Public accountability to residents in contractual urban redevelopment (PARCOUR)

Lead Research Organisation: University of the West of England
Department Name: Faculty of Environment and Technology

Abstract

Contracts, deeds, by-laws and other regulatory instruments are used as planning tools to regulate actors (from the public, private and civil sectors) involved in the regeneration of previously developed land. PARCOUR argues that contractual relationships create a specific form of governance that have important implications for the democratic legitimacy of projects for Sustainable Urban Development (SUD). More specifically by studying diverse planning tools in Brazil, UK and the Netherlands, PARCOUR will engage in the comparative evaluation of public accountability in relation to residents. It is also important to acknowledge that both the realisation of the public interest through the use of these planning tools and the accountability of the public sector in contractual processes are under researched. This topic is relevant to section 3.2.3 of the Call on "Governance and Democracy", specifically to the "Poverty, inequality and vulnerability" section in answering "How governance decisions on the urban environment interact with land, property markets, rights, and the private sector. And the extent to which planning tools take account of these interactions."

The main outcome of PARCOUR will be the clear evaluation of public accountability, and clear definition of public interest, focusing on dissemination of this knowledge among public authorities with interactive research. The project has 3 phases: 1) Desk research: Understanding different ways in which the public interest is constructed and operationalised in diverse contexts; 2) Field work and analysis: Testing the legitimacy of the planning tools that are able to implement actions for the public interest; 3) Dissemination: Distributing the results to academy and practice.

Planned Impact

PARCOUR will fill knowledge and practice gaps in the field of urban regeneration projects with private sector involvement in terms of the role of public accountability and public interest for SUD. The focus on contractual relationships sheds light on this field, which has not been explored in a comparative manner. The impact of the project will be of value not only in the regeneration field but also through its exploration and analysis of the practice of complex governance structures. The use of a comparative perspective will further strengthen the contribution of the project by allowing us to gain a better understanding of what is peculiar to each country while revealing what transcends these peculiarities in our increasingly global world where actors, particularly private developers, often operate across continents.
Expected beneficiaries: academics and public policy makers. PARCOUR will reveal the main challenges of protecting the public interest in such projects and disseminate the results to relevant policy and decision making communities, who, otherwise, lack access to such comprehensive evaluations. Moreover, some of the potential beneficiaries will be involved in the research via the PABs. Through PABs we aim to find pathways to a wider range of organisations and actors that are influential in decision making processes. The results will be communicated in the form of regular newsletters, social media and planned publications. Finally, though indirectly, residents of regeneration areas will also profit from the results of this project. The research results will be regularly reported to the participating funding agencies.
 
Description Drawing on the nine cases studies carried out in the UK, the Netherlands and Brazil it is possible to identify a number of factors that facilitated the successful development of Previously Developed Land (PDL) involving public-private partnerships. We have identified three prerequisites that will increase the effectiveness of policies aimed at PDL: 1) governance structures that create links between different levels and stakeholders; 2) the presence of a strategic vision; and 3) clearly defined targets for the project:
1. Vertical governance structures are needed that create robust working relationships between different levels (from national to regional to city and project levels) and stakeholders (public, private and civil society) and horizontal governance structures that provide better opportunities for collaboration and facilitate effective implementation processes at city and project level;
2. A strategic vision that all those involved in the project 'buy into'. This is required in order to provide a long term basis that creates a clear focus for the public authority, private developers and civil society partners whilst allowing for flexibility in terms of the outcomes for the project and the wider city :
3. Clearly defined and accountable targets are needed for the sustainability of the community that is affected by the regeneration project. These should ensure that communities located in or adjacent to developments are not adversely affected by them (e.g. through displacement) and benefit from them (e.g. access to affordable housing and enhanced public spaces).
Overall what our research makes clear is that there is a need to ensure that from the conception of a project, the development of its design and its financing and implementation it is necessary to combine all of the above lessons within a clear framework that provides a negotiated and agreed vision for the area, a framework for collaboration and cooperation in which partners have clear roles (what, where and when) and can be held to account. However, this framework should not be too rigid and so inflexible that it prevents the project from adapting to changing external circumstances (such as economic downturns). Moreover, there needs to be clearly specified mechanisms for delivering benefits to the local stakeholders through provision of affordable housing, training opportunities and access to public space if the developments are to be genuinely inclusive. Without this sustainability may be limited to the economic and environmental dimensions (in the sense of better densities and use of infrastructure) but without addressing social sustainability Finally previous 'conventional wisdom' while instructive should not be slavishly adhered to and new more innovative forms of development (e.g. allowing developments that 'mix and match' different small scale uses in an 'organic' manner) should be allowed particularly on sites that are considered to be marginal to the existing city. Such flexibility will make these sites potential examples of innovative new forms of development that will help reinsert them back into the rest of the city and inspire other similar developments.
Exploitation Route The findings across our nine case studies reveal the complexity and variety of public-private partnerships engaged in urban redevelopment processes of Previously Developed Land (PDL). They point to the need, where possible, to create governance arrangements that facilitate development while guaranteeing accountability and transparency. In addition in the UK our research has identified the important role that environmental and heritage regulations can have for the governance and planning/regulation of urban development involving waterfront areas. In particular the significance of 'flood risk' will alert public and private partners of the need to take this into consideration at an early stage in their plans and to work with the relevant environmental agencies from an early stage in the process. The presence of listed buildings in the development area is also something that can significantly impact on the development and this should alert those involved to include them in their planning from an early stage in the development process.
Following on from the above our research has identified the importance of involving the 'right' type of partners in any public-private partnership. Ideally partners, particularly the lead private developer should take a long-term perspective on the site. In addition other public bodies should be prepared to engage in, and develop, new ways of working that provide a range of social benefits and outcomes that are beneficial not only the site but also to the wider community.
It is also important to ensure that all partners are clear about their responsibilities within the partnership and that they fulfill them vis-a-vis other partners. In sites that are considered 'marginal' both in terms of return on investment and in relation to the rest of the urban area there should be greater scope for experimentation and innovation in terms of design and use. In particular such sites can be used to encourage the set-up of small businesses and a range of different types of housing. Such sites do not necessarily require a single lead developer, rather than can be allowed to develop in a more 'organic' manner within a general framework established by public authorities.
Finally where sites are in need of remediation (e.g. to remove pollution) and infrastructure investment this will not happen within significant financial inputs from the public sector.
Sectors Communities and Social Services/Policy,Construction,Environment,Government, Democracy and Justice,Culture, Heritage, Museums and Collections,Retail,Transport
URL http://www.urbantransformations.ox.ac.uk/
 
Description The PARCOUR Policy Handbook was distributed to the National Advisory Board members of each participating university who in turn distributed it to the relevant policy communities in their countries. It was also placed on the ESRC Urban Transformations website for further dissemination. Individual members of the research team also distributed the Handbook through their own networks of contacts. The Handbook brings together the policy recommendations from the project aimed specifically at those engaged in public-private urban regeneration projects. We envisage that the Handbook will be used in teaching aimed at undergraduates and postgraduates in relevant professional courses and those engaged in regeneration projects. In 2019 a Themed Issue of European Planning Studies (Volume 27, Issue 6) was published based on the PARCOUR project. The Guest Editors were: Tuna Tasan-Kok, Rob Atkinson & Maria Lucia Refinetti Martins. This Themed Issue has been widely accessed since its publication.
First Year Of Impact 2018
Sector Communities and Social Services/Policy,Environment,Financial Services, and Management Consultancy,Government, Democracy and Justice
Impact Types Societal,Economic,Policy & public services
 
Description Conference presentation 
Form Of Engagement Activity Participation in an activity, workshop or similar
Part Of Official Scheme? No
Geographic Reach International
Primary Audience Other audiences
Results and Impact This was a conference presentation by members of the PARCOUR team - Rob Atkinson, Andrew Tallon and David Williams - Governing Urban Development: Planning and regulatory tools in the UK, AESOP Conference, Lisbon, Portugal, July 2017. This was part of a special session devoted to the PARCOUR project within Track 15 Law and planning under societal challenges. Members of the Brazilian, Dutch and UK teams participating in PARCOUR all presented papers in this special session along with an additional invited participant -Professor Mike Raco.
Year(s) Of Engagement Activity 2017
URL http://aesop2017.pt/images/Congresso/proceedings/Book%20of%20Proceedings%2020171215.pdf
 
Description Conference presentation 
Form Of Engagement Activity A talk or presentation
Part Of Official Scheme? No
Geographic Reach National
Primary Audience Postgraduate students
Results and Impact This was a presentation by a member of the PARCOUR team to students and early career academics. David Williams - 'Funding the public good in urban regeneration', RSA Student and Early Career Conference, Newcastle, November 2017.
Year(s) Of Engagement Activity 2017
 
Description Conference presentation 
Form Of Engagement Activity A talk or presentation
Part Of Official Scheme? No
Geographic Reach International
Primary Audience Other audiences
Results and Impact A conference presentation by members of the PARCOUR team: Rob Atkinson, Andrew Tallon and David Williams - Emerging forms of governance in urban development: the role of contractual relations in public accountability, European Urban Research Association Conference, Warsaw, June 2017.
Year(s) Of Engagement Activity 2017
 
Description Conference presentation 
Form Of Engagement Activity A talk or presentation
Part Of Official Scheme? No
Geographic Reach International
Primary Audience Professional Practitioners
Results and Impact This was a presentation given by a member of the PACOUR team - David Williams - "Follow the Money": Untangling the complexity of urban regeneration in the UK, iBuild Conference, Leeds, April 2017. Link to PARCOUR blog: https://parcourresearch.com/follow-the-money/ . Conference Link: https://conferences.leeds.ac.uk/valuing-infrastructure/
Year(s) Of Engagement Activity 2017
 
Description David Williams -'Bearing the burden of risk in urban regeneration: A comparison of PPP schemes in Brazil, the Netherlands and the UK', Annual Congress of the Association of European Schools of Planning, Gothenburg, 10-14 July, 2018. 
Form Of Engagement Activity Participation in an activity, workshop or similar
Part Of Official Scheme? No
Geographic Reach International
Primary Audience Postgraduate students
Results and Impact This paper/presentation was designed to disseminate the findings of the PARCOUR project in relation to the nature of risk, based on case study research, and how the burden of risk was shared among different participants involved in public-private urban regeneration projects in the three countries.
Year(s) Of Engagement Activity 2018
 
Description David Williams -'Bearing the burden of risk in urban regeneration: A comparison of PPP schemes in Brazil, the Netherlands and the UK', Annual Congress of the Association of European Schools of Planning, Gothenburg, 10-14 July, 2018. 
Form Of Engagement Activity Participation in an activity, workshop or similar
Part Of Official Scheme? No
Geographic Reach International
Primary Audience Postgraduate students
Results and Impact This was intended to communicate a particular aspect of the PARCOUR research about the nature of risk in urban development projects based on the case study research in Brazil, the Netherlands and the UK.
Year(s) Of Engagement Activity 2018
 
Description PARCOUR HANDBOOK: Handbook of Effective Policy Delivery in Contractual Urban Regeneration 
Form Of Engagement Activity Engagement focused website, blog or social media channel
Part Of Official Scheme? No
Geographic Reach International
Primary Audience Policymakers/politicians
Results and Impact Contracts, deeds, by-laws and other regulatory instruments are used as planning tools to regulate actors (from the public, private and civil sectors) involved in the regeneration of previously developed land. The PARCOUR project argues that these contractual relationships run the risk of creating specific forms of governance that have important implications for the democratic legitimacy of projects carried out by public and private sector stakeholders. More specifically by studying diverse planning tools in Brazil, the UK and the Netherlands, PARCOUR engaged in the comparative evaluation of public accountability, which is on the one hand becoming more complex and difficult to understand due to private sector involvement, and more focused and operational on the other. By specifically concentrating on selected case studies of urban regeneration projects of previously developed land in the three countries, the project went into the details of legal documents that structured the involvement of the private sector in urban regeneration, investigated the impacts of new meanings, forms and control instruments related to public accountability in recent years with reference to the learning processes of the public sector. This handbook aims to share our main findings and policy recommendations especially with those who are engaged in urban regeneration that includes private sector involvement.
Year(s) Of Engagement Activity 2018
URL http://parcourresearch.com/wp-content/uploads/2018/10/Parcour-Handbook-on-Effective-Policy-Delivery....
 
Description PARCOUR HANDBOOK: Handbook of Effective Policy Delivery in Contractual Urban Regeneration 
Form Of Engagement Activity Engagement focused website, blog or social media channel
Part Of Official Scheme? No
Geographic Reach International
Primary Audience Professional Practitioners
Results and Impact Contracts, deeds, by-laws and other regulatory instruments are used as planning tools to regulate actors (from the public, private and civil sectors) involved in the regeneration of previously developed land. The PARCOUR project argues that these contractual relationships run the risk of creating specific forms of governance that have important implications for the democratic legitimacy of projects carried out by public and private sector stakeholders. More specifically by studying diverse planning tools in Brazil, the UK and the Netherlands, PARCOUR engaged in the comparative evaluation of public accountability, which is on the one hand becoming more complex and difficult to understand due to private sector involvement, and more focused and operational on the other. By specifically concentrating on selected case studies of urban regeneration projects of previously developed land in the three countries, the project went into the details of legal documents that structured the involvement of the private sector in urban regeneration, investigated the impacts of new meanings, forms and control instruments related to public accountability in recent years with reference to the learning processes of the public sector. This handbook aims to share our main findings and policy recommendations especially with those who are engaged in urban regeneration that includes private sector involvement.
Year(s) Of Engagement Activity 2018
URL http://parcourresearch.com/wp-content/uploads/2018/10/Parcour-Handbook-on-Effective-Policy-Delivery....
 
Description Regional Studies Association Conference (London) 
Form Of Engagement Activity A talk or presentation
Part Of Official Scheme? No
Geographic Reach National
Primary Audience Postgraduate students
Results and Impact The PARCOUR Research Associate (Dr. David Williams) presented a paper (A comparison of public-private partnership development of previously used land in the UK) on behalf of the UK research team at the Regional Studies Association - Winter Conference, 2016, Holiday Inn Bloomsbury, London.
Year(s) Of Engagement Activity 2016
 
Description Rob Atkinson, Andrew Tallon & David Williams - 'Public-Private Partnerships in urban development: Unpacking the governance dimension', International Geographical Union Conference, September 4th - 5th, 2018, Lisbon. 
Form Of Engagement Activity Participation in an activity, workshop or similar
Part Of Official Scheme? No
Geographic Reach International
Primary Audience Postgraduate students
Results and Impact This was a paper/presentation designed to discuss and explain the nature of the different governance arrangements described as public-private partnerships developed in the three participating countries (Brazil, the Netherlands and the the UK) to carry out urban regeneration projects. It illustrated the different forms of governance arrangements developed and how they were embedded in a much wider network of multi-level relationships and how each public-private partnerships accessed and combined different flows of resources. In addition it examined issues of accountability and transparency.
Year(s) Of Engagement Activity 2018
 
Description Rob Atkinson, Andrew Tallon & David Williams - 'Public-Private Partnerships in urban development: Unpacking the governance dimension', International Geographical Union Conference, September 4th - 5th, 2018, Lisbon. 
Form Of Engagement Activity Participation in an activity, workshop or similar
Part Of Official Scheme? No
Geographic Reach International
Primary Audience Postgraduate students
Results and Impact This presentation/paper was designed to illustrate the complex nature of multi-level governance relationship in which public-private urban regeneration projects are involved in. It demonstrated how such projects combine complex flows of resources from a variety of different sources. In addition it also considered issues of transparency and accountability.
Year(s) Of Engagement Activity 2018
 
Description Special session -'Contractual urban regeneration: risks and control instruments for public accountability', Annual Congress of the Association of European Schools of Planning, Gothenburg, 10-14 July, 2018. 
Form Of Engagement Activity Participation in an activity, workshop or similar
Part Of Official Scheme? No
Geographic Reach International
Primary Audience Postgraduate students
Results and Impact This was a special session within the 2018 Annual Congress of the Association of European Schools of Planning designed to disseminate the findings of the PARCOUR project to a wide audience of academics (established and postgraduate).
Year(s) Of Engagement Activity 2018,2019
 
Description Special session -'Contractual urban regeneration: risks and control instruments for public accountability', Annual Congress of the Association of European Schools of Planning, Gothenburg, 10-14 July, 2018. 
Form Of Engagement Activity Participation in an activity, workshop or similar
Part Of Official Scheme? No
Geographic Reach International
Primary Audience Postgraduate students
Results and Impact This paper/presentation was designed to disseminate the findings of the PARCOUR project to a wide ranging audience of established academics, post-graduate students and planners. The event was well attended and the panel of presenters from the project was supplemented by other experts in the field.
Year(s) Of Engagement Activity 2018