IN DEPTH

In future regeneration must offer a convincing

account of place and society and connect with
what people care about most. In the first of a
12-part series, Julian Dobson argues that we
need to bring regeneration home
Fans of the cult TV show Dr Who get it. Ever since the 1960s,
NITIES

NewStart
MU

RATION
| ECONOM
IC DEVELO
PMENT
| SUSTAIN
ABLE COM
followers of the charming Time Lord have known the Doctor
REGENE

JANUARY
2010 will be back. He’ll regenerate.
WWW.NEWST
ARTMAG
.CO.UK
For the destroyer of Daleks, regeneration is second
ROAD
THE SAMETO THE
WILL LEADATIONS...
nature. Whatever his opponents throw at him, he’ll be down
TIN
SAME DES
but not out. He won’t necessarily look the same, sound the
same, wear the same outfits or try not to flirt with the same
MAP A
...HELP US A FOR
companion – but the stuff that makes him the Doctor will
NEW AGENDRATION
REGENE
be constant.
Gardeners understand it too. The seed may look very
SHOW ME Y

volution different to the plant, but it contains within it all the

THE MONE

One man re
t advice on
New Exper funding
nt how to get
birth of a moveme
kins on the
Transition Tow
ns guru Rob Hop
genetic material the plant needs. There’s a continuity
and an identity that links it to the past and binds it to the
future. It regenerates.
Regeneration that works – the real thing – couples the
concepts of continuity and rebirth. A regenerated place is
the same, but different: reinvigorated and better equipped
for the circumstances that lie ahead, but with a sense of

In pursuit of the identity that roots it in the past and in networks of

people, and connects it to the future and the people
we will become. It’s a continuous process of survival and
strengthening.
But words like regeneration and transformation
have been devalued and debased by years of misuse and
definitions that tie them to the vagaries of policymakers
rather than the life of communities. Every pedestrianised
shopping centre is branded a transformation, every set
of uPVC windows a regenerated estate. Local identity is
diminished: according to the New Economics Foundation,
two fifths of our towns are ‘clone towns’. Regeneration risks
becoming yesterday’s buzzword, discarded through over-use.
It’s time to reclaim regeneration for the places and
communities that need it. Over the coming year, we’ll
explain how, where and why that needs to happen, and
show examples of real regeneration in action. But the
circumstances will be more testing in the next decade than
in the last one, so we need an approach that can carry us
through those challenges and beyond.
Above: the public
feeling inspired by WHERE THE HEART IS
Antony Gormley’s Throughout this series we’ll use the idea of home to explain
installation Another how we think regeneration needs to be grounded in our
Place has secured the communities. Governments and local authorities tend
artwork a permanent to talk not of home but of place, using concepts such as
place on Crosby beach localism, placemaking and place-shaping to describe actions
that have a spatial and local impact. Home is more than all
of these: it is what connects place with people.
There is a rich academic literature about home, but
regeneration practice tends to pay scant regard to it.
Academics talk of place attachment and place identity; as
the environmental psychologist Maria Vittoria Giuliani puts
it, ‘not only do we acknowledge the existence of an affective
bond with places, but also the importance that this can have
in qualifying our existence, whether positively or negatively.
And not just our individual, private, existence, but also the
existence of entire human groups’.
Home is an obviously physical concept. It’s bricks,
mortar, furnishings and decoration. It’s our neighbourhood,
town or city. When the energy company E-on decided to
knock down the Tinsley cooling towers in Sheffield in 2008,
one of the strongest protests from local people was that
when they saw the twin towers from the motorway or the
train, they knew they were nearly home. Home can refer
too to familiar or treasured landscapes on a wider scale
– London, Yorkshire, Wales, or Africa. It’s difficult to imagine
home without a spatial context.
But home is an intensely social idea too. What makes
a house home is the fact that we live there, and generally
with people we want to live with. What makes locality
home is the everyday social exchange of people: we
recognise faces, learn names, start to appreciate what’s
important or interesting to others. We might even join

18 | New Start | January 2010

 IN DEPTHL

We asked people on Twitter

their hopes for regeneration
for the coming decade. Here
are a few of their responses...
Susie Hay: I long for with economic and
people to take action environmental change.
without waiting for the
‘f’ word (funding) that Chris Doyle: Ubiquitous
gets all off the hook. No broadband for all in digital
funding equals freedom. Britain, bringing the UK
into the global digital
Yaser Mir: Include marketplace.
high quality design,
sustainability , equality Kelvin Owers: Tax breaks
and diversity – consider on saving existing
how all communities can buildings, and repurposing
live side by side. them. Less focus on
building new.
Toby Blume: Stop
regarding regeneration Simon Cooke: Confidence,
as something that can be motivation, initiative,
done without tackling enterprise and community,
underlying causes of not consultants and
poverty and inequality. architects.

real thing
Rob Greenland: A smaller Dan Thompson: Small,
State gets out the way locally distinct, community
and communities take the led ‘acupuncture’.
lead more. State works out
ways to support people to Crispin Moor: People
do things themselves. and enterprise focus.
Accountable and
in with some of it. You can live alone and still use home Colin Buchanan (planning performance managed.
socially – but where that interaction is missing or lost consultants): Increase Rural as much as urban.
individual wellbeing tends to suffer. the price of all modes of Less obsession with maps
Home is an economic construct, too. It’s where we spend transport to encourage and boundaries and
much of our money, and sometimes where we earn it. At city centre living, mixed buildings.
best, it’s an investment in ourselves and those close to us. use development and
It supports local businesses and provides local work. But at sustainable travel. Gary Kirk, Meden
worst, it becomes for the well-off an obsession with cash Valley Making Places:
values and a stepping stone to individual advancement Nick Poole: Reconnect to Tackle energy efficiency
that offers nothing to the surrounding community; and for simple everyday values, in properties, and a
many of the poorest, something that traps them in a place abandon the centrist state programme to address
they hate, stymies opportunities and limits life chances. and let people regain poor quality housing and
But even in the most economically difficult their dignity through open spaces.
circumstances or for the most mobile people, home has mutualisation.
huge cultural significance. Our attachment to unpromising James Kennell: More
plots of land can be remarkably fierce. Our investment Elizabeth Varley: Greatest ideological conviction
in our homes and localities is not just an investment of hope for regeneration is to make up for fewer
cash but of cultural capital and creativity. Planners and that all business becomes economic incentives!
developers ignore that at their peril. ‘social’ business – that
That attachment, though, can be strained. The most enterprise always means Giles Simon, Co-operatives
recent DCLG Place Survey found that although 80% of good for community as UK: Communities
people in England were satisfied with their area as a place well. investing in and taking
to live, only 59% felt they belonged to their neighbourhood over shops, pubs, local
and a paltry 29% felt they could influence decisions in Neil McInroy: Regeneration businesses, community
their area. And as the Young Foundation pointed out in its becomes proactive rather buildings, local services
recent study, Sinking & Swimming, people have become than reactive in dealing and housing.
!

significantly less happy. In 1991 seven million prescriptions

New Start | January 2010 | 19

IN DEPTH

In some places regeneration is a dirty word. This poem by Manchester performance

Concrete boulders
Regeneration A yellow workman’s hat
Diggers dig and cranes roar
The golden sun glistened above the dilapidated ruins that were once In an attempt to bring the community to the floor
humans’ homes Brick by brick and stone by stone
Shadows grow as the fiery planet slowly climbs Pull old buildings down
To the top of the world Build new homes
Radiating a spot
Where Mr Rolls lived This is how regeneration begins
Cries of children’s laughter People lose
Echo around the building site Contractors win
Entrancing the wolf that whistles bares its bum The chaotic destruction of whole communities
But rarely bites All in line with Government policy
Architecturally brainwashing
A white cooker stands high and alone Generation after generation
On a drumlin of sand soil and societal sediment
Once the fabric of people’s lives Barbed wire fences and floating dust
Large cranes and plant covered in rust
Green curtains are half drawn in the glassless window of a second Builders and joiners from out of town
floor flat Tear our houses shops and boozers down
And above But order must be carried out to the letter
The chaos of twisted steel Please the bosses and make things better
Jagged slabs
!

were issued for anti-depressant drugs; by 2007 that figure
had risen to 34 million.
One of the failures of much self-styled regeneration is
that it not only neglects to create attachment, but actively
undermines it, moving people when they don’t want to
be moved, assuming that what’s glossy and sanitised is by
definition better than the dog-eared and disorderly. It’s an
error of judgement that’s repeated ad nauseam as planners
and funders seek quick returns on their investment. And it
turns regeneration into a hate-word (see above).
Home, then, with its negative connotations as well
as positive, must be at the heart of any understanding of
regeneration. What regenerates a place or community –
the genetic material that makes it itself and not something
else – is also what creates home. Regeneration at every
scale is homecoming and home-making. It is not the
delivery of projects or the development of buildings but the
creation of meaning.
TEN YEARS FROM NOW, WILL WE NEED REGENERATION?
More than a century ago in News from Nowhere, William
Morris imagined a utopian Britain run on cooperative,
agrarian principles. He was a dreamer. His ideas were
ridiculed in favour of pushing forward the economic model
that gave us the Great Depression and Beveridge’s Five
Giants of squalor, ignorance, want, idleness, and disease.
A decade ago Tony Blair imagined a Britain where
nobody would be seriously disadvantaged by where they
lived (see New Start, December 2009). Despite being a more
achievable ambition, we’re no nearer it than we are to

20 | New Start | January 2010


poet Mike Garry and pictures by Ciara Leeming help to explain why
These people who redesign our lives
Live a million miles away with their wives
And kids who play on vast green lawns
Surrounded by blooming flower beds
But would swap it all for a Sunday with Dad
They are far away from floating dust speeding cars that maim and kill
A different kind of hurt
A different kind of pollutionville
Morris’s idyll. As the Young Foundation has demonstrated,
even what progress we have seen has been offset by greater
unhappiness as well as material inequality.
What’s clear from all the evidence is that the problems
facing our communities and society are more intractable
than most politicians and policymakers imagined.
Even when we have continuity of government, there’s
a discontinuity of policy. The Conservative governments
of the 1980s and 1990s gave us urban development
corporations, City Challenge, and eventually the single
regeneration budget. New Labour accelerated the policy
merry-go-round with the new deal for communities,
neighbourhood renewal fund, sustainable communities
plan, sub-national review of economic development and
regeneration, and much, much more.
IN DEPTHL
And when they have finished their rebuilding
Ex-homeless people begin to move in
They’re impressed for a month or
two
Then realise that the plastic glue
hardboard and Formica
That holds this fragile box together
Is just like Princess who scissored
the ribbon
On the outside pristine
And on the inside a midden
First they find large black cockroaches
Second big black rats
These house are built on flats
That were built on top of houses
That were built on a bog
Soon the houses begin to bend and bob
from side to side
Cracks appear and whole streets slide
Then a rat like councillor decides
This crime ridden area of dilapidation is
in serious need of regeneration
‘Let’s build things up and make things
fine
With a grant from sexy Heseltine’
£500 million already spent
And £44.90 collected in rent
Rebuilding doesn’t make problems
go away
It just creates new dumping grounds
For the poor the black the Irish and
the gay.
X Mike Garry can be contacted at mikegarry@hotmail.com. To
hear Mike reading this and other poems, visit his website at www.
cheersta.co.uk
Photos: Ciara Leeming
X Ciara Leeming’s pictures of housing regeneration projects in
northern England can be viewed at http://www.socialdocumentary.
net/exhibit/ciara_leeming/691 or at www.ciaraleeming.co.uk
Seen from the ground, these policies attract an abiding
critique: they are not given time to work, they are riddled
with arcane funding rules, and they turn the idea of
building skills and capacity from a process of nurturing into
yet more paperwork. And however benevolent the ministers
and civil servants, the perceived need to demonstrate that
government action is getting results makes it harder to learn
lessons, while in their eagerness to tick all the required
boxes local officials stifle initiative and invention.
A report for the Joseph Rowntree Foundation by Oxford
University researchers published in 2008 had the telling
subtitle, ‘Not knowing what works’. As the introduction
pointed out:
‘Since 1997, the government has implemented a raft
!
of person- and place-based policies to tackle disadvantage.
New Start | January 2010 | 21
! IN DEPTH

For the most part, these policies (person and place) have
developed separately within their specific domains...
However, this separation does not reflect a reality in which
poverty and disadvantage are mediated by place, and
places are affected by the poverty or otherwise of their
inhabitants.’
Even if we could get the policy mix and implementation
right, there are compelling reasons why regeneration will be
a continuing need. Think for a moment about the definition
drawn up by civil servants in the regeneration framework
document, Transforming places, changing lives (see panel,
below): ‘The government’s view is that regeneration is a
set of activities that reverse economic, social and physical
decline in areas where market forces will not do this
without support from government.’
The history of the last half century shows us that
economic, social and physical decline have gone hand in hand
with rising affluence. The economist Joseph Schumpeter
expressed this as ‘creative destruction’: to make way for the
new, the old must be demolished. But what in economic
and market terms is considered a good – innovation and
new products – brings social ills in terms of skills becoming
redundant, places losing their economic raison d’etre and the
personal costs of stress and unemployment.
One of the greatest policy failures of the last decade,
arguably, has been the unwillingness to recognise that the ‘One of the greatest policy failures of the last decade,
market forces that create prosperity and opportunity are
the very same forces that bring decline and deprivation.
arguably, has been the unwillingness to recognise that the
They create losers as well as winners, as surely as Strictly market forces that create prosperity and opportunity are
Come Dancing or X Factor. A 40-year analysis for the Joseph
Rowntree Foundation in 2007 found that spatial inequality
the very same forces that bring decline and deprivation.’
had worsened, with cities becoming more polarised
between rich and poor. The losers tend to be the same kind lasted three years. We applaud the winners, but who counts
of people in the same places. the cost to the losers?
Figures for business start-ups help to illustrate the The problem is that poverty of place becomes a self-
problem. Even in the prosperous years between 1995 and fulfilling prophecy: the places with the worst conditions are
2004, more than one third of firms failed to survive the first poorest, and because of their conditions, the ambitious leave
three years, and survival rates were lower in poorer areas. and those with resources to invest stay away. As the 2009
Only 57% of new businesses registered in Wolverhampton government strategy document, World class places, puts it:

It’s the way you tell ’em...

Regeneration
Here are some of the THE DEFINITION: ‘The government’s view is
that regeneration is a set of activities that
key terms used to reverse economic, social and physical decline
in areas where market forces will not do this
describe regeneration without support from government.’
Transforming places, changing lives
and related activities (DCLG, 2008)
Renaissance
THE DEFINITION: ‘Achieving an urban
renaissance is… about creating the quality
of life and vitality that makes urban living
desirable… We must bring about a change in
urban attitudes so that towns and cities once
again become attractive places in which to
live, work and socialise.’

in the last decade, PROS: Recognises regeneration as a complex

concept – it covers a range of activities and
along with some of interlocking problems.
CONS: Assumes regeneration is needed
the definitions offered because of ‘market failure’, which is a
late stage for effective intervention.
and a quick critique of Responsibility is placed firmly with
government. A top-down, economically
their pros and cons... biased interpretation.
Towards an Urban Renaissance, introduction
by Lord Rogers, 1999
PROS: Links place and people – it focuses on
creating places where people enjoy living.
Encompasses culture and quality of life.
CONS: A view of urban renaissance that
ignores poverty and inequality risks being
reduced to café culture for the middle
classes.

22 | New Start | January 2010

 IN DEPTHL

showed four million children living in poverty after housing

Poverty isn’t just about ‘Poverty in this country is not just about poor education,
a lack of jobs, education unemployment or low wages, and lack of opportunity. It is
or wealth, it’s about typically associated with poor housing and poverty of place
unsafe and bad housing – badly designed estates or low quality neighbourhoods,
design and low quality with dysfunctionally designed, energy inefficient homes,
neighbourhoods unsafe passage-ways and poor public spaces.’
In such a context, regeneration has to be a sine qua non
for a stable and cohesive society. Without constant action to
reinvigorate neighbourhoods and towns that are distressed,
and to generate new opportunities for people whose
potential has been frustrated, we face ever more severe
social consequences.
And those consequences are already severe enough.
costs are taken into account. For working age adults it was
seven-and-a-half million, and for pensioners two million.
Those are just the bald figures. As the department
stated in evidence to the Commons work and pensions
committee: ‘The impact of poverty on children goes well
beyond material disadvantage... Children who experience
poverty are more likely to have low self-esteem and lower
expectations for their future. They are more likely to be
poor themselves and there is a strong association between
parental earnings and the earnings of their children when
they enter work.’
But despite a wealth of analysis and initiatives, we seem
stuck with the same problems.
In 1998 the Social Exclusion Unit’s report, Bringing
Britain together, offered this critique of previous initiatives:
‘None really succeeded in setting in motion a virtuous
circle of regeneration, with improvements in jobs, crime,
education, health and housing all reinforcing each other.’
Ten years on, the 2008 Monitoring poverty and social
exclusion report concluded that the comprehensive vision
of the Blair government had been lost in favour of a crude
focus on worklessness:
‘Ten years ago, the challenge was to get child poverty
reduction added to the government’s agenda. Ten years
on, the challenge is to prevent it dominating the social
policy agenda to the exclusion of virtually all else….. the
answer is nowhere near as simple as “work is the route
out of poverty”.’
Does this mean, though, that we’re stuck in a
continuous loop of improvement and decline, boom
and bust, with regeneration acting as little more than
a government-dispensed palliative? That would be a
dispiriting case for regeneration indeed.
TOWARDS CITIZEN-LED REGENERATION
There is an alternative approach that takes us towards a
new, positive way of thinking about regeneration without

!
Department for Work and Pensions figures for 2007/08 glossing over the difficulties or resorting to utopian

Sustainable communities Placeshaping Localism

THE DEFINITION: ‘Places where people want
to live and work, now and in the future; that
meet the diverse needs of existing and future
residents, are sensitive to their environment
and contribute to a high quality of life. They
are safe and inclusive, well planned, built and
run, and offer equality of opportunity and
good services for all.’
Homes and Communities Agency
PROS: Condenses the comprehensive eight-point
approach to sustainable communities set out in
the Egan Review of 2004. Recognises the need
for a holistic approach that benefits everyone.
CONS: Risks being confused with the specific
agenda of environmental sustainability, which
is one part of the matrix.
THE DEFINITION: ‘The creative use of
[local authorities’] powers and influence
to promote the general wellbeing of a
community and its citizens.’
Lyons Inquiry, 2007
PROS: Recognises the importance of local
government as a champion for places and
citizens. Strong emphasis on creating local
identity and community cohesion and
representation.
CONS: Inward-focused and sets community
and citizen activity firmly in the context
of local authorities’ role – the approach
is somewhat paternalistic. It is also easily
confused with placemaking, a concept much
closer to the Egan vision.
THE DEFINITION: ‘We need to devolve down
decision-making to the lowest sensible
level… clear accountability, efficiency and
engagement are much more likely to be
achieved when this is the case.’
New Local Government Network, 2005
PROS: Associated with the devolution of
decision-making and a transfer of power
from central government. Links strongly with
ideas of neighbourhood renewal and civic
identity.
CONS: Still associated with local government
rather than citizens. You can have local
decision-making without tackling poverty
and disadvantage. The risk is that localism
becomes a euphemism for laissez-faire.

New Start | January 2010 | 23

 IN DEPTH

Urban regeneration needs a new narrative, says David Barrie

The last 20
years has
delivered some
remarkable
urban
regeneration
schemes in
the UK – from Tate Modern to
new waterfronts in Newcastle-
Gateshead and Liverpool, from
the occupational transformation
of Shoreditch to the Scandi-style
minimalist repaving of most city
centres.
But the debt-fuelled boom
is over: bank lending is tighter,
housebuilders daren’t start
on site, the mathematical
foundations of ‘value uplift’ have
been wrecked by low land values
and the number of people in
poverty has increased, when the
very purpose of regeneration is
to help poor people become more
prosperous.
Urban regeneration needs a
new narrative. What might it be?
There are those with heavy
pens, pumping millions of pounds
into the system, redrafting the
interdependency of the public
!
and the private and rolling out
statism as innovation.
Then there’s the crew wielding
luxury Mont Blancs: lawyers and
accountants reframing the idea
of value-uplift and calling it a TIF,
or politicians like David Cameron
or Tessa Jowell heralding a new
age of ‘localism’ or ‘mutualism’
– but not giving us much of a clue
on cast or story.
What seems clear is that
economic change will be
less reliant upon property
developers, unless they are
prepared to innovate by shifting
to sustainable development or
become increasingly transparent
and flexible. Local development
will become more answerable to
‘the people’ and we’ll see less of
a ‘massive-shopping-centre-with-
a-town-attached’ approach to
urbanism.
The industry will now push
for ‘value’ to be assessed on a
broader basket of assets and
currencies, over and above rental
income.
More time, attention and
pride is about to be invested in
local councillors and planning
officers.
Small projects are back in
vogue, rather than physical
projects so big that they make
the earth tilt.
And new, non-aligned
organisations or aggregated civic
organisations at the most local
level are about to become flavour
of the month, so long as they
offer a genuine bridge between
citizens and state, engender
trust, express identity and
promote the welfare of the larger
community.
Who are the poster boys and
girls of this new world?
There’s the army of activists
who lead their communities
but believe in collaboration, the
welfare of the larger community
and power of collective
bargaining.
Then there are the people
who understand that enterprise
in all of its many forms – social,
as well as commercial – is a key
route to progress.
At the centre of this narrative
are two of the oldest characters
in the book: the taxpayer and the
consumer.
But the new element is the
collective. The new vehicle: the
non-profit. The new hero: the
social entrepreneur.
The politicians suggest we
are at the dawn of the ‘social
economy’. However, only one or
two investors in regeneration see
value in life-cycle costs, mutualism
or assets other than land.
Some time soon a bright
spark is going to come up with a
marketable link between carbon
credits and the financing of urban
renewal.
In the meantime, everyone
talks of ‘paradigm shift’ and only
a few engage with what’s likely
to become the new key theme of
regeneration: equity.
X David Barrie is principal
consultant at David Barrie
& Associates and specialises
in regeneration, community
involvement and the design
and delivery of public projects.
David blogs at http://davidbarrie.
typepad.com

fantasies. It is to see regeneration in terms of re-creation
rather than just as a response to failure.
Reinvention of place is needed because of time and
change: our preferences change, technologies shift, we
discover new ways of doing and being. Regeneration is
required most in places that struggle to cope with time and
change, but even those that aren’t struggling sometimes
need to repurpose. It’s about rethinking place and
community for each new generation.
So regeneration needs to start with the people who live
in and use a place. Regeneration that works, that creates
home, begins with citizens defining their hopes and
problems, not with programmes and budgets.
A citizen is an individual who has rights and a stake in
the place where she or he lives, but that stake is a social one
– citizens can only exercise their citizenship by engaging
with other people. And just as citizens are anchored in
community, so they are anchored in the places where they
seek to create home.
The future for regeneration policies, at all spatial levels,
must lie in the action and assent of engaged citizens.
This is a seismic shift from regeneration that originates
in the legislative process, or is led by masterplanners and
developers. Policymakers, masterplanners and developers
must become the servants of alert, engaged and creative
citizens making up their own minds about their homes.
So here’s a working definition of regeneration to play
with: Regeneration is the action of citizens and those who
work with them to recreate home for new times, especially
where there is poverty or disadvantage.
See if you can think of a better way of putting it,
and please contribute your suggestions and join our
conversation (see panel). Over the rest of this year we’ll
explore further how this idea of regeneration can be fleshed
out and embedded in the way we think about the future.
The next article will examine what values should attach
themselves to citizen-led regeneration, and how we should
rethink the idea of value to produce better decision-making.
JOIN THE CONVERSATION
Here are three ways you can join in our debate about the future of regeneration:
X Write a response: our feedback section (see pages 26 to 31) is a forum for your
views – or if you’d like to make a more substantial contribution relating to this
series, contact Julian Dobson at julian@newstartmag.co.uk
X Engage with us online: talk to @NewStartMag or @juliandobson on Twitter,
blog your thoughts at www.newstartmag.co.uk/blog, or comment on other
readers’ blogs
X Co-host an event: if you’d like to partner us in taking this conversation forward
at a face-to-face event, or would like us to speak or facilitate a discussion at an
event you’re putting on, please get in touch – email julian@newstartmag.co.uk

24 | New Start | January 2010

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New Start | January 2010 | 25