Putting Residents’ Voices at the Heart of Urban Transformation in Metzeschmelz

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Our Goal: To explore how AGORA is redefining citizen participation, making residents co-creators of their urban environment.

Our Approach: We drew on the expertise of Yves Biwer, Managing Director of the Metzeschmelz district at AGORA. Through stories, diagrams, and reports, he unveils a methodology where workshops, forums, and temporary initiatives come together to create neighborhoods that reflect the identities of their future inhabitants. “Genuine citizen participation brings immense value to projects,” he emphasizes.

Behind the ambitious development of the future Metzeschmelz district lies a unique challenge: transforming a former industrial site into a neighborhood shaped by the ideas and needs of its future residents. From the earliest planning stages, AGORA envisioned an architectural and urban project that avoids the traditional pathways of urban design. The process integrates citizens’ perspectives by creating spaces for dialogue where urban planners, local associations, and residents collaborate to design a living environment that works for everyone.

Engaging such a wide range of stakeholders is no simple task. AGORA employs a mix of participatory methods—some particularly creative—that ensure outcomes are both meaningful and impactful.

“We are not building these neighborhoods for ourselves but for future generations. Listening to citizens allows us to incorporate visions and needs we would never have anticipated on our own.”

— Yves Biwer, Director and Coordinator of Metzeschmelz

A Contemporary Take on Citizen Participation

To refine its approach, AGORA began by studying examples from other cities that had carried out similar urban projects. “We analyzed their methodologies and adopted benchmarks to guide and enhance our efforts,” explains Yves Biwer. “We also consulted experts in the field, including organizations like Impact Lab, which supported us in the early stages. Later, consultants such as Snakke (formerly Zebralog) advised and guided us in developing our citizen participation strategy.”

Compared to the approach taken when planning Belval two decades ago, it’s a whole different world. In the early 2000s, public consultations mostly consisted of informational meetings. With Metzeschmelz, AGORA is taking a giant leap forward by adopting a much more inclusive approach. This evolution reflects broader changes in participatory democracy practices.

“Over the past two decades, citizens’ expectations have shifted; they no longer want to simply be informed but actively participate in decision-making processes. At the same time, engagement methods have evolved, offering new tools to involve stakeholders more directly and constructively.”

– Yves Biwer

Diverse Tools and Approaches

Step 1: Workshops and Competitions. Starting in 2019, AGORA launched an urban design competition to reimagine Metzeschmelz. Residents were invited to participate in workshops, sharing their ideas on public spaces, heritage, and local services. These contributions, continuously accessible to urban planners, influenced the initial proposals made by design firms.

Step 2: Forums and Zukunftsrot. Following the validation of the initial plans, AGORA established the Zukunftsrot, a “Metzeschmelz Future Council” that brings together citizens, experts, and local representatives. The insights from these discussions—for instance, recommendations about public spaces—are passed on to the municipalities of Esch-sur-Alzette and Schifflange to inform decision-making. “There’s nothing worse than token consultations,” stresses Yves Biwer. “We want citizens’ ideas to truly shape the project.”

Step 3: Events and Temporary Site Uses. AGORA facilitates markets, festivals, and short-term community projects on-site, transforming the former industrial area into a vibrant space. These events also provide opportunities for guided tours, allowing residents to learn about the project and engage directly with its designers.

Step 4: An Online Citizen Participation Platform. Currently under development, this virtual space will enable citizens to exchange ideas and access information. Ultimately, it aims to foster active participation, inviting the public to influence all aspects of the neighborhood’s planning.

Concrete Examples of Citizens’ Impact

Engaging with future residents has led to tangible results. For example, specific requests emerged regarding the preservation of green spaces and the creation of welcoming gathering spots. In response, AGORA adjusted its plans to include more public parks and recreational areas.

Yves Biwer elaborates:

“In the urban and landscape manual developed by the masterplan’s design team, we incorporated feedback from citizen workshops, embedding their suggestions directly into the planning guidelines. This manual provides clear directives on design principles, addressing aspects such as architecture, public spaces, materials, and sustainability requirements.”

AGORA as a Trailblazer

Citizen participation is gaining momentum in Luxembourg, and AGORA is driving this dynamic forward. Yves Biwer offers a measured perspective: “We’re not here to replace municipalities in their role as mediators. But for our projects, we’ve developed a more comprehensive approach than ever before.”

What’s next?
AGORA aims to roll out new collaborative online tools, maintain the involvement of “pioneers” engaged in temporary activities, and track the impact of decisions shaped by citizen dialogue. The ultimate goal: to build a truly participatory model of urban governance.

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