3rd Foresight Seminar IMAGINE – Change course ! Towards a sustainable…. and desirable future 18-20/11/08 Reflection Accounts of three cities involved in building and sharing a vision for their territories: Greater Lyon (1,300,000 inhabitants - France), Figueres (41,000 inhabitants - Spain) and Sutton (185,000 inhabitants - United Kingdom) Title How to build and share a vision of my city that is compatible with a sustainable energy future? Keywords Vision – City – Environmental policy Origin Witnesses: Pierre Crépeaux, Head of Greater Lyon’s Climate Plan project, France Richard Elelman, Deputy Mayor in charge of the environment, Figueres, Spain Katherine Hudson, Environmental Sustainability Manager, London Borough of Sutton, United Kingdom Date: November 2008. Context: 3rd IMAGINE seminar “Change course! Towards a sustainable … and desirable future”. Written by: Hervé Maillot, January 2009. Links Energie-Cités: http://www.energie-cites.eu/ IMAGINE resources: http://www.energie-cites.eu/IMAGINE IMAGINE blog: http://www.imagineyourenergyfuture.eu/blog IMAGINE exhibition: http://www.imagineyourenergyfuture.eu/exhibition Related documents Back to the table of contents IMAGINE 2008 “Draft evaluation table of the steps towards implementing a shared territorial vision” document About this document... Energie-Cités is an association of European local authorities promoting sustainable local energy policies. The association was founded in 1990 and now represents over 1,000 towns and cities in 30 countries. Energie-Cités has been promoting the “IMAGINE the energy future of our cities” initiative since 2006. Defined as a foresight platform of collaboration and exchange leading to action, the initiative is based on the acknowledgement that our current mode of development will not stand up to the new energy and climate paradigms. The IMAGINE initiative aims at encouraging European territories to: - Take responsibility for their energy supply and the associated impacts in natural resources, the climate and wastes. - Prepare their future by adapting to energy and climate risks and redesigning their territorial policies on the basis of the new paradigm. A foresight Seminar is organised on a yearly basis as part of the IMAGINE initiative. The aim of the seminar is to improve the concepts by confronting them with practical issues and to propose new avenues and methods for action. The IMAGINE initiative also includes the “IMAGINE Beacon regions, cities, neighbourhoods” exhibition, as well as a blog and a discussion list as permanent supports for seminar participants to continue their discussions. Résumé This round table discussion held during the IMAGINE seminar provided three different European cities -in terms of size and geographical area- with an opportunity to describe the programmes they are carrying out and the vision behind them. It emerged from the discussions that : − sharing a vision of the future of a territory is a decisive factor of change as, without such a vision, it appears to be extremely difficult to carry out the changes in paradigms and practices that are necessary to achieve sustainable objectives; − this vision comes from the players’ capacity to reflect on and directly understand the complexity of the interdependences that characterise our world; − change and the acceptation of change imply a true involvement of the population and a continuous dialogue and consultation learning process. Page 1/6 3rd Foresight Seminar IMAGINE – Change course ! Towards a sustainable…. and desirable future 18-20/11/08 Content Figueres’ environmental challenges Richard ELELMAN: “Figueres is a small town of 35,000 inhabitants that is part of a hinterland of 65,000 inhabitants within a 160,000 inhabitant county. A first phase consisting of discussions with the citizens, personal reflections and work with the technicians enabled us to identify four or five basic policies. We decided to start with the public and private transportation systems which provide poor liaisons between the town centre and the rest of the urban area. They must also be made sustainable a speech entitled “train, bicycle and sex”. It was a way of arousing curiosity amongst a public that tends to stay away from such expert talks because they are too distressing and abstruse. The truth is that beyond the necessity to attract public attention, it has to be admitted that environmental policy lacks attractiveness if we take a narrow view of it whether it is a technological, philosophical or socioeconomic view – without considering the broader picture. But to achieve this – and this is where sex comes in! – we have to link up and work with all the players involved, whether they be in the office next door, or from the neighbouring city or adjoining province.” Sutton’s environmental challenges as they operate in a small Mediterranean town that was not designed to accommodate mechanised transportation systems and which receives over two million tourists every year. We realised that we had to tackle this problem globally. So we tried looking for alternative energy sources. And I must confess that still today, there is not a single solar panel in Figueres! Everything remains to be done in terms of energy self-sufficiency. The third factor we identified concerns the provision of green spaces. The town has only one park and has spread out a lot. The provision of green spaces is now a priority. Our fourth point is the management of water resources in a region which is already in a stress situation as far as water is concerned. We intend to bring in legislation on water use. Finally, we want to create new jobs in the field of environmental care. This would involve the construction of a technological estate for companies at the forefront of green technologies. We need to have a long-term vision to carry out such policies. We submitted a twelve-year plan to the citizens. Our intention is not to ask our technical teams to produce tangible results before the next elections. What we want is to be able to walk around Figueres in 12 years’ time with our children and see the results of our action. To do so, we need a political consensus that guarantees continuous action. Quite often, politicians make decisions that will help them remain in power. But as environmental issues have a timeframe of 10 to 12 years, they tend to be overlooked on the grounds that they are considered to be “unprofitable” from a political point of view. In a recent conference on the environment, I made Page 2/6 Katherine HUDSON: “South London has 43 boroughs, including Sutton, a borough of 175,000 inhabitants with quite a long experience of environmental issues. A first plan was launched 22 years ago. Although the players had no common vision or logic, many things were achieved before we realised that we needed an overall vision of what was to be achieved. Our horizon-target was initially to reduce the ecological footprint of each citizen from three to one planet1. This was very ambitious and we soon realised that we had set too high a standard. We therefore decided to launch BedZED,2 a One Planet Living experiment with environmental, social and economic dimensions. From then on, the population started to understand where we wanted to go and how we intended to adapt our practices and daily consumption to get there. We now want to build new houses with extremely strict environmental standards. We are also trying to help owners of existing buildings and use BedZED to show them that it is possible to do it”. 1 2 See the One Planet Living website http://www.oneplanetliving.org/index.html See the BioRegional programme website http://www.bioregional.com/programme_projects/ecohous_p rog/BedZED/BedZED_hpg.htm 3rd Foresight Seminar IMAGINE – Change course ! Towards a sustainable…. and desirable future Greater Lyon Metropolitan environmental challenges Council’s Pierre CRÉPEAUX: “Greater Lyon is a metropolitan area with 1.2 million inhabitants. This intermunicipal structure is competent to act in the following areas: sanitation, road maintenance and cleaning, urban planning (the PLU, local development plans of the various municipalities composing the metropolitan area are mutualised) and the drinking water supply. Environmental charters were signed in the 1990’s. After some years with no specific project, an Agenda 21 reflection was re-initiated at the beginning of the 2000’s. It was within this framework that we considered the issue of an environmental diagnosis of the territory and realised that although we had a fair idea of air quality and some information about energy use, we had no information at all about greenhouse gases. Our first action consisted of asking ourselves what our responsibilities were in terms of energy and climate stakes. Our Agenda 21 was updated in 2007, and a decision was made to set up GHG emission targets by adopting 3x20 and “factor 4” objectives. These targets were unanimously voted in, giving us legitimacy and a fair amount of leeway. We are now wondering whether our action is up to our objectives. Of course, quite a lot has already been done. For example, we have a major public transport project that should help us circumvent a number of administrative and competency limitations. This project involves eleven local players, including the Regional Council, the French SNCF national railway company and local transport operators. Each partner contributes to a global budget of around one billion euros. We have managed to create a sort of regional rail-based, and not road-based, express network; this would not have been possible if each of us had been working in isolation. As for town planning, the Greater Lyon Metropolitan Council is also subsidising the construction of social housing units through property grants. The system for allocating such grants is to change as of 1st January 2009. Before, builders were given a grant when they used stricter standards than those imposed by current legislation. Now, the burden of the proof has changed and any building that does not meet the standards defined by Greater Lyon Metropolitan Council is deemed ineligible. We are currently running 25 actions of this type but we would now like to have a broader view of the impact of such measures in order to get a better understanding of we are doing and whether our action is taking us in the right direction. In other words, we want to know what achieving the 3x20 objectives means in practical terms for the Metropolitan area.” The three participants in this round table were then invited to answer the following questions: • What are the main elements (or main reasons) that made you realise that a vision Page 3/6 • • 18-20/11/08 was needed? How did you identify the driving forces for change and what were these factors? What were the obstacles and the solutions provided? What problems/obstacles did you encounter when developing your vision? How did you overcome them? What would you recommend to other cities to help them build their own vision? Is there a multidisciplinary team responsible for the visioning process? If so, how was this team set up? What are the exact roles and tasks of this team? What difficulties did you meet? What solutions did you come up with? Pierre CRÉPEAUX: “The main elements that allowed us to identify the need for a vision came from the previous administration. Our elected representative at the time asked us: “How many more buses and bus routes would your 3x20 objective mean in the city?” It was a very pragmatic question and one that we were unable to answer. Today, our reflection process has led us to ask ourselves how and where we could save on our own CO2 emissions (to achieve the 3x20) and what could be saved on private car emissions. The next step will be: when designing our public policies, the question is not to determine how we are contributing to the greenhouse gas effect but whether these policies are compatible with our vision. This approach is also applied to the preparation of the SCOT, the French regional development plan. The right method is not to quantify a priori the environmental impact of a policy but to ask ourselves, while implementing it, whether the actions carried out are taking us in the right direction as defined in our vision. In other words, being able to imagine the territory we want to have in the future is a prerequisite to developing the right public policies. Having said that, the difficulty is to have all the players adopt the same stand and make them understand that to make progress, we need to share a common vision. The same applies to our multidisciplinary team, which includes a heat engineer, a highly qualified director responsible for the ecological mission, two town planners with a background that is more social and urban than scientific, a person in charge of environmental surveillance with a gardening focus, an urban engineer and a person with a good knowledge of institutional relations in charge of mobilising the territory.” 3rd Foresight Seminar IMAGINE – Change course ! Towards a sustainable…. and desirable future Richard ELELMAN: “The main element at the origin of this search for a vision in Figueres was that everything needed doing! It is a small town, which is an advantage. We can talk directly to the citizens, in their neighbourhoods. It is essential to understand that, as elected representatives, we learn more by talking to people than by organising conferences. We must accept to learn what we do not know and get this knowledge where it lies, taking the opinions of both experts and citizens into account. As for obstacles... in Catalonia, everyone looks to Barcelona and tries to follow what this city is doing. This is not the way it should be. In Figueres, we are going to receive our first electric bus. The very first one in Catalonia! Well, it took time to convince my colleagues and fellow political players because they did not believe in this project. They only believe in what they see! I therefore went to visit an electric bus manufacturer in Italy and came back with a vehicle that ran throughout Figueres for three days. People saw it and believed in it! Yes, an electric bus makes no noise, emits no pollution, and it exists! Once you have created an expectation, you have to meet it. In Spain, city councils have many competencies and are extremely powerful. This means that mayors have a lot of power. This also leads to huge differences in the policies implemented from one town to another. We must, therefore, learn to work together in a consistent way. From a general point of view, to build a long-lasting vision and ensure the continuity of the decisions made, the thing is to speak to everyone and be transparent as regards the stakes and choices made. The adopted strategy must be explained before being implemented, for without support, what is being done now will be undone by the next administration. Let us be clear, I never say “my” department. The territory I am responsible for is not “my” territory. My mandate is only a limited one. My competency is only bestowed upon me and I know that I will no longer be in charge when the projects I am launching now are over. I try to conceive policies that are compatible with all the economic and social issues of the city. We must have a systemic and horizontal approach to the problems at hand, for they are always linked, in one away or another, to other problems within the city”. Katherine HUDSON: “We started a number of actions in the field of transport, recycling, renewable energy, biodiversity and concerning the implementation of standards following the introduction of EMAS3. But the population did not 3 See http://fr.wikipedia.org/wiki/EMAS for a description of the EMAS certification Page 4/6 18-20/11/08 understand how it was all related. We therefore had to explain what all these actions, once carried out, could bring to the inhabitants in their everyday life. This explanatory task highlighted the need to build and propose a vision that makes sense and links all change factors together. The adoption of the One Planet Living approach allowed us to cover several social aspects like well-being, health and education. We got closer to people’s concerns. And gradually, using their concerns, centres of interest and questions as a basis, we helped them take a more global view of what we were doing and why we were doing it. As regards energy issues, it is difficult to be explicit, to make people feel and understand the impact of their behaviour. We had to explain that sorting waste and encouraging slow food circuits can result in a poor ecological footprint if you travel by plane twice a year. We had to show them that our daily lifestyle used up the resources of three planets. We then showed them how to reduce this to one planet whilst improving their quality of life. From a practical point of view, we gave ourselves reference frameworks, organised workshops and consultation processes with the population, experts and professionals. They told us about their own vision of an ideal city. We had to progress step by step and make them gradually understand the complexity of the interdependences at hand, making sure that they had assimilated each of them. A communication that fails to address complex problems in a simple way is definitely an obstacle to change. Little by little, everyone understood that environmental issues are also technical, ecological, economic, cultural and social issues. This involves networking as well as a multidisciplinary and participative approach. A remaining obstacle is that the environmental approach is still considered to be inefficient, useless or just trendy, not to say futile, and far from the population’s daily concerns. Quantifiable information is needed to demonstrate that such an approach can make the difference and the ecological footprint calculation tool can prove useful in this. This approach, which considers many parameters, gives a global result and is a good indicator of each person’s sustainability. So as to attract as many people as possible, each of their objectives must be known and then all their individual objectives combined into one global sustainable community objective. It has to be proved that this sustainable community objective will help each member of the community attain their own objectives. In terms of human resources, at the beginning I was the only one amongst 3,000 municipal staff members! There are now 6 of us: one is working on sustainable development, three on biodiversity -including two whose work also consists of looking 3rd Foresight Seminar IMAGINE – Change course ! Towards a sustainable…. and desirable future for external financing- and one on internal environmental performances. In the near future, we are planning to hire a new member of staff who will be in charge of project sustainability in general. The objective will be to draw up an Action Plan for Sutton and prepare the corresponding financial application. As for the financial resources engaged, we have always tried to ensure that the investments made, especially when they required mobilising external resources and know-how, would gain us more than they cost. The organisations we work with, for example, can apply for funding that we, as a public authority, are not entitled to.” Exchange of experiences and points of view with other cities Myriam NORMAND (Director for Energy Conservation – Besançon City Council): “Showing what we do is one thing. But we also have to invent a new type of communication to explain what is not visible, what is not spectacular and does not necessarily lead to an inauguration ceremony – one of the forms of communication most appreciated by elected representatives! – but which represents major progress towards sustainability and improved living. We may also question the resources used to convince and engage local players. Are we sure these resources in time and money will always be available to us to initiate change? And how should we position ourselves in relation to the inhabitants’ desires? Shall we grant them all their wishes without imposing limits? We have to explain why there are limits to the “always more” attitude.” Christian VASSIE (Deputy Mayor of York City Council and artist): “When Katherine said at the beginning that she was alone, she got to the crux of the problem. We must avoid getting bogged down in technical and intellectual considerations. It is people that make things happen. It was not Richard’s electric bus as the appropriate technical answer that won the day; it was Richard’s enthusiasm and energy that provoked change. The simple fact that he tried to do something without being mandated to do so gives the population an idea of his determination and his capacity for initiative and this creates trust. The York EcoDepot4 came into being because a handful of people really wanted it to be built. It is not the result of a wide public consultation process which would have spent of lot of time on whether or not such a building was needed. We need to show voluntarism and not loose ourselves in a wealth of expert advice. Let those who want to make things happen stand up and do it! We need enthusiasm and we need time to develop our ideas and transmit them. We spend a lot of time trying, and often failing, to obtain the creative space we need. It would be 4 Information on the York Eco-Depot is available from http://www.carillionplc.com/sectors/sectors_regeneration_yo rkecodepot.asp Page 5/6 18-20/11/08 extremely useful if we could leave our breakthroughs, attempts and progresses on the IMAGINE blog so as to pool enthusiasm.” Ralf BERMICH (Energy Climate department Heidelberg): “I think we need visions at various levels. In Heidelberg, our concept of urban development encompasses all aspects of sustainable development. This does not concern action. What seems important to me is the development of visions of some specific aspects. Before taking action, we need to decompose complexity, and therefore, to decompose our vision. This decomposition process will lead to the identification of a number of projects, each with its own vision, and to the distribution of responsibilities amongst all the players to be involved.” Pim KOEGLER (Founder of the Power Inspiring Movement advice agency, The Netherlands): “I have three questions to ask you. I would like to know how such a vision can emerge in practical terms? I believe we learn a lot from our mistakes as well as from others’ mistakes. What would you not do again? How can you communicate on the processes engaged in a transparent way?” Richard ELELMAN: “Ralf proposes to divide the vision into sub-visions. I think that globally, the programme must have a motto, a clearly identified direction with a specific and practical objective that can easily be understood by all. Then, each project is a contribution to, or a version of, this global vision. In practical terms, this means that there is a risk of our transversal, multidisciplinary teams turning in on themselves and becoming exogenous components of the administration they belong to. The members of these teams must be ambassadors to their original department and must personify the links that will make the vision a tool that is perfectly integrated into all the sectoral policies.” Emile SPIERER (assistant scientist in the energy department of the canton of Geneva in charge of the property sector): “I do not try to measure my ideas or theoretical calculations. I look at the reality of the result as measured through the energy sales on my territory. In the vision we developed, we gave up the idea of standard solutions. On the contrary, we try to standardise questions. Such a vision is built around four components. The first consists of identifying our needs and bringing them into question. The second deals with understanding what our resources and constraints are. The third component is the source of inspiration that we find in the scientist Sadi Carnot. The last one concerns human relations. We talk to the people who come to see us around our coffee machine and this is where most of our ideas are developed. One of our obstacles is the number of decision-makers. It is extremely difficult to reach a decision when too many people have to or want to be involved. Another difficulty is that implementing a vision 3rd Foresight Seminar IMAGINE – Change course ! Towards a sustainable…. and desirable future implies a succession of decisions and some risk taking. We must dare take the first decision and announce the following ones without knowing for sure what the consequences will be. This requires courage. We must accept that we are going to make mistakes.” Stéphane DURAND (Head of the Environment and Sustainable Development Department Municipality of Echirolles): “A possible mistake consists of believing that everyone is convinced that we should opt for sustainable development and is now ready to act accordingly. For a number of committed political decision-makers, this forms the backbone of true political orientations capable of obtaining everyone’s commitment. Such a commitment, however, cannot happen without a shared vision. And this shared vision must exist! Our elected representatives are also extremely keen to communicate on what is being done. For those who work on environmental issues, it is important to use the levers of communication properly and to keep communication strategy under control. Communicating on a vision is difficult but when launching or developing new projects, it is possible to describe them as achievements that confirm the relevance of the vision.” Lily PARSHALL (Ph.D., Columbia University, NewYork) ”Moving from the objective to the evaluation of energy policies is an important step. What do you do and how do you share these figure-based evaluations with the public? Furthermore, some cities are already taking part in the carbon market in the United-States. Is there such a thing in Europe? Do you intend to have your cities take part in such markets to obtain credits? Have you already mapped building energy use in order to determine your priority targets?” Mathias SINN (Head of the climate, health and environment department - Munich): “Our objectives were set twenty years ago. The evaluation process includes controlling CO2 emissions. This works relatively well although it is difficult to obtain all the data from all the various stakeholders. We have quantitative data on the city of Munich emissions and we transmit this information to political decision-makers as well as to the population. As far as emission trading is concerned, this system only allowed us to achieve our objectives as of last year. Many resources are allocated to the organisations involved in this trading system. Considering the investment it implies and the number of players involved, the cities do not take part directly, they take part indirectly and the whole system is managed at the level of the Land.” Myriam NORMAND: “Besançon has been collecting data on its municipal properties since the end of the 1970’s. This data only concerns consumption in kWh and the costs relating to the city. CO2 and greenhouse gas emission measurements were Page 6/6 18-20/11/08 introduced in 2006, but in the current context where electricity is produced mainly from nuclear sources, this is not sufficient and quite perverse. Elected representatives should be provided with other indicators and decision-making tools. The city has its own district heating network and can control its consumption data and development. But since the liberalisation of the markets and the separation of the functions between the French electricity (EDF) and gas (GDF) boards, it has been impossible to control the data provided by energy suppliers. The city has, therefore, lost power in terms of spatial organisation and energy distribution. This is a regression. Concerning the carbon market, two systems exist. The CO2 emission trading scheme which allows the buying and selling of any excess savings or emissions based on the emission targets the players must comply with. Since 2006, we have also had the CEE5 or energy saving certificates which are based on objectives set for three years. Whenever an energy-efficient technology is being introduced, the municipality extends certificates for each type of saving made and tries to sell them to energy suppliers based on the objectives set by the State. But this system has not yet been able to generate a market and does not represent a substantial income for the local authorities.” Georges OHANA (Energy delegate – City of Lausanne): “In Switzerland, we introduced a tax on CO2 and it is possible to place target-based contracts with the federal government to avoid paying this tax. Lausanne has signed such a contract. We are lucky in that we control energy distribution. However, it is more difficult as regards transport, especially as the French border is very close and fuel is cheaper in Switzerland than it is in France.” Katherine HUDSON: “In the United Kingdom, data concerning industry, transport and domestic emissions has been collected by each local authority since 2005. Local authorities must use one of the county emission monitoring indicators”. 5 Information on the CEE is available from http://www.industrie.gouv.fr/energie/developp/econo/ceeclics.htm
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