2016-2018 URBACT Action Planning Networks

Integrated Action Plans

IAP Case Study – Cluj-Napoca (REFILL)

Integrated Action Plan – Refill the City

City: Cluj-Napoca

Country: Romania

City size: Large (c.325 000)

Regional development: Less developed region

Network: REFILL

Network topic: Re-use of vacant spaces

Full IAP: https://urbact.eu/sites/default/

files/iap_cluj_eng.pdf
Introduction
This IAP case study is an output of the ‘IAP Study’ commissioned by the URBACT Programme and
conducted by E40 Group, led by Ed Thorpe (Nov 2018 - May 2019). See the URBACT website for the
full IAP Study report: https://urbact.eu/.
The presentation of the case study follows the main findings of the IAP Study, notably that the word
‘integrated’ has multiple meanings in the context of ‘integrated action planning’, covering three main
aspects: 1. integrated planning processes; 2. planning for integrated urban development; and 3. an
integrated plan.
These terms, which can be confusing, essentially refer to: 1. the quality of the action planning
process; 2. the definition of actions to deliver integrated urban development; and 3. the elaboration
of an action plan that is detailed, coordinated and coherent.
The case study is not presented as a confirmed example of good practice. Rather, it is presented as
an illustrative example of what the IAP Study has identified in terms of the various aspects of
‘integrated action planning’ and the differences in approach and focus seen between different cities
and different URBACT networks/themes.
The case study (as part of a set of seven, linked to the IAP Study) aims to be useful to anyone
interested in:
a) understanding and breaking down the complexity of integrated action planning in urban
development;
b) thinking about how the content and approach of integrated action planning might vary
according to the theme being addressed or different city contexts; and
c) looking for inspiration in terms of good ways to develop and present an integrated
action plan.

Acknowledgements
This IAP Case Study has been prepared by E40 Group EEIG.
Main author: Ed Thorpe (E40 Group)
Contributors: Adele Bucella (URBACT Secretariat, Head of Unit Projects & Programming), Sally
Kneeshaw (URBACT Programme Expert).

Contents
Overall approach ..................................................................................................................................... 3
A. Quality of the action planning process ............................................................................................... 5
B. Actions for Integrated Urban Development ....................................................................................... 6
C. A detailed, coherent action plan......................................................................................................... 8
Key concluding observations ................................................................................................................ 11

2
Overall approach
The IAP of Cluj-Napoca from the REFILL network is focused mainly on improving understanding and
awareness of the potential value of temporary use (TU) and putting in place a supportive framework
to facilitate temporary use projects in practice. It states: “REFILL project will prove to have been an
experiment to facilitate the dialogue between the public administration and local stakeholders, in
order to establish the basis for TU-based requalification of abandoned urban areas”.
Importantly, it focuses its attention on supporting temporary use in a pilot area of the city, in order
to demonstrate the effectiveness of approaches to be applied later at city level. It states: “The
current Integrated Action Plan addresses challenges and proposes actions at the city level, but it
focuses particularly on a pilot area (which has a high potential to become a new entry gate to the
city and it represents a new potential centrality).”
In the Romanian language version, the IAP sets out 21 actions under eight different areas of work
covering: campaigns to identify vacant spaces; awareness and promotion campaigns; temporary use
projects/events in both indoor and outdoor vacant spaces; facilitating access to public data on both
the availability and situation of vacant spaces; developing new legal/normative instruments; and
facilitating access to finance for temporary use projects.
These are presented in an action table as per the template presented at the top of the following
page. Unfortunately, this table is not provided in the English language version, which is an important
loss to the presentation of the IAP. Otherwise, the English version is a full translation of the
Romanian version.
The IAP also identifies priority actions, which are repackaged into a set of three pilot programmes –
the structure of which is also presented on the following page. These pilot programmes cover: a
digital platform for vacant space identification; awareness-raising and temporary events; and area-
based requalification (led by temporary-use interventions).
In terms of its structure and presentation, the IAP is able to present a lot of relevant information and
detail in only 36 pages (RO version)1 structured into six clearly distinct chapters covering: a general
introduction; the local urban context of Cluj-Napoca; the pilot areas, vision and strategic objectives;
intervention priorities and actions; process description including the framework for delivery; and risk
analysis. The action tables are quite clear and contain some useful detail. The document also
benefits from a very clear and structured table of contents, with a number of useful sub-headings.

1
English version is only 25 pages with the missing action table

3
Table 1: Action Table template (translated from the Romanian language version)
MAIN OBJECTIVES LIST OF ACTIONS RESOURCES AND CONDITIONS
Objective Results Action area Actions Priority Require- Key Duration Sources of
ments Actors finance
1.1… 1.1.1…
1… 1.1.2…
1.2… 1.2.1…
1.2.2…
1.2.3…

Table 2: Pilot Programme ‘Factsheet’ template

PILOT PROGRAMME
ACTION FIELD
JUSTIFICATION
POTENTIAL PARTNERS/ INTERESTED PARTIES
GOALS AND COMPLEMENTARY ACTIONS
DURACTION/ TIMEFRAME
TARGET GROUPS AND BENEFICIARIES
REQUIRED RESOURCES
EXPECTED RESULTS
FURTHER OBSERVATIONS

4
A. Quality of the action planning process
Cluj-Napoca both used and clearly presents the integrated planning process behind its IAP, which
has stakeholder involvement at its heart and responds to real identified needs in the city. The
transnational learning and inspiration provided by the REFILL network is also well presented.

Actions are based on needs

The IAP sets out that it seeks to respond to a clearly identified need: “the existence of vacant /
unused spaces on the one hand, and the emergence of (creative, artistic and cultural-oriented) local
initiatives constantly seeking for space to accommodate their ideas and projects”.
The second chapter of the IAP (pp5-8) sets out the “Local urban context of Cluj-Napoca city”. A first
sub-section presents general aspects of the urban context including basic data, its potential
competitive advantages, recent demographic changes and the local cultural scene. It highlights that
Cluj has been able to attract a young and highly skilled workforce with the development of strong
clusters in IT and creative industries linked to over ten local universities.
A second sub-section sets out the specific context for temporary use, including high local demand for
accessible spaces (notably among local associations and NGOs, including in the cultural, artistic and
creative sectors) and the presence of a significant number of abandoned – often formerly industrial
– premises. It also recognises the current lack of coordination between the various relevant actors.
It identifies a number of very relevant specific challenges, including the lack of a common
understanding of Temporary Use and its potential benefits of as a catalyst for sustainable urban
development, the lack of comprehensive information on available spaces and the need for
mechanisms or bodies to act as intermediaries between property owners, users and beneficiaries.
The IAP also sets out the context of the pilot area which is the focus of the IAP’s actions. This sets
out its significant needs and potential for development given its large number of ex-industrial sites
and potential environmental contamination, its proximity to the city centre and presence of a
railway station, but limited mobility infrastructure and the lack of current investment in either public
or privately owned spaces.

Stakeholder involvement in planning

The IAP is clear in its own introduction that “the current Integrated Action Plan proves that the
adoption of co-design and co-production method is the best approach for a successful integrated
planning”. Indeed, the IAP’s “vision was based on brainstorming and commonly building ideas
together with the ULG members and Clujians (citizens from Cluj)”.
The IAP explains that “10 ULG meetings [were] organised and the involvement of the local
community in the process of defining the local context, challenges and needs and identifying
solutions for vacant and abandoned buildings and spaces was an essential aspect. Along the way, the
ULG members were very committed and the diverse backgrounds they were coming from (different
departments from public administration, cultural and artistic initiatives, NGOs and associations,
creative industries and start-up businesses, architects and urban planners, as well as communication
platform representative) played a key role in setting the local scene for urban requalification based
on temporary-use interventions and projects.”

Plans inspired by transnational exchange and learning

The IAP clearly highlights the perceived value of transnational exchange to Cluj in developing its IAP.
It states: “The city admitted and accepted the fact that it does not have an extensive experience in
temporary use and, consequently, it acknowledged a lot of practices and methods through this

5
international conversation - which were promoted as best practices to boost the level of
inspiration…”
These practices were classified according to three different purposes: mapping the vacancy or
inactivity of spaces; brokering between stakeholders; and adaptation of the legal and normative
framework, as summarised in the following figure2:

The IAP also argues that “the role of transnational experience sharing (of best practices, tools and
methods) proved to be very important for the city of Cluj-Napoca, which has planned several
temporary-use initiatives and supporting activities and instruments based on the transfer of
information and knowledge gained from the other partner cities”
Several of these actions can be found in the action plan of Cluj, including walkshops to map vacant
buildings, a new temporary use fund or budget line and a new decision-making matrix.

B. Actions for Integrated Urban Development

The Cluj (REFILL) IAP is primarily focused on planning actions that can support temporary-use
projects in the city. This means that the actions are not planned across the range of policy fields or
to directly deliver, for example, environmental benefits. Rather, actions are planned to enable grass-
roots projects to emerge that can deliver action and benefits in these areas. Thus, to a large extent,
the success of the IAP in planning for integrated urban development depends both on its success in
fostering appropriate forms of temporary use and the validity of the initial conviction that
encouraging temporary use will positively impact on integrated urban development in the city.
Nevertheless, the approach taken does have an important spatial dimension with actions focused on
a carefully selected pilot site based on a sound understanding of the area’s spatial characteristics.
Ongoing stakeholder involvement is also core to its approach.

Sustainable urban development

The IAP makes the early statement that “as an integrated action plan, it addresses different
dimensions of the problem (social, economic, physical, environmental dimensions…)” The IAP does
consider some important dimensions of a sustainable urban development approach including a
valuable focus on vacant physical infrastructure, the revitalisation of abandoned green spaces and
the recovery of local history.
The IAP has a clear focus on social, environmental and economic aspects when assessing the current
situation in the pilot area. It is also clear that its strategic vision for the pilot area is for it to become
“a new (cultural and creative industries-led) centrality… a community centre which hosts a mixed-
age population with different social and cultural backgrounds, where people… contribute to an

2
These examples are also presented in more detail in a brochure “Collection of best practices for promoting
TU of vacant spaces”.

6
increased neighbourhood quality.” It states that “One of the key strategic objectives is to animate
the abandoned buildings and public spaces to contribute to the city's sustainable spatial planning”.
One of the actions to develop new supportive instruments specifically aims to develop “a matrix for
the facilitation of the decision-making process (relation between the social and economic value of
the projects)”. This aims to integrate a balanced consideration of these different aspects within the
selection of temporary use projects.
At the same time it is important to recognise that, in practice, most of the sustainable development
potential will be achieved as a result and longer-term consequence of the diverse temporary use
projects that should be enabled by the actions defined in this IAP – rather than those actions being
directly linked with the different objectives of sustainable development.

Sectoral integration
The IAP does not have a particular sectoral dimension within the actions planned, since the focus is
very much on providing the specific framework in which temporary use projects can be more easily
and successfully undertaken. Therefore, the IAP is not trying or pretending to provide a
comprehensive development strategy or action plan for the city. It is specifically focused on how to
promote temporary use as a tool to support and promote sustainable urban development.
In this sense, the IAP does not consider all the broader aspects of local urban development in terms
of policies in housing, transport, energy etc. These will have to be considered more fully as and when
temporary use starts to generate positive impacts and potential.

Spatial integration
The IAP states in the introduction that it takes “into account different relevant territorial scales (pilot
area, neighbourhood, city), in order to ensure sound, possible and realistic implementation of the
solutions”. Crucially, the IAP selects a pilot area on which to test actions to support temporary use.
This pilot area was carefully chosen on the basis of a good and detailed understanding of its spatial
dimensions and characteristics, both within the area and related to the wider city. For example, the
presence of a railway station and the river at its heart and its relative proximity to the city centre are
critical to its perceived potential for renewal through temporary use.
In the short-term, its actions are limited to this spatial area with particular sites targeted for
temporary use projects and identification of vacant spaces. At the same time, the IAP is very clear
that, in the longer-term, the actions in the pilot site aim to demonstrate successful tools and
approaches that can be used to promote temporary use across the city.

Territorial integration
There is no collaboration with neighbouring municipalities mentioned in the IAP. Rather than looking
beyond the city limits for territorially integrated approaches, the IAP is very much focused on testing
approaches within a pilot area of the city so that successful methods can be spread over the whole
city at a later stage.

Multi-level governance
The IAP does not show any multi-level governance, the focus remaining on working practices and
supportive instruments that can be developed within the city. Although it cites the development of
new legal/normative instruments as one of its action areas, this does not seem to translate into new
national-level legislation. Rather, it is currently limited within the IAP to the development of a matrix
for the facilitation of the decision-making process, following the model used by Amersfoort (NL).

7
Stakeholder involvement in implementation
The IAP is very clear from the beginning that the “local community” is one of the three key pillars of
its approach, along with the local public authorities and the supporting instruments. It backs this up
with concrete plans for implementation of the IAP. Firstly, various implementation actors are
identified for each specific action in the action table.
But the IAP goes further. It states that “the city of Cluj-Napoca acknowledges stakeholders’ active
involvement and engagement as a key pillar in the implementation phase of REFILL Integrated Action
Plan. In this respect, a governance scheme has been proposed to manage and monitor the
implementation phase (both during and after the official end of URBACT support)… Based on a
mixed public-private-people structure, a committee of ULG members (5 to 7 persons, including the
ULG coordinator from the public administration) will be set up to closely follow an implementation
roadmap. The key tasks of the ULG committee will be based on:
 Managing the group and organising ULG meetings (at least once every 3 months),
 Keeping the record of the ULG members and closely following the implementation;
 Monitoring and be actively involved in the implementation of the pilot programs;
 Monitoring the process (annually) and giving recommendations for actions to be
implemented;
 Updating the IAP (by learning from the implemented actions and adapt the medium and
long-term objectives, according to that).
Furthermore, “the governance structure will remain flexible and it will be opened for new members,
as well as for the withdrawal of members who are not interested anymore.”

C. A detailed, coherent action plan

The plan itself shows quite a good coordination between its different aspects, although there is
scope for more detailed consideration of different ways to strengthen the plan according to the
criteria set out below.

Internal strategic logic

The internal logic of the IAP is set out quite clearly in the action table provided in the Romanian
language version, which starts with the three specific objectives defined for the IAP, linking each to a
number of action areas, with specific actions defined under each action area.
Figure 1: Three specific objectives of the IAP

8
This logic is somewhat less clear within the pilot programmes, which have been defined in terms of
their perceived prioritisation and seem to cut across the specific objectives and the previous
categorisation of the actions.
It is also unfortunate that much of the internal strategic logic of the IAP is lost in the English
language version, which moves directly from the consideration of the objectives to presentation of
the pilot programmes, thus missing out the key information provided in the action table.
Nevertheless, all actions are aligned with the overall vision and strategic objective of the IAP, which
is defined as “contributing to the socio-economic development of Cluj-Napoca through the
contextualisation of practices of temporary use (of vacant spaces) within the city [and]… to properly
refill the vacant spaces in Cluj-Napoca, while empowering the local community to creativity envisage
and design new solutions”.

Coherence with existing strategies

The IAP dedicates a specific section (pp3-4) to setting out the “synergy with other local/ national
programs and plans”. In practice this focuses on the statement that the IAP “will complement the
local strategy ‘Cluj-Napoca Development Strategy for the period 2014-2020'… [which] provides a
guiding role for developing the vision of the Integrated Action Plan”.
This section does not go into specific details of links between individual actions of the IAP and
elements of the local strategy. Rather, it aims to show the potential for vacant spaces to be given
diverse functional uses in line with priority action areas of the local strategy. These are outlined as
including the promotion of: local historical identity; associativity and philanthropy; cinematography;
culture and sports; urban regeneration; social inclusion and youth; and creative industries and
scientific research.
Another aspect mentioned by the IAP is that “it is essential that the Integrated Action Plan… be
formally adopted by the Local Council in order to be considered in the near future in [other]
strategies that will be locally developed.”

Complementary types of investment

The IAP foresees a useful and well-thought-out mix of complementary types of investment. It mixes
actions focused on: specific interventions and installations in vacant (indoor and outdoor) spaces;
campaigns to identify vacant spaces; promotional and awareness-raising activities; an online portal
to facilitate temporary use projects; physical and digital match-making events; specific measures to
support finance of temporary-use projects (using the Cluj Participatory Budget and Local Grant
schemes); and actions to develop new decision-making instruments.

Planning over time

The start of the fourth chapter on ‘Intervention priorities and Action Plan’ mentions a “GANTT chart
showing timing for the actions list - information on the date / period of the realization of the
activities, differentiated in short-, medium and long-term”. However, none is actually presented in
the IAP – it is not clear if this is simply an oversight.
The general timing of the different actions is defined in the action table (Romanian language version
only) and in the factsheets for the three pilot programmes, which themselves represent a form of
prioritisation in time. However, this information does not give a real sense that planning over time is
a key component of the actions – it is mainly about actions taking place in parallel on an ongoing
basis, rather than a sequence of steps to be followed.

9
Mobilising all available funding
The IAP mentions different types and levels of funding for different actions, but only in a very
general way. This includes reference to the use of the local municipality budget, private finance,
sponsors, crowdfunding and EU-level finance. However, the vast majority of actions are planned
with the local municipality budget supported by different types of alternative local finance. There is
no reference to any national-level funding and the reference to EU funding is not developed in any
detail.

Action planning detail

The actions in the IAP are planned to a general level. It is also notable for having a well-developed
set of monitoring indicators and risk analysis with mitigation actions. The following table sets out
what details have already been defined in the IAP:

Key: (A) Planned (B) Planned (C) Lacking (D) Missing

in detail in general detail

Definition of… Cluj IAP

… actions (B) In the Romanian language version, the IAP defines 21 actions under eight
different areas of work. Some of these actions are more clearly defined than
others. It also identifies some priority actions, which are set out (also in the
EN summary) in the form of three pilot programmes, which regroup some of
the 21 defined actions in a different way.

… implementation (B) The IAP identifies ‘key actors’ for each action and ‘potential partners and
responsibilities interested parties’ for each pilot programme, although it could be made
more explicit who is ultimately responsible for implementation in each case.

… timings/ (B) The IAP provides a time window (defined in years) for each of the
timetable planned actions e.g. 2020-2023, as well as a general timeframe for each of
the pilot programmes.

… costs (C) The expected costs of each pilot action are defined in the ‘required
resources’ section in addition to the type of resources and competences
required - although not all costs appear to have been considered. In the
action table, the individual actions are not costed - only the type of
resources needed are defined (e.g. human resources, financial resources).

… funding sources (B) Some ‘sources of finances’ are set out for each individual action, where
additional financial resources are deemed necessary. These are defined in
general terms e.g. local budget, private finance, EU finance & crowdfunding.
For the pilot programmes, the potential ‘funding opportunities’ are also set
out in general terms in the ‘required resources’ section.

… monitoring (A) A dedicated table sets out a number of monitoring indicators and specific
indicators targets for each of the three specific objectives.

… risks and (A) A specific chapter of the IAP on risk analysis sets out a number of risks
mitigation of risks under each specific objective, including definition of the probability and
impact of the risk and specific reduction/mitigation actions.

10
Key concluding observations
 The IAP delivers a well-planned set of actions
o A good understanding of initial need
o Clearly defined overall and specific objectives
o Areas of work and specific actions linked to specific objectives
o A good range of complementary actions
o Clear prioritisation of actions
o Monitoring indicators and targets for each specific objective

 The IAP demonstrates the strategic use of a pilot site to test approaches and
actions that can later be turned into a city-wide support system for temporary use.
o Based on a clear understanding of the city’s needs and the specific
characteristics of the pilot site.
o Helps to ensure initial efforts to promote temporary use are given a clear
focus, without losing sight of the aim to develop a city-wide approach.

 The IAP demonstrates a strong approach to long-term governance through

stakeholder involvement
o Clear involvement of stakeholders in the initial action planning.
o A committee of ULG members (public-private-people) established to manage
and monitor implementation (during and after the REFILL network).
o Process established for this committee to organise ULG meetings and
undertake annual monitoring process and make recommendations for
updated actions.

 The IAP benefits from a real openness of the city stakeholders to inspiration and
learning from transnational exchange
o Transnational exchange inspired the overall approach.
o Transnational exchange inspired specific activities, including walkshops to
identify vacant spaces and a new decision-making matrix.

11