Case Studies   The Danish Neighbourhood Regeneration Programme. Kvarterløft in Copenhagen

Executive Summary

In Denmark urban regeneration projects have developed from an approach based purely on building renewal to a more holistic approach as reflected in the Danish case study (Kvarterløft). The basis for the integrated and holistic approach in urban regeneration is the recognition of the multi-facetedness and interconnectedness of the urban problems. Whereas traditional urban re- newal projects had focused on urban districts with a derelict building stock, the Kvarterløft pro- gramme is more diversified in its approach. The scope has been diversified to include social, economic, political, and environmental problems, and several of the projects take place in areas with a comparatively new building stock of acceptable standards. Apart from the immediate goal of enhancing and improving the quality of life in these specific areas, the programme is also a way of expanding the knowledge base on regeneration policies for future use. The Kvarterløft programme can be viewed as a partnership in which the local stakeholders in the neighbourhood co-operate in laying down the framework for development of their neighbourhoods in collabora- tion with existing institutions and organisations that are already operational in these local neighbourhoods. Stakeholders from municipal level are, of course, included.

Fundamental Beliefs
This approach accepts and encourages the need for context-specific actions in different areas. However, this approach is supported by four beliefs discussed below:

The first is the importance of cross sector efforts. This idea rests on the belief that synergetic efforts can be achieved over a broad front in a single urban area. This way of thinking is driven by the idea of optimising the performance of all sectors and understanding the relationship be- tween parts and how these can be integrated so that each part benefits from the other.

The second belief is the importance of promoting partnership between all stakeholders because no one can usefully operate unilaterally. Precedent shows, however, that for partnerships to oper- ate successfully, each partner must have clear responsibilities. In Kvarterløft it implies that vari- ous public administrative bodies are included, but also that responsibility is shared between the public and private bodies and the local communities.

The third belief is the importance of promoting participation. Participation is characterised by commitment from all stakeholders. All stakeholders have access to participation, directly or indi- rectly. In the participation process, priority is given to the local residents, who know best the challenges and potentials in their community. The participation process is open, direct and vol- untary, which means that some groups can have difficulties in being represented. Disabled or mentally challenged residents have been mentioned. In cases where technical knowledge is re- quired in projects, local residents might not be fully integrated in the process. It can be difficult to truly assess whether everyone is well represented in the decision making process.

The final belief is the importance of project anchoring. The risk of projects being only concerned with the immediate issue at hand, without considering their life span after implementation, is addressed in the Kvarterløft programme. Comparative experience from previous national pro- grammes had shown that long lasting impact of projects could not be achieved if they are de- tached from the local residents. The anchoring process encourages the local residents to claim ownership of projects from the very beginning.

The Kvarterløft Programme
There are twelve Kvarteløft projects in Denmark with a total investment frame of 160 mill. Euro. The selection of projects was carried out at national level. The projects are not concentrated in one city but are spread throughout the country. In Copenhagen there are three projects under the ENTRUST study programme. Particularly important to the organisation is the relationship that exists between national and local levels. The national level provides a national secretariat, placed in the Ministry of Refugee, Immigration and Integration. This secretariat is responsible mainly for funding and coordinating the whole project.

The overall regeneration visions for the Kvartreløft programme were also made at the national level. Although the overall visions were made at the national level, the local visions are defined by the local stakeholders with a broad variety of representatives such as residents, business both large and small, social and cultural organisations. In the specific local areas the visions from the national level are laid down into more concrete and precise objectives. The national visions have - to a large extent - influenced the local projects.

Although the national level plays a significant role, municipalities and the local communities run most of the work. The Kongens Enghave project for example was set up by the municipality of Copenhagen and delegated to the local Council of Kongens Enghave. After the project had been delegated to the local community, annual meetings are held with the national level. At these meetings the local representatives give a status report, and unrealistic aims are adjusted. Thus the success criteria are formulated at the local level and negotiated with the national level. This process is important because some visions and ambitions in reality are difficult to fulfil and measure, for example ambitions of rapid employment and demographic changes.

Perspectives
The case study underscores the relevance of the comprehensive approach to urban problems, without loosing sight of the local problems. Urban regeneration is an integrative activity with strong connections to other facets of development. Kvarterløft is rooted in the understanding that the most strategic way of achieving regeneration aims is trigged by multiple effects, public private partnership, industry and technology, democratic participation and so on. This approach, however, confronts the municipal administration with new ways of working, e.g. working across the traditional municipal sectors. It implies that the responsibilities and decision-making are also spread between the different municipality departments. The municipality is therefore faced with the challenge of adapting to change and flexibility in their organisational arrangements because each project develops along different lines. The local communities and other stakeholders have to be committed to municipal changes and be willing to work together. It is therefore a learning process for all stakeholders, in which willingness to cross the traditionally perceived boundaries in city management and development is crucial for success.

Table of contents     1. The Kvarterløft programme