Saint-Denis, Aubervilliers, Saint-Ouen, France
The Urban Project for La Plaine Saint-Denis

Summary

The towns of Saint-Denis, Aubervilliers and Saint-Ouen together decided to launch the reclamation of an old industrial site of 780 ha, La Plaine Saint-Denis, which had deteriorated and been split up with numerous plots of wasteland and transport infrastructures, having little housing value and characterised by dilapidated installations. A wide-ranging restructuring programme of the area was therefore decided on with the aim of encouraging mixed urban functions, integrating the territory into the city and offering pleasant living and working surroundings to the inhabitants. Some work has already been carried out (the Stade de France, covering of the motorway, etc.) but the area is still in the process of being restructured.

Objectives

To reclaim a traditional industrial site by encouraging the mixture of the functions of production-housing-facilities, and by privileging the landscape and public spaces to achieve a coherent and meaningful urban structure. To eventually cope with 100,000 people (2/3 working, 1/3 inhabitants) as against less than 60,000 at present. To envisage the Plaine as a global entity while taking into account all the aspects of urban development and their interactions. To locate the operation in the long-term with consultation by involving a maximum number of stakeholders and, most important, the population.

State of the project

The site is continuing to be developed.

Context

The Plaine Saint-Denis is a vast 780 ha intermunicipal area. It became urbanised in the 19th century. Textile, chemical, metal, electrical industries, as well as gas and electricity production, were sited on this territory on the edge of Paris, because of its railways connection and the presence of the Saint-Denis Canal and the Seine. It was at the crossroad of two ancient lines of communication that give it structure, one of which was the royal way from Paris to Saint-Denis in the North/South direction - now the Avenue du Président Wilson (which forms part of the A1 motorway). The site is also bordered to the south by the Paris inner ring road ("Périphérique") and crossed by the A86 motorway.

The land, which is partly made up of large wasteland areas and derelict buildings, has a rather dilapidated landscape which nevertheless holds great potential asset (waterways, easy access to motorway and public transport, often architecturally striking industrial buildings). Next to a stable but limited core of big companies, small and medium enterprises are moving in, closing down or moving out at a higher rate than elsewhere. Housing is pre-1948 and is mostly made up of blocks of flats along the main routes. The presence of the A1 motorway has degraded the quality of life and led to the housing being devalued. The facilities are rather old and are having to meet the growing demands of the population.

Strategy

The first stage of the project in 1985 consisted in creating an association of local authorities which brings together the three communes (Saint-Denis, Aubervilliers and Saint-Ouen) and the General Council, called La Plaine Renaissance. In 1990, this partnership work has the joint approval of an Intermunicipal Charter for the Development and Equipment of La Plaine Saint-Denis, which defines the objectives and means necessary to the urban and economic regeneration of the site. On this basis, the communes decided to prepare an Urban Project which defines the principles of urban organisation which would allow the whole area to become a real centre for activities, housing and facilities. A semi-public company, the SEM Plaine Développement and an economic interest grouping, Hippodamos 93, were then created to design the project and act as clients.

Activities

Urban remodelling and planning are based on three operations: the enclosing of the A1 motorway and the surface re-organisation of the Avenue du Président Wilson (cycle track, pedestrian walks, parking re-organisation, widening of pavements, re-alignment of trees); the reclaiming of the Canal Saint-Denis; and the creation of a core space called "Plaine de la Plaine” involving the redevelopment of large public spaces with a dedicated lane for the new tramway. The existence of an urban project approach and land opportunities led to the decision to build the Stade de France on the Cornillon site, at the northern end of La Plaine. Its arrival has been a powerful lever for the creation of numerous infrastructures. It should act as a relay between the centre of Saint-Denis and La Plaine ("relationship planning”). The Stade area is to house a real mixed neighbourhood with offices, dwellings, activities, facilities and strongly delineated public spaces.

In terms of public transports, the following have been planned: the extension of the two Metro lines, 13 and 12; the redevelopment of the two RER (Regional Express Network) stations; the creation of a tram line serving the centre of the zone in the North/South direction; the gradual modification of the bus network; and the construction of the "Orbitale" network.

Economic and social preoccupations are also central to the Project. It is a question of developing a new generation of industrial enterprises, to attract state-of-the-art activities and to create real partnership links with these companies to encourage them to follow the principles of sustainable development in their plants and their operations. It is also an objective to offer jobs, housing and facilities to the current and future inhabitants of the area. La Plaine Saint-Denis must become a coherent area for living in, whose operation integrates the social housing neighbourhoods which are close by. In terms of environment, the local authorities face two major problems: soil pollution from previous industrial plants and water treatment. Two programmes have been developed. In terms of local democracy, spaces for debate have been created between the inhabitants, elected representatives and the associations.

Partners

One of the objectives of the operation is to associate a maximum number of stakeholders to the decision process to make them partners in the future of La Plaine. Co-operative and partnership structures have been developed:
- "SEM Plaine Développement", responsible for carrying out urban studies, land management, operational control and overall coordination of the Urban Project, which combines Saint-Denis, Aubervilliers, the "Caisse des Dépôts et Consignation" [Deposit and Consignment Office], the "Crédit Foncier" [Mortgages] and the "Société Générale" [a bank];
- Hippodamos 93, (Economic Interest Group), including a landscape designer, architects and urban planners;
- La Plaine Renaissance, a survey and economic development syndicate, which monitors and implements the Intermunicipal Charter for the Development and Equipment, coordinates all the actions for leading, developing and promoting La Plaine, notably towards enterprise; and carries out the necessary general surveys for its actions and organises consultation with the partners;
- Saint-Denis Promotion, an association bringing together most of the companies from the three communes and beyond.

The contribution to the development of the area by the inhabitants and the local voluntary organisations has been sought through neighbourhood meetings and by holding Public Meetings of La Plaine Saint-Denis (where site re-structuring projects were presented).

Financing and resources

Defined in 1992 as a centre for the strategic economic regeneration in the Ile-de-France Regional Structure Plan, La Plaine Saint-Denis benefits from financial help from the State. Within the scope of the planning contracts, the State and the Region contribute to the financing of projects. The State is also involved through the Large Urban Project procedure whose scope includes part of La Plaine area. The Department is also a financial partner. In all, the partners (including the communes) earmark several tens of million Francs per year to the redevelopment of La Plaine.

Outcomes and impact

The project was developed through consultation with topic debates being organised which bring together companies, inhabitants, developers, and associations (the La Plaine Public Meetings). Now, several ZACs (Concentrated Development Zones) are being or have already been developed. Most of them opt for mixed urban functions with the inclusion of activities, installations and housing. Operations to regenerate old housing and build new ones were undertaken in several neighbourhoods (Landy, Heurault, Pont Tournant, etc.). In June 1998, the enclosing of the A1 motorway with its landscaped spaces was officially opened. Covering more than 30,000 m², the project includes two gardens, a large grassed area, playing areas and two public squares. Both ends of the concourse were planted with Scots pines. The operation cost FFr 600 million.
The State's decision to build the Stade de France on the "Cornillon” site meant that for four years operations could be carried out that made the urban project credible: improved public transport service, quality of the public spaces, increase in North/South and East/West communications, and transformation of old industrial sites. Alterations will continue with numerous projects being generated by the new environment (2 secondary schools, completion of 100 dwellings, pre-promotion of 100 dwellings, fitting out of the Place Pleyel, and the creation of several routes, etc.)

Obstacles and difficulties

The conversion and development of La Plaine is encountering some difficulties:
- the current situation of the property market in the Paris region, and thus the competition affecting several areas in the inner suburbs of Paris which are also likely to offer similar development opportunities (Billancourt, Nanterre-La Défense, etc.);
- the pollution found on some sites;
- the large scale of the development and therefore the budget needed;
- the lack of financial means and tools to use in property issues;
- divergences in strategies and objectives between the various financial actors;
- the difficulties of including the problematics of alternative management for surface water retention.

Essential points

In their Urban Project, the towns of Saint-Denis, Aubervilliers and Saint-Ouen have given priority to the mixture of urban functions. They have staked on the endurance and quality of public spaces. Finally they have risked a long-term project since its implementation extends over 30 years.

Additional information

Contact : Alain Audemar
Directeur général des Services techniques
Mairie de Saint-Denis
2, place Victor Hugo
92300 Saint-Denis

Telephone : 33 01 49 33 66 66
Fax : 33 01 49 33 69 68

Fact sheet extracted from these documents:
- Villes et développement durable, Objectif XXIème siècle [Cities and sustainable development, Objective 21st Century]. Under the direction of Ghislaine Garin-Ferraz, Jacques Masson,, Dominique Royoux and Benoît Théau. Proceedings from the Poitiers conference organised by Cité+ under the initiative of the Poitiers District, 4D, Orcades and the CNFPT. Article by Alain Audemar pp. 99-106 : Ville de Saint-Denis, le développement durable, un facteur de renouveau [The town of Saint-Denis, sustainable development, a factor for renewal].
- Le projet urbain pour la Plaine Saint-Denis. [The urban project for the Plaine Saint-Denis] GIE Hippodamos, Plaine Développement, February 1994
- Summary report by the 'Association 4D' (Dossiers et Débats pour le Développement Durable [Issues and Debates on Sustainable Development]) dated March 1996 : Les villes françaises et le développement durable. [French cities and sustainable development] Summary report, case studies and data sheets. B. Duhamel, C. Emelianoff, L. Héland, C. Menneghin and J. P. Piéchaud. pp. 81-86

Acknowledgements

The text for this project summary was developed by l'association 4D (Dossiers et débats pour le développement durable), Paris - E-mail:association4d@globenet.org, 1999.