Scotland

Partnerships in practice

From the post-war period until the end of the 1980s urban regeneration strategies in Scotland were characterised by slum clearance in inner city areas. At first, much property was demolished, but this provoked massive protest from residents and the establishment of organisations intent on preserving the existing housing stock. The strategy therefore changed in the 1960s. The government created the framework and -local authorities were able to designate areas for regeneration in partnership with the residents. In Glasgow, for example, resident organisations were set up for the purpose of implementing this strategy. They were known as "Community Based Housing Associations" a form of local housing associations or cooperatives.

Scotland once owned a large stock of council houses but, in accordance with the English model, sold a large number of them to the tenants. It has often been the local housing associations that have purchased them, so tenant involvement and open processes have been key words.

During the 1980s the regeneration programme was extended to suburban estates. In 1988, for example, 4 Urban Partnerships were created in the biggest cities' outlying estates. The 4 estates had all been built in the post-war period and suffered from problems with a decaying and monotonous housing stock, empty homes, dreary public spaces, a lack of jobs, a lack of shopping facilities, social problems and crime. The housing was made of cheap materials at a time when energy prices were low. With rising energy prices and socio-economic problems on the estates, unhealthy conditions developed due to damp and condensation. All the areas were characterised by council housing.

The partnerships were established by the Scottish Office, and their main task is to create better living conditions in the designated areas. The partnerships consist of representatives from the local community, organisations and businesses in the areas. In addition, some external parties with an influence on the development of the areas have been brought in.

As in the inner city areas, local housing associations and cooperatives were set up.

The partnerships work with common objectives, and the parties undertake to cooperate, although the, are no real contracts and no funds are allocated to them. The partnerships are based on the voluntary principle and trust. Their main aim is to manage the given resources better and attract new investments to the areas. However, some of the financing possibilities only existed as a consequence of the government having created two new affiliated bodies, namely, Scottish Homes, with responsibility for housing and broad powers to finance cheaper homes, and Scottish Enterprise, with responsibility for the employment issue.

The partnerships try to work holistically. It is they that coordinate the economic, social, health, housing and employment initiatives. Up to the present time, however, most of the effort has gone into the housing issue and employment schemes.

A board has been appointed in each area, headed by the Scottish Office, and a number of employees have been engaged to implement the partnerships' plans. In practice, the work is done in a number of working groups and in some of the areas subordinate partnerships that focus on a single aspect (typically employment) have been created.

So far, the partnership model seems to be working. The character and image of all the areas have changed. The partnerships have succeeded in attracting investments and in creating jobs in the areas. In 1996, thanks to the fine results, an additional 22 urban areas were designated as Priority Partnership Areas.

Castlemilk outside Glasgow is one of the 4 urban partnerships created in 1988. The area was developed in the 1950s and functioned as a rehousing area for people moved out of inner city areas in connection with slum clearance. Almost all the housing was built by Glasgow City Housing in the form of 3 and 4 storey blocks. The area soon came up against competition from a new town called East Kilbride. Unlike Castlemilk, this new town had both workplaces and retail trade.

Castlemilk's problems consisted of poor transport links, a poor standard of housing in the form of inadequate insulation and low energy utilisation, a lack of shops and businesses, a high level of unemployment and a rapidly failing population. With this background, the partnership formulated 3 main objectives:

• to create a well-functioning urban area that is better integrated with Glasgow and that has more jobs and local services than today
• to create a residential area where people want to stay when they have children
• to stop emigration and stabilise the population figure.

In practice, the partnership programme is divided into 5 sub-programmes: housing, land use and the physical environment, education, employment and the local economy, social matters, and image. For the first 10 years the partnership concentrated mainly on housing improvements, employment and image. In the housing sector, drastic action has been taken. 3,500 homes have been improved, 2,000 have been demolished and 500 new freehold homes have been built. Today, Castlemilk is one big construction site, but it is said that the area's image has improved and that people are starting to move back. Housing Associations have been created in 27% of the area, while 12% of the housing stock has been converted into freehold homes. A mixed housing stock has thus been achieved, both physically and with respect to ownership.

The project is also a success on the housing front. Employment has fallen dramatically and new businesses have been attracted to the area. What was a monotonous suburban estate without businesses and local service just 10 years ago now has both business and a shopping centre.

As mentioned, the partnership was created in 1988 and, as in the other 4 areas, was limited to a 10-year period. However, a decision has been made to keep the partnership going for another 4 years in order to intensify the action on health and cultural issues.

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