Summaries

Hangzhou International Seminar
19-21 October 2000

Summaries of Presentations
Hangzhou International Seminar
19-21 October 2000

Plenary Presentations by Cities: experiences in urban governance

The Tilburg Model, Tilburg, The Netherlands
Presenter: Mr. Rene Van Diessen, Alderman, City of Tilburg, The Netherlands

With its 185,000 citizens, Tilburg is the sixth largest city in the Netherlands. Its total annual expenditure is some 1.2 billion guilders (US$ 675 million). The Tilburg Model, developed as part of a major restructuring of the Municipality, has three components. First, it is results-based. All of the local government activities are defined as products with a fixed output, a visible outcome and an integrated cost assignment. The second principle element is the clear divi-sion of responsibilities. Politicians handle the "what" question (what should be done), while the admi-nistration is responsible for the "how" questi-on (how will the decision be implemented). This division of responsibilities is implemented by means of management contracts in which departments commit themselves to deliver a certain product or service at a specific price. The third component of the model is a sophisticated system of planning and control. Departments report on the implemen-ta-tion of the contracts if there are deviations from the contracts. The control-ler and the accountant check the reliability of these reports. There are also regular audits on the quality of the internal organization, administration, information sys-tems, human resource management, etc.. The Tilburg Model has enabled the city to move from a very difficult financial situation to a very health one. The management of city affairs has become more streamlined and efficient. Despite these successes, the Tilburg Model required some improvements to make it more responsive to citizens. Consequently, in 1997 the city's structure was radically redesigned into four divisions to reflect how citizens interact with the city: a city department, a district department, a public affairs department and a business division.

Sustainable Shenyang Project, Shenyang, China
Presenter: Mr. Lee Kiongai, Shenyang, China

Initiated in 1997, the objectives of the Sustainable Shenyang Project (SSP) are: (i) to improve the quality of life of the people; (ii) to promote balanced economic and social development by strengthening the capacity of local institutions to make better use of the city's environmental resources; (iii) to reduce environmental degradation and risk; and (iv) to institutionalize a multi-stakeholder decision-making process. With technical assistance provided by UNDP, UN-Habitat, UNEP and CICETE (Chinese International Center for Economic and Technical Exchange), the SSP has prepared and implemented since 1997 a series of integrated action plans and "bankable" capital investment projects in support of environmentally sustainable urban and industrial development. On the institutional front, SSP has influenced the decision-making mechanism of high-level leaders and has increased awareness of sustainable development issues within and among civil society. In terms of quality of life, the SSP process has been the catalyst for environmental protection and urban development involving large scale investments in air and water quality control, transport, housing, utilities, emissions control, waste disposal and urban greening. The SSP provides concrete evidence that a systematic approach to environmental planning and management in accordance with the principles of the Habitat Agenda and Agenda 21 is capable of producing win-win situations where economic, social and environmental objectives can be integrated and pursued to the benefit of the people, the environment and the economy.

City Construction and the Environment, Colombo
Presenter: Mr. Anada Jayawardana, Deputy Municipal Commissioner Colombo, Sri Lanka

Before Colombo's initiative on improving urban governance, the local government was characterized by lack of funds coupled with poor infrastructure, high population growth, and corrupt leaders. The situation led the Council to redefine its mission, its leadership and its working methods. Partnerships and participation became the keystones of this new vision. It was felt that the private sector and the non-government organisations should provide the critically needed leadership to help bring about a paradigm shift from traditional public administration to public management. Following the example of the private sector of a flexible market-based management system designed to achieve objectives, the Colombo City Council started to measure performance by outcomes, not just inputs. Through effecting the 100 Day Programme and City Development Strategies, the privatisation of selected municipal services by the Council led to effectiveness and efficiency in terms of stemming wastage and providing cost effective services. Initiation of intensive job-oriented training programmes, and the opening of a career development centre to provide opportunities for the young and poor to keep abreast with information technology benefited the community. Open dialogue with the public contributed to transparency and efficiency by the city managers and awareness of the public to how the Council is being run.

Durban Metro - A City facing up to the Housing Challenge in Durban South Africa
Presenter: Mr. Mark Byerley, Durban, South Africa

In response to the need to access and secure more funds, maintain and build existing capacity, upgrade informal settlements, meet national norms and standards, respond to future housing needs and improve the housing delivery mechanisms, the Metro Housing Strategy was developed. It rapidly became evident, however, that a partnership approach to development was required to leverage the capacity and expertise of private developers and NGOs with the input and commitments of communities. The Metro Council's responsibility with respect to housing was (a) facilitating housing sector performance through ensuring access to end-user finance, to enable access to better quality housing, and (b) managing human settlements focusing on existing informal settlements, as well as new development areas. The overall objective of the proposed strategic programmes was to promote the development of sustainable human settlements, i.e., ensuring that the benefits of housing are maximized in the development of total sustainable human environments. To date, with Government support and dedicated staff, Metro Housing has seen the initiation of approximately 50 000 new houses plus refurbishment of inner-city apartment blocks, has established 3 Housing Support Centres, has provided accredited training in block laying, plumbing, & electrical work, and has assisted contractors to establish and run small businesses. While still being developed, the Integrated Development Plan and the Long Term Development Strategy has three key foci: improving quality of life, promoting economic development and promoting people's development.

Cooperation Between Volkshilfe Wien and the Municipality of Vienna, Austria
Presenters: Mr. Bernhard Mager and Ms. Renate Kitzman, Volkshilfe Wien, Vienna

During the 1980´s the number of the homeless in Vienna has sharply increased. The main factors for this phenomenon were a drastic rise in rents in the private housing market and increasing uncertainties in the labour market. Additionally, more and more women and their children as well as persons with regular jobs became homeless, paralleled by an increase in problems such as alcohol and drug abuse. Before FAWOS, Welfare Centre for Housing Guarantee- a Cooperation between Volkshilfe Wien (NGO) and City Administration started its work in 1996, two thirds of all scheduled evictions from dwellings were carried out. Each year some 4,000 families lost their apartments and had to look for new homes or seek refuge in shelters. In Vienna alone, 20,000 cases concerning living space are brought before the court each year. Almost half of these cases result in a verdict allowing the landlord to apply for eviction and to have the tenant removed from the premises. Debts, low income and other financial problems are the most common causes of evictions in Vienna. The financial problems range from indebtedness, cash-flow problems and low income to unemployment. In response, FAWOS offers a standardized procedure and rapid, efficient help to persons facing eviction. Measures to help clients retain their dwellings include legal counseling, information on available financial support and client entitlements to benefits, household planning, short-term, intensive social work and direct financial support. Compared with the 1995 figures, FAWOS succeeded in reducing evictions from 63 percent of cases to 36.5 percent the first year and to 25 percent in the following years. In 67 percent of all cases of eviction, FAWOS was able to provide the evicted tenants with a council flat through the Social Necessities Unit. As a result, FAWOS has been able to reduce the number of evictions by one-third.

Porto Alegre Participatory Budget, Brazil
Presenter: Mr. Newton Burmeister, Porto Alegre, Brazil

For nearly a decade, the city of Porto Alegre has been involved in an innovative experiment in the budgetary process. Its "Participative Budget" has institutionalized the participation of civil society through a combination of regional, sub-regional and thematic meetings that reach down to the very grassroots of the city. Through these meetings, the citizens scrutinize the past year's expenditures, agree upon current priorities and allocate funds for new projects. After the year's priorities are clarified, counsellors are elected to represent these priorities in discussions with city officials. An Investment Plan is developed and forwarded to the City's executive council. While the executive body retains the right to modify and ammend the Investment Plan, the participatory process prevents them from making fundamental changes.

The Participatory Budget has proved that the democratic and transparent management of resources is the best way to avoid corruption and mismanagement of public resources. In opposition to some technocratic views, popular participation has favored an efficient management of public expenses, resulting in very important works and actions for the population. Since its implementation, the projects approved by the Participatory Budget have represented investments of more than 700 million dollars, applied primarily in urban infrastructure and in the improvement of the population's quality of life. The Participatory Budget has also proved that the creation of practical participation tools and the commitment of the government in implementing the decisions made by the population are critical to break the bureaucratic barriers that divide societies and the State and to form an active and mobilized citizenship.

Participatory Urban Action in Villa El Salvador, Peru
Presenter: Mr. Nestor Rios Morales, Villa El Salvador

Villa El Salvador was founded in 1971 by the military government as a relocation site for residents. The Municipal Council experienced mismanagement and corruption, with the city managers being implicated in most of the underhand dealings. The project was initiated in consultation with the residents of Villa El Salvador who were involved from the formulation of objectives to the implementation of the programme. Priorities and objectives were set to overcome poverty and social exclusion as well as to realign the municipality's planning with the wider goal of overall revitalisation of the Villa El Salvador Area. Emphasis was on partnership development with the beneficiaries, the residents and community of Villa El Salvador, being directly involved. Youth, women and other community members' views were incorporated in the setting of the poverty eradication strategy. The residents of Villa El Salvador took part in the management of the city by participating in the formulation and drafting of the local budget - the participatory budget. The partnership among the various actors culminated in the formulation of "Vision 2010".
The participatory process resulted in the participation and effective consideration of citizen's views and opinions in decision-making in determining priorities for public works and the provision of basic urban services. The establishment of norms, procedures and processes for local governance and democracy in a highly centralised system was also realised. The adoption of rule of law and decision-making based on consensus in determining development objectives and priorities were other major achievements.

Integrated Development Project in the Greater Mafikeng Area, South Africa
Presenter: Mandla Magwetjana, Mayor of Mafikeng, South Africa

In the Greater Mafikeng area, the first step towards empowering those previously oppressed under the apartheid system has been the establishment of a broad-based Steering Committee comprised of very different administrative systems: Tribal Authorities, City Council, Government Departments, the informal sector, local businesses and the tourism industry. The project aims at supporting local economic development by focusing on training and building local capacity through the integrated development of several programmes: city and river clean up; clean water provision; improved storm water facilities; improved traffic flows; and enterprise and tourism development. Where practical, all contracts have been divided into several parts to involve, as many new emerging contractors as possible; where established contractors are required, labour intensive tenders have been prepared. The Steering Committee has emerged not only as the forum of economic development in the area, but its conflict resolution role is helping repair the social fabric of the entire community.

Community Disaster Preparedness in New Zealand - Developing the Safety and Decentralisation Norms
Presenter: Mr. Neil Britton, New Zealand

The main objective of disaster management is to enable communities to maximise gains and minimise losses when dealing with potential extreme risks to the community. The areas of key interest to the Government in New Zealand include reducing community disruption, reducing negative impacts on the economy, integrating various related disciplines and strengthening national identity. Losses incurred due to hazards are the consequences of society's approach to their environment and technology based on their traditional beliefs and development patterns. Local and central governments in New Zealand have officially recognised that disaster management is part of their core functions. Disaster management in New Zealand is achieved by focusing on social and economic goals of communities and through a risk management approach. Emergency management roles are made a routine in the running of cities.

For effective management of disasters, it is imperative to be systematic in approach, have a comprehensive and integrated system in place, take into account the consequences of hazards and have the support of appropriate structures and expertise. There is also a need to have the participation of communities while providing assistance for consequences beyond the capacity of communities. The key aspects of disaster management include a systematic approach for making decisions on how best to manage risks, legislative, political, social and economic environments, quality information and integration with existing planning and operational processes.

Shanghai's Old City Reconstruction, Shanghai, China
Presenter: Prof. Zhang Hongming, Shanghai, China

In the early 1980s, many residents of Shanghai regarded high-rise building as the symbol of modern international metropolises and favoured the construction of such buildings. In the mid and late 90s, these construction model started to be questioned, particularly because of the adverse impact on the city landscape and the environment, since it negatively affected ventilation and lighting and caused pollution. Due to the strong appeals, the administration did not approve any more applications for constructing high-rise buildings in the city area.
However, this does not seem to be an appropriate solution, since there is need to create a balance between the advantages of high-rise buildings due to land-saving and the environmental protection concerns. In order to do so, construction of high rise building is being concentrated in the central part of the city ensuring they are evenly distributed for ideal landscaping effects. In addition, centralised construction of residential quarters was promoted, so as to facilitate the provision and construction of infrastructure. These approaches provide for the preservation of historical sites while responding to the need to develop urban areas. They also clarify the need to approach further construction in Shanghai with extreme caution in order to ensure that the environment is not degraded and residential areas are provided with facilities such as roads and hospitals which are accessible to all.

Safer Dar-es-Salaam, Dar-es-Salaam, Tanzania
Presenter: Ms. Anna Mtani, Coordinator, Safer Dar-es-Salaam Project

Safer Cities Dar-es-Salaam was initiated in March 1997, by UN-Habitat (Habitat) with technical support from the International Centre for Prevention of Crime (ICPC) in Canada under the umbrella support of United Nations Development Programme. The initiative aims at co-ordinating and strengthening local institutional crime prevention capacities, changing attitudes and promoting a culture of adherence to the laws and reducing youth unemployment through skills training and cultural activities. The initiative uses a bottom up approach to mobilise community and local resources in establishing crime prevention initiatives.

Safer Dar-es-Salaam works with communities through safety and security committees established at the ward and sub-ward levels, to strengthen the committees and to revive and initiate community-policing groups based on an indigenous practice called Sungusungu. Through a victimisation survey (2000) it was revealed that about 61 percent of the city residents live in fear of crime after dark, thus calling for more consolidated efforts to make the city safer. Sungusungu initiatives are advocated by 62 percent of city residents.

Urban Environment Construction and Protection of Dalian, China
Presenter: Liu Changdae, Dalian, China

In order to counter the challenges posed by urbanization, Dalian local government mobilized all its departments, social organizations, and citizens to participate in the overall improvement of the urban environment. The initiative involved: (a) establishment of a development vision which entailed the development of a mechanism to control the city population and to improve its quality control measures regarding the scale and standards of constructions, and adjustment of urban zoning to improve business performance; (b) concrete measures for the urban environment and construction by improving the traffic infrastructure and greening and the environment (c) implementing pollution control measures, protecting and rehabilitating two rivers, and enacting new legislation and laws for the protection of the environment and (d) development of an environment protection authority.

Qingdao, Urban Renewal in Qingdao
Presenter: Wang Jianjun, Qingdao, China

Urban renewal is an important mechanism for promoting the development of urban construction and improving the quality of the urban environment. For Qingdao City, the transformation of shanty areas was the most difficult challenge in its urban renewal. The shanty areas were characterized by large populations, poorly constructed houses and badly built public infrastructures. In response, 1,540,000 sq. meters of old houses were dismantled and new buildings were constructed. In spite of these efforts, there were still shanty areas. The Municipality decided to adopt the method of combining resettlement to renew the old areas and to construct the new areas in accordance with the urban construction and development planning regulations. In order to promote urban construction development and improve the urban environment, Qingdao Municipal Government decided to adopt the principle of unified planning, development, implementation of supporting projects, and a rollover type of development in the construction of new areas. An effective organizational and leadership system, as well as rules and regulations formulated to guide management, were seen to be essential for success. Qingdao found an innovative method for raising funds by establishing a market-oriented multiple investment mechanism. Through reconstruction, the living conditions and environment for residents who lived in the shanty areas have been greatly improved

Suzhou Neighbourhood Renovation in Practice
Presenter: Lu Zukang, Director, Suzhou Neighbourhood Renovation in Practice, China

Before 1986, Suzhou's old city was dilapidated, infrastructure was inadequate and the city was losing its cultural heritage. In 1986, an Overall Urban Plan was developed to provide directions for the renovation, conservation and preservation of its cultural heritage. The plan identified central neighborhood renovation as the main tool to raise living standards and improve the residential environment. Renovations were carried out following a nine-work guideline. This brought about the improvement of living conditions for 3 neighborhoods (living space increased from 15 to 25 sqm per person). Taking advantage of the creation of the Suzhou Planning Experts Consultants Commission, experts have inspected the initial conservation and development areas and have given the work a very high evaluation. However, some contradictions still need to be resolved, in particular regarding the conception that every intervention should bring a profit. This is not necessarily true and the government has to address this issue through the identification of cross-subsidization mechanisms.

The Indian experience in applying the norms of good urban governance
Presenter: Mr. V. Suresh, Director, HUDCO, Bangalore, India

The practice focuses on how India is applying practical means to implement the seven proposed norms of good urban governance. India addresses urban sustainability issues with the help of a variety of approaches and tools, including environmental impact assessment. Decentralization of authority and resources is advanced through constitutional amendments, financial devolution of power and the establishment of Ward Committees.

India has also made significant progress in terms of equity of access to decision-making processes and the basic necessities of urban life. Examples were given of mandatory quotas for women's participation in local bodies and also as chairs of local bodies and including provision in the national housing and habitat policy for land and houses to be in the joint name of husband and wife. In terms of efficiency in the delivery of public services, India is improving revenue collection through efficient use of computer based city information systems, through public-private people's partnership for housing, real estate development and through the commercialization of infrastructure through user-pay instruments with equity principles dove-tailed for financial viability. The press, judiciary and people's groups continue to play a major role in promoting transparency and accountability of decision-makers and all stakeholders. Civic engagement and citizenship are promoted through enabling platforms set up by local bodies, including town hall meetings and public hearing sessions. Finally, enhanced security of individuals and their living environment is achieved through special efforts for disaster mitigation for natural and man made calamities through the Vulnerability Atlas and through techno-legal and techno-financing regimes.