Decision-making tool for a constructive relation between emblematic facilities and urban regeneration projects applied to the case of Riad El Feth Arts Centre in Algiers

Leverage was estimated in two steps. One was a comparison of the 18 Effs with the 15 UR targets identifying a system of relations (positive or negative) represented by an Influence index I_n attributed to each effect Eff_n.This index illustrates the importance of Eff_n with respect to the overall set of effects, representing the dynamics between the EF and UR.

where:

The 18 Effs were estimated from 46 (qualitative or quantitative) indicators whose values were converted into an arithmetic scale using a quantitative marking scheme. A weighted system, based on the procedure of the usual successive comparisons in multi-criteria approaches (Carluer 2005), was used. The procedure is to reveal the relative influence that experts assign to each of the effects and which is translated as a percentage, knowing that the sum of weights or influences is equal to 100%, for each effect assessed. The questionnaire was distributed among 30 experts in the field of urban planning: teachers-researchers (43%) and practitioners (57%).

where:

The value (VEff_n) of Eff_n was estimated from aggregated indicator scores multiplied by the influence index I_n. This value represents the leverage effect of the EF on UR targets.

Built in 1986, Riad El Feth is one of a series of landmarks that punctuate one of the highest ridges in the region, which forms a magnificent panoramic balcony over the Bay of Algiers. Designed in the spirit of the Casbah building (Fig. 3), Riad El Feth is organised around a patio that extends over three levels. It includes a 90-seat conference hall, a 495-seat cinema with three projection rooms, a small theatre, and 127 business premises (of which only a few are occupied). The building sits on a 1500 m²esplanade, where crowds gather for large-scale cultural events. The Centre is managed by a public body that employs 367 people: the Office of the Riad El Feth OREF falls under the responsibility of the Ministry of Culture. In 2014, the number of visitors was estimated at 235,204 (OREF 2014), more than 600 per day.

The facility is located in El Madania (Fig. 4), an area overlooking Algiers about 6 km southeast of the city centre. El Madania, together with the municipalities of Central Alger, M’Hamed and El Mouradia, form the central district of Sidi M’Hamed. However, El Madania is distinguished by its relative poverty: “What can be done with a 17-billion centime budget? More than 80% of this is used to pay the wages of APC civil servants. Moreover, I don’t know how we are going to cope with the new increases” (an interview with the Mayor of El Madania, El Watan, of 20 April 2013).

Fig. 4

The area is mainly residential (7,949 houses with a surface area of 217 ha (ONS 2008)) and is made up of several large housing estates dating from the end of the colonial period (Diar El Mahçoul and Diar Essaada designed by the architect Fernand Pouillon, Diar El Chemes, Diar El Bahia and Diar Essalem), characterised by overcrowding and poor facilities (notably sanitary installations). These conditions (Table 2) have been reflected in very violent urban riots.

Given the lack of an UR project or a local development strategy for El Madania, we drew upon conclusions taken from a pre-diagnosis and PDAU recommendations in order to compare and assess pre-defined UR targets against local challenges. Residents were involved by sending them a questionnaire that asked them to identify their needs and expectations regarding their municipality. The questionnaire was distributed to a sample of 70 people representative of the local social component. In balanced proportions, it concerned the two sexes (men, women), the different ages (children, young people, adults, the elderly) and the different profiles (women at home, students, unemployed, retirees, employees). Training (40%), jobs (33%), and sport and leisure (13.3%) were the first three needs listed.

At the same time, a rating scale (Table 3) was established to estimate the effects Eff_n (negative or positive) of the Arts Centre. Performance was evaluated from effectiveness scores given to indicators. The scores were assessed with respect to the needs that emerged from the pre-diagnosis, and the results of a study that classified municipalities according to their level of performance

Taking an ecosystem approach, the study was based on a scoreboard with three indices (environmental, economic and quality of life); each index was expanded into categories and indicators that give a fairly comprehensive outline of a municipality and its level of development.

The analysis was conducted using Excel software. This led to the development of a grid to assess effects (Table 4). The results are also presented in a radar diagram (Fig. 4), which shows that of the 18 Effs, four (including one negative effect) are Insignificant, while 11 (two of them negative) are Not very important.

The radar diagram (Fig. 5) highlights three Important or Very important effects, which correspond to the promotion of diversity (Eff₈), the development of proximity (Eff₃), and strengthening security (Eff₉). The open architecture of the Riad El Feth, the creation of new infrastructure (a mechanical bridge and a cable car), and the visible presence of security services are the origin of improvements in these areas.

Fig. 5

The results provided by the EFLUR tool shed light on the dynamics between the effects of the EF and UR targets. Most (15 of the 18) Effs scored below the reference value (the average of the rating scale being 1.5), which sets the threshold for deciding whether the effect is important, in the sense that it has a real impact on achieving (or not) UR targets. The preponderance of Insignificant or Not very important effects, suggests that the Arts Centre has had a marginal role in the development of the El Madania municipality.

The evaluation placed the Arts Centre in position D3 in the graph of the dynamics between an EF and UR (Fig. 2). This corresponds to a dynamic of shortage in which the object does not drive development. The tool verified that in its current state, the Riad El Feth cannot be considered a lever for the regeneration of El Madania. It has not been able to attract and/ or maintain the hoped-for socio-economic added value. Further evidence is found in the worsening unemployment rate in the municipality, estimated at 6% in 1988 (ONS: office national des statistiques 2008) and above 10% in 2012 (ONS 2014). It is revealing to note that only a few residents have been employed by the Centre or its administration – 68 people, representing 18% of the total estimated workforce in 2014 (OREF 2014).

According to Kebir (2006), in position D3, the weaknesses of an object and its effects can become so significant that it can limit or stop production in the system. The author also argues that if the situation persists, it can lead to the dilution of the object through the degradation or gradual destruction of the system. Such a situation would jeopardise the status of the Riad El Feth as an EF, leading to the municipality losing a potential generator of urban dynamics (Bouallag-Azoui, Berezowska-Azzag 2016).

However, the evaluation demonstrated that the situation is not yet critical. Despite the lack of a positive Eff, the scores indicate a certain level of leverage on some UR targets and suggest that Riad El Feth has some potential to become a catalyst for regeneration (Ismain 2010). Furthermore, the negative effects are not so significant as to represent a brake on local regeneration dynamics.

The results of the EFLUR evaluation can be represented by a positive contamination graph (Fig. 6) that shows the estimated leverage of an EF on local UR. This graph shows actual scores compared with the desired values that we equate in this evaluation with the reference value of 1.5, in order to draw up action plans and identify the necessary resources. The aim is to shape the graph in ways that support sustainable regeneration.

Fig. 6

Stakeholders (planners, OREF, local decision-makers and representatives of civil society) can plan short-term actions by drawing upon the potential of an EF and the municipality, and identifying the priorities and stakes in local development (Table 2). The objective is to improve indicators to the point that their effects become Important or Very important, meaning that they are UR levers.

The retroactive nature (Morin 1974) of the EF/ UR dynamics suggests that an intervention is necessary in the urban system. Specifically, it is necessary to promote the attractiveness of the EF and enhance its leverage on local development. This requires short-term actions with respect to some (or all) urban dimensions (social, economic, spatial and environmental) based on complementary operations or initiatives that have been proven to have direct impacts on the EF. The aim is to enhance polarisation effects (for example, rehabilitate the built environment, develop new partnerships, encourage business, provide training to young people). It should not be overlooked that in a society based on communication, an image has a special role in the identification of districts and cities, with all that this implies in terms of attractiveness and quality of life for residents (Hedley 1994).

Paul Boino (2005) states that large-scale projects have the ability to transform the urban landscape, improve its image, and attract new residents and investments. In this way, they can become real levers for the regeneration of declining urban entities (Guinand 2015). However, the tool that we propose here, and apply to Riad El Feth, highlights that this leverage depends on the growth dynamic that links EFs and UR, which can be either constructive or destructive.

The example of Riad El Feth provided a context to verify that the checklist of effects proposed within the framework of the EFLUR tool, although not exhaustive, was sufficiently representative of all urban dimensions (socio-demographic, identity-related, economic, environmental and spatial). The contents of the checklist can vary depending on the characteristics and importance of an EF, and as a function of the local urban context that it interacts with. In practice, this study found that local performance can enhance or diminish the effect (Kebir 2006). With respect to UR targets, they can be clarified and supplemented as a function of local characteristics, on the condition that they remain representative of fundamental UR objectives (Fig. 3). These constraints support the systemic and holistic approach taken in the construction of the tool.

Secondly, the EFLUR is a decision tool that can support stakeholders involved in the management of a local area, and who must propose and select actions necessary to maintain a dynamic (D4) EF/ UR link. Priority must be given to actions that raise the area’s profile and improve its image; therefore, actions that target EF attractiveness are a necessary prerequisite to it becoming a UR lever (Barbier 2003). Urban planning becomes a strategy for metropolitan development (Padioleau 1996). The deployment of the tool during the implementation of the various projects proposed in the Algiers Strategic Plan (Wilaya Alger, 2013) would clearly contribute to embedding the urban context in the development process.