Case study

The new Guillemins district in Liège, Belgium

Background information

Region: Wallonia, Belgium

Project title: Redevelopment of the HST station district in Liège

Duration of the project: 2002-2008, on-going

Key words: Urban areas, urban transport, employment and labour market

Funding: (2002-2008) Total budget 9 109 780

ERDF 4 554 890
Regional budget 4 220 190
Local authority 334 700

(the project continues into the 2007-2013 programming period, with a new total budget of
EUR 29 967 819,31 , of which ERDF support of EUR 11 987 127,73)

ERDF objective: Competitiveness

Synthesis

In the late 1990s, the development of the train industry, in particular of the high-speed trains
(HST), required particular infrastructure and major investments towards railways and stations.
It was at that point that Liege was deemed an important station of the HST trains between
Brussels and Cologne, namely the Thalys and the German ICE trains. This decision has led to
several others, with a common goal the urban development and regeneration of the city.

The Guillemins project, presented in this case study, is part of a greater vision of development
for Liege – City project 2015 – that includes 12 important projects. This umbrella project is
based on three types of investments that can assure the development of the City of Liege:

- residential housing, in order to increase the number of permanent residents and to

assure their concentration near the services offered, with a view to sustainable
development;
- culture and tourism, in order to provide Liege with the necessary infrastructure that
will put it in the European map in connection with the HST railway station;
- economic development in multiple sectors, diversifying the economic base, making
the city a specialist in specific sectors (especially in office services) and increase
employment in the area.

The introduction of the HST railway station in Guillemins (inauguration on 18.09.2009) gave
the opportunity to the local authority of Liege to draw a broad strategy to modernise and

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regenerate the district surrounding the station. The funding received from the ERDF has since
made it possible to move from this initial strategy to a well-defined project and even start its
implementation.

In collaboration with the Walloon regional company of transport (SRWT), the Walloon public
transportation company (TEC), the Euro Liege TGV railway company and the Walloon
region, the city of Liege developed a project highlighting the residential character of the
Guillemins district, so as to attract a new, younger population back to the city, and thus
"breathe new life" in the area.

This main objective is to be attained through four different axes:

- improved access to the public spaces

- new residential housing
- increased mobility, comfort and road safety
- development of the commercial sector, especially in the office space area and in the hotels /
restaurants / cafes sector.

One of the essential challenges this project faces is the fact that the development takes place
in an existing residential area of the city. It is for this reason that it will be carried out in
phases, to ensure flexibility and validate development decisions taken. It also needs to have
the public's acceptance and support throughout the implementation of the project. For this,
the project is carried out with the collaboration of all main public actors, together with the
inhabitants and shop owners of the district. These have been involved from the draft phase of
the project, with a public consultation having taken place for information, comments received
and integrated in the final version of the project guidelines, and continuous meetings with
their representatives to communicate results.

The Guillemins project is still in the first phase of implementation, and the results achieved so
far relate to the transformation of the major roads of the district leading to the HST railway
station, offering more space to the pedestrians and cyclists as well as more parking spaces to
their residents. There has also been an improvement of the quality of the area through planting
of trees.

After completion of the first phase in 2000-2006, the Guillemins project will continue into the
new programming period in 2007-2013 and receive support from the ERDF. In the new
period, the aim is to develop the link between the railway station and Mediacité, an
audiovisual and media complex in Liege (also part of the greater City project 2015).

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 Project Description

Project objectives

Liege is a city in Belgium's eastern borders with the Netherlands and Germany, situated in the
valley of the river Meuse. It was for a long period regarded as the industrial backbone of
Wallonia, being one of the most important steel-making centres in Europe. The Guillemins
district itself is based upon two distinct private properties that were taken apart during the
Liege Revolution1, while the universal exhibition in 1905 for the 75th anniversary of
Belgium's independence launched its development. After the Second World War, however,
Liege and its districts suffered from the collapse of the steel industry, and have only in recent
years shown signs of economic recovery.

One decision that may have contributed to this effect was the modernisation of the Liege-
Guillemins railway station, starting in 2001 (the actual decision to have a HST station in
Liege dates from 1993), which was upgraded to include the HST (high speed trains) between
Brussels and Cologne. This modernisation was awarded to renowned architect Santiago
Calatrava, attracting international attention to the city.

The local authority saw this as an opportunity to restore the city of Liege to its former status,
thus contributing to its further development. The main objective of this project is, therefore,
to optimise the induced results of the only HST railway station in Wallonia and, together with
the whole City project 2015, make Liege a "metropolis" once again.

Description / type of activities

The local authority of Liege decided to use the opportunity offered by the modernisation of
the HST station in Guillemins and draw a broad strategy with activities that would regenerate
the district surrounding it to a level equal to that of "HST comfort".

In the beginning, the project was conceived for the modernisation of the square just outside
the railway station, representing spatial and traffic reorganisation. As time went on, however,
and the first important private investments poured in (Groupe HUSA, SA FEDIMMO, and
many other Belgian and international groups of companies) the need for creating and
furnishing public spaces became apparent. Having received important ERDF funding as well,
the project itself has expanded, and it now aims to develop the urban character of the whole
Liege-Guillemins district, with a view to re-establish the environment that will attract a new,
younger population, and thus "breathe new life" into this district as well as Liege.

This main objective is to be attained through four different axes: As a first step in attracting a
new population, a quality environment is essential, with improved access to the public spaces.
For that reason, the project seeks to develop the new Guillemins square, with an emphasis to
pedestrian lanes, green spaces and meeting points. It also seeks to divert expressway traffic to
the periphery, thus leaving the centre of the Guillemins district (place des Franchises) much
calmer. Finally, provisions will be made for cyclists, pedestrians as well as a number of
subterranean parking spaces.

1
Liege Revolution, 1789-1795, led to the extinction of the Bishopric of Liege as an independent state.

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This first step is deemed essential, because there was evidence of a serious decline in
population (Urban Renovation report, June 2003), especially in the 18-55 years category
living in the district - an age bracket that can largely contribute to the economic activity of a
city.

In order to attract young families back, the project sets housing as a second priority – creating
new space for apartments and one-family houses (to rent / buy), as well as renovating existing
buildings, so as to improve the image of the district. To this end, the authorities seek to
increase the number of attractive housing made available to young families by building and
renovating apartments as well as constructing one-family houses in several parts of the
district. They intend to clear out available sites to these ends, with the building of Ministry of
Finance being one of them.

Once people have returned to the district and have housing facilities, the third axis focuses on
increasing their mobility, their comfort and road security. Roundabouts, islands, parking
spaces to permanent residents and change of direction in certain roads are planned, all to
decrease the speed of cars in the district and increase the use of mass transportation. In
addition to these activities, a general improvement of the zebra crossings, especially in the
roundabouts, is foreseen.

The fourth axis of the project makes provisions for the development of the commercial sector
(services, offices and the hospitality sector) in the district. This function is recognised as
being private and independent, thus the authorities act in an indirect manner, by improving the
potential of the district in the commercial sector. The project plans constructing new office
buildings in several parts of the district, all with subterranean parking space.

The project will be carried out in phases, in order to ensure its flexibility and validate the
various development decisions taken. Already by the end of the 2002-2006 programming
period, a decision to reallocate funding was taken, due to delays to the HST railway station,
and a change in implementation priorities ensued. In the 2007-2013 period, it will receive
new support from the ERDF of approximately EUR 12 million (total investment of EUR 30
million).

Beneficiaries

The project seeks to improve the quality of life in the Guillemins district, with the
beneficiaries being primarily the people of Liege back to the city, but also the residents of
nearby cities. It should be noted that the residents and the shop owners of the district have
been consulted from the very beginning of this project, and various debates have already
taken place to inform them of the developments made. A public consultation was also carried
out when the project was being drafted, and the comments received reinforced the need for
the regeneration of the district.

Political and Strategic context

The city of Liege is situated in the valley of the river Meuse near the German and Dutch
borders, and is considered to be the principal economic and cultural hub in the Walloon
region. Once one of the most important steel-making centres in Europe, this area has faced

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important decline since the Second World War, as the steel industry is no longer an important
source of activity. With an unemployment rate reaching over 30%, people started leaving the
city in order to search for employment elsewhere, which further deteriorated the city’s ability
to survive and overcome the industrial decline.

With the introduction of the HST railway line in the Guillemins district, the area has regained
in strength and visibility. The economy has diversified, and it now includes mechanical
industries, space technology, information technology, bio technology, logistics and bio
logistics, as well as production of beer, water and chocolates. With businesses installed in the
area, the total number of permanent residents in the district has shown a slight increase.

Considering this context, the local authorities developed both the City project 2015 and more
particularly the Guillemins project to target both sides of the challenge: further develop the
city of Liege, and in particular the Guillemins district, so as to become a “Euroregional” pole
of economic activity; and, on the other hand, attract more permanent residents to the area,
offering them a sustainable environment in which to live, work and bring up their families.

Innovation

The innovative aspect of the Guillemins project has certainly been the principle of
partnership, as, since the beginning of the project, all major actors have been consulted and
involved in the decisions taken for the Guillemins district, in an effort not to reject the local
character of the district. The district has a long history behind it, and the project seeks to
further enhance this history and bring it up to the next level. For that reason, a consensus of
all actors is obviously necessary. Changes proposed and maintained include: development of
green spaces, renovation and "greening" of streets, promotion of cyclists, improvement of
parking facilities to the residents, maintaining the commercial function of the rue de
Guillemins, improving of access to both banks of the Meuse.

Political support

While the Guillemins project was essentially initiated by the local administration, the political
support of the regional government has been evident from the very beginning of this project.
Being part of the City project 2015, the Guillemins project has received increasing publicity.
Political involvement has thus been very important in making sure that beneficiaries
understand the implications this will have in their everyday lives, realise the potential
unfolding for their district and their city, and support their city in this challenge.
The political authorities have thus participated in many events of information and
communication, including public debates and contribution to local and regional articles.
Examples include public meetings in the area, visits from investors, meetings with
administrators from the Flemish Community, exhibition and conference "Liege, the future
city" in 2006, with corresponding articles in the local, national and international press,
participation in seminars and conferences (Paris, urban projects in 2006, Brussels in 2009).

Implementation

In 1992, the Roi Baudouin foundation, a public benefit foundation aimed at improving the
population’s living conditions, organised a competition, entitled "The path of the Station",
that was to "accompany" the project of the HST railway station as a first feasibility study, and

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anticipate the positive and negative effects of the construction of the new station on the
Guillemins district and on the city of Liege in general. This work was carried out with the
collaboration of the main public actors, together with the residents and shop owners of the
district.

On the basis of this study, the city of Liege initiated in 2002 this project. The urban
feasibility study had already been approved in 1993/94, resulting in the outline plan being
adapted according to the various decisions. The implementation is made possible at
regulatory level by the adoption of the Communal Plan for spatial planning in 2002. Together
with its partners, the City of Liege submitted the project to the European Commission (ERDF
co-financing) as well as the regional authorities (additional regional co-financing). Partners in
this project are the Walloon regional company of transport (SRWT), the Walloon public
transportation company (TEC), the Euro Liege TGV railway company and the Walloon
region. These together have developed a project for developing the area around the
Guillemins railway station.

The success of such a project would depend on the involvement of the beneficiaries. For this
reason, a public consultation was carried out by the city of Liege, even before the guidelines
were finalised, to invite these to submit their comments and provide an insight into their
reactions to the various phases of the project. The purpose was to recognise the challenges
such a project presented, as well as to encourage networking with the main actors. Based on
the results obtained, as well as the feasibility study that had been carried out by SRWT for the
new square in front of the railway station in 1999, the guidelines were completed and
presented to the Walloon region and were approved.

During the implementation (until 2015), the project will be continuously monitored, with
output, result and impact indicators integrated into the project.

Indicator Target (2008)

Public spaces created 10
Urban requalification projects 1
Rehabilitated urban zones 45678 m2
Population affected by the requalification actions 5000
Use of public transport in city centre 36 mil
New commercial offices in the centre 2255

Having received financial support from the ERDF enabled the Guillemins project to attract
substantial private investment as well (“snowball effect”). To this extent, the project, even
though it would most probably have gone ahead even without the EU support, would have
remained quite conservative in magnitude – the first draft of the project was limited to
developing the square outside the railway station.

Management, monitoring and evaluation system

The city of Liege initiated the Guillemins project, and has accordingly been designated
project manager. In particular, the department for Urbanism, Environment, Tourism and
Working Environment, is coordinating and promoting the project.

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The project manager meets regularly (on average 3 times per year, depending on the decisions
to be taken) with the neighbourhood committees as well as the shop owners’ association. The
residents and merchants of the Guillemins district are actively involved in this project, and
have been influential in promoting the project across the district. Their consensus has been an
essential success factor for the whole project.

There is also a Steering Committee consisting of the city of Liege and its partners (on
average5-6 times per year), which meets regularly to discuss and review the various phases of
the implementation of the Guillemins project, exchange ideas and proposals on better
implementation, as well as to approve changes necessary to it. The positive relations between
the members of the Steering Committee have resulted in a smooth implementation of the
project, adapting the strategy to be followed and reallocating resources due to unexpected
obstacles, as it happened in the case of the delay in the works of the Guillemins HST railway
station.

For the evaluation of this project, indicators will be used to assess the success by the end of
implementation.
Indicator Target (2015)
Housing offered 40.000m2
Office space 100.000 m2
Hotel facilities 10.000 m2

Governance

In order to accommodate the various elements included in the implementation of this project,
the city of Liege collaborates with the Walloon regional company of transport (SRWT), the
Walloon public transportation company (TEC), the Euro Liege TGV railway company and the
Walloon region, the latter also co-financing the Guillemins project.

Each of the partners focuses on their respective areas of expertise: the City of Liege, for
examples, ensures that the spatial planning responds to the needs of the people living and
working in the area; the SRWT and TEC focus on the distribution of transport (bus and tram)
in the Guillemins district by ensuring improved commercial speed and improved quality of
routes and stops.
The city of Liege is the project leader for the renovation of the district, as the spatial planning
is within its competences, in partnership with the Walloon region.

Key implementation obstacles

One of the essential complexities the Guillemins project faces is the fact that the development
takes place in an existing residential area of the city. Usually, projects of development of the
areas around new railway stations – especially for high-speed trains - occur just outside the
city limits, where surface is available for new designs and plans. In the Guillemins district,
the development of the area surrounding the new HST railway station means that some of
existing buildings will have to be demolished in order to provide the space necessary for the
actions foreseen in the project. This may have a negative impact on the public acceptance of
the project and can even result in further obstacles appearing. It is for this reason that the
project managers organised consultations with the residents concerned, and informed them in
advance of the decisions regarding the expropriations, and even offered assistance in their

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search to relocate, where necessary. The Committee for Acquisition of Buildings, a federal
service in charge of the expropriation procedures, generally offered assistance, especially
providing all the information necessary in such cases.
Another factor was the progressive expansion of the project. In the beginning, the project
only referred to the development of the square outside the HST railway station. With the
decision of financial support from the ERDF, the project was able to expand and include the
area surrounding the station, thus changing the priorities as well: instead of going ahead with
the implementation, the project managers had to focus on researching and providing the
additional information required by the European Commission. The focus of the project
widened, and the managers of the project changed the timings of the specific deliverables to
accommodate the new objectives. This made the project difficult, given that the procedures at
communal and regional level (which tend to be long) are not easily compatible with the
deadlines asked at EU level (which tend to be shorter).
During the implementation, another challenge became apparent: the close link with the
project of the HST railway station. The square outside the station was one of the first
deliverables of the Guillemins project, having been the original focus of the project. When, in
2004, it was clear that the railway station would not be finalised in time for the development
of the square, the decision was taken by all partners involved, to postpone the construction of
the square and reallocate the budget dedicated to it towards another project of the City project
2015, as well as to other deliverables of the Guillemins project, namely the periphery roads
leading to the station, which were not originally foreseen during the first phase of
implementation. In May 2006, EUR 2.8 million were dedicated to the renovation of 5
additional roads. EUR 405.000 were injected in addition to streets that encountered cost
overruns. The amount for the various studies was also adapted (additional EUR 196.000).
The remaining part was invested in the Grand Curtius2. This assured the continuous
implementation of the project, with no interruptions that would increase costs and would
further inconvenience the residents of the district.

Raising the awareness of the final beneficiaries about the project and involving them in the
consultation process addressed the principle of partnership. The Guillemins project can only
be successful if actions are clearly set out and results can be achieved. The project manager
therefore has paid a lot of attention in communicating these to the residents and merchants of
the Guillemins district.

Project results

The Guillemins project is still in the first phase of implementation, with limited actions
finalised.

Since the development of the square outside the HST railway station could not start during the
first phase of implementation, the budget has been redirected to the development of the roads
leading to the railway station. This has meant that these major roads (rue Varin, rue Paradis,
rue de Serbie, rue de Cuyck, rue Mambour, rue Etat tiers, rue du Plan incline, place des
Franchises) as well as the primary commercial road, rue Guillemins, have been transformed,
offering more space to pedestrians et green areas as well as more parking space to residents.

2
The 'Grand Curtius' Museum Complex, in the historic centre of Liège, brings together on one site the
collections from the Museums of Archaeology , Decorative Arts, Religious Arts, Weapons and Glass.

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But it is perhaps some of the indirect results that are more visible in this district. As Mr. M.
Servais of the Bronckart et alentours residents’ committee explained, the transformation of the
railway station and the surrounding roads has already led to a decrease in criminality and
prostitution in the area, problems that for a long time kept Guillemins from offering its
residents a sustainable and safe living environment. He also indicated that house owners have
recently started renovating houses and apartments, in view of a future influx of people in need
of housing accommodation.

Mr. J. Timmermans of the shop owners’ association also confirmed the commercial potential
of the Guillemins project, indicating that upon finishing the works in rue Guillemins, three
new businesses have opened in the area

Sustainability and transferability

Sustainability

After completion of the first phase in 2000-2006, the Guillemins project will receive new
support from the ERDF for the 2007-2013 period. In the new period, the aim is to develop
the link from the railway station to the river (part co-financed by the ERDF) and Mediacite
(private project), also included in the City Project 2015, covering a 6,5Ha complex including
190.000m2 of economic and cultural activities focusing on audiovisual and media themes.
The link will be in the form of an walkway of 1250 metres, starting from the railway station,
crossing the river Meuse, and leading to Mediacite (estimated walking distance: 15 minutes).
Between the railway and Mediacite, the ERDF also co-finances the transformation of the
Museum of Modern Art (MAMAC) into the Centre of Interpretation of Art and Culture
(CIAC).

Transferability

The concept of developing an existing area surrounding a new HST railway station has
already attracted the interest of another region. The Emilia-Romagna region in Italy, which
will also accommodate a new HST railway station, has already met with the city of Liege, in
order to learn from them the possible challenges as well as the actions that are needed for the
urban regeneration of their region. The meeting took place in October 2008, and there were
even talks for integration in an Interreg IV programme for the European Network of Speed
Cities. Clearly, the objectives and the constraints of such projects are fairly similar and
regions can easily identify with each other and can learn from one another.

Conclusions

Success factors

Consideration of the environmental effects while designing the project: the City of Liege,
in its design of the Guillemins project, paid particular attention in delivering a sustainable
environment to the district. Focus on areas reserved for pedestrians and cyclists, reduction of
vehicle circulation and improvement of public transportation make this project
environmentally friendly for the residents of Liege.

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Effective participation of the public in the decision process: one of the major factors for
the success of a project is the active participation of the beneficiaries. The Guillemins project
was communicated to the residents and shop owners of the district even before the finalisation
of the guidelines. Once the implementation of the project started, continuous consultations
with neighbourhood committees and shop owners’ associations were held, to ensure their
involvement in the project.

Including local heritage in the decision making: the innovative element in the Guillemins
project is that the development is taking place in an existing area. The preservation of cultural
and historic heritage of the Guillemins district was integrated in the project design (limiting,
for example, the number of expropriations so as to maintain the physical characteristics of the
district). Without it, the success of such a project could be endangered.

Participation of private sector: the Guillemins project seeks to increase economic

productivity in the area and make Liege a pole for economic transactions in the Walloon
region. By securing ERDF support, it has been able to attract additional considerable private
investment, with in turn attracts further business interest in the region.

Contact Details

Valérie Burlet

Ville de Liège
Echevinat de l’Urbanisme, de Tel. 0032 4 221 88 94
l’Environnement, du Tourisme et du Fax. 0032 4 221 92 56
Développement durable Email : valerie.burlet@liege.be
Féronstrée 94 Website : www.liege.be
B-4000 Liège

Date of this information: September 2009

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