Dundee: Urban regeneration with a partnership approach

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Country:

a) Western Europe

b) United Kingdom

Language:
Type:	Policy, 1
Area:	City/Town, 100,000 - 1 mill.
Actors:	Local government, Regional government, National government, European Union, NGO, Other
Funding:	Local government, National government, Publ.-priv. partnership
Topics:	Architecture and construction
	Business and industry
	Employment
	Health
	Housing (and new settlements)
	Information and public participation
Objectives:	Improve living conditions
	Increase public awareness
Instruments:	Demonstration and pilot project
	Integrated planning approach
	New management structure
	Public participation

Abstract:

In the 1980s the problems of urban regeneration became obvious in many cities as the impacts of post-war urban planning and housing policies revealed their negative side of creating large housing estates. In Dundee the Whitfield area was selected as a model for a new partnership approach in Scottish urban policy that was chosen to develop, to coordinate and to implement a long-term regeneration of peripherical urban areas. The Dundee Whitfield Partnership is an outstanding example of this new policy for the following reasons:

• linking economic and social issues to physical regeneration;
• opting for a partnership approach with a great variety of stakeholders;
• creating effective planning arrangements and implementation bodies;
• setting up on-going monitoring and evaluation;
• inclusion of community-oriented issues of unemployment, health and security into the concept of urban regeneration.

Background and objectives

In the 1960's the "Housing Boom" created large built-up areas in many British cities. In Dundee the Whitfield Housing Estate was created with over 4,700 homes for approx. 12,000 people. The houses, all District Council stock, were of mixed types, ranging from desk-access and block maisonettes to flats, terraced houses and multi-storeys.

However, in the 1970s the estate gradually turned into a slum area as poor construction work and lack of shopping, medical and recreational facilities revealed their impact. Vandalism and crime were further negative impacts and unemployment and low income are additional burdens. In 1989 the unemployment figure in Whitfield was 47.5% compared to 12.5% in the city as a whole and 70% of the residents earned less than £ 5,000 per year. Over the years people started to move away and by 1988 the Whitfield area had only some 6,000 residents and a housing stock of around 4,400. This was the result of unsatisfactory planning, inferior house construction which included a lack of privacy and security, blurring the distinction between public and private space and large areas of vacant land which lay idle, as well as overprovision of open space which divided potential neighbourhoods and separated residents from community facilities. Heating was another outstanding problem which led to worsts of difficulties like dampness, draught and mould, unsatisfactory off-peak heating and complaints of poor windows and doors.

In the early 1980s concerned Whitfield people started to campaign for a change and in 1985 the so-called "Whitfield Talks" brought together people from the Districts and Regional Councils and members of the local community. They discussed not only housing problems but also issues of the environment and unemployment in the area. In cooperation with service providers and residents they finally agreed on proposals in three priority areas:

1. the need for an overall plan for housing and its associated environment;
2. the requirement for a Whitfield Employment Initiative;
3. a review of the provision of community services on the estate.

These priorities lead to the setting up of three working groups (Housing and Environment, Employment and Training, Community Services) which were in charge for the elaboration of strategies and steps for implementation. A first report on likely strategies was presented to the Secretary of State for Scotland in December 1988. The document was well timed to concur with the governments new review on urban policy in Scotland. The report "New Life for Urban Scotland" detailed the Government's view of how the problems of run-down peripheral estates in Scotland should be tackled.

The new approach was formed by the experience of inner area urban regeneration in Glasgow. However, it included the important lesson learned that there is a need to actively involve the local community, to encourage greater self-help, and to ensure that there was local support for steps to be taken to regenerate estates. Finally, four Scottish multiple deprivation areas were selected to become "partnerships", of which Whitfield in Dundee was one; the others are Castlemilk in Glasgow, Ferguslie Park in Paisley and Wester Hailes in Edinburgh.

Implementation

Project date and status

The Whitfield Partnership was formed in June 1988 and adopted its strategy in December 1988. It is an on-going project.

Strategy

As one of the four Urban Partnerships in Scotland the Whitfield area is subject to the key features of the new approach, namely:

• concentration on the regeneration of peripheral housing estates, in contrast to older inner urban areas;
• a relatively long time-scale of up to ten years;
• a multi-sectoral approach, involving physical, economic and social renewal;
• a concentration of resources intended to provide a critical programme mass;
• direct involvement of the Scottish Office in setting up the partnerships and in chairing their boards;
• a partnership concept that includes the participation of central government, local government, quangos, the private sector and the community.
• The new attempt differs from previous approaches in several ways:
• emphasis on enterprise rather than better targeting of public resources and welfare payments;
• the intended role of the community was greater, and that for the private sector was entirely new;
• little explicit attention to housing management.

Activities

The objectives of the Whitfield Partnership strategy centred on housing and the environment, jobs and community services. Education, health and crime prevention came on stream later in the process of implementation. The following activities took place:

Housing

Housing is one of the key issues, and objectives in this area relate to the principles laid down in the New Life Policy in 1988, namely to increase residents' responsibilities for housing, encourage of home ownership, housing associations and co-operatives, and improvement of supply and quality of housing. The partnership set itself the target to reduce the number of vacant houses by 50 per cent, to reduce turnover in deck access blocks to 20 per cent per year, to reduce overcrowding to the Dundee District average, and to provide each retained ground floor dwelling with a share of 'defensible space'.

Activities include targets of demolishing 1,600 council-owned deck-access dwellings, support for setting up housing associations, building 600 new houses in the housing association and owner- occupied sector, co-ordinating housing and environmental programmes, and measures in house security.

Environment

The strategy in the environmental sector was to bring about progress in the following areas:

• integration of Whitfield more fully into the structure of Dundee;
• improve accessibility within Whitfield;
• upgrading of open spaces and recreational facilities;
• creation of a better residential environment;
• general improvements to the environment.

From this starting point environmental activities can be divided into the categories of housing- related improvements and non-housing-related improvements. Housing-related improvements include work on footpaths, lighting, car parking, fencing, walls, clothes drying and refuse facilities, play areas, and anti-vandalism measures. Non-housing related improvements cover the creation of a park in the central part of Whitfield and the development of a community woodland. Other non- housing environmental improvements were carried out to the road and footpath network.

Employment

The strategy of the Whitfield Partnership regarding the problem of unemployment was to strengthen local inhabitants' employment base in the area which had 700 jobs in the public sector alone. The following approaches were adopted:

• create new opportunities for employment for local residents, including developing in the locality small businesses for individuals and groups;
• develop residents' skills and improve their abilities to compete for jobs;
• devise new training programmes, reflecting local needs;
• provide small workspaces locally in Whitfield or in areas readily accessible to Whitfield residents;
• improve provision information in Whitfield about job vacancies;
• target specific sectors of Whitfield unemployed residents for training.

The implementation of the strategy was supported by two full-time members of staff as extra resources for the Employment Service to the Whitfield area.

Health

Health is an important issue if one looks at the population structure of Whitfield. Prior to the elaboration of the Partnership Strategy data reveals that, compared with other areas in Dundee, the area had the highest proportion of children aged 5-15 in any Dundee estate (22%); the highest proportion of single parents in Dundee (20% compared to 7%); and the highest proportion of unemployed persons in Dundee (33% compared to 14%). The health objective was therefore to improve the range and quantity of health care provision. Measures included carrying out a feasibility study regarding upgrading the local clinic to a Health Centre; introduction of additional health promotion services (e.g. for children); setting up a programme of health education located at the clinic (e.g. regarding issues like smoking and alcohol); and conducting additional campaigns targeted at drug abuse and AIDS.

Crime

It is assumed that there is a direct connection between poor housing conditions and security problems. The Whitfield Strategy report concludes that the physical structure of the estate creates a feeling of isolation, and this was associated with a lack of defensible space. The desk-access housing, in particular, was perceived as not allowing residents to control what happened on their landings or elsewhere in the vicinity of their homes. In conclusion, four major housing and environmental problems were identified, which were seen as being closely related to the problem of crime:

• lack of definition between public and private areas;
• lack of privacy and security;
• planting trees and shrubs had resulted in unsafe areas;
• the central open space which divided the area and which separated residents from community facilities is especially dark.

The key objective was therefore to improve the quality of housing, the immediate environment and residents' privacy and security, in order to lower the fear of crime.

Partners

The structure of Whitfield Partnership has two main components, a board and sub-groups that deal with various aspects of strategy planning and implementation in the areas of housing and environment, community services, employment and training and monitoring and evaluation. The Partnership Board is chaired by a senior official of the Scottish Office, and comprises members from Dundee District Council, Tayside Regional Council, Scottish Homes, Scottish Enterprise Tayside, Tayside Health Board, Tayside Police, the Scottish Office, Employment Service, Dundee and Tayside Chamber of Commerce, Whitfield Business Support Group and Dundee Enterprise Trust. Whitfield residents are represented via the Steering Group which is formed by 20 members from seven designated areas. Within the Partnership members of the local community have four representatives on each of the sub-groups and a maximum of ten representatives on the board. The board is serviced by the Partnership Strategy Team which is located in Whitfield and handles the day-to-day running of the Partnership.

Financing and resources used

The information on Whitfield Partnership expenditure had to rely on official figures provided by the Partnership office as no further evaluation has taken place.

Whitfield Partnership expenditure (in £)

Element of Strategy 1988/89 to 1993/94 Percentage

Partnership Office 1,083,218 1.9%

Employment and Training 2,496,343 4.5%

Community Services 4,297,863 7.8%

Housing and Environment 47,654,000 85.8%

Total 55,531,424 100%

Source: Kintrea, Keith et al.1995: p.23

Results and impacts

Housing

The main idea of the Whitfield Partnership was to improve the quality of housing, to develop greater resident control and to increase the range of tenures and of house types in the area. The innovative element of the Partnership's policy was that it developed a clear strategy for housing which had been previously absent.

However, outcomes mainly take place in a small residential area. In particular, the housing association development activities have been divided between three associations or co-operatives (Ormiston People's Housing Co-operative, Kellyfield Co-operative and the Vale of Duntrune Community Housing Association VODCHA). By 1994 their activities resulted in the following outcomes: Ormiston had improved 96 deck-access flats and built 124 new terraced and semi- detached houses as well as new community facilities. Kellyfield has built 63 new house;. VODCHA has built 119 new terraced and semi-detached houses and intends to construct a total of 108 new houses.

Private building did also take place and a total of 76 new homes was built and sold by 1994. Scottish Homes provided grant assistance of approx. £ 90,000 to cover site servicing.

In the council house sector the intended 1,600 units were demolished. The remaining stock underwent improvements with comprehensive up-grading of 520 Skane-type houses, and basic external improvements for about 1,600 mixed-type houses which included mainly improvements to cladding and roofs.

Between 1988 and 1994 the range of tenures and house types in the area had undergone a substantial change:

House types and tenure 1988 and 1994

House type 1988 1994

Council housing

Flats and maisonettes 3,628 1,934

Houses 342 231

Housing Association

Flats and maisonettes 26 122

Houses 0 306

Private sector

Flats and maisonettes 214 236

Houses 13 267

Total - all tenures

Total flats and maisonettes 3878 (92%) 2292 (74%)

Total houses 355 (8%) 804 (16%)

4233 (100%) 3096 (100%)

Source: Kintrea, Keith et. al.: p.44

Environment

Environmental improvements have been carried out alongside housing improvements and in non- housing fields. These measures have significantly changed the aesthetic and functional appearance in local neighbourhoods and as household surveys revealed the physical changes altered the character and appearance of the estate which, in consequence, led to increased satisfaction among residents.

Employment

The employment issue was tackled by the newly established Job Placement Office Service which was run by two extra full-time members of the Dundee Employment Service. This unit fulfilled a key role in the fight against unemployment. Up to May 1994 there have been 11,257 applications to jobs, 1,640 placements in jobs, 270 placements in training and 191 placement in Job Clubs. In addition to the Job Placement Service, 308 people obtained employment via the Job Club. The total job placement effort amounts to over 2,000 people.

Health

The Partnership's programme in health implemented five programmes:

• upgrading the local clinic to a Health Centre: With the financial support of the Scottish Office (£ 270,000) the clinic was extended to a Health Centre. Upgrading enabled better delivery of services with larger waiting room facilities and amenities and new accommodation for local general practitioners;
• implementation of the Whitfield Health and Information Project: the four-year Urban Aid project attracted £ 80,000 and provided the services of a drop-in-centre for advice and information, a library related to health issues, provision of facilities for self-help groups, and provision of training for volunteers;
• implementation of the Whitfield Healthy Eating Project: with funding from the Scottish Office Home and Health Departments and the Tayside Health Board, a project on eating habits was carried;
• health projects for the local community: these initiatives included special health days and carrying out surveys on local health needs. The results helped to get information for the implementation of the Whitfield Health and Information Project;
• work on HIV and drugs: these issues of AIDS and drug abuse were discussed at a seminar and, in consequence, the Partnership allocated £ 23,000 from the Scottish Office to fund a drugs worker for one year to work in the area.

Crime

The main focus of security initiatives was the Dundee (North East) Safer Cities Project which was established in May 1990 as part of the Scottish Office Safer Cities campaign. The project consists of the following components:

• Home Security Programme: this programme included the installation of solid-core doors, angle irons, five-lever mortice locks, door viewers, chains and window locks to dwellings;
• Personal Attack Alarm Initiative: the initiative is mainly targeted on elderly people and approx. 3,000 personal alarms have been distributed;
• Women and Safety: two 'women and safety' evenings were held in Whitfield to inform and instruct women on techniques of self-defence.
• Safe Taysiders: this annual event is held for school children who are informed about issues of crime prevention and community safety. A total of 3,500 pupils take part every year.

Passport of Sport: this initiative is directed towards school children and aims to enable them to make constructive use of the holiday period through providing discounted access to some of Dundee's major sporting facilitates. Approx. 6,700 passports have been distributed.

Barriers and conflicts

Although the Whitfield Partnership has significantly improved urban life there are some elements of the policy which have not fulfilled the original features:

• Whitfield's community has not made a great impact on the planning process, but it has largely supported the regeneration plans and programmes for the area;
• a disappointing fact in the Whitfield Partnership is relatively small amount of private sector investment attracted. By 1994 total expenditure amounted to more than £ 55 million. However, only £ 5.7 million related to private sector capital spending on housing and loans by private institutes to housing associations accounted for a further £ 2.6 million. The result was a leverage ratio between public and private spending of approx. 6:1;
• improvements in main commercial facilities (e.g. shopping centre) have not been put into practice.

Lessons learned And transferability

The urban regeneration area of Dundee Whitfield can be regarded as a best case practice for its new multi-lateral planning approach. This planning philosophy deserves wide attention as it is likely to suit the urban planning process in other cities. The following aspects have to be mentioned if one looks for transferable components:

• the partnership approach brought more resources to the area;
• tenure diversification is largely due to the adoption of principles of partnership which were only realistic if cooperation between public, private and voluntary bodies was well organised;
• formal and regular forums of the Partnership provided common ground for mutually accepted outcomes;
• synergy effects have been achieved as far as non-housing aspects are concerned. The maximisation of benefits in fields like labour supply, training and education, health care, crime prevention have been tackled by new and innovative approaches. The outcomes directly experienced by the local community and there is a great acceptance of the new policy;
• the whole process of physical transformation has been reached within a relatively short time.

Source of Information

Kintrea, Keith / McGregor, Alan / McConnchie, Margret / Urquhart, Alison 1995: Interim Evaluation of the Whitfield Partnership. Centre for Housing Research and Urban Studies, University of Glasgow, Edinburgh

The Scottish Office 1993: New Life for Urban Scotland. Second Monitoring Report to the Partnership. August 1991 - December 1992, Edinburgh

Contact:

Cities:

Dundee :

Dundee is an administrative centre for the area of Tayside in Scotland, located on the Firth of Tay. It is the second most important industrial city in Scotland. It has a seaport which carries a major part of the traffic for the North Sea oil fields. In addition to engineering, textile processing and the electrical technology industry are important local industry and commerce fields. The city has a university (founded in 1881) as well as numerous art, technical and business higher education institutions.

Population:

Project was added at 24.11.1998
Project was changed at 21.08.2001