Metropolitan Cities:Which Development Strategies? Which Governance Tools? New Perspectives in Italy

Metropolitan Cities:Which Development Strategies? Which Governance Tools?

New Perspectives in Italy

URBAN EMPIRES – CITIES AS GLOBAL RULERS IN THE NEW URBAN WORLD

Poznam 15-16 August 2016

Prof. Luigi Fusco Girard | University of Naples Federico II

Interdepartmental Research Centre in Urban Planning “A. Calza Bini”

1)There are 6 critical common problems,dispite many differences

2)These 6 critical problems determine the reduced productivity of metropolitan cities

3)They also reflect the difficulties of metropolitan planning to be used as a tool for development strategy: there is a diminishing role of planning,a relaxing role that determines a reduction of metropolitan productivity

4)Metropolitan development strategy and metropolitan planning should be strictly interdependent, for improving metropolitan productivity:the strategic plan and the planning process should be more and more in mutual relationship

5)A strong relancement of planning activity is required for increasing not only economic productivity, but also the environmental and social one: overcoming real estate productivity,touristic/commercial productivity

6) This comprehensive and sustainable productivity depends on environmental and social components: on the quality (beauty) of the landscape,cultul heritage and also on the human and social landscape

Prof. Luigi Fusco Girard | University of Naples Federico IINEW METROPOLITAN PERSPECTIVES

Metropolitan cities are characterized by a greater complexity than other cities: every component, every part, everything, every subject is interdependent with all others.

Metropolitan city can be considered as a system of many other systems and subsystems: natural/environmental/ecological system; residential system; productive/industrial system; energy system; cultural system; economic system; social system.

The New 2030 Agenda, approved in New York in September 2015, in the Plenary Assembly of United Nation, identifies 16+1 strategic goals. The goal no. 11 is about making cities and human settlements inclusive, safe, resilient and sustainable. Goal no. 12 is about sustainable production and consumption and thus introduces the circular economy approach. But all these 2030 Agenda goals (or the majority of them) can be achieved (or not) in the space/cities, and in particular in metropolitan city landscapes. Urban landscape reflects all challenges of our time. All the current challenges are concentrated and can be faced in the space of our cities, in their landscapes….


A) THE CONDITIONS OF METROPOLITAN CITIES,DRIVERS OF CHANGE,INNNOVATION,INTERNATIONALISATION OF NATIONAL ECONOMIES,…..

Which general approachess,criteria,tools for improving the comprehensive (economic,social,environmental) productivity of metropolitan areas/cities and thus their governance? For stressing the relationship between planning and urban productivity? For multiplying the density of relationships between actors, activities,institutions, inhabitants thus creating new added value?

The challenge ,today, is to reshape the Urban Agenda for operationalizing principles and goals in a coordinated, integrated and coherent way at different local, metropolitan, regional, and national level: for managing urbanization not as a problem but as an opportunity, for contributing to local economy growth and to increase the urban productivity, creating new employment, in a co-evolutive perspective with ecosystems, stimulating the enhancement of wellbeing of inhabitants....

C) THE ITALIAN GENERAL CONTEXTAfther the new national Law for metropolitan cities,and Naples metro.cit


B) WHICH GENERAL APPROACHESS,CRITERIA,TOOLS ?

INDEX

1. Introduction: Multiple changes today and the challenges for metropolitan cities : risks and opportunities

2. Some critical nodes for the sustainable, inclusive, safe and resilient development of metropolitan cities

3. Towards a new governance : new tools for improving urban productivity in governing, managing, planning metropolitan cities and for transforming goals into actions

4. The Italian context: the Law 56/2014: the regeneration of metropolitan (port) cities

5. The Metropolitan City of Naples : towards the “strategic metropolitan plan” and the “territorial plan “

6. Conclusions: towards a proposal of an action plan for supporting metropolitan city of Naples and in general metropolitan cities in their road to sustainability


Cities are the more complex system created by human beings.Metropolitan cities are characterized by a greater complexity than other cities.

Metropolitan city is a system of many other systems and subsystems:

- Natural/environmental/ecological system- Residential system- Productive/industrial system- Energy system- Cultural system- Water system- Private economic system- Public economic system- Social economic system- ……….- ……….Most metropolitan cities are localized in coastal areas (approximately 66%) and are provided by a port that is the engine of urban economy.


1) MULTIPLE CHANGES TODAY AND THE CHALLENGES FOR CITIES (THE METROPOLITAN : RISKS AND OPPORTUNITIES

Different current issues:

- Growing population in developing countries- Ageing of population in OECD countries- Growing unemployment- Growing migration (forced and voluntary)- Social growing disparity- Climate change- Growing insecurity/vulnerability- Water scarcity- Natural resources scarcity- Ecological crisis - Energy (from COP21, metropolitan cities are the spaces for the transition towards

a de-carbonized economy)- …….

are concentrated and are related to greater cities


MANY DIFFERENCES (,productive of economic wealth, or consuming area ,innovative or not innovative cities, monocentric or policentric…) BUT ALSO MANY COMMON ISSUES:• The increasing informal peripheries• The privatization and reduction of public spaces• The waste of energy, water, natural resources• Real estate market characterized by speculative components• The loss of local identity• Lack of accountability , transparency and effectiveness in the

local governance

A diminishing role of planning charaterizes today many great and metropolitan cities, leaving many areas un-planned, with negative impactsMetropolitan cities can face dynamic virtuous evolution in reducing poverty, promoting economic prosperity, inclusive growth or they are in a vitious involutive perspective?

The future of metropolitan cities is in our hands here and now: in our choices; in our creative capacity to identify cooperative win-win solution, characterized by synergies and symbioses…able to increase the metropolitan productivity: the scale economies, the agglomeration economies,the territorial value added on time….if we have effective approaches and tools : in PLANNING, MANAGING,GOVERNING CITIES


2) SOME CRITICAL NODES 2.1 WHICH PRINCIPLES AND GOALS TO GOVERN, TO MANAGE, TO

PLAN METROPOLITAN CITIES?The New 2030 Agenda, approved in New York last September during The Plenary Assembly of United Nation, identifies 16+1 strategic goals.


Goal 1 End poverty in all its forms everywhere Goal 2 End hunger, achieve food security and improved nutrition and promote sustainable agriculture Goal 3 Ensure healthy lives and promote well-being for all at all ages Goal 4 Ensure inclusive and equitable quality education and promote lifelong learning opportunities for all Goal 5 Achieve gender equality and empower all women and girls Goal 6 Ensure availability and sustainable management of water and sanitation for all Goal 7 Ensure access to affordable, reliable, sustainable and modern energy for all Goal 8 Promote sustained, inclusive and sustainable economic growth, full and productive employment and decent work for all Goal 9 Build resilient infrastructure, promote inclusive and sustainable industrialization and foster innovation Goal 10 Reduce inequality within and among countries

Goal 11 Make cities and human settlements inclusive, safe, resilient and sustainable Goal 12 Ensure sustainable consumption and production patterns Goal 13 Take urgent action to combat climate change and its impacts* Goal 14 Conserve and sustainably use the oceans, seas and marine resources for sustainable development Goal 15 Protect, restore and promote sustainable use of terrestrial ecosystems, sustainably manage forests, combat

desertification, and halt and reverse land degradation and halt biodiversity loss

Goal 16 Promote peaceful and inclusive societies for sustainable development, provide access to justice for all and build effective, accountable and inclusive institutions at all levels

Goal 17 Strengthen the means of implementation and revitalize the global partnership for sustainable development


Sustainable Development Goals

Targets of Sustainable Development Goal n.11“Make cities and human settlements inclusive, safe, resilient and sustainable”

11.1

By 2030, ensure access for all to adequate, safe and affordable housing and basic services and upgrade slums

11.2

By 2030, provide access to safe, affordable, accessible and sustainable transport systems for all, improving road safety, notably by expanding public transport, with special attention to the needs of those in vulnerable situations, women, children, persons with disabilities and older persons

11.3

By 2030, enhance inclusive and sustainable urbanization and capacity for participatory, integrated and sustainable human settlement planning and management in all countries

11.4

STRENGTHEN EFFORTS TO PROTECT AND SAFEGUARD THE WORLD’S CULTURAL AND NATURAL HERITAGE

11.5

By 2030, significantly reduce the number of deaths and the number of people affected and substantially decrease the direct economic losses relative to global gross domestic product caused by disasters, including water-related disasters, with a focus on protecting the poor and people in vulnerable situations

11.6

By 2030, reduce the adverse per capita environmental impact of cities, including by paying special attention to air quality and municipal and other waste management

11.7

By 2030, provide universal access to safe, inclusive and accessible, green and public spaces, in particular for women and children, older persons and persons with disabilities

11.7.a

Support positive economic, social and environmental links between urban, per-urban and rural areas by strengthening national and regional development planning

11.7.b

By 2020, substantially increase the number of cities and human settlements adopting and implementing integrated policies and plans towards inclusion, resource efficiency, mitigation and adaptation to climate change, resilience to disasters, and develop and implement, in line with the Sendai Framework for Disaster Risk Reduction 2015-2030, holistic disaster risk management at all levels

11.7.c

Support least developed countries, including through financial and technical assistance, in building sustainable and resilient buildings utilizing local materials

2.2) All these goals (or the majority of them) can be achieved (or not) in the space/cities, and in particular in metropolitan cities: All the problems ,coming from poverty, growing inequalities, climate change to safety, wellbeing, welfare services, energy, water, food, land, sustainable production and consumption,peace, justice etc. are localized and concentrated in the space of cities., and in particular in metropolitan cities...



2.3) SOME CRITICAL COMMON NODES FOR MAKING SUSTAINABLE, INCLUSIVE, SAFE AND RESILIENT METROPOLITAN CITIES

2.3.1 Towards a new financial urban base

2.3.2 Towards a new urban economy (circular economy, …)

2.3.3 Towards a systemic approach between built metropolitan space and agricultural territory

2.3.4 The critical role of land

2.3.5 The key role of public space

2.3.6 The critical role of culture and cultural heritage and cultural landscape


2.3.1 Towards a new financial urban base

The subsidiarity principle should orient the metropolitan city organization / government / governance towards self-management / self-government capacity

BUT there is a crisis in the local financial base.

In fact, the decentralization process of functions from center (national level) to periphery (cities) has not corresponded to a symmetrical process of resources devolution from national government to local governments.

In the same time the costs of infrastructures, equipments and services is more and more growing.

And also, many agglomeration economies are changing into agglomeration dis-economies…

The risks of urban faillure, urban bankruptcy become very serious and real for many metropolitan cities….


«Fiscal health» at local level is absolutely required because the sustainable, resilient, safe and inclusive development is based first of all on the good financial local base and not only on resource transfers from higher level.

This means that also new tools for financing should be identified: scope tax, crowdfunding, municipal bonds, tax breaks, match-funded hypotecated taxes, Betterment Levy…

This means also that a new vital local economy is necessary….


It is necessary to guarantee a more effective financial base at city level, through:

1- New Public-Private-Partnerships, able to engage in a win-win strategy all stakeholders (also academic institutions, thrid sector associations, social entrepreneurs…).

2- Innovative financial tools able to reduce the gap between the (many) needed resources and the ones concretely available (few).

3- At least the 20% of national tax return should be transfered at local level.

4- A strong / rigorous coordination between national tax return and local internal tax revenue, to avoid local insolvency / collapse.

5- Tax revenue systems based on land value should be transparent, open, agreed and participated, so that all local communities can check and assess in the public framework. All the stakeholders should be put in condition to participate to become aware of costs and financial returns.

6- All financial tools and processes at local level should be put in strong relationships with planning processes.


2.3.2 Towards a new urban economy A critical aspect of metropolitan development is linked to the improvement of local productivity.

It is based on the use of all local resouces : cultural heritage, cultural landscape,local knowledge,local enterpreneurship,commons, local energy, specific competitive localization….able to improve the attractiveness of the city and its competitive capacity, creating an attractive environment for investments and creative activities.

This new urban economy shoul be more and more characterized by circular processes :the 6Rs:

Reduce | Recover | Reuse | Recycle | Regeneration | Renewables for reducing congestion / pollution costs ….and by the activation of synergies, complementarities, symbioses

Many good practices all over the world…can show that synergies/symbioses are able to enhance productivity …..

Recently the concept of symbiosis has been applied to urban context, by transferring the interactive phenomenon and interdependences typical of natural ecosystem to anthropic systems. Some cities have implemented interesting symbiotic processes, considering practices of industrial, urban, and territorial symbiosis (Fujita et al.,2013).

By means of best practices ex post evaluation – as implemented in many port cities such as Rotterdam, Stockholm, Lisbon, Kwinana, Kawasaki, Akita, Aichi, Kitakyushu etc. (Fusco Girard, 2016a) – it is possible to produce empirical evidence about economic, social and environmental advantages of symbiosis.

In particular, the evaluation process highlights the benefits deriving from circular economy in terms of wealth production and local employment and the existing links between promotion of green economy and opportunities to create new jobs. Indeed, symbiotic processes generate density of links and activities that produce, in their turn, new jobs, providing a significant contribution in terms of social impact and good environment

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This empirical evidence shows that cooperation is suitable in economic terms,and also in social and ecological dimension…

The symbiosis model is a road for implementing the general model of sustainable regeneration …

The symbiosis model stimulates to regenerate relationships between people,productive activities,built environment and rural territory,between people and the phisical assets, inhabitants and social groups,people and

ecosystems The new paradigm often evoked is based on relationships,bonds that are able to trigger new synergies and symbioses that activate new chains

of value creation….

The model of sustainable regeneration stimulates innovative approaches for implementing circular processes. The circular processes are an essential element of the metropolitan productivity and, in turn, metropolitan productivity is a key outcome of design and planning. This means to consider the economic productivity, but also the social productivity and the ecological productivity, including economic and non-economic components.

The “comprehensive productivity” ( economic, ecological, social ) also includes non-economic and intangible components for the metropolitan cities development, that have a key role for a more desirable urban future: a more resilient, inclusive, safe and sustainable future.

The key elements of urban attractiveness are human and social capitals from which cooperative capacity, synergies and symbioses arise: the real engine for local development, wellbeing, health and quality of life....


Examples of circular economy experiences…..….

Port Melbourne

Dati identificativi

Area di intervento Port Melbourne and Industrial Area

Localizzazione Melbourne, Victoria, Australia

Estensione area 458 ettari

Attività dell’area Principali società australiane operanti in vari settori manifatturieri: produzione alimentare, di cartongesso, di calcestruzzo, di componenti meccanici e metallici, stampa.

Data di intervento dal 2007

Intensità simbiotica (livello di maturità della simbiosi e complessità organizzativa dell’ecosistema)

n. 1 progetto simbiotico e n. 9 imprese coinvolte / n. 3 flussi di risorse dell’ecosistema considerate: acqua, energia, rifiuti

Risultati

Criteri Indicatori Sostenibilità ambientale: Gestione delle acque

Risparmio del 24% di acqua di rete Percentuale di acqua trattata che viene riciclata nella città di Melbourne: 11% i Volume massimo d’acqua che può essere riciclato da un’industria di Port Melbourne: 382 kL giorno_1 Volume massimo d’acqua riciclato utilizzato: (343 kL giorno_1 ) ii

Sostenibilità economica Riduzione costi

Riduzione del costo unitario della domanda idrica: - 0.05-1.50 A$/kL nel caso di riciclaggio idrico; - 2-5 A$/kL nel caso di desalinizzazione. Conseguente stabilizzazione dei prezzi di fornitura idrica di rete.

Kawasawi Eco-town

Dati identificativi

Area di intervento Area costiera della città di Kawasaki

Localizzazione Kanto region, Japan

Estensione area 2.800 ha

Attività dell’area Industria automobilistica, metallurgica, della carta, farmaceutica, produzione di energia.

Data di intervento dal 1997 Intensità simbiotica (livello di maturità della simbiosi e complessità organizzativa dell’ecosistema)

n. 15 progetti di simbiosi / 70 imprese coinvoltei (n. 5 flussi di risorse dell’ecosistema industriale considerate: acqua, energia, rifiuti, gas serra, residui inorganici)

Risultati

Criteri Indicatori

Sostenibilità ambientale: Gestione dei rifiuti

Riduzione gas serra in Kawasaki del 18,3% rispetto al 1990. 4.643.000 t/annoii: trattamento di rifiuti delle industrie di Kawasaki 43% riduzione del peso per pretrattamento; 51% riciclaggio; 6% a discarica. D.C. Cement Company: 123.000 t/anno fanghi di depurazione e scorie d’altoforno, 70.700 t/anno suolo da scavi di cantieri, polvere di fuliggine utilizzati nella produzione di cemento Portlandiii. Impianto riciclo di elettrodomestici JFE: 29.000 t/anno di rottami di riciclati. Impianto di gassificazione rifiuti Zeon Corp.: riduzione 90% densità delle sostanze tossiche, 60% gas esaustiiv.

Gestione energetica

JFE Kankyo Corp.: 20.000 t/anno di rifiuti in plastica utilizzati per la produzione di pannelli con struttura in cemento. Pet Refine Technology Co.,Ltd: produzione di 22.300 t/anno di PET dal riciclo di 27.500 t/anno di bottiglie usate. Showa Denko K.K.: produzione di 58.000 t/anno di ammoniaca da 65.000 t/anno di rifiuti di plastica. San-Ei Regulator Co. Ltd: riciclo di 81.000 t/anno di carta da macero per produrre 54.000 t/anno di carta igienica e velinav. D.C. Cement Company: 6.800 t/anno rifiuti di plastica e pneumatici utilizzati come combustibile alternativo al carbone. JFE Kankyo Corp.: riuso di 25.000 t/anno di rifiuti di plastica per l’altofornovi. Tepco Kawasaki Thermal Power Station: produzione di energia termica dal calore di scarico fornito dalle aziende circostanti - efficienza termica più alta del mondo

(59%)vii; - riduzione 25.000 t/anno CO2 (equivalenti

alla produzione annua di CO2 di circa 4.600 famiglie)viii.

Tokyo Electric Power Co. - Ukishima e Ohgishima Solar Power Plants: centrali fotovoltaiche più grandi del Giappone (21 milioni kWh energia generata, equiv. all’energia utilizzata da circa 5.900 famiglie medie all’anno); - riduzione 8.900 t / anno CO2ix.

Sostenibilità economica:

Opportunità economiche di oltre 13,3 miliardi di yen per le 565.000 t di rifiuti che non vengono inviati a discarica o incenerimentox.


The circular economy allows to increase the comprehensive metropolitan productivity, reducing wastes (natural resouces, water, conventional energy…) and costs, thus activating three kinds of symbiosis:

- The symbiosis between productive and industrial systems- The symbiosis between the city and industrial systems- The symbiosis between the city and the rural territory

In fact, the circular urban economy is not only referred to the waste management, but to comprehensive city economic organization, through different kind of symbiosis.

Many good practices, from Melbourne to Lisbon, to Kawasaki…….. , can demonstrate that the circular organization is able to produce economic convenience, ecological benefits and also new employment (social benefits). It is able to improve the urban comprehensive productivity

This circular economy is some time sustained by the third sector economy: non-profit activities, sharing economy, civil economy….Two characteristics of the new urban economy : ecological economy and social economy (managing commons)…


2.3.3 The systemic interdependences/ synergies between the city and the territory, between built urban space and agricultural territorythrough planning processes oriented towards the circular economy implementation

Urban planning should be able to stimulate the circular / virtuous processes between the metropolitan city and the rural territory, through a systemic approach, evoking the approaches and tools of industrial ecology: the attention to the flow analisys between the city and the territory,; to the urban metabolism, ; to synergistic exchanges between resources flows, due to the spatial / geographic proximity… through a systemic approach….

Urban planning should manage rainwater flows, capturing natural water, conserving it through storage and using / distributing it. Also energy should be captured from the territory…

Urban planning should be able to valorize de-industrialization sites , de-localization of industrial / port areas, transforming them into spaces of centrality, high quality spaces, strongly attractive for people and activites.

………..


In conclusion:Planning should move towards the implementation of the regeneratice city model

The regenerative model reshapes the interpretation of the sustainable city: not only conserving all forms of capital, but regenerating the different forms of capital, imitating the wisdom of natural systems…closing the loops, and thus facing the damnages of “petropolis”

This model is characterized by circular organizational processes, that make smart the city….

The regenerative city regenerates not only resources,energy,water, the natural ecosystems from which the human life depends,… but also the various relationships….that allow the systems to work, and from which our wellbeing depends


2 3.4 The critical role of land

Land has a key role in making sustainable, inclusive, safe and resilient metropolitan cities.

Land as a vital system should be not only conserved and preserved, but also regenerated. The circular economy ,that mimics the hearth economy, is required for managing land.

Land produces many ecoservices that sustain all human acitivites In the Millennium Ecosystem Assessment (MEA, 2005) four categories of ecosystem services are identifyed: Regulatory ecoservices; Ecoservices which support other ecosystems; Ecoservices that support human productive activities; Cultural support ecoservices;

BUT many speculative phenomena characterize the land market generating corruption, governance failures (incapacity to achieve the rights of inhabitants: increase of poverty, scarce integration, employment, mobility, conservation of natural and cultural heritage, actions against climate change)

These speculative processes develop in particular in areas of concentration of migration and urbanization. Many metropolitan cities are in this condition. …

,


2.3.5 The key role of public space

In metropolitan cities, the public space is reducing and is becoming more and more private….

Public spaces (open areas, green areas, places, streets, gardens …) are examples of common goods in which many functions are concentrated: social functions, economic functions, cultural functions, …

This common goods play a key role for the human local development, for increasing the wellbeing perception, the health of people, for reducing pollution, for the integration…

Public space characterized by high quality determines a specific increase of real estate values that should be considered also in terms of value capture.

Many public spaces are characterized by historic, cultural, landscape, aesthetic, symbolic values that determine the spirit itself, the soul of the city, to be conserved and valorized

2.3.6 The role of culture, cultural heritage and cultural landscape

The reuse,rehabilitation,restauration of cultural heritage and cultural landscape are part of the circular economy processes….

The role of culture,cultural heritage,cultural landscape is critical in implementing the “new paradigm” (also if in the Habitat III New Urban Agenda only two paragrafs(on 175) are dedicated to culture and cultural heritage:§ 38:”We commit to leverage culture and heritage in cities through integrated urban policies and to invest adeguate budget shares to safeguard and promote cultural and natural heritage,cultural infrastructures …and arts,highliting the role playes in the rehabilitation /revitalization of urban areas…”§ 124”We will place urban culture and heritage as priority component of urban plans and strategic growth policiesn that safeguard a diverse range of tangible and intangible cultural assets and landscapes…”)


WHY THE LANDSCAPE APPROACH IN PLANNING: it is important to recognize the role of cultural landscape in plnning because of many reasons:

The more important challenges of our time (health, safety, climate change, immigration, urbanization, energy, pollution, social disparities, poverty, etc.) are embedded in the landscape. The “health” of a city/territory and the human well-being in a city-territory can be read in the landscape.

All the values/goals/interests of a society are reflected in the landscape.: here we can recognize the culture itself of a society

The landscape approach offers an unifying, holistic and relational notion/concept/idea for facing all the goals of the New Urban Agenda.

The landscape research contributes to the achievement of the New Urban Agenda

The landscape stimulates an integrated symbiotic paradigm, because in the landscape research all hard and soft sciences/disciplines are involved.


The perspective of landscape offers an integrated, holistic, and systemic approach to analyse urban transformations in urban planning toward sustainable development.

The landscape is an holistic indicator of the sustainability…

Considering that the human well-being is the ultimate goal of sustainable development (United Nations, 2013), the landscape can be considered the syntetic /holistic indicator of the sustainable, inclusive, safe, resilient city

There is an empirical evidence that a poor and degraded landscape determines a loss of systemic (economic, social/cultural, touristic, etc.) attractiveness and an economic loss.

The quality of landscape has often been considered as a pre-condition for urban regeneration, in turn capable of delivering a number of other (also economic) benefits.

The uniqueness of a landscape can become a catalyst for productive activities, especially creative/innovative ones if it is achieved with careful governance.

In conclusion,it is very strange this underevaluation ….

T


3) WHICH TOOLS FOR A NEW GOVERNANCE ABLE TO TRANSFORM THE GOALS INTO ACTIONS? FOR MOVING TOWARDS THE REGENERATIVE METROPOLITAN CITY?

Through tools, it is possible to transform general principles / goals into operational practices.

Many tools for achieving a more “inclusive, resilient, safe and sustainable” city are linked to the urban planning.

These planning tools exist all over the world. But the role of planning is more and more diminishing

Urban planning can help in making new public spaces as cathalists of relationships that can transform into bonds, and thus into new value creation processes.

Urban planning should stimulate the implementation of the symbiotic/regenerative city model


3.1 PLANNING for implementing the vision of regenerative metropolitan city , that reshapes and reinterpretes the vision of sustainable city: not only conservation of all forms of existing capital is required,

BUT the regeneration of the different form of capital is required, starting from the natural one, changing urban linear metabolism into a circular one,

imitating the wisdom of natural economy (closing the loops, avoiding waste,….).


3.2 Metropolitan planning

Metropolitan planning is oriented to improve the comprehensive urban system, creating new values, new opportunities, ……………and thus enhancing the metropolitan productivity : productivity is a key outcome of planning/design…

The general goal of planning is to increase the comprehensive city productivity: not only the economic productivity, but also the social and the environmental one. ..

The risk of the metropolitan complexity is that the metropolitan planning towards higher productivity can fail becouse of a poor, rigid, not participated approach and thus, becoming inable to face the many challenges of metropolitan cities; inable to coordinate, to stimulate synergies, complementarities, symbiosis; inable to avoid the loss of local identity; to be opened to the collaboration with all inhabitants that should become co-producers of infrastructure and services (from energy to land, to common goods, ecc)….

A clear systemic approach should characterize the metropolitan territorial planning and development, able to creatively combine specific particular interests with the general city interest, linking land use, energy, water, physical assets, mobility, air infrastructure, industrial production in a win-win perspective.

Cultural heritage, historic – cultural landscape are good entrance point for planning…

THE GENERAL THESIS, here:

good design/planning enhances the metropolitan productivity (productivity is a key outcome of design/plannig)

This productivity is first of all the economic productivity.

The traditional interpretation of urban productivity(Bourdic,Kamiva…..) and its limit(: as greater density correspond more high productivity…)


Source: Marco Kamiya & Loeiz BOURDIC


BUT there are other important component of urban productivity:for example the number of circular processes, that reduce costsProductivity can growth through symbiotic/circular organization of processes

Also non-economic(environmental etc) components of the development of metropolitan cities are to be considered and assessed….To build a more desirable (resilient, inclusive, safe and sustainable) future in metropolitan city it is necessary to recognize also the key role of intangible components

A creative milieu is an example: it is essential to improve the attraction capacity of metropolitan cities, as more of physical infrastructures. This creative milieu is a soft element, very difficult to be created (if it is absent) and very important to be conserved (if it already exists).

The quality of the urban landscape contributes to the productivity of the city (economic activities, especially the most innovative, and not only those associated with tourism).

The quality of landscape is also a resource for the wellbeing and health of people.


3.3 The role of the beauty and the aestetic perspective for the growth of productivity and thus for the regeneration of metropolitan cityIn the next years it is possible to imagine that an intensive integrated conservation of cultural and environmental landscape/ heritage will become the starting point of the new regeneration strategies.

All the changes of the metropolitan scenario are reflected in its landscape: the change is embedded in landscape

In the landscape perspective, is intrinsically embodied an aesthetic dimension: the landscape itself evokes this specific aesthetic perspective.

The beauty is the combination of lines / forms / colours; tastes, smells, sounds; living and immaterial elements …….. The beauty is a caracteristic of cultural and natural landscape and heritage. This beauty creates emotions, attention, care, respect, and many other tangible benefits. In particular, when it is integrated with art production and activities.


A perspective of the metropolitan regeneration through the aesthetic dimension passes through THE ARTS.

Many good practices have been implemented in decay /abandoned areas thus reshaping and regenerating the urban landscape (the MAAM ……in Rome……………)Art in many experiences is embedded in the public urban design for the local regeneration: it is becoming an hybrid activity that is not only linked to the beauty but also to many services to the local community, for supporting the relationships between social different groups, people and artists.

Public art is becoming a tool for valorising public space as a relational space more and more dense of bonds, that are able to create new value chains.

Art is becoming (in particular with the support of the non-profit sector), a social platform in place making.

The arts for the inhabitants, and not only for visitors and tourists, can stimulate a better productivity.


3.4 The role of evaluation tools in metropolitan governance and planning

A clear link exists between the quality of planning choices and the increase of urban / metropolitan comprehensive productivity: this multidimensional productivity should be carefully assessed / evaluated.

For the new governance, new hybrid evaluation methods are needed. It is required a multidimensional evaluation approach for facing the tremenduos challenge of metropolitan city: for conserving the land vitality, the autopoietic capacity of eco-systems,for reducing the land consumtion, for a more effective use of exixting resources, ed in particular of cultural resources…..for checking if people wellbeing is growing(or not)

The evaluation methods are a good support for decision making processes, for improving opportunities, for minimizing risks, for identifying priorities etc. Each PPP is based on evaluation of mutual costs and benefits for becoming operational.

Every development strategy requires rigorous, transparent, participated and «third-part» evaluation to understand if and how and how much the wellbeing of people in changed.

The good governance itself is founded on effective indicators that are also agreed, clear and accepted by people for capturing plusvalues coming from urbanization and planning ( real estate evaluation of impacts…but also intangibles)

BES – Wellbeing domains

The individual sphere

The context

4) The Italian context. Some perspectives for metropolitan cities

Also in Italy, Metropolitan cities are the particular spaces where national economic wealth is produced…

BUT in the last 20 years they have lost productivity and attractive capacity (although the potential of Italian territory is very high, considering that Italy is a big logistic platform in the Mediterranean sea – one of the most beautiful sea overall the world- with the best cultural landscapes and creative capacity of inhabitants)

In particular, Metropolitan cities are spaces with high demand concentration for goods and services.

The pressure on natural/environmental capital is very strong with many consequent risks.

Often agglomeration economies are diverted into diseconomies with overuse of resources, pollution, congestion, discomfort and illness perception.


With the law n.56, / April 2014 ten metropolitan cities have been introduced in Italy: Rome, Naplesi, Milan, Turin, Venice, Genoa, Bologna, Florence, Bari, Reggio Calabria.

Here lives the 30,5% of Italian population (18,5 millions).The per capita GDP is shown in the table below:

Metropolitan city Gdp per capita Torino 20.455 Genova 20.529 Milano 26.733 Venezia 19.158 Bologna 23.711 Roma 21.331 Napoli 12.314 Bari 13.398 Reggio Calabria 12.386 Palermo 16.387


The 50% of Metropolitan cities are port cities.Three of this five metropolitan cities (Naples, Venice, Genoa) are

recognized as UNESCO sites with an high value of the urban landscape .

Metropolitan city Employement rate

Torino 65.9Genova 65.5Milano 71.1Venezia 63.3Bologna 72.3Roma 63.5Napoli 40.2Bari 48.9Reggio Calabria 41.6Palermo 41


The general condition of italian metropolitan cities: low integration between centre and peripheries,fiscal crisis conditions,lack of

comprehensive planning,industrial crisis,environmental and social problems…

All the 6 kritical issues (with different combinations) characterize italian metropolitan cities

Which models for building/managing the metropolitan city in Italy? Which model between mono-centric model and poly-centric

balanced model?

6.1)

The recent Italian Law no. 56 of April 7, 2014, “Provisionsion metropolitan cities, provinces, unions and mergers of municipalities” provides guidelines for the formation of “homogeneous zones” characterized by specific functions

This law is a positive initiative to face the multiple difficulties of metropolitan cities and can help to identifies the institutional framework for the activation of strategies for the development of a comprehensive territorial productivity, starting from the awareness of the proximity opportunities for synergies and symbiosis among the different municipalities.


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The tools:“Del Rio” law opens new opportunities introducing the

Strategic Metropolitan Triennial Plan and the Metropolitan Territorial Plan:

Many pone problems: Which relationship between them? Which characteristics (A coordination plan?An integration between different sectors plan?A resources conservation plan?A plan for social policies?A plan for environmental issues?A plan for the economic development….) ?

In any case, the new law opens the possibility to search a specific italian trajectory for the development of metropolitan cities, based on the valorization of existing local resources : the high quality of urban cultural/historic landscape, of the cultural heritage, of creativity of inhabitants….

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5) THE METROPOLITAN CITY OF NAPLES: TOWARDS THE STRATEGIC METROPOLITAN PLAN AND THE TERRITORIAL PLAN

5.1 ) The Metropolitan City of Naples (3.112.000 inhabitants) is the third metropolitan city in Italy (but the first for the density:2660 inhabitants per Kmq, the last for employment and Gdp per capita) . It is an interesting example where to implement a methodological approach, able to support the elaboration of the strategic plan and the territorial plan oriented to development strategies for improving the comprehensive territorial productivity. All the 6 critical issues characterize Naples metropolitan city

The symbiosis city (urban-rural) is the general model proposed for Naples Metropolitan Strategic Plan

This model is based on the circular economic processes between internal areas and coastal port-areas(of Pozzuoli,Torre del greco, Torre Annunziata, naples…),berween logistic economy and tourism/culture economy… A landscape approach is proposed for the strategic and territorial plan can be considered as a complex index, expression of knowledge, identity, and memory,


The Statute of the Metropolitan City of Naples was adopted by the Metropolitan Conference Resolution no 2, June 11, 2015; the article no. 4 defines the so-called “homogeneous zones” and identifies their features. In particular, it highlights that the Metropolitan City of Naples, for a more harmonious, balanced and functional arrangement of its territory, is divided into homogeneous zones which must be identified on the following factors which justify their common membership: identitarian characters and historical reasons; geo-morphological, naturalistic and landscape contexts; functional relationships and socio-economic frameworks.

• Homogeneous zones must be formally established by a specific Resolution of the Metropolitan Council, upon agreement with the Campania Region Government. Each homogeneous zone is formed by the aggregation of contiguous municipalities, in order to include a population of not less than 150,000 inhabitants.

A specific operational issue: the identification of the “homogeneous zones”


5.2 A first step in implemeting the new Law is the identification of the “Homogeneous metropolitan areas”

A specific approach has been proposed for try to contribute to achieve the comprehensive metropolitan productivity for the Metropolitan City of Naples.

Some relevant and specific indicators are selected to identify the local resources and the “homogeneous zones” for activating synergies and symbiosis among the the 92 municipalities which form the metropolitan area.



Criteria Indicators Code Data coverage Positive direction

Environment Percentage of areas of natural interest compared to the total surface A1 Municipality maxPercentage of areas subject to urban and environmental rehabilitation compared to the total surface A2 Municipality maxPercentage of neglected areas subject to landscape rehabilitation compared to the total surface A3 Municipality maxPercentage of urban areas compared to the total surface A4 Municipality minPercentage of agricultural areas compared to the total surface A5 Municipality maxExposure to volcanic risk (high, medium or low risk) A6 Municipality min

Built heritage Percentage of used buildings compared to the total number of buildings P1 Census areas maxPercentage of residential buildings with medium or low conservation status compared to the total number of residential buildings P2 Census areas minPercentage of residential buildings compared to the total number of buildings P3 Census areas maxPopulation density P4 Municipality minPercentage of areas of historic, cultural and landscape interest compared to the total surface P5 Municipality maxPercentage of areas for public (or public interest) services and facilities compared to the total surface P6 Municipality max

Quality of life

Number of usable parks and historic gardens per 10,000 inhabitants Q1 Municipality maxPercentage of community spaces compared to the residential surface Q2 Municipality maxPercentage of waste sorting compared to the solid urban waste Q3 Municipality maxNumber of organized crime groups per 10,000 inhabitants Q4 Municipality minNumber of cancer deaths per 10,000 inhabitants Q5 Municipality minExposure to air pollution (reclamation, observation or conservation zones) Q6 Municipality minNumber of contaminate sites Q7 Municipality minElderly index Q8 Census areas minAverage unitary market price of dwellings Q9 Census areas minAverage unitary rent price of dwellings Q10 Census areas min

Economy and production Percentage of production areas and industries compared to the total surface E1 Municipality maxNumber of local working units per 10,000 inhabitants (age 15-64) E2 Municipality maxNumber of employees in local working units per 10,000 inhabitants (age 15-64) E3 Municipality maxAverage income per capita E4 Municipality maxEmployment rate E5 Census areas maxUnemployment rate E6 Census areas minNumber of agricultural firms compared to the used agricultural surface E7 maxNumber of biological agricultural firms and/or with typical products compared to the total number of firms E8 Municipality maxPercentage of certified firms (EMAS and/or UNI-EN-ISO 14001) compared to the total number of firms E9 Municipality maxNumber of beds in hotels or other types of accommodation E10 Municipality maxAverage monthly income by visits in museums, monuments and archaeological areas E11 Municipality max

Transport Percentage inhabitants moving daily outside of their resident municipality compared to the total number of inhabitants T1 Census areas minNumber of buses per 10,000 inhabitants T2 Municipality maxNumber of railway stations per 100 km2 of surface T3 Municipality maxNumber of stops of underground lines, funiculars, cableways and ferries per 100 km2 of surface T4 Municipality max

Culture and society Percentage of graduate inhabitants compared to total number of inhabitants C1 Census areas maxAverage monthly number of visits in museums, monuments and archaeological areas C2 Municipality maxNumber of associations for social, cultural and leisure promotion per 10,000 inhabitants C3 Municipality maxNumber of ethical purchasing groups and networks per 10,000 inhabitants C4 Municipality maxNumber of no-profit organizations per 10,000 inhabitants C5 Municipality maxPercentage of volunteers in no-profit organization compared to the total number of inhabitants C6 Municipality maxNumber of associations for social assistance and health aid per 10,000 inhabitants C7 Municipality maxNumber of foreign-born people per 100 inhabitants C8 Census areas max

The adopted methodology has allowed to structure a Spatial Decision Support System (SDSS) and it has be divided into three main phases 1) Selection of criteria and indicators; 2) Statistical implementation procedures; 3) Multi-Criteria evaluation.

In the first phase, we selected a first set of criteria and indicators compatible with available data, able to explain constituent components and features characterizing the territory of Metropolitan City of Naples which has been analyzed considering some important criteria: environment, built heritage, quality of life, economy and production, transport, culture and society. These criteria were, in their turn, declined by 45 indicators (Table 1).


• A decision-making framework is proposed where Geographic Information Systems (GIS), statistical analysis, and Multi-Criteria Evaluation (MCE) techniques are integrated in order to indentify a comprehensive metropolitan productivity framework for the metropolitan city of Naples and to support the governance change management.

• According to the above issues, the proposed Spatial Decision Support System (SDSS) aims to identify homogeneous zones of the Metropolitan City of Naples, identifying the system of relationships, synergies and symbiosis that can foster cooperation between municipalities, considering the correlation of spatial variables during spatial decision-making using Principal Components Analysis (PCA) and MCE in order to remove data redundancy among a large set of spatial variables and determine “ideal points” for homogenous zones configuration(De Toro and Cerreta)


Homogeneous zones, defined as part of the metropolitan strategic plan, reflect the need to improve the effectiveness and efficiency (the productivity) in the definition of policies and projects, and in the delivery of services to citizens, prompting municipalities to operate more and more in cooperative form.

The establishment of homogeneous zones is an important opportunity to configure shared territorial interests and projects, putting in direct relation metropolitan cities and their municipalities, reorganizing and rationalizing the existing forms of inter-municipal cooperation, and managing associated forms of different services.....


• Within homogeneous zones becomes,for example, convenient, for example, the collection and waste management service (from paper, packaging, to electrical equipment, plastics, etc.) which represents a continuous challenge for the city of Naples.

• furthermore, in these areas it becomes easier the coordination of the different sectorial policies, reducing production/management costs. Starting from the local characteristics, we must build and enhance a common culture between inhabitants and local actors, from which improve governance in a bottom-up approach, and then improve the quality of life/well-being itself.

• In the homogeneous zones it is easier to proceed to the regeneration of relationships/bonds between social actors and the territory, and thus promote interactive collaborative processes (stimulating a multi-helix approach).


Within each homogeneous zone it is possible to activate circular processes of

mutual cooperation between different actors, which are generators of new value

creation chains, reducing costs. Between the different homogeneous zones new

productive relationships can be implemented, valorizing differences in a

complementary/holistic vision, based on cooperation, thus opening new

opportunities for investments in the metropolitan area.

The real obstacle is the individualistic culture of each stakeholder. Wy are trying to

overcome this difficulty through some Living Lab etc


The current lack of useful data did not allow us, for the moment, to elaborate flows/exchanges analysis between the urban zones and the port areas (as Pozzuoli, Torre del Greco, Torre Annunziata, Naples, etc.) necessary to promote a productive regeneration of processes between territories/cities and ports, and thus activate processes of circular economy (starting from agro-food sector, logistics, shipbuilding, etc.), reducing environmental impacts together with production costs.


6.CONCLUSIONS6.1 Conclusions about Naples Metropolitan CityHere the first step has been proposed...

It is necessary to improve the planning activity of cities towards a higher productivity. This requires to become able to multiply the density of relationships between activities, areas, institutions, and inhabitants….

The capacity to regenerate relationships among productive activities, built environment and rural environment, among people and the physical assets, areas and sites, big cities and towns, people and ecosystems iwill be more and more stressed in the perspective of the general model of sustainable regeneration , that is linked not only to the perspective for extracting from the local level the resources and energies needed for new dynamic trajectories through circular processes, but also to the re-generation of relationships...



A public metropolitan Observatory has been proposed, that should be able to assess / evaluate with continuity the success or failures of metropolitan strategies through a new indicators system and specific dashboards and community score boards….

Transparence, accountability and responsibility can regenerate the trust between people and local / public institutions. ……

6.1)

6.2) CO NCLU SIO NS a bout o ther i tal ian m etro pol i t an ci t ies

TOWARDS A COMPREHENSIVE PRODUCTIVITY STRATEGY FOR OTHERS ITALIAN METROPOLITAN CITIES

Starting from the empirical evidence provided by the evaluation of a selection of cities worldwide, it is possible to propose to invest in symbiosis – activating process of circularization, reciprocity and mutuality – determine an increasing of the comprehensive territorial productivity from different point views: a) economic, because it allows income production; b) environmental, since it promotes the preservation and protection of cultural and natural heritage; c) social, in terms of employment growth and strengthening of the sense of belonging to a place.


Many common issues………………in Naples,in Italy, in the worldIn any case these new planning activities can become effective if

they:

• Are attentive to improve the local financial base (subsidiarity principle) for improving management processes of existing resources (land, cultural landscape, cultural heritage…)

• Are able to be coordinated not only with local urban plans and with regional plan, but also to stimulate a national strategy

• Are able to stimulate synergies between different areas and different subjects: for guaranteeing a circular organization of flows (circular economy)

• Are oriented towards a polycentric model, for promoting a territorial balance and synergy economies between small cities and the central city

• Are able to increase the attractiveness capacity, being based on the valorization of the cultural/historic urban landscape and cultural heritage : metropolitan planning should recognize a key role to culture –led approaches


In any case, metropolitan plans are key tools for stimulating the implementation of the regenerative model, closing the loop of urban metabolism, imitating the circular metabolism of natural ecosystem: metropolitan city reduces resources from nature for its functioning, learning from natural ecosystem to recover, reuse, recycle, regenerate, reduce the consumption of resources.

Port cities can become the entrance point for a new circular process of metropolitan regeneration:


6.3) More General conclusionsSome perspectives for making metropolitan cities safe,

resilient, inclusive and sustainable:

• Integration between economic metropolitan strategy and spatial/territorial planning

• The neighboring cities to the central cities do not become simple dormitories areas, but dynamic nodes in a polycentric balanced model

• A creative local governance supported by specific evaluation tools


Sustainability of cities depends on research.A new knowledge is required, as a general pre-condition ,able

among other things, for futuring into metropolitan decision making

A new advanced/eccelence knowledge is required that is also useful. to solve many problems of urban system and to enhance inhabitants’ well being and thus to transform the current un- sustainable urban dynamic in a more desiderable future.

• “The scientific and academic community” should be more and more strongly engaged with the implementation of the 16+1 goals and of the New Urban Agenda that will be defined in Quito next October.

• • Specific initiatives should proposed that recognize the key

role of the Science, Technologies and Innovations for Sustainable Development Goals implementation (to facilitate access to knowledge and experience, to best practices, etc.): sustainability depends on science, innovation, on creation of new knowledge, on research.


Metropolitan Cities:Which Development Strategies? Which Governance Tools? New Perspectives in Italy

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