilities. Just as the economist Kevin Kelly (1997) stipulates that new rules are necessary to govern the new, knowledge-driven network economy of the 21st century, new creative methods of urban planning and thinking are required to encourage health within our continually evolving urban environments and ever-expanding global cities.

What is a 'Healthy City'?

The definition proposed by the WHO suggests that a healthy city is one that seeks to enhance the physical, mental, social and environmental well being of the people who live and work within it. This is quite a broad definition, however, and is open to various interpretations. As a result, a number of additional definitions are offered here to convey the concept of the healthy, sustainable city in a more meaningful way:

"A 'sustainable city' is organised so as to enable all its citizens to meet their own needs and to enhance their well being without damaging the natural world or endangering the living conditions of other people, now or in the future"

(Girardet, 1999, p.13).

"Sustainable communities are defined as towns and cities that have taken steps to remain healthy over the long term. Sustainable communities have a strong sense of place. They have a vision that is embraced and actively promoted by all of the key sectors of society, including businesses, disadvantaged groups, environmentalists, civic associations, government agencies and religious organisations. They are places that build on their assets and dare to be innovative. These communities value healthy ecosystems, use resources efficiently, and actively seek to retain and enhance a locally based economy…Public debate in these communities is engaging, inclusive and constructive. Unlike traditional community development approaches, sustainability strategies emphasize: the whole community (instead of just disadvantaged neighborhoods); ecosystem protection; meaningful and broad-based citizen participation; and economic self-reliance"

(REC, 2003).

From these definitions, it is clear that a healthy city is much more than a city that provides adequate medical care. A healthy city involves many interdependent and inter-related factors, only one of which is an effective healthcare system. Healthy cities are those that provide nurturing environments for all their citizens, environments that possess the following distinctive qualities as recognised by the Dublin Healthy Cities Forum:

1. clean, safe, physical environment;
2. stable, sustainable ecosystem;
3. strong, mutually supportive community;
4. public participation and control;
5. meets citizen needs;
6. variety of experiences;
7. diverse vital innovative economy;
8. links with the past;
9. a city form to support these characteristics;
10. accessible public health and care; and
11. high health status.

(www.dublinhealthycities.ie).

In summary, a healthy city is one that nurtures its members. What builds a healthy city, also builds community, safety, prosperity and families. As suggested by Duhl and Hancock (2003), a healthy city is "rooted in the simple but evolutionary idea that health is less about medical care than about equitable access to such basic prerequisites of health as food, shelter, transportation, clean air and water, education, physical safety and meaningful jobs paying sufficient wages. This way of thinking expands the idea that no person or family is an island; everyone's life is bound up in the whole community".

Achieving a Healthy City

Having defined a healthy city, it is now important to explain how we can achieve a healthy, sustainable city. Achieving a healthy city is a complex task that involves bringing together a variety of actors, agents and interest groups with varying backgrounds, aspirations, potentials and cultures (Landry, 2002). There are a number of preconditions for a city to be truly creative, innovative, sustainable and, in essence, healthy. The following is a list of the preconditions to a healthy city, as presented by Landry (2002):

1. personal qualities;
2. will and leadership;
3. human diversity and access to varied talent;
4. organisational culture;
5. local identity;
6. urban spaces and facilities; and
7. networking dynamics.

1. Personal Qualities
Cities have one crucial resource - their people. Intelligence, imagination, creativity, motivation, commitment, open-mindedness and desire are some of the vital qualities required in order to create and sustain a healthy city. The citizen is an urban resource and will determine the ultimate success of a city.

2. Will and Leadership
A city needs people who have the will to tackle its problems and take on the city project as their own responsibility. Vision, energy, discipline, focus, willingness to make decisions, initiative and courage are some of the characteristics needed in order to lead the transformation of a city. Leaders and citizens must create a shared vision of what their city might be, must envision a path to this goal and must ultimately lead the city to this goal.

3. Human Diversity and Access to Varied Talent
In an environment where the skills, talents and cultural values of outsiders and immigrants are understood and appreciated, rather than feared, new ideas and opportunities will flourish and invigorate the city. Understanding and a willingness to learn form others are important preconditions to a healthy city.

4. Organisational Culture
In order to create a healthy city, changes to organisational culture may be necessary. Exposure to new ideas, shared learning, shared problem solving and mentoring are several methods that can be used to foster an organisational culture synonymous with a sustainable city. Devolution of authority, the empowerment of individuals, teamwork and, in general, a more open structure is the ideal organisational structure.

5. A Sense of Local Identity and Culture
A strong identity is a precondition for establishing civic pride, community spirit and care for the environment. Tolerance of other cultures and identities is imperative if local culture is to be harnessed and established. Consciousness of culture is an important asset and a driving force in promoting a healthier, sustainable city. The cultural resources of a city can be used to maximise its potential and create economic gain. Because of the phenomenon of globalisation, cities have become more similar to one another and, as a result, more detached from their cultural heritage and historical connections. The "anytown" syndrome currently prevails. In this increasingly international, globalised world, culture plays a vital role in creating stability and a sense of localness, perhaps now more than ever before. The possession of this characteristic demonstrates that a city is unique, distinctive and has a real sense of being. These characteristics constitute several of the qualities of a healthy city. In order to create a healthy city, cultural resources should play a pivotal role in urban planning, rather than be simply seen "as a marginal addition to be considered once the important planning questions like housing, transport and land use have been dealt with" (Landry, 2002, p.7).

6. Urban Spaces
An essential element of a healthy city is public space, as both a physical setting and also as an arena for public debate and the exchange of information. The public realm is a vital characteristic of a healthy city as it helps with the sharing of information and ideas thereby helping to expand the horizons of the city's citizens. Meeting places and other public spaces ranging form conference rooms to town squares, from parks to shopping centres are also part of a city's public space.

7. Networking Dynamics
The two aspects, according to Landry (2002), of networking include networking within a city and networking internationally. Networking is vital to ensure that a city is never disengaged from its regional hinterland. It aids communication and the establishment of connections both inside and outside the city. Networking helps to involve all players within a city to ultimately work together in a more effective way.

These are a number of the preconditions for achieving and sustaining a healthy city in the 21st century. Furthermore, strong local action and commitment from all citizens to the health and sustainable development of the city is vital.

Indicators of a Healthy City

Conventional indicators of economic, social or environmental conditions do not easily translate to the city level. Specific indicators are therefore necessary to describe and measure urban health. Health indictors are "numeric measures of health and well-being" (Tsouros & Farrington, 2003, p.67), which convert data into relevant information, thus informing decision-makers and policy formulators. This leads to rational and informed decisions, benefiting the health of the city. Health indicators identify the aspects of a city that contribute to or detract from the health of the population; they can help find constructive solutions to urban problems; and they provide information to make comparisons of urban health over time and across different cities.

Measuring the health of a city is a complex and challenging task. Because many inter-related issues affect the health of a city and its citizens, several factors must be examined in order to define, describe and measure urban health including physical, mental, emotional and spiritual health. The following table shows many of the indicators used by the WHO European Healthy Cities Network to measure urban health:

__________________________________________________________________________________________

Health:
- Mortality
- Main causes of death
- Low birth weight

Health services:
- Infrastructure (self-help groups, support programmes and health education)
- Output (immunisation rates)
- Resources (physicians and nurses)
- Access (financial and individual)
- City health education programmes
- Inhabitants per nurse; inhabitants per primary health care practitioner
- Percentage of population covered by health insurance

Physical environment:
- Pollution (air, water, household waste and land)
- Housing (living space, quality, provision and homelessness)
- Urban design (green space, pedestrianization and sports facilities)
- Transport (public transport - extent and range and cycle routes)

Socio-Economic environment:
- Employment (overall and for disabled people and levels of poverty)
- Education and levels of literacy
- Social structures (family structures, abortion rates and children in child care)
- Social disruption (crime and use of emergency services)

Public services:
- Budget for health and social action

(Tsouros & Farrington, 2003).

_______________________________________________________________________________

There are many additional advantages in utilising health indicators. They can help forge local links and strengthen inter-sectoral links within the city. Furthermore, they can give the city a goal and an action plan with which to tackle urban health problems. Indicators can ensure that the city is moving in the right direction in relation to urban health. Difficulties may arise, however, with the comparison of indicators across different countries owing to interpretation differences. In spite of this drawback, the information collected by health indicators is informative and insightful and can act as an important instrument for cities to measure and ultimately improve their health and well being.

Problems of an 'Unhealthy City'

To fully appreciate the concept of a healthy city, it is valuable to investigate what constitutes an 'unhealthy city'. There are numerous problems associated with unhealthy or problem urban areas that are common to a number of cities across the world. Poverty and unemployment can breed hopelessness, unfulfilled expectations, and boredom, and can thus increase the chasm between the middle classes and the employed working classes and those known as the 'socially excluded'. Violence, crime and vandalism can result in the collapse of the established order, thus hindering the possibilities to develop creative solutions to the city's problems. As Landry (2002) explains: "Multiple deprivations create 'sink estates', where nearly everybody and everything is pulled down." Other problems within large urban areas involve the spread of fear, insecurity and xenophobia within original communities when cities see the arrival of large populations from other parts of the world. The rapid change in the composition of communities can also leave the incomers feeling isolated, lonely and excluded from their new community.

Furthermore, urban areas have relatively high levels of tuberculosis, cancer, adult obesity, poor mental health, tobacco smoking, drug abuse, alcohol consumption, sexual transmitted diseases (including AIDS), crime, homicide, violence, vandalism, and accidental injury and death (Tsouros & Farrington, 2003). The extent of urban health problems outlined in the above list demonstrates the need to improve urban health and the need to create healthy cities for the urban populations of the 21st century.

Future Thinking the Healthy City

As discussed in the paper prepared by The Futures Academy entitled "Imagineering Cities: A Plea for More "Futures Thinking" in Urban Planning and Development", there is an urgent need to transform our current approaches to city planning and development if we are to promote quality of life in our cities and enhance the health of all citizens, particularly in urban distressed areas. It is becoming increasingly evident that city structures and systems are changing, and there is little doubt that the city of tomorrow will be fundamentally different from the city of today. In response to this change, something new is required. The paper prepared for the Belfast Conference describes how a community or group might respond to these changes by adopting a "prospective through scenarios approach" to learn how to help prepare for the future of our urban environments by ultimately attempting to understand what is going on in their environment, to appreciate the complex forces shaping their locality, to think imaginatively through what this means for them, and then demonstrate a readiness to act upon this new knowledge. In this way, policies or plans based on this type of approach can help bring desired and likely future circumstances in closer alignment.

A "simulation" study was carried out to demonstrate how this process might be carried out and what might result. The output of this process was the development of three alternative future scenarios presented here.

"Cupidity"

This scenario is characterised by an overindulgent city. It is the year 2020 and the city's appetite has grown to engulf all in its path, physically and socio-economically. Traditional city lifestyles, identities and ideals have been abandoned in favour of a fast-paced, debaucherous way of life.

Economic prosperity has determined the primary functions of the city in this centralised city state. Globalisation has taken rule in the city, which consequently embodies the "anytown" prototype. Social issues are not a priority for the narcissistic middle-class society that reign, as they can afford not to pay attention to such matters. Social services are costly but affordable to this wealthy young business class. An ever-widening gap between the rich and poor is emerging however, and social exclusion is a matter of urgent concern within the city that is not being addressed. The city is being pillaged by its citizens, who are, as a result, treading on thin ice.

The city generally represents an unhealthy environment in which to live and work. Business and financial institutions have set seed in the city centre and skyscrapers overshadow the skyline. Urban decay has rooted and spread to the inner-city suburbs. Suburbia is the new found way of life for those who can afford it. A "healthy life" can now be purchased from the privatised healthcare sector but for how long will the current ethic of "work hard, play hard" prevail? The city is choking as its carrying capacity has long been surpassed. Will the wealthy be able to sustain their indulgent lifestyles at the expense of the health of the urban environment?

"Sudden Times"

This scenario is representative of a fragile city in the year 2020. Economically, there has been an unexpected downturn in the global markets, which has had immediate consequences for cities and city life.

Priorities have shifted from those concerned with luxuries to those concerned with basic necessities. Job security is a number one priority on the political agenda within the city, whereas issues such as healthcare, education and the environment are left on the backburner.

It is a dangerous and uncertain time for the city as sustainability issues are recoiled and government revenue is pumped solely into the economy. An air of apprehension sweeps through the city and a sense of nausea prevails. The city embodies an almost unconscious entity awaiting a breath of new life. Health seems a far cry from the city as scepticism emerges.

Time will soon tell the story of the city. Nothing is certain within this urban environment, as the future of the healthy city remains to be told.

"Cocoon"

It is the year 2020 and a metamorphosis has occurred in the city. Governing structures have devolved enabling local democracy to rule the roost. The citizens of the city play the most prominent role in shaping the future of their living environments through active participation in political and social affairs.

Cities in this scenario are influenced primarily by local agendas and consequently, represent healthy but somewhat vulnerable urban economic environments. Social issues dominate the political agenda and a civic society prevails. Childcare, healthcare, care for the elderly and education are prioritised as issues demanding attention, which have subsequently been met. Furthermore, urban environmental services such as public transport, waste management and social housing have all been adequately addressed, owing in particular to the revenue created as a result of the implementation of the "polluter pays principle" in all local policy measures. Quality of life within the city is high, as the stressful, fast-paced ways of the early 21st century have been replaced with a slow-paced lifestyle.

The city, however, is not economically buoyant. Times are uncertain, as multi-national interests have abandoned the city in search of more opportunistic city environments. The citizens of the city, therefore, must ensure the self-sufficiency of the city is sustained for this healthy, slow-paced city to survive.

Based on the scenarios developed, a series of policy measures were formulated. This step in the process ensures that robust policy measures are formulated to withstand future uncertainty and lead to the achievement of the desired future, the healthy city. Some of the measures suggested included:

  • promoting an awareness of the need for sustainability within our urban environments through radical initiatives in education at all levels;
  • encouraging "bottom-up" governance through local empowerment and active participation in the decision-making process;
  • encouraging effective leadership and governance;
  • securing and sustaining employment opportunities;
  • reducing poverty and social exclusion;
  • improving housing access, condition and affordability;
  • fostering a healthier population;
  • reducing crime and the fear of crime;
  • providing good access to local services;
  • ensuring adequate provision of social, civic and recreational facilities;
  • introducing innovative fiscal measures to promote sustainable development;
  • placing greater emphasis on the implementation and enforcement of policy; and
  • establishing a set of parameters or criteria by which urban planning policies and development decisions are made against fundamental principles such as irreversibility, precaution, subsidiarity and empowerment.

Conclusion

In this article, it is argued that cities are moving centre-stage and will become the dominant human habitat of the future. Urban environments today represent "complex adaptive systems", faced with testing challenges which must be addressed with confidence in an attempt to promote quality of life and enhance the health of all citizens. Building a healthy city, after all, requires holistic planning and innovative thinking involving everyone who can make a difference, not just those employed within the healthcare profession. Adopting a futures approach to plan for the future of the healthy city encourages this idea as it places people, the city's ultimate resource, at the top of the agenda by establishing a platform for their involvement and participation in shaping the future of their city. As expressed by Ellyard:

"The future is not a probable place we are being taken to, but a preferred place we are creating. The tracks to it are not found and followed, but made by laying and constructing a trail."

References

Duhl, L. & Hancock, T. (2003): Healthy Cities, Healthy Children.
http://www.unicef.org/pon97/indust1.htm

Ellyard, P. quoted in Share the Vision.
http://www.ci.diamond-bar.ca.us/share.htm

Girardet, H. (1999) Creating Sustainable Cities - Schumacher Briefing No.2, Green Books, Devon.

Kelly, K. (1997) New Rules for the New Economy: Twelve Dependable Principles for Thriving in a Turbulent World, Wired, September.

Landry, C. (2002) The Creative City: A Toolkit for Urban Innovators, 4th ed., Earthscan Publications Ltd., UK & USA.

Ratcliffe, J. & Gannon, J. (2003): Imagineering the Healthy City: Using A "Prospective" Process Through Scenario Thinking to Promote the Quality of Life in Cities, a paper prepared for the 2003 International Healthy Cities Conference, Belfast.

Ratcliffe, J. & Sirr, L. (2003): Imagineering Cities: A plea for more "futures thinking" in urban planning and development, a paper prepared for the LUDA Newsletter.

REC (2003): Regional Environmental Centre for Central and Eastern Europe.
http://www.rec.org/REC/programs/sustainablecities/what.html.

Tsouros, A. D. & Farrington, J. L. (eds.) (2003) WHO Healthy Cities in Europe: a compilation of papers on progress and achievements, WHO Regional office for Europe, Denmark.

http://www.dublinhealthycities.ie/pages/background.htm


Julie Gannon, The Futures Academy, Dublin Institute of Technology

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