Governance challenges DG REGIO Cities of Tomorrow 28-29 June 2010 Joe Ravetz Centre for Urban &...

Governance challengesDG REGIO Cities of Tomorrow

28-29 June 2010

Joe Ravetz

Centre for Urban & Regional EcologyUniversity of Manchester

www.manchester.ac.uk/cure

http://www.manchester.ac.uk/cure

Contents

1. Changing concepts of ‘city’

2. Changing concepts of ‘governance’

3. New directions

Drawing from:

• Sustainable City-Region 2020

programme• ‘One Planet Economy Network’

(UK /EU)• Urban / regional research in FP7 • Innovation / science policy

research in FP7• Other UK / EU studies• City-State 21: systems analysis

Note – this version contains graphic visualizations – a good way to explore new challenges

1. Changing concepts of ‘city’

So what is this “Creative City” thing? It seems to be all about

bohemian canals and wine bars.

Maybe for some. But what about the rest of the city –

where do they fit in?

An agenda for creative sustainable cities






Millions of workers in the factories… shoppers in the

malls… tv watchers..







Well maybe … they are not really

supposed to be “creative” – more like the extras in a

global game of capital

So maybe we should look for the roots – creative everyday

life, by the people, for the people












And it’s a pity that the global

game makes a lot of losers,

leftovers, & garbage of all

kinds










And it’s a pity that the global

game makes a lot of losers,

leftovers, & garbage of all

kinds

So maybe we should look for the roots – creative everyday

city life, by the people, for the people ??


‘City’ concepts & dynamics

• Urban archipelago• Urban dormitories• Urban enclaves / gulags• Urban-‘glocal’ places• Urban-rural cities

• Creative cities• Competitive cities• Ecological cities• Networked cities

• Peri-urbanization dynamics

• Poly-urbanization dynamics

• Mono-urbanization dynamic

• Geographic concepts• Socio-cultural concepts• Spatial ecology concepts• Political-economy

concepts

Example - peri-urban cities

• The peri-urban may be the dominant urban form and territorial policy challenge of this century.

It has many definitions:• urban fringe: • urban hinterland: • functional territory: • functional urban region• urban-rural interface: • rural-urban-region, etc.

• In older industrial countries - a zone of social and economic change & restructuring

• In newer industrial cities, EU growth zones, and most of developing world - a zone of rapid & chaotic urbanization & urban sprawl.

New concepts in urban geography

Globalization pressures

Localizing responses

Urban gravitational

pull

Rural & peri-urban pull

Urban conservation

Urban development

Rural conservation

Rural development

Peri-urban transitions / challenges

STRUCTURAL TENSIONS

COMPETING POLICY

AGENDAS

Metro-scape transition: networking of urban

economies & lifestyles, across wider peri-urban

& rural areas;

Cultural cognitive transition: new

patterns of globalizing capital, in

post-fordist liberalized economic / social structures

Spatial ecology & the green

infrastructure transition: localizing identities for newly

globalizing communities

Grey / black infrastructure

Global gateways / gold zones

Production hubs

Blue-green infrastructure

Restructuring / brown zones

‘Older’ value heritage zones

Outward flows - metropolitanization

Inward flows – global networks

Consumption hubs

Protected / green zones

Higher value places

‘Wild’ value places

Strategic corridors

Lower value places

Peri-urban spatial ecologyFrom the ‘urban archipelago’, Borsdorf 2005

Urban sprawl

Space for innovation & enterprise

Structural conflict / interface of elite

vs majority

Urban archipelago

New rural-urban metroscapes Structural conflict

/ interface of global vs local

Poly-centric functional urban

areasUrban

agglomeration

Value added segmentation

Structural conflict/ interface of urban vs rural

Spatial dynamics – a landscape of concepts

Showing overlapping conceptual models of spatial dynamics & patterns

Peri-urban development – modelling results (PLUREL)

Peri-urban policy challenges

• Peri-urban activities & policy agendas don’t fit NUTS boundaries.

• Rapid change with problems & opportunities side-by-side,

• Effective policy responses need to be multi-level, multi-agency and multi-functional.

• How to manage complex & flexible communities of stakeholders ??

• How to bring together fragmented actors & objectives ??

• How to enable enterprise & innovation, AND protect natural assets ??

• Is this a local / regional / national / EU agenda ??

2. Changing concepts of governance

• Urban policy is more integrated, horizontally / vertically / laterally

• Techno-economic agendas are driven by structural dynamics

• Governance & sectoral policy regimes are more political by default

Urban policy cycle

Underlying challenges in urban governance

• Policies are fast changing & multi-level.

• Boundaries are debatable.

• Technical models don’t fit policy levers.

• Big problems don’t have levers at all

• Organizations are in a state of flux.

• ‘Aspiration-reality gap’ at all levels.

• Policy seems to work in fuzzy clouds of inter-connected processes…. ‘issues’ / ‘agendas’ / ‘discourses’ / ‘problems’ / ‘opportunities’, etc

• High opportunity or transaction costs / benefits, for gathering information;

• pressure to gather ‘intelligence’ for ‘learning organizations’, in a ‘knowledge society’;

• successful strategies depend on ‘ignorance’ and/or concealment from rivals / enemies;

Changing focus … • (Institutional) Strategic

policy intelligence & anticipatory focus

• (Technical) Multi-sectoral & multi-lateral management focus

• (Socio-cultural) - Social network & creative commons focus

• (Entrepreneurial ) - business intelligence - exchange & investment focus

Changing paradigms …

• integrated vs. sectoral; • participatory vs.

managerial• public vs. private, • competition vs.

cooperation• Production vs

consumption

New challenges in urban governance

Private sector

Farmers

Landowners

Developers

Operators

3rd sector:

Community groups

Conservation groups

Social enterprises

Social landlords etc

Public sector

Local authorities

Regional authorities

Public services

Public landholders

Farmers markets

Tourism / heritage partnerships

Village business forums

area forums

countryside partnerships

Conservation compacts

Development obligations

Access agreements

Stewardship schemes

Institutional challenge - multi-sectoral partnerships

Government Energy / trans

services

Design & construction

Buildings & stock

Finance & markets

Social enterprise

Utilities & infrastructure

Householders & consumers

‘Carbon intelligence’

Householders keep online climate activity profile. Climate bonus points can be traded.

Buildings, stocks & types with online climate profile,

georeferenced & searchable

Online library of building types, ages, conditions,

energy technology opportunities

Real-time metering & load management

enables smart infrastructure with

intermittent sources.

Social technology enables networks, initiatives, debates, wikipedia type info

Mortgage holders & investors monitor carbon flows &

trades on financial basis

City / region authorities monitor

carbon flows, investment & urban management on an

area basis

ESCO management & investment

programmes with real time energy / carbon

analysis

BASELINE & BENCHMARKING

DECISION SUPPORT

MANAGEMENT & TRADING

Up

stre

am

Infr

astr

uct

ure

Do

wn

stre

am

Carbon intelligence platforms

Technocratic-managerial challenge

Policy: hierarchical & technocratic

Public: fragmented &

passive recipients

Policy: responsive &

inter-connected

Regulatory system: 1-way

information flow

Public: pro-active,

entrepreneurial & self-organized

Governance system - co-

production of shared

intelligence

From - “ORGANIZED

GOVERNMENT”

Towards – “SELF-

ORGANIZING GOVERNANCE”

(Sporadic feedback via electoral system)

Socio-cultural challenge & transition

Mobilization of local political support &

reciprocity

Mobilization of public resources & value added cycles

EMBEDDED GOVERNANCE – NORMS, RULES ETC FORMAL GOVERNMENT SYSTEM H

IGH

ER

S

CA

LE

LOC

AL

S

CA

LE

Entrepreneurial challenge & relational governance

Local governance & public investment

systemsLocal actors with local enterprise

relations

Governmental mobilization of

collective values & resources at strategic

‘regional’ level

Governmental mobilization of public values & resources at

national level:

Multi-level enabling Directives, targetted initiatives & funding

conditions at EU level

Mobilization of collective resources

& value added

Regional actors & enterprise initiatives

Relational thinking – multiple interactions

1. Economic flows & incentives & signals - focus on the material exchange dimension

2. BUT there are other dimensions – political, social, cultural…

3. To “re-socialize” the economy we need links between … both in theory and in practice, & at micro and macro scale;

4. First - revisit key assumptions & paradigms which overlap, merge, emerge

ASSUMPTIONS / PARADIGMS

• Production & consumption –

• Government & market –

• Benefit & cost –

• Ownership / stakeholding –

• Efficiency & efficacy -

• Local v global

• Social ... Reciprocity in community (Putnam..)

• Economic.... ‘marginal utility?’ - behavioural / institutional

• Cultural-cognitive: ideological hegemony, expropriation

• Political – stated / implicit goals / visions / values

• Technical - Needs / function hierarchy... (Maslow.. )

• Environmental - ‘SD capitals’ based approach

Multiple value chains, loops, capitals

Innovation systems, co-learning, shared value

Trust & reciprocity

Shared learning

Partnership agenda

Institutional thicknessA

dded mutual value

Shared risks

Shared vision & goals

Innovation systems, co-learning, shared value

a) Multiple relationships on the street – not just economic or social, but relationships of power and ideology

b) Multiple interaction chains and value cycles, can lead in very different directions

Urban governance - relational approach

a) Multiple relationships on the street – not just economic or social, but relationships of power and ideology

b) Multiple interaction chains and value cycles, can lead in very different directions

d) How to get past negative spirals? Enhancing collective intelligence of the system, and of the networks and communities within it.

c) This duality of positive or negative spirals sees very different kinds of city emerge, which serve very different kinds of people

Urban governance - relational approach

Entrepreneurial / financial cycle

Institutional / political cycle

Social / community cycle

Cultural / ethical cycle

Infrastructure / technology

cycle

Environment / resource cycle

Urban governance relational approach –

“co-production” / “co-evolution” / “co-intelligence”

LOCAL / GLOBAL

INTERFACE

3. New challenges in urban governance

Policy integration challenge – local from www.incredibleedibletodmorden.org.uk

Municipalities

Education & health

SMEs & tourism

Local democracy

Farmers

Landscape owners & managers

NGOs & social enterprise

Local markets

• Public / private / social collaboration & co-investment

• Public sector enables private / social sector initiatives

• Multi-level governance• Knowledge networking• Innovation &

enterprise• Multiple objectives –

economic / social / food / climate / green infrastructure

http://www.incredibleedibletodmorden.org.uk/

Policy integration challenge – city-region from www.cityregion2020.org.uk

• Public / private / social collaboration & co-investment

• Public sector enables private / social sector initiatives

• Multi-level governance• Knowledge networking• Innovation &

enterprise• Multiple objectives –

economic / social / food / climate / green infrastructure

http://www.cityregion2020.org.uk/

Institutional challenges

CAPACITY- BUILDING FORESIGHT CHALLENGE

• generating resources in the organization (human / technical / financial )

• action networks, innovation clusters & communities of interest around the foresight agenda

• continuous programme of risk / opportunity / resilience / strategic thinking

INTELLIGENCE-ANTICIPATORY CHALLENGE

• crossing boundaries between organizations, sectors, professions

• common infrastructures & resources (online / human / technical )

• new spaces where new interactions can take place

• innovation from the bottom & the side, not only the top

Urban policy questions

Policy integration: • Multi-level & multi-actor• Multi-objective• BOTH Strategic AND

entrepreneurial AND sustainable !!

EU level policy: • Competence? • Effectiveness? • Additionality? • Targets & thresholds?

National level • How to strengthen spatial

planning & territorial governance ?

City-regional level• Priority for city-region

strategic governance Sector level: • Linking the urban / peri-

urban agenda - agriculture, transport, energy, water, housing, employment etc

Agendas for discussion GOVERNANCE QUESTIONS

• (Institutional)… how to link multi-levels & multi-functional agendas

• (Technical) how to manage complexity & uncertainty in decision making

• (Socio-cultural) – how to involve new stakeholders & networks for social innovation?

• (Entrepreneurial ) - how to provide public services & social economy with deficit?

GOVERNANCE FOCUS … • (Institutional) Strategic

policy intelligence & anticipatory focus

• (Technical) Multi-sectoral & multi-lateral management focus

• (Socio-cultural) - Social network & creative commons focus

• (Entrepreneurial ) - business intelligence - exchange & investment

4. New directions in urban analysis & foresight

World Urbanization ProspectsSource UN Department of Economic and Social Affairs, 2006

0

1000

2000

3000

4000

5000

6000

7000

8000

9000

10000

1960 1985 2005 2025 2050

popu

latio

n in

mill

ions

URBAN Moredeveloped

URBAN Lessdeveloped

RURAL moredeveloped

RURAL lessdeveloped

TOTALpopulation

Global / macro & top-down dynamic

Regional / local & bottom up dynamic

Private enterprise / economic

values

Public / social / environmental

values

A1Entrepreneurial

urban governance as intermediary for

private global actors &

processes

A2Localized

enterprise-focused urban governance, run by & for private

elites

B2Localized

community / welfare focused

participative governance

B1Coordinated multi-level governance in

context of re-emerging public

discourse & regime construction

Urban governance - scenario space

Global / macro & top-down dynamic

Regional / local & bottom up dynamic

Private enterprisePublic / social /

environmental values

A1Entrepreneurial

urban governance as intermediary for

private global actors &

processes

A2Localized

enterprise-focused urban governance, run by & for private

elites

B2Localized

community / welfare focused

participative governance

B1Coordinated multi-level governance in

context of re-emerging public

discourse & regime construction

Urban governance - scenario space

Positive / negative normative futures

External context / internal response

Wild card disruptors / catastrophes

Co-evolution & transitions

A1 – global privatized scenario

• Governance dynamics – dominant discourse of globalized economic growth

• Role of global elites into urban governance with overlap of private / public funding

• Local elites are connected to global and control the discourse

• Spatial dynamics - peri-urban zones of innovation & enterprise - new transport enables long commuting - modernization / ‘metropolitanisation’ of rural areas: enterprise-focused coordination of local / regional areas

B2 – local community dynamic

• fragmentation of cities in terms of age, origin, culture & ethnicity geopolitical tension

• ethnic / cultural divisions in cities, pressure from migration & demographic imbalance

• Governance – participative but likely to be capture by local social / cultural elites

• Spatial dynamics - younger migrants dominate city centres, elderly populate the outskirts & enclaves outside the cities….

• peri-urban areas become ‘peri-society’ areas.

Mummy why is their windmill bigger than

ours? Ssh !!... we don’t talk about the

neighbours

PAST FUTURE

Opportunities

Solutions

Visions Discourses

Framing & mapping the problematique space

POSITIVES

NEGATIVES

Problems

Challenges

PAST FUTUREAnalyses

Opportunities Objectives

Agendas & issues Solutions

Visions Discourses

Framing & mapping the problematique space

POSITIVES

NEGATIVES

Values

Problems Trends & projections

Challenges

From problems to solutions / challenges / prospectives

From problems to solutions / challenges / prospectives

Mr President, we brought you some energy

scenarios

Thanks…

a) Urban strategic policy intelligence - anticipatory

processes for EU level policy discourses

b) Evolving systems of relational

knowledge / co-intelligence

c) Forming urban “challenges” into practical urban

“policy agendas”

City-state 21

Riding the urban wave in a turbulent world

“World’s largest feasibility study” – linking spatial, economy, environment,

society, governance.

“World’s largest business strategy” – shared intelligence for the relational economy

Joined up thinking... (in progress)

“Environment and the City” - critical

perspectives on the urban environment around the world

Governance challenges DG REGIO Cities of Tomorrow 28-29 June 2010 Joe Ravetz Centre for Urban &...

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