Final D R A F T (02 May 2007)
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LEIPZIG CHARTER on Sustainable European Cities
PREAMBLE
The “LEIPZIG CHARTER on Sustainable European Cities” is a document of the Member
States , which has been drawn up with the broad and transparent participation of European
Stakeholders. In the knowledge of the challenges and opportunities as well as the different
historical, economical, social and environmental backgrounds of European cities, the
Member States’ Ministers responsible for Urban Development agree upon common
principles and strategies for urban development policy. The Ministers commit themselves
• to initiate a political debate in their states on how to integrate the principles and
strategies of the Leipzig Charter on Sustainable European Cities into national,
regional and local development policies,
• to use the tool of integrated urban development and the related governance for its
implementation and, to this end, establish any necessary framework at national level
and
• to promote the establishment of balanced territorial organisation based on a
European polycentric urban structure.
The Ministers thank the German Presidency for having prepared the report “Integrated
urban development as a prerequisite for successful urban sustainability” and the studies
“Strategies for upgrading the physical environment in deprived urban areas”, “Strengthening
the local economy and local labour market policy in deprived urban areas”, “Proactive
education and training policies on children and young people in deprived urban areas” and
“Sustainable urban transport and deprived urban areas” with their examples of good practice
in Europe. These studies will help cities of all sizes in the effective implementation of the
principles and strategies set out in the Leipzig Charter on Sustainable European Cities.
The Ministers declare:
We, the ministers responsible for urban development in the Member States of the
European Union, consider European cities of all sizes which have evolved in the course of
history to be valuable and irreplaceable economic, social and cultural assets.
With the objective of protecting, strengthening and further developing our cities, we
strongly support the EU Sustainable Development Strategy, building on the Lille Action
Programme, the Rotterdam Urban Acquis and the Bristol Accord. In doing so, all
dimensions of sustainable development should be taken into account at the same time and
with the same weight. These include economic prosperity, social balance and a healthy
environment. At the same time attention should be paid to cultural and health aspects. In
this due attention should be paid to the institutional capacity in the Member States.
Our cities possess unique cultural and architectural qualities, strong forces of social
inclusion and exceptional possibilities for economic development. They are centres of
knowledge and sources of growth and innovation. At the same time, however, they suffer
from demographic problems, social inequality, social exclusion of specific population
groups a lack of affordable and suitable housing and environmental problems. In the long
run, cities cannot fulfil their function as engines of social progress and economic growth as
described in the Lisbon Strategy unless we succeed in maintaining the social balance
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within and among them, ensuring their cultural diversity and establishing high quality in the
fields of urban design, architecture and environment.
We increasingly need holistic strategies and coordinated action by all persons and
institutions involved in the urban development process which reach beyond the boundaries
of individual cities. Every level of government - local, regional, national and European - has
a responsibility for the future of our cities. To make this multi-level government really
effective, we must improve the coordination of the sectoral policy areas and develop a new
sense of responsibility for integrated urban development policy. We must also ensure that
those working to deliver these policies at all levels acquire the generic and crossoccupational
skills and knowledge needed to develop cities as sustainable communities.
We strongly welcome the statements and the recommendations set out in the Territorial
Agenda of the European Union and the work of the European Institutions which promotes
an integrated view of urban issues. We recognize the Aalborg Commitments as a valuable
contribution to strategic and coordinated action at a local level and the conclusions of the
European Forum for Architectural Policies on Building Culture on 27 April 2007. We take
note of the European Charter “Network Vital Cities”.
We recommend:
I. Making greater use of integrated urban development policy approaches
For us, integrated urban development policy means simultaneous and fair consideration of
the concerns and interests which are relevant to urban development. Integrated urban
development policy is a process in which the spatial, sectoral and temporal aspects of key
areas of urban policy are co-ordinated. The involvement of economic actors, stakeholders
and the general public is essential. Integrated urban development policy is a key
prerequisite for implementing the EU Sustainable Development Strategy. Its
implementation is a task of European scale , but it is one which must take account of local
conditions and needs as well as subsidiarity.
The reconciliation of interests facilitated by an integrated urban development policy forms a
viable basis for a consensus between the state, regions, cities, citizens and economic
actors. By pooling knowledge and financial resources, scarce public funds can be more
effectively used. Public and private investments will be better coordinated. Integrated urban
development policy involves actors outside the administration and enables citizens to play
an active role in shaping their immediate living environment. At the same time, these
measures can provide more planning and investment certainty.
We recommend that European cities consider drawing up integrated urban development
programmes for the city as a whole. These implementation-oriented planning tools should
describe the strengths and the weaknesses of cities and neighbourhoods based
upon an analysis of the current situation,
define consistent development objectives for the urban area and develop a vision
for the city,
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coordinate the different neighbourhood, sectoral and technical plans and policies,
and ensure that the planned investments will help to promote a well-balanced
development of the urban area,
coordinate and spatially focus the use of funds by public and private sector players
and
be co-ordinated at local and city-regional level and involve citizens and other
partners who can contribute substantially to shaping the future economic, social,
cultural and environmental quality of each area.
Coordination at local and city-regional level should be strengthened. An equal partnership
between cities and rural areas as well as between small-, medium-sized and large towns
and cities within city-regions and metropolitan regions is the aim. We must stop looking at
urban development policy issues and decisions at the level of each city in isolation. Our
cities should be focal points of city-regional development and assume responsibility for
territorial cohesion. It would therefore be helpful if our cities would network more closely
with each other at European level.
Integrated urban development policy offers us a set of instruments which have already
proved their worth in numerous European cities in developing modern, co-operative and
effective governance structures. These are indispensable for improving the
competitiveness of European cities. They facilitate early beneficial co-ordination of housing,
economic, infrastructure and services development by taking account, inter alia, of the
impact of existing ageing and migration trends and energy-policy conditions.
Within the scope of an integrated urban development policy, we consider the following
strategies for action to be of crucial importance for strengthening the competitiveness of
European cities:
Creating and ensuring high-quality public spaces
The quality of public spaces, urban man-made landscapes and architecture and
urban development play an important role in the living conditions of urban
populations. As soft locational factors, they are important for attracting knowledge
industry businesses, a qualified and creative workforce and for tourism. Therefore,
the interaction of architecture, infrastructure planning and urban planning must be
increased in order to create attractive, user-oriented public spaces and achieve a
high standard in terms of the living environment, a “Baukultur”. Baukultur is to be
understood in the broadest sense of the word, as the sum of all the cultural,
economic, technological, social and ecological aspects influencing the quality and
process of planning and construction. However, this approach should not be limited to
public spaces. Such a “Baukultur” is needed for the city as a whole and its
surroundings. Both cities and government must make their influence felt. This is
particularly important for the preservation of architectural heritage. Historical
buildings, public spaces and their urban and architectural value must be preserved.
Creating and safeguarding functional and well-designed urban spaces, infrastructures
and services is a task which must be tackled jointly by the state, regional and the
local authorities, as well as by citizens and businesses.
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Modernizing infrastructure networks and improving energy efficiency
An essential contribution to the quality of life, locational quality and the quality of the
environment can be made by sustainable, accessible and affordable urban transport
with coordinated links to the city-region transport networks. Particular attention should
be paid to traffic management and interlinking transport modes, including cycling and
pedestrian infrastructure. Urban transport must be reconciled with the different
requirements of housing, work areas, the environment and public spaces.
Technical infrastructure, especially water supply, waste-water treatment and other
supply networks, must be improved at an early stage and adapted to changing needs
in order to meet future requirements for high quality urban living.
Key prerequisites for sustainable public utility service are energy efficiency and
economic use of natural resources and economic efficiency in their operation. Energy
efficiency of buildings must be improved. This concerns both existing and new
buildings. The renovation of housing stock can have an important impact on energy
efficiency and the improvement of a resident’s quality of life. Particular attention must
be paid to pre-fabricated, old and low quality buildings. Optimized and perfomant
infrastructure networks and energy efficient buildings will lower costs for businesses
and residents alike.
An important basis for efficient and sustainable use of resources is a compact
settlement structure. This can be achieved by spatial and urban planning, which
prevents urban sprawl by strong control of land supply and of speculative
development. The strategy of mixing housing, employment, education, supply and
recreational use in urban neighbourhoods has proved to be especially sustainable.
Cities must contribute to ensuring and enhancing their residents' quality of life and
their attractiveness as business locations by making use of sophisticated information
and communication technologies in the fields of education, employment, social
services, health, safety and security, as well as means for improving urban
governance.
Our cities must also be able to adjust to the threat posed by climate change. Well
designed and planned urban development can provide a low carbon way of
accommodating growth, improve environmental quality and reduce carbon emissions.
Cities can achieve these outcomes through innovative prevention, mitigation and
adaptation measures which in turn aid the development of new industry and low
carbon business.
Proactive innovation and educational policies
Cities are places where a lot of knowledge is created and also imparted. The full
exploitation of a city’s knowledge potential depends on the quality of its pre-school
and school education, and on the transfer opportunities provided within the education
and training systems, as well as by social and cultural networks. The opportunities for
lifelong learning, the excellence of the universities and non-university research
institutes and the transfer network between industry, businesses and the scientific
community.
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Integrated urban development policy can contribute to improving these factors, for
example by bringing the stakeholders together, by supporting networks and
optimizing locational structures. Integrated urban development promotes social and
intercultural dialogue.
Integrated urban development strategies, cooperative urban development
management and good governance can contribute towards a purposeful use of the
potential of European cities particularly with regard to competitiveness and growth, as
well as to reducing disparities within and among neighbourhoods. They provide
citizens with an opportunity for social and democratic participation.
II. That special attention is paid to deprived neighbourhoods within the
context of the city as a whole.
Cities are faced with major challenges, especially in connection with the change in
economic and social structures and globalisation. Specific problems, among others, are
especially high unemployment and social exclusion. Within one city, considerable
differences may exist in terms of economic and social opportunities in the individual city
areas, but also in terms of the varying quality of the environment. In addition, the social
distinctions and the differences in economic development often continue to increase which
contributes to destabilization in cities. A policy of social integration which contributes to
reducing inequalities and preventing social exclusion will be the best guarantee for
maintaining security in our cities.
In order to achieve the objectives of social cohesion and integration in cities and urban
areas, well-conceived social housing policies can be effective tools. Healthy, suitable and
affordable housing can make these neighbourhoods more attractive for both young and old
people. This is a contribution to stability in the neighbourhoods.
It is better to spot early warning signs and take remedial action in a timely and effective
way. This saves ressources. Once an area has begun to decline, the cost of and difficulty
in turning it around can be many times more expensive. Government must offer an outlook
and incentives for improvement to residents in affected areas. Active involvement of the
residents and a better dialogue between the political representatives, the residents and the
economic actors is essential to find the best solution for each deprived urban area.
Against this background, we consider the following strategies for action, embedded in an
integrated urban development policy, to be of crucial importance for deprived urban
neighbourhoods:
Pursuing strategies for upgrading the physical environment
Economic activity and investments on the one hand and high-quality urban structures,
a sound built environment and a modern and efficient infrastructure and facilities on
the other are closely interlinked. For this reason, it is necessary to improve existing
building stock in deprived neighbourhoods with regard to their design, physical
conditions and energy efficiency. Improvements in housing standards in new
buildings as well as in existing large prefabricated, old and low quality buildings bear
the biggest potential for increasing energy efficiency within the EU and thereby
combating climate change.
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In order to increase the sustainability of investments in upgrading the physical
environment, they must be embedded in a long-term development strategy which
also includes, inter alia, public and private follow-up investments.
Strengthening the local economy and local labour market policy
Measures to secure the economic stabilisation of deprived neighbourhoods must also
exploit endogenous economic forces in the neighbourhood themselves. In this
context, labour market and economic policies which are tailored to the needs of the
individual neighbourhoods will be the appropriate instruments. The objective is to
create and secure jobs and to facilitate the start-up of new businesses. In particular,
access opportunities to local labour markets must be improved by offering demandoriented
training. Increased use must also be made of the employment and training
opportunities in the ethnic economy.
The European Union, Member States and cities are called on to create better
conditions and instruments to strengthen the local economy and thus the local labour
markets, in particular by promoting the social economy and providing citizen-friendly
services.
Proactive education and training policies for children and young people
A crucial starting point for improving the situation in deprived neighbourhoods is the
improvement of the education and training situation in the local community in
conjunction with proactive policies focused on children and young people.
More possibilities for education and training must be provided and improved in
disadvantaged neighbourhoods which are geared to the needs of, and address
deficiencies in provision for children and young people living there. By means of a
policy focus on children and young people which is tailored to the social area they live
in, we must contribute to improving the prospects of the children and young people
living in deprived neighbourhoods to participate and realize their ambitions and to
ensure equal opportunities on a long-term basis.
Promotion of efficient and affordable urban transport
Many deprived neighbourhoods have the additional burden of poor transport
connections as well as poor environmental influences which further reduce their
attractiveness. The development of an efficient and affordable public transport system
will give residents in these neighbourhoods equal opportunity to have the mobility and
accessibility of other citizens – which they have a right to expect.
In order to achieve this aim, transport planning and traffic management in these areas
must increasingly aim to reduce the negative impacts of transport on the environment
and to organise transport in a manner which will better integrate these
neighbourhoods into the city and region as a whole. This will also require appropriate
networks for pedestrian and cycle traffic.
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The better we manage to stabilize deprived neighbourhoods economically, to integrate
them socially and to upgrade their physical environment and transport infrastructure, the
better the chances are that our cities will remain places of social progress, growth and
innovation in the long term.
We emphasize that:
Urban development policy should be laid down at national level and the stimuli for
innovative solutions should also be created at national level, as well as at other levels.
Our cities need enough scope for action in order to perform local tasks in a responsible
manner and a sound financial basis which provides long-term stability. Therefore it is
important too that Member States have the opportunity to use the European structural
funds for substantial integrated urban development programmes. The use of these funds
should be focused closely on the specific difficulties and potentials as well as take into
consideration the opportunities, difficulties and specificities in the Member States. If not
already provided for, local authorities should develop the necessary skills and efficiency to
implement integrated urban development policies, also with a view to achieving overall
quality and sustainability in the built-up environment.
The new EU initiatives, JESSICA and JEREMIE, supporting the establishment of urban
development funds and funds for SME, using financial engineering instruments to leverage
private capital into the implementation of integrated urban development strategies, offer
promising opportunities to enhance the effectiveness of conventional national and
European funding sources.
At national level, Government Departments need to recognise more clearly the importance
of cities to deliver national, regional and local ambitions, and the impact of their policies
upon them. The efforts of different sectoral Government Departments working or having an
impact on urban issues need to be better aligned and integrated so they complement
rather than conflict .
We emphasize the importance of systematic and structured exchange of experience and
knowledge in the field of sustainable urban development. We ask the European
Commission to present the outcome of the exchange of good practice on the basis of the
guidelines of the Leipzig Charter at a future conference under the auspices of the “Regions
for Economic Change” initiative. Alongside this we need a European platform to pool and
develop best practice, statistics, benchmarking studies, evaluations, peer reviews and
other urban research to support actors involved in urban development at all levels and in all
sectors. We will continue to promote and intensify the exchange of knowledge and
experience between policy makers, practitioners and researchers at local, regional,
national and European level in the future in order to reinforce the urban dimension of the
EU Sustainable Development Strategy, the Lisbon Strategy and the European Employment
Strategy.
Europe needs cities and regions which are strong and good to live in.