Policy Evaluation in Practice in Scotland
Author(s): Marion CHALMERS
Source: Urbani Izziv, No. 16/17, PRENOVA (oktober 1991 / October 1991), pp. 90-95
Published by: Urbanistični inštitut Republike Slovenije
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 št. 16, 17/1991
 These processes of increasing re-
 sidential development are occurring
 in mature residential areas, many of
 which are high amenity value. Some
 are designated as Conservation
 Areas, and the individual buildings
 may be of considerable intrinsic ar-
 chitectural merit; many, for example
 in Edgbaston, being officially noted
 for their architectural and historical
 interest These mature residential
 areas also represent a sizeable pro-
 portion of the built-up area of many
 cities. They thus represent a consid-
 erable resource for more intensive
 residential development During pe-
 riods of high prices, even the sites of
 Victorian semi-detached houses are
 vulnerable to redevelopment The
 scale and nature of these processes
 must be understood before the con-
 siderable implications for townscape
 management, in these valuable but
 particularly vulnerable areas, can be
 assessed.
 Dr Peter Larkham is British Academy
 Research Fellow in the School of Geog-
 raphy, University of Birmingham; Dr
 Andrew Jones works for Chesterton
 Consulting, Milton Keynes.
 References
 1: This paper reports aspects of recent
 research carried out by the authors
 with Dr N.D. Pompa and Dr J.W.R.
 Whitehand of the Urban Morphology
 Research Group, University of Bir-
 mingham. The research was funded
 by the Leverhulme Trust and the Eco-
 nomic and Social Research Council.
 2: TYM and PARTNERS: Land use for
 residential development in the South
 East: a summary report, Roger Tym
 and Partners (Londo n), 1987.
 3: D. CROCKETT: Suburban redevelop-
 ment: an asset of recent pressures
 and policy approaches in an outer
 London borough. The Planner, vol 76
 no. 31 (1990), pp. 11-14; G.C. DICK-
 INSON and M. SI LAW: Land use chan-
 ge in Leeds, 1957-76, School of Geo-
 graphy, University of Leeds (1981).
 4: R. GOODCHILD and R. MUNTON: De-
 velopment and the landowner, an
 analysis of the British experience,
 Allen and Unwin (London), 1985.
 5: J.W.R. WHITEHAND: The changing
 urban landscape of London's high-
 class residential fringe, Geogra phical
 Journal vol. 154 part 3 (1988) pp.
 351-66.
 6: Tetterihall Urban District Council pla-
 nning application STU/ 1662, letterof
 refusal dated 10/1/ 1962.
 Marion CHALMERS
 Policy Evaluation in Practice
 in Scotland
 1. Introduction
 In the UK, and many developed
 countries, the theme and buzz in the
 1980's was urban renewal and forg-
 i g public and private sector part-
 nerships. The latter was in recogni-
 tion of the fact that public agencies
 could not tackle the plethora of pro-
 blems and decay alone.
 Différent tools of policy and a con-
 fusing ever-changing series of me-
 chanisms for funding came in and
 out of fashion over the decade. It was
 a decade that out of an early deep
 economic recession urban econo-
 mies began to revitalise and the ur-
 ban environment was transformed,
 in certain locations quite dramati-
 cally, by regeneration of its very fa-
 bric and function.
 The pace has slowed down as reces-
 sion again blights progress. It is an
 apt time to contemplate the real suc-
 cesses of policy and practice.
 What form should tlļis assessment
 take? We can learn from the lessons
 of the past and borrow both concepts
 and practices from one another. To
 promote and understand the dyna-
 mics of urban renewal, however, the
 end products can only reflect the
 co plex nature of our different cul-
 tures, economies, government sys-
 tems and attitudes to the role and
 nature of our büßt environments.
 This article therefore provides an in-
 sight into an approach adopted for
 policy evaluation and specifically po-
 licy evaluation of area-based deve-
 lopment initiatives in Scotland. Its
 . basis is work carried out by my com-
 pany - Pieda pic - fora public agency,
 the Scottish Development Agency.
 The work was on two levels:
 (i) Policy evaluation of individual
 area-based initiatives; and
 (ii) Development of an approach for
use in the evaluation of all types
 of area-based initiative funded by
 the SDA.
 Firstly a case study of a specific
 area-based initiative - the Leith Pro-
 ject, Edinburgh will be provided and
 secondly the structure of the ap-
 proach used to evaluate the success
 of the project A summary of the
 conclusions of the project evaluation
 will conclude this insight
 2. The Leith project -
 Edinburgh
 Leith is an area of Edinburgh and the
 port for the city. It was formerly a
 separate administrative area. The
 Leith Project had its origins in a
 Working Party formed in 1979. The
 Working Party comprised represen-
 tatives of the SDA, the City and Re-
 gional Councils.
 In 1979, the Working Party reported
 that Leith faced serious problems of
 unemployment employment decli-
 ne, poor physical environment de-
 reliction, substandard housing and
 inadequate supply of industrial
 land. To address these problems the
 report stated that additional resour-
 ces would be required from all levels
 of government, public agencies and
 the European Community. It recom-
 mended that the problems be ta-
 ckled through a special integrated
 project in the area.
 The report also drew attention to the
 paucity of relevant economic infor-
 mation on the Leith Area. Economic
 and environmental studies were pro-
 posed in advance of the creation of
 the special integrated project
 Prior to the studies an 'Early Ac-
 tion Programme' was promoted
 comprising:
 * Construction of small industrial
 units;
 * Treatment of derelict/vacant si-
 tes;
 * Stone cleaning of buildings;
 * Feasibility studies re-use of par-
 ticular vacant buildings; and
 * SDA assistance to a factory relo-
 cation.
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 URBANI IZZIV
 Št. 16, 17/1991
 Ultimately 19 workshop units and
 21 environmental projects under
 this programme at a total cost of
 *2.07 million.
 Birth of the Leith Project
 From the preparatory studies the
 main thrust of the Leith Project was
 identified as:
 * Provision of finance and financial
 advice;
 * Provision of sites and premises;
 * Improved advisory and support
 services; and
 * Promotion of Leith.
 Action was also proposed on encou-
 raging development of the Docks,
 development in the Central Area of
 Leith, access to jobs for Leith resi-
 dents, environmental improvement,
 housing and community develop-
 ment The recommendation of a
 semi-autonomous Project Team was
 following resistance embraced.
 The Project Agreement between all
 the participating agencies was sig-
 ned in May 1981.
 Project Context
 A picture of the area for the pre-
 project stage was compiled in ad-
 vance of the formulation of the
 Project Strategy. The key features of
 Leith 'pre-projecť were amassed un-
 der the following sub-headings:
 (i) Employment and Unemploy-
 ment;
 (ii) Population;
 (iii) Property and Land;
 (iv) Physical Environment;
 (v) Housing; and
 (vi) Business Development
 The Project Strategy
 From the assessment of the area
 three main objectives were set for the
 Project:
 (i) To stem business decline in Leith
 and realise potential for business
 development;
 (ii) To assist Leith residents in gain-
 ing access to jobs; and
 (iii) To improve the environment
 The focus remained that identified in
 the preparatoiy studies. To compli-
 ment this main thrust of the Project
 a series of support actions were iden-
 tified:
 * A sector study of Scottish ports;
 * Effort to encourage development
 of Central Leith including the
 Shore;
 * Liaison with Central Govern-
 ment's Employment Agency;
 * Environmental works mainly to
 support economic development;
 * Assembly of land for housing and
 preparation of feasibility studies;
 and
 * Social and community program-
 mes involving welfare benefits
 take-up and creche facilities.
 Internal Review
 At the end of the first year an internal
 review was undertaken of progress.
 It provides a ripe example of tine
 complexities of assessing the true
 impacts of policy.
 The conclusions were that private
 sector confidence was increasing
 with restaurants opening, housing
 conversions proliferating, interest
 from private housing developers, a
 modest growth in office employment
 and the introduction öf privately
 funded workshop units.
 The renewal and confidence can not
 be directly attributed to the area-
 based initiative policy in year 1 . The-
 re had been pre- project momentum
 which was further encouraged by
 investment in the 'Early Action Pro-
 gramme'. The Project can at this
 early stage be appreciated as a sti-
 mulus and further catalyst to pro-
 gress.
 In relation to business development
 and access to jobs - two key objec-
 tives of the Project - results were less
 encouraging. This was attributed to
 lack of priority to Leith from the
 Employment Agency and lack of a
 Careers Office which was a remit of
 the Regional Council.
 The results of the review provided
 further programme direction.
 The proposals will not be reiterated
 but instead a summary of the con-
 clusions of the second year review
 will be provided.
 At the end of the second year there
 had been a growth in business deve-
 lopment activity including specific
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 št. 16, 17/1991
 assistance to 1 00 firms. Tardiness in
 development of small industrial
 units had infact raised concerns that
 there would be a shortage in supply
 of premises.
 There was also a relative shift to-
 wards housing development as a key
 feature of local régénération. There
 was increased attention to the role of
 environmental improvement in as-
 sisting housing, commercial and
 tourism development
 In the third year the programme
 continued with an emphasis on po-
 sitive marketing of Leith as a place
 to live, work and do business.
 Following the end of year 3, three
 reviews of the Project were under-
 taken. They identified the strenghts
 and weaknesses of policy implemen-
 tation and revised strategy was de-
 vised to harness the strenghts and
 ameliorate the weaknesses.
 Revised Strategy
 The Revised Strategy set the follow-
 ing tasks and objectives:
 (i) Securing LeitiTs future as a place
 to live and visit.
 * Maximise housing potential of
 proximity to Edinburgh; and
 * Create new ambience for Old
 Leith.
 (ii) Consolidate Leith's service sector
 role.
 * Attracting new service sector
 firms by focused marketing (slip-
 stream Edinburgh, focus on me-
 dia and technological business).
 (iii) Ensure infrastructure support
 * Maintain range of sites and pre-
 mises; and
 * Remove traffic constraints on de-
 velopment
 (iv) Ensure continuing business as-
 sistance and support
 * Development of self-sustaining
 business assistance network;
 and
 * Introduce manpower scheme.
 The Revised Strategy illustrated a
 shift towards the service sector, the
 role of housing development and the
 role of physical improvement includ-
 ing environmental improvement
 This shift fundamentally reflected
 the Project Team's developing un-
 derstanding of the areas potential.
 3. Policy evaluation -
 An approach
 The approach was founded on stu-
 dies of three projects in Central Scot-
 land undertaken by Pieda pic. These
 projects were in Mo the well and in
 areas of Glasgow and Edinburgh. It
 is recognised that alternative appro-
 aches to evaluation exist or could be
 devised. The approach presented is
 however consistent with what are
 considered to be fundamental prin-
 ciples of evaluation and has been
 'field tested' on these specific pro-
 jects.
 Ili e approach recognises:
 (i) Area-based initiatives have multi-
 ple objectives;
 (ii) Such initiatives generally involve
 diverse policy instruments;
 (iii) There are numerous 'non-policy'
 influences operating on any area;
 and
 (iv) Data limitations are generally
 severe.
 Objectives of Evaluation
 The fundamental objectives of eva-
 luation studies are:
 (i) To assess the not impact of area-
 based initiatives on their areas
 and on Scotland as a whole;
 (ii) To set out the costs and benefits
 of an initiative so that an overall
 assessment of the net benefit of
 the initiative may be made;
 (iii) To identify the effectiveness of
 specific policy instruments and
 combinations of instruments;
 and
 (iv) To assist the development of fu-
 ture policies.
 The Project Balance Sheet
 The Project Balance Sheet can be
 described as:
 " a systematic statement of the
 costs and benefits of an initia-
 tive and aims to show the re-
 lationship between the objecti-
 ves, inputs and outputs of an
 initiative".
 It is the methodology used in pre-
 ference to Cost Benefit Analysis as
 the latter explicitly aims to express
 costs and benefits in monetaiy
 terms. Area initiatives can not be
 effectively analysed on this basis.
 The principles of the Project Balance
 Sheet method are:
 (i) Monetary valuations are used for
 those elements where market va-
 lues exist (eg output);
 (ii) Where possible, impacts are
 quantified (eg numbers of jobs);
 and
 (iii) Systematic descriptions are gi-
 ven where neither valuation nor
 quantification can be achieved.
 Some impacts can of course be me-
 asurable by a combination of all
 three principles.
 The Balance Sheet approach also
 aims to identify the impact of the
 different component instruments of
 the initiative rather than simply to
 measure a total project effect.
 Table 3.1 provides the structure of
 the Balance Sheet approach. It re-
 cognises that the same objective
 may be served by different policy
 instruments and that different po-
 licy activities may operate together
 to produce impacts. The factors to be
 considered within this structure are:
 (i) Objectives;
 (ii) Activities;
 (iii) Costs (i.e. inputs);
 (iv) Intermediate outputs;
 (v) Ultimate outputs;
 (vi) Project management effects; and
 (v) 'Non-,Projecť influences.
 Research Method
 The research method used combi-
 ned aggregate 'top-down' analysis
 and survey work. Neither approach
 is adequate in itself. Aggregate data
 are too limited to carry the whole
 burden of evaluation. A survey-ba-
 sed approach may miss impacts and
 synergy effects.
 It is found that careful top down
 analysis will generate specific hypo-
 theses for the survey work to pursue.
 It also ensures that survey work is
 directed to areas where information
 is deficient and where impacts can
 not be assessed from aggregate data.
 Detailed survey work should there-
 fore follow top-down analysis.
 92
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 URBANI IZZIV C ągS
 št. 16, 17/1991
 Top down analysis in the project
 evaluations addressed:
 (i) The pre-initiative position of the
 local economy;
 (ii) Major changes during the life-
 time of the initiative;
 (iii) Post-initiative status of area in-
 cluding prospects and potential;
 and
 (iv) An overall assessment of the
 change in the areas status and
 prospects compared with what
 might have been expected on the
 basis of pre-initiative' trends.
 The specific topics and dimensions
 considered were drawn from the fol-
 lowing:
 * Employment levels and trends;
 * Unemployment;
 * Demographic statistics;
 * property market indicators (ren-
 tal, lettings, planning applicati-
 ons);
 * Housing market data;
 * Openings and closures of busi-
 nesses;
 * Investment and assessment in-
 formation by project participants;
 and
 * Social indicators.
 In other evaluations the topics may
 vary depending on the main focus of
 policy.
 The survey work had three principle
 objectives:
 (i) To provide detailed information
 unavailable from aggregate data;
 (ii) To provide a basis for assessing
 the net impact of the initiative on
 key decisions; and
 (iii) To assess the net impact of the
 project.
 Ultimate Outputs
 To illustrate the product of the ap-
 proach I have omitted detailing the
 Intermediate Outputs of the evalua-
 tions and instead moved onto the
 Ultimate Outputs. The objective is to
 provide a checklist of factors which
 require to be incorporated in area-
 based initiative assessments.
 The issue which require to be cove-
 red are:
 * Economic activity;
 * Property,
 * Land and environment;
 * Social and community
 * Perceptions;
 * Leverage;
 * Synergy and
 * Prospects.
 Table 3.1: Balance Sheet Structure
 ("«»sta Inputs
 Objectives Activities ^DA Others Intermediate l Rimate Project Other
 Outputs. Outputs Management Influences
 p- « - __ (examples! (examples! Effects
 RI' S I NESS
 DEVELOPMENT
 '' / ' Xi Net output ļ T
 1''' / * ' i *nd
 |''' / *
 «Luí /Trainmt
 '''f' A Investment i/ h ÌI
 ||! Finance - Cases. Return. 'Jjl'
 IVY " ¡ih i r
 AU A / /ł Additional
 /w Y '
 M' ' Factoring l'"
¡ í'' '/ Proviaion ' | ļ I Assets ln®* Created . U 1/
 r- - - - - -^/// ¡ 'V'
 EMPLOYMENT U '. /j
 ' U ' Property ' í ' /Investment . " ' ř 1 p H Businesses [if/
 ' ' ' / . j L J ; Accommodated 7i7
 ' II
 ' ï' |7/ /k Environment
 'l'' I ~ ~j ļ j Areas Improved uļļs / .
 ÄU Environmental -J
 Al/ Improvement ¡
 j Infrastructure J ' " " ļ Projecta J
 environment
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 GOBS'
 št. 16, 17/1991
 4. Implementation of
 approach -
 The conclusions
 The approach described has been
 tested - the Leith Project being one
 of the three area-bàsed initiatives
 used in the study.
 The conclusions of the policy eva-
 luation^ overall assessment was
 that the Leith Project is, in realistic
 terms, a success in that*
 (i) Local employment has been sig-
 nificantly strengthened although
 perhaps with little real benefit to
 local residents;
 (ii) The image of the area has been
 radically improved; and
 (iii) Confidence in commercial /resi-
 dential investment in the area
 has been increased although
 there is some fragility of that con-
 fidence.
 Success in these terms has been
 achieved because the area did have
 constrained potential. It was also
 small enough to permit actions to be
 concentrated sufficiently to produce
 visible effects and to feed on one
 another (ie synergy). Activities and
 impacts have been spatially concen-
 trated. The approach and its success
 however depended critically on the
 proximity and relative economic
 strength of Edinburgh.
 The evaluation identified the follow-
 ing main areas of relative weaknes-
 ses/failure:
 (i) Transport infrastructure impro-
 vements; and
 (ii) Training.
 It has had little impact on local or
 regional unemployment. For local
 residents, the main benefits have
 been an improved environmental
 and improved housing. The influx of
 private sector housing has meant
 that the social composition of the
 area has been changed.
 At The Regional of Scottish level the
 benefits are termed urban renewal
 benefits. The Project has facilitated
 a restructuring process and finding
 a new role for Leith. A number of
 benefits can be listed:
 (i) The risks of cumulative social
 and economic decline in the area
 reduced;
 (ii) The potential of the urban en-
 vironment is exploited;
 (iii) The quality of the life for a large
 number of people is protected
 and improved;
 (iv) The provision and use of urban
 infrastructure.
 There have been major beneficial in-
 teractions or synergies related to in-
 itiatives in environmental improve-
 ment, property investment, promo-
 tion of the area and of the Project
 Team's brokerage role. The commit-
 ment of the Project Team has been
 crucial.
 This Project, and the others we eva-
 luated, indicated that the area
 development approach can be an
 effective policy instrument in assist-
 ing urban and economic regenera-
 tion within a local area.
 They however succeed to a consider-
 able degree by diverting economic
 activity from adjacent areas or areas
 within the same subregion. This can
 be regarded as a perfectly legitimate
 policy objective.
 The shopping list for a successful
 area-based initiative, from our ex-
 perience and set in a Scottish con-
 text contains the following basic re-
 quirements:
 (i) Concentration of resources in a
 small enough area;
 (ii) Existence of some genuine local
 opportunity/ potential;
 (iii) Environmental improvements of
 a sufficient level and on key sites
 to exert a noticeable impact on
 image and perceptions; and
 (iv) Energetic local management and
 promotional efforts.
 Marion Chalmers is a Senior Consult-
 ant with Pieda pic. in Edinburgh, Scot-
 land. She is a Chartered Town Planner.
 References:
 Bretheny, M.J.: Urban Policy Impact
 Analysis, Environment and Planning
 Committee Paper No. 1 , Economic and
 Social Science Research Council, Lon-
 don, 1984.
 Chalmers, M.R.: Developing New
 Towns in the UK: The Role of Land- Use
 Planning and EIA. Papej presented at
 International Seminar on the Role of
 Environmental Impact Assessment in
 Planning for Development, Athens, Oc-
 ober 1984.
 Chalmers, M.R.: Urban Impact Ana-
 lysis - Extending the Scope of ELA:
 Lessons from the New Town's Expe-
 rience, Paper presented at the Interna-
 tional Seminar on Environmental Im-
 pact Assessment, University of Aber-
 deen, July 1987.
 Chalmers, M.R.: The Impact of Urban
 Policies and Urban Renewal, Paper pre-
 sented at International Seminaron En-
 vironmental Impact Assessment, Uni-
 versity of Aberdeen, July 1988.
 Department of the Environment: Inner
 Cities and Urban Land Research Pro-
 gramme 1988/89, Department of the
 E vironment: Inner Cities Directorate,
 London, November 1987.
 Department of the Environment: Ac-
 tion for Cities, HMSO, London, 1987.
 Committee for Economic Development
 Research and Policy Committee:
 1977, An Approach to Federal Urban
 Policy, Committee for Economic Deve-
 lopment, New York.
 O.E.C.D.: Revitalising Urban Econo-
 mics, O.E.C.D., Paris, 1987.
 Pieda: GEAR Evaluation, for Scottish
 Development Agency, Glasgow, 1986.
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 Scottish Development Agency, Glas-
 gow, 1986.
 Pieda: Area Initiatives Evaluation
 Handbook, for Scottish Development
 Agency, Glasgow, 1987.
 Salamon, L and Helmer, J.: Urban and
 Community Impact Analysis from Pro-
 mise to Implementation in Glockman,
 N., The Urban Impacts of Federal Poli-
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 URBANI IZZIV
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