The regeneration of low income housing
estates in England and Germany
When dwellings become obsolete or even vacant, the usual response by landlords or politicians would be: tear them down. However by doing so, part of the local history, which is also the history of the people still living there, will be destroyed. In Germany during the 1970s and 1980s, people in the Ruhr area, which was facing the closure of coal mines and steel plants for several decades, started thinking out of the box. Instead of demolishing them, plans were developed to find a new use for the old factory buildings and to retain the adjacent housing estates. Some ten years iater, the same trend could be observed in England.
Both countries have since developed
tools to fight the negative consequences of popuiation decline in old industrial areas. These tools include: the German "building exhibitions" (IBAs) and the English "housing market renewal pathfinders" (HMRPs). This paper will focus on these tools and especially on projects that aim to reuse existing dwellings to help revive an area. Chimney Pot Park within the Manchester Salford Housing Market Renewal Pathfinder area and Schüngeiberg Garden City, part of the IBA Emscher Park, will be taken as examples. Before moving on to these projects each section will start with a general description o f t h e area, followed by a short discussion of the main goals
Germany: IBA Emscher Park
The Ruhr area is a g o o d example of a f o r m e r industrial region t h a t has lost most of its traditional lieavy industry. It aiso lost some 1 0 % of its p o p u l a t i o n b e t w e e n 1960 a n d 2 0 1 0 ( w w w . metropoleruhr.de). As early as t h e second half of t h e 1950s, t h e first signs of t h e retreat of t r a d i t i o n a l heavy industry became visible. W h i l e r e s t r u c t u n n g plans c o n c e n t r a t e d o n a diversification of t h e e c o n o m i c structure, coal m i n i n g a n d the steel industry w e r e still t o play an i m p o r t a n t role. During t h e 1980s, a more radical approach was a d o p t e d . In 1989 the IBA (Internationale Bauausstellung - International Building Exhibition) Emscher Park was f o u n d e d by t h e regional state o f N o r t h Rhine-Westphalia and 17 local authorities, all situated in the n o r t h e r n part of t h e Ruhr area. Total investment was more than EUR 2.5 billion, a b o u t a t h i r d of w h i c h was provided by t h e private sector. Goals included i m p r o v i n g a n d restoring t h e natural e n v i r o n m e n t , f i n d i n g n e w uses f o r industrial buildings and i m p r o v i n g t h e existing housing stock (Shaw, 2 0 0 2 ) .
Thus, apart f r o m flagship d e v e l o p m e n t s like t h e o p e n i n g of n e w museums and t h e creation of big landscape parks, IBA Emscher Park also included t h e regeneration of (social) housing estates, including 3 0 garden cities.
To house the g r o w i n g p o p u l a t i o n d u r i n g t h e late 19th a n d early 2 0 t h centuries, several n e w n e i g h b o u r h o o d s were be built. M a n y of these n e w n e i g h b o u r h o o d s became q u i t e o v e r c r o w d e d .
In order t o have a fit a n d loyal w o r k f o r c e , a n d t o avoid social unrest, many companies started t o build their o w n garden cities.
As a result, most of these garden cities are situated close t o a coal mine or a big factory. They are a quiet oasis in an o f t e n noisy a n d dirty e n v i r o n m e n t . A n d they are places w h e r e everyone k n o w s each o t h e r and shares t h e same expenences. Now, m o r e likely t h a n not, the factory or coal mines are closed. Groups of i m m i g r a n t s w i t h different cultures have moved into t h e garden cities. The area will possibly have seen a period o f decay a n d plans t o tear d o w n some or even all dwellings exist. A f t e r a scheme t o demolish t h e Eisensiedlung (Iron Town) in Oberhausen w a s a b a n d o n e d in t h e 1970s because of p o p u l a r o p p o s i t i o n (see e.g. Raines, 2 0 1 1 ) , garden cities w e r e increasingly seen again as providing g o o d and affordable living. In the e n d , many of t h e m w e r e regenerated w i t h public money, o f t e n as part of t h e IBA Emscherpark. Schijngelberg in Gelsenkirchen is a g o o d example. Schüngeiberg consisted of a b o u t 3 0 0 dwellings and was built b e t w e e n 1897 and 1 9 1 9 f o r the colliers of n e i g h b o u r i n g coalmine " H u g o " . Between 1916 a n d 1919 a plan was developed t o extend the garden city w i t h a f u r t h e r 2 0 0 dwellings. However, due t o financial problems, this d e v e l o p m e n t never t o o k place. D e m o l i t i o n of t h e estate was p l a n n e d in t h e 1970s, b u t prevented by t h e inhabitants. However, it remained unclear w h a t w o u l d h a p p e n in t h e long run (Beierlorzer and Boll, 1999).
W T h e IBA m a d e it possible t o refurbish t h e existing d w e l l i n g s o f S c h ü n g e i b e r g . It w a s also d e c i d e d t o finally b u i l d t h e 2 0 0 d w e l l i n g e x t e n s i o n . The increased p o p u l a t i o n m a d e it possible t o create a village c e n t r e . In t h e n e w p a r t of t h e estate, t h e o n g i n a l street p l a n , charactehsed by w i n d i n g streets, w a s n o t kept. Instead, it w a s d e c i d e d t o create l o n g s t r a i g h t streets, m a n y o f t h e m o f f e r i n g a v i e w t o t h e n e i g h b o u n n g slap heap (Halde) w h i c h w a s c h a n g e d i n t o a park w i t h a m o n u m e n t o n t o p . I m p r o v i n g t h e e n v i r o n m e n t w a s also p a r t o f t h e project, w i t h t h e local b r o o k playing an i m p o r t a n t role in cleaning w a s t e w a t e r , w h i l e a t t h e same t i m e p r o v i d i n g a green b o r d e r t o m o s t
o f t h e estate (Beierlorzer a n d Boll, 1 9 9 9 ; o w n observations).
It was a t t e m p t e d t o include the Turkish community, w h o also came t o live in the area, in t h e consultation and decision making process (Beierlorzer and Boll, 1999). However, according t o Waltz (2007), t h e c o m m u n a l garden, w h i c h played an i m p o r t a n t role in Turkish c o m m u n i t y life, was destroyed t o make w a y f o r the n e w dwellings. Also rents w e r e increased, w i t h o u t dwellings becoming any larger and w i t h o u t paying attention t o t h e specific needs of the local people. "The only t h i n g Turkish a b o u t it was t h e name of t h e street, w h i c h ran t h r o u g h the f o r m e r c o m m u n a l garden: Tepe' Street = M o u n t a i n Street, t h e result of a c o m p e t i t i o n . " •
England: Manchester/Salford Housing i\/larl<et Renewal Pathifinder
A l t h o u g h contrary t o G e r m a n y England does n o t have a shrinking p o p u l a t i o n , housing m a r k e t p r o b l e m s can be q u i t e e x t r e m e in s o m e areas w h e r e a l m o s t all industrial e m p l o y m e n t w a s lost. In s o m e streets a n d f o r some types of d w e l l i n g s , d e m a n d became virtually non-existent. This was especially t h e case in parts of n o r t h e r n England. Here t h e p o p u l a t i o n had been shrinking f o r several decades. In the N o r t h w e s t (Greater Manchester, Lancashire, Merseyside) e.g. b e t w e e n 1 9 9 0 a n d 2 0 0 0 t h e n u m b e r of i n h a b i t a n t s declined by 2 . 3 % . In many cities, like M a n c h e s t e r ( - 1 0 . 4 % ) a n d Salford ( 6 . 4 % ) , t h e loss o f p o p u l a t i o n w a s even w o r s e . During t h e same t e n years in England as a w h o l e , the p o p u l a t i o n g r e w by 6 . 9 % . From 2 0 0 0 until 2 0 1 0 , t h e p o p u l a t i o n o f t h e N o r t h w e s t r e m a i n e d roughly stable, w i t h some cities like M a n c h e s t e r even s h o w i n g a small p o p u l a t i o n gain.
The national g o v e r n m e n t ' s response t o this p r o b l e m of w e a k local d e m a n d f o r housing was t o set up nine Housing M a r k e t Renewal Pathfinders (HMRPs). Pathfinder areas are selected areas t h a t receive g o v e r n m e n t m o n e y t o help t h e m solve their housing m a r k e t problems ( O D P M , 2 0 0 3 ) . Initially t h e g o v e r n m e n t created a GBP 5 0 0 million f u n d f o r a three-year p e r i o d , w h i c h was e x t e n d e d t w i c e w i t h more f u n d i n g available. In 2 0 1 0 , the
newly elected g o v e r n m e n t a n n o u n c e d t h a t a review o f t h e HMRPs was under way. The scheme was abolished in M a r c h 2 0 1 1 .
Like t h e e i g h t o t h e r ones, t h e M a n c h e s t e r / S a l f o r d HMRP f o c u s e d on d e m o l i s h i n g e m p t y d w e l l i n g s and m a k i n g t h e remaining d w e l l i n g s (existing or newly built) m o r e attractive.
The Manchester/Salford HMRP "has generally p r o m o t e d mixed c o m m u n i t i e s by i m p r o v i n g each n e i g h b o u r h o o d f o r existing r e s i d e n t s " . However, " i n some areas n e w homes are markedly d i f f e r e n t t o t h e existing housing offer, a n d principally a i m e d at a more a f f l u e n t m a r k e t " ( A u d i t C o m m i s s i o n , 2 0 0 8 ) . C h i m n e y Pot Park is a g o o d example. This part of central Salford w a s regenerated by Urban Splash, a UK architectural and m a r k e t i n g c o m p a n y w e l l k n o w n f o r its r e g e n e r a t i o n projects in run d o w n urban areas. Terraced f a m i l y houses w e r e c o m p l e t e l y refurbished, w i t h only their f r o n t facades being m a i n t a i n e d . The idea was t o keep t h e architectural heritage of t h e area, at the same t i m e p r o v i d i n g m o d e r n d w e l l i n g s w i t h all t h e m o d cons. Originally, it was i n t e n d e d t o keep more of t h e original structure in place, b u t f o r fiscal reasons t h e plans w e r e c h a n g e d . In t h e United K i n g d o m , VAT (value-added tax) must be paid for t h e r e f u r b i s h m e n t of d w e l l i n g s , w h i l e n e w b u i l d i n g is e x e m p t f r o m VAT. By d e m o l i s h i n g all b u t t h e f r o n t facades, t h e estate c o u l d be classified as " n e w " ( C o m m i s s i o n f o r A r c h i t e c t u r e a n d the Built Environment).
About the author
André iViulder studied human geography and is now assistent professor of Housing Systems at the Department of Real Estate and Housing, Faculty of Architecture, Delft University of Technology. His current research project is 'shrinking cities', an international comparison of housing policies in urban areas with a declining population.
3: Traditional terraced housing in Salford (Greater Manchester)
4: C h i m n e y Pot Park: n e w dwellings w i t h old facades (but n e w c h i m n e y pots)
In all, 2 2 7 d w e l l i n g s w e r e t o be built, w i t h t o t a l d e v e l o p m e n t costs a r o u n d GBP 3 4 m i l l i o n , i n c l u d i n g GBP 11 million p r o v i d e d by t h e public sector (of w h i c h GBP 7.3 million as p a r t of t h e M a n c h e s t e r / S a l f o r d HMRP).
Some local p a t h f i n d e r m a n a g e r s , w h e n s p e a k i n g o f f t h e record, w e r e quite critical a b o u t t h e a m o u n t of public m o n e y b e i n g s p e n t on a relatively small scale project, a l t h o u g h at t h e same t i m e a d m i t t i n g t h a t b o t h t h e p r o j e c t itself a n d t h e a t t e n t i o n it g o t , have helped t o p u t Salford in t h e s p o t l i g h t . Still, t h e y i n d i c a t e d t h a t it was n o t their decision t o ask Urban Splash t o help redevelop t h e estate. Instead, as o n e of t h e m p u t it, " t h e r e w a s s o m e pressure f r o m a b o v e " . I n d e e d , t h e t h e n Secretary o f State f o r C o m m u n i t i e s a n d Local G o v e r n m e n t , w h o was b o r n a n d raised in t h e area, t o l d The Times (4 July 2 0 0 8 ) :
"I d r a g g e d Tom B l o x h a m , t h e head o f Urban Splash, a r o u n d t h e area on three rainy Saturday m o r n i n g s a n d said he had t o help us. He kept saying: ' N o t h i n g I can d o . Hazel, n o t h i n g I can d o . ' Eventually he said he w o u l d give it a g o . " The n e w d w e l l i n g s , w i t h p a r k i n g facilities at g r o u n d f l o o r level covered by gardens, f e a t u r e
" u p s i d e d o w n " layouts, w i t h b e d r o o m s at t h e g r o u n d floor. M a n y d w e l l i n g s have o p e n plan kitchens at t h e second floor. They are a i m e d b o t h at f i r s t - t i m e buyers, n o t necessarily t r a d i t i o n a l families w i t h c h i l d r e n , a n d p e o p l e w a n t i n g t o stay in or return t o t h e area (e.g. f o r m e r residents of t h e d w e l l i n g s t h a t used t o be here).
The C h i m n e y Pot Park d e v e l o p m e n t does a t t r a c t s o m e criticism f r o m t h e local c o m m u n i t y . M a n y p e o p l e w h o lived in t h e houses t h a t w e r e t o be c o n v e r t e d , could n o t a f f o r d t o return in t h e n e w " u p s i d e d o w n " d w e l l i n g s They had t o m o v e t o o t h e r existing houses. A l t h o u g h t h e y g o t some help f r o m the municipality, t h e y d o n o t always feel they are b e t t e r o f f t h a n b e f o r e . The Salford Star, a local i n d e p e n d e n t n e w s p a p e r a n d w e b s i t e , tells m a n y stories o f p e o p l e b e i n g evicted f r o m t h e i r h o m e s a n d r e l o c a t e d t o h o m e s t h a t are either w o r s e or more expensive ( w w w . s a l f o r d s t a r . c o m ) . Others are a n g r y a b o u t t h e a m o u n t of public r e g e n e r a t i o n m o n e y t h a t w a s spent t o m a k e it all possible. Even if all 2 2 7 d w e l l i n g s w i l l be built in t h e e n d , a n d if t h e t o t a l i n v e s t m e n t o f public m o n e y w i l l still be l i m i t e d t o t h e GBP 11 million i n t e n d e d , this w o u l d a m o u n t t o a subsidy o f GBP 5 0 0 0 0 , or a b o u t EUR 6 0 0 0 0 a d w e l l i n g . y
Conclusion
The r e g e n e r a t i o n o f S c h ü n g e i b e r g , as p a r t o f t h e IBA Emscher Park, a n d t h a t o f C h i m n e y Pot Park, p a r t o f t h e M a n c h e s t e r / S a l f o r d HMRP, have a lot in c o m m o n . Both are b u i l d i n g on t h e (architectural) h e r i t a g e o f t h e area, b o t h are partly f u n d e d by public money. B o t h are a c o m b i n a t i o n of t h e r e t a i n i n g o f existing structures a n d n e w b u i l d i n g , albeit in a d i f f e r e n t way. A n d b o t h are a t least partially a i m e d at t h e local p o p u l a t i o n , p e o p l e w h o are living o r used t o live in t h e area, a l t h o u g h t h e a i m of social inclusion is m o r e clearly s t a t e d in t h e case of t h e IBA Emscher Park.
The H o u s i n g M a r k e t Renewal Pathfinders a n d t h e IBA Emscher Park are b o t h c l a i m e d t o be a success, a l t h o u g h it may be t o o early t o t e l l , especially f o r
t h e p a t h f i n d e r s . A b o u t t h e IBA Emscher Park, it can be said t h a t it h e l p e d c h a n g e t h e i m a g e o f t h e area f r o m grey industrial w a s t e l a n d t o s o m e t h i n g of a t o u r i s t a t t r a c t i o n . This w a s a g a i n stressed by t h e Ruhr area b e i n g o n e o f Europe's c u l t u r a l capitals in 2 0 1 0 . M a y b e t h e key t o its success is t h e c o m b i n a t i o n of t h e IBA b e i n g a large scale p r o j e c t a n d at the same t i m e a c o m b i n a t i o n o f over 100 small projects, all s h a r i n g s o m e g e n e r a l goals, b u t also b e i n g responsive t o local o p i n i o n a n d needs. The H o u s i n g M a r k e t Renewal Pathfinders seem t o be m o r e t o p - d o w n t h a n t h e IBA w a s , a n d m o r e c o n c e n t r a t e d o n c h a n g e (e.g. a t t r a c t i n g n e w c o m e r s t o t h e cities involved) t h a n on t r a d i t i o n .
Nevertheless, b o t h project s h o w t h a t t h i n k i n g o u t of t h e box can help t o create a n e w i m a g e
f o r run d o w n u r b a n areas. •
References
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Beierlorzer, H. and J. Boll (1999), " N e u e u n d alte Siedlungen als Erneuerungsimpuls für eine Region: Projekte der IBA Emscher Park", in H. Beierlorzer, J. Boll and K. Ganser, Siedlungskultur: Neue u n d alte Gartenstadte im Ruhrgebiet.
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