10.6092/issn.3034-8544/16922
In the great transformation that is affecting the production, reproduction and socialisation of knowledge, the university is inevitably involved in an epochal transition because of its social function and a strong pressure to corporatise. Nevertheless, some universities have not only tried to open their doors to the local community but are also implementing intervention strategies on the ground to contribute to the institution's social potential and to offer new forms of research and teaching. Using third mission activities to enhance the institution’s reputation and attract funding, in recent years, many universities have developed strategic plans and initiatives that reflect a real opening up to the territories. This paper focuses on the case of Naples, and in particular the Federico II University, which has received much praise for building a new campus in the suburbs, the results of which have yet to be evaluated.
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Regenerating Fragile Territories through the University. The Case of the New University Campus in Scampia, Naples
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Giovanni Laino
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Regenerating Fragile Territories through the University. The Case of the New University Campus in Scampia, Naples
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                                                    URBANA Vol. 1, N. 1, 2024               229




Regenerating Fragile Territories through
the University. The Case of the New
University Campus in Scampia, Naples

Giovanni Laino

University of Naples Federico II

laino@unina.it


1.       Introduction.

In recent years, the third mission has mobilised university staff at all
levels: rectors, deans, heads of departments and individual lecturers have
all been trying to make universities more competitive against the
evaluation criteria of the ANVUR—the Italian National Agency for the
Evaluation of Universities and Research Institutes—and to improve their
reputation and relations with the local community. As is known, while
teaching and research remain the main social function of universities, the
latter have to commit to the third mission and public engagement: that is,
the set of non-profit activities organised by a university—departments or
individual researchers—with an educational, cultural and social
development value, aimed at a non-academic public.
These are actions that require interaction and listening to build a different
and stronger social relationship between the institution and the
community. There are many types of actions: the organisation of cultural
events, making spaces and facilities available, scientific dissemination,
support of public benefit initiatives held in the local community, and so
on.
However, to evaluate universities, we must adopt a very rigid scientific
approach that looks at both social reporting and impact, drawing on well-
documented and reliable data on third mission activities. After an initial
assessment by the ANVUR through a learning workshop for universities
to better understand how to regulate themselves and provide guidance to
the many researchers, the universities are now working to help lecturers
identify and select actions that can be easily documented with
measurable impact indicators. Considering the broad spectrum of
possible activities, some of which many universities have been promoting
for years, especially on the cultural side, the universities' orientations are
very diverse, also in terms of the components that are most easily
identified: engineering schools and the faculties of medicine, science,
agriculture, economics, etc., which tend to be closer to the business world
than those in the humanities.


                                                                   Copyright 2024 The Author(s)
                                               This work is licensed under a Creative Commons
https://doi.org/10.6092/issn.3034-8544/16922               Attribution 4.0 International License
                                                             URBANA Vol. 1, N. 1, 2024           230



More generally, some fields of architecture, engineering, sociology and
other social sciences have a long-standing inclination to study territorial
contexts, often prompting students to explore social phenomena that are
rooted in space and put territorial dynamics at the centre of their
research.
Over the past few decades, several scholars have turned their attention to
the developmental effects of the establishment of new university
campuses in the very contexts of their location 1.
It is only in more recent years that a specific strand of action and
reflection has emerged concerning the values that the location of
workshop activities in fragile territories can embody. For territorial
scholars, the best-known cases are those that have been developed over a
number of years within the framework of public policies (for example,
neighbourhood contracts), or those that have identified specific public
housing estates as a privileged place to involve students and tackle certain
processes—such as urban regeneration—from the inside, applying an
integrated approach and creating opportunities for decision-making or a
more adequate implementation of necessary neighbourhood services 2.

2.       Workshops in Fragile Neighbourhoods.
For a couple of years now, some universities—or individual departments
—have opened offices or sent staff to laboratory-type facilities in “fragile”
areas, usually social housing districts (for example, San Siro in Milan and
Corviale in Rome). In addition, many universities have gathered in the
APEnet network, which was created to support universities and research
organisations in sharing public engagement projects, goals and joint
initiatives.
These are very interesting practices for those who, like me, have been
working for decades on an integrated approach to regeneration and the
implementation of services in disadvantaged neighbourhoods, located in
historic centres or public housing areas. In recent years, many
researchers have been involved in mediation workshops as part of the
regeneration activities described in neighbourhood contracts, within the
framework of agreements with municipalities3.
Subsequently, starting from initiatives developed among colleagues from
DaStU Dipartimento Studi Urbani del Politecnico di Milano a space for

1
  Nicola Martinelli and Michelangelo Savino. “L’Università italiana tra città e territorio nel XXI
secolo - Parte Prima.” Urbanistica, 149 (2012): 4-67; Nicola Martinelli and Michelangelo Savino.
“L’Università italiana tra città e territorio nel XXI secolo - Parte Seconda.” Urbanistica, 150/151
(2013): 10-43; Nicola Martinelli and Michelangelo Savino. “Università/Città. Condizioni in
evoluzione?” Territorio, 73 (2015): 58-59; Nicola Martinelli and Piero Rovigatti. Università, città e
territorio nel Mezzogiorno (Milano: FrancoAngeli editore, 2005).
2
  Ida Castelnuovo, and Francesca Cognetti. “Mapping San Siro Lab: Experimenting Grounded,
Interactive and Mutual Learning for Inclusive Cities.” Transactions of the Associations of European
Schools of Planning, 3, 1 (2019): 37–54.
3
  AA.VV. “Dossier su Crocetta.” Territorio, 70 (2014); Claudio Calvaresi and Linda Cossa, Un ponte
a colori. Accompagnare la rigenerazione di un quartiere della periferia Milanese (Rimini: Maggioli
editore, 2011).
                                                               URBANA Vol. 1, N. 1, 2024            231



listening, mediation, observation and social enabling was activated in San
Siro, led mainly by Francesca Cognetti and Liliana Padovani4.

3.     The Case of Milan: from Neighbourhood Contracts to the Urban
Living Labs.
The Politecnico di Milano launched the first Off Campus space in the San
Siro district in April 2019, and a second space in the Nolo district in
September 2020. Two more spaces were opened in 2022: one in the San
Vittore prison and another one in a farmhouse on the outskirts of the city.
In these structures, teachers, researchers and students alike engage in
activities aimed at promoting innovative teaching, with a focus on the
development of new skills, obtained through work in real contexts;
responsible research, seeking to develop inclusive processes of
knowledge production; and planning in collaboration with local groups
and institutions to implement interventions rooted in the dynamics of the
local context.5
The creation of these spaces is part of didactic and research pathways
that, here as in other universities, have seen the commitment of staff—
mainly from the departments of Urban Studies, Planning, Architecture
and Social Sciences—in the local community. Within this institutional and
university framework, the Milanese programme has strengthened
initiatives that were initially run by individual lecturers or research
groups. The activities of Off Campus San Siro, for example, are as follows:
-       research: the role of the Living Labs in marginalised contexts;
educational poverty and segregation in multicultural contexts; housing
policies and projects;
-       education and culture: territorial citizenship workshops; Caffè San
Siro (cultural events); educational seminars and workshops; curricular
internships;
-       co-design: the reactivation of empty, public and communal spaces;
skills training for migrant women; working group on future
neighbourhood regeneration projects;
-       neighbourhood archive: a collection of texts and materials, also
from the inhabitants’ private archives;
-       coordination of the Sansheros Local Network, a network of local
groups active in the neighbourhood.
Furthermore, Off Campus San Siro hosts a legal and legality education
desk run by the Bocconi University. In fact, collaborations with other


4
  Francesca Cognetti and Liliana Padovani. Perché ancora i quartieri pubblici. Un laboratorio di
politiche per la casa (Milano: FrancoAngeli editore, 2018). In this paper, it is not possible to include
a historical analysis that considers the evolution of the concept of neighbourhood laboratory,
from Renzo Piano’s experience in Otranto at the end of the 1970s to the more recent ones, which
generally fall within the Living Lab approach.
5
  I wish to thank Professor Francesca Cognetti, delegate of the Rector of the Politecnico di Milano
for social responsibility for the territory, and a researcher in the Off Campus San Siro project, for
giving me this information.
                                                            URBANA Vol. 1, N. 1, 2024   232



Milanese universities have been strengthened over time, at San Siro
mainly with the Bocconi University and the University of Milano-Bicocca.

4.         The Corviale District in Rome.
Another important initiative that has been underway for some years is
that of the Corviale City Laboratory. Here, too, the personal commitment
of individual researchers who are more sensitive to the problems of social
exclusion—for example, that of the Roma community 6—preceded the
initiative. In particular, the case of Corviale, which is supported by the
ATER Azienda Territoriale per l’Edilizia Residenziale is part of a longer
and more articulated affair in which university researchers are employed
as mediation professionals to facilitate the implementation of the works
and the transfer of families, and to liaise between the assignees and
ACER.




                          Figure 1| Examples of public engagement results.
                                       Credits: Giovanni Laino.

5.     The Shift from Individual Volunteering Outside University Walls
to Professional Engagement in Projects funded by Universities.
Like some of my colleagues, I have long combined my professional
commitment with volunteer work for a well-established and well-rooted
third-sector organisation, planning, building partnerships and
implementing and coordinating activities, especially for socio-
educational services. In recent years, however, I have come to think
differently about my personal commitment. Since 2020, with the
permission of my university’s Departmental Council and in compliance
with the employment regulations for lecturers, I have requested that the
hourly cost of the time I spend on some projects owned by non-profit
organisations be considered as co-financing of the DiArc Dipartimento di
Architettura, provided that the department acts as a formal partner of the
relative projects. I think this is a unique and extremely useful way of
having researchers and lecturers, paid by the university, providing
services to local communities. One of the values of this approach is that it
enables a real insertion into the nervous system of the projects, that is,
the complex interaction between intentions, objectives, constraints,

6
    Francesco Careri, Stalker-ON / Campus Rom (Matera: Altrimedia edizioni, 2017).
                                                            URBANA Vol. 1, N. 1, 2024           233



resources, opportunities, learning, conflict and subsidiarity. Like a
trauma centre for an orthopaedist, community service projects—which
are increasingly hinged on urban regeneration programmes—are like a
clinic for me. In my opinion, the study of planning theories and public
policies would be very sterile and exposed to the risks of abstraction
without a direct and emotional involvement in these experiences. Here,
however, I want to focus on a different issue.

6.       The Neapolitan Context.
Five major universities operate in the metropolitan area of Naples.
Thanks also to the location of its campuses, the Federico II University is
embedded both in the urban centre and on the outskirts of the city. In
addition to being very central, fully inserted in the urban context and part
of the Unesco area of the historic centre, some neighbourhoods 7 have an
extraordinary symbolic value due to their particular living conditions: in
these parts of the city, there is still a very lively environment,
characterised by diversity and movement, two primary elements that are
embedded in an ancient urban grid that is open to activities and residents
from the better-off classes. More recently, some new structures have
been built in Giovanni a Teduccio and Scampia, two districts that are
known for a particular concentration of public housing and social classes
living in relative or absolute poverty. While the now renowned
experience of the San Giovanni campus is growing, in October 2022, that
is, 15 years after the implementation of the relevant policy, the university
campus of Scampia was finally launched. For years, various departments
(Architecture, Social Sciences, Humanities) have done research on and
organised events aimed at the integrated regeneration this district, which
has been overexposed in the media8.

6.1      The San Giovanni a Teduccio Site.

In 1998, Rector Fulvio Tessitore signed an initial memorandum of
understanding in support of the decision to move some of the classrooms
used for courses with an ever-growing number of students to the site of
the former Cirio factory. The latter is located between the working-class
districts of Barra and Sangiovanni, in the first suburbs of the eastern part
of the city, 15 minutes by scooter from Via Toledo and about 30 minutes
from the central stops of the old underground line. It was thus decided to
create a new teaching facility in the eastern suburbs to complement the
western one where, in addition to the engineering buildings, the new

7
  In particular, mixed neighbourhoods such as Montecalvario, San Lorenzo and San Giuseppe are
very popular suburbs.
8
   AA.VV. Oltre le vele. Rapporto Scampia (Napoli: Fridericiana Editrice Universitaria, 1999);
Giovanni Laino, “Italy: the Scampia discrict in Naples.” In Neighbourhood housing debate, edited by
Daniela Ciaffi (Milano: FrancoAngeli editore, 2005); Enrico Martinelli and Massimo Santoro.
Periferie. Vele Scampia programma di riqualificazione urbana (Napoli: Gruppo Associati Pubblitaf,
2004).
                                              URBANA Vol. 1, N. 1, 2024   234



Economics and Business School had been located. This was a positive
experience, mainly because of the correct and rapid use of European
funds, which is a rarity in the Campania region – and even more so in
Calabria and Sicily. From an architectural point of view, a project was
chosen that had to be carried out in multiple stages, depending on the
actual availability of funds, with the aim of creating a facility without any
perimeter walls. It was also decided not to build refreshment facilities on
the premises to encourage students and lecturers to use the bars and
restaurants in the surrounding area. Local citizens have begun to accept
and appropriate the spaces—with newlyweds even doing photo shoots at
the site—, but for those who, like me, go there to teach, the anthropic and
spatial landscape mostly presents itself as a large set of classrooms,
generally designed in a traditional way—also in view of the anticipated
number of students—, with pleasant but not very anthropised outdoor
spaces.
Ever since its conception and initial implementation, the process has
undergone a very significant evolution: thanks to a series of unforeseen
opportunities, part of the space in one of the buildings was used as the
headquarters first of the Apple Academy and then of various other
important academies, attracting hundreds of young people—also from
abroad—and creating a very innovative activity that was closely
connected with major economic actors.
The city and the metropolitan area of Naples have many peculiarities: the
spread of the spread of the informal sphere; the entrenchment of the
working classes not only in the suburbs but also in large areas of the city
centre, which is unique in Europe owing to the particular housing
conditions—among other things—of at least 40,000 people living in the so-
called bassi (very small homes with only a ground floor); a peak in the
number of illegal constructions in parts of the second suburb, which are
causing problems that seem impossible to solve; and a public housing
stock (over 40,000 housing units) that is among the largest in Italy. Naples
also has outer suburbs that are scattered across the municipalities of the
metropolitan city, with tens of thousands of people living in deep poverty.
Furthermore, the city has a large number of housing estates and buildings
(120 of which have already been mapped in a GIS) that have lost the
function they had until the end of the 20th century. This is why in Naples,
more than anywhere else, there is an urgent need to regenerate —rather
than simply reuse—some hundred buildings. This theme will
undoubtedly be on the agenda for at least the next 50 years of urban
history and is repeatedly associated with policies for the building of
university campuses or, more recently, housing for university students
and staff. Moreover, research into common goods has been ongoing for
some years now, for which Naples presents itself as a Mediterranean
centre of legal and social innovation. Although the city has a unique
historic centre (extensively delimited by the general land use plan) in
terms of its dimension and is experiencing a prolonged, intense wave of
                                                             URBANA Vol. 1, N. 1, 2024            235



touristisation, it does not seem to be affected by the same degree of
gentrification as other large Italian cities, partly as a result of a private
building heritage with a very peculiar consistency and use, and the now
structural presence of migrant communities. 9
Finally, the data on deficits in childcare services, school failure and the
various types of dropouts are notorious. In some areas of southern cities,
these are at very critical levels compared to European cities, not to
mention the situation of those who are no longer in the education system
and neither working nor training for work (NEETs), which concerns the
future of large parts of the new generations.
In this context, it is clear that many researchers and university lecturers
have long felt the need to develop—or strengthen—a commitment to
improving living conditions in the city, without compromising their
allegiance to the university’s main mission: to do research and train
qualified young people.

6.2      The Nursing Sciences Campus in Scampia.

After several years of work and political vicissitudes, the new nursing
centre of Scampia opened on 18 October 2022, in a beautiful building
designed by Vittorio Gregotti, initially intended as the headquarters of the
National Civil Protection.10
In addition to the great contribution that medical professors and
researchers will undoubtedly make, the campus offers a huge potential
for public engagement initiatives that promise to be well-structured and
not improvised, and which will prove even more innovative if focused on
the regeneration of immaterial enabling services for local communities
(residents, schools and third-sector organisations).
Scampia’s social stratification is more articulated than the stereotypes in
the media would have us believe.11 This was already documented in a
study on the neighbourhood commissioned by the rector and coordinated

9
  In a survey conducted over the past two years, we collected data from the Chamber of Commerce
on more than 6,500 people registered as traders, predominantly pedlars (Laino, 2022), and we also
produced very interesting maps thanks to the geolocalisation of addresses via a simple GIS.
10
   Previously conceived as the headquarters of the regional civil protection service, this cylindrical
building was designed and modified by Vittorio Gregotti. It is a seven-storey building (six above
ground) with many ribbon windows and no balconies, reserved for the School of Medicine and
Surgery’s Health Professions courses and with outpatient clinics to be opened six months from
now, intended for nutrition and endocrinological disorders, with an anti-diabetes centre and a
blood collection centre. The classrooms will accommodate a total of 2143 students but currently
contain 660 seats, with another 200 planned for the next semester. There is also a library, a large
lecture hall with 519 seats, 32 laboratories, 50 offices, 5 student areas, a garage with 95 parking
spaces and 30 motorcycle parking spaces. It has a medium- to long-term history, as it was
formalised with a protocol signed back in April 2006. The initial plan was to locate a Faculty of
Agriculture in Scampia, but the faculty members refused to be relocated from their historic site in
Portici. In 2006, after the demolition of Sail H, the decision was made to build a Medicine and
Surgery campus in Scampia. The construction site was opened in 2009, further funding arrived,
some changes were made to the initial project and, finally, in July 2022, the building was finished
and furbished, although some furnishings are yet to be completed.
11
   Cfr. Giovanni Laino and Daniela De Leo, Le politiche pubbliche per il quartiere Scampia a Napoli
(Napoli: NEHOM, 2003).
                                                            URBANA Vol. 1, N. 1, 2024           236



by Enrico Pugliese in 1999, to assess the impact of the opening of a new
university campus. Various populations coexist in Scampia.12 Some of the
“residents” live mainly in private parks; they are the relative majority and
usually go out for work every morning, so they spend little time in the
neighbourhood. These middle-class workers resemble those living in
many suburbs of European cities, and a small part of them is involved in
activities in schools, parishes and the headquarters of third-sector
organisations in the neighbourhood. Next, there are the actual
“inhabitants”: those who experience the neighbourhood to the full,
having fewer opportunities for work and life in the external areas. They
mostly live in brick high-rise buildings and a minority of them are
families who used to live or still live in the Sails, in areas where the
poorest or most precarious population is concentrated (Lot P, where the
P stands for Puffi, the Smurfs) or in towers, almost always living in
intergenerational poverty. Only a proportion of these residents are
involved in clearly illegal activities. Other than this group, we must also
consider the inhabitants of ROMA origin, who in many cases are de facto
Neapolitans, with local identity cards and decades of residence, having
lived in Scampia for three generations. An issue that has long been
postponed is that of the Cupa Perillo camp: while acknowledging that
some of its members commit crimes, the camp contains about one
hundred families who have a legal right to public housing, but no
administration has seriously considered offering it to them13. Then there
is a further category of “inhabitants”: teachers and public service and
third-sector workers who, despite living in other areas, run the
neighbourhood’s daily socio-educational activities. In addition to
hundreds of teachers, coordinated by highly committed educational
directors, there are workers from other public services and about forty
third-sector organisations, of which only a few were mentioned in a
report published in the local issue of the newspaper La Repubblica: Coop.
L’uomo e il legno all’APS Chi Rome e Chi No, Kumpania, Dream Team, Le
suore della Provvidenza and many others. 14 In addition to recognising the
commitment of these organisations, we should note that, for years now,
they have been successful in attracting resources that amount to
hundreds of thousands of euros by winning local and national tenders.
These funds make it possible to provide at least some basic services and
avoid the worst in terms of the lack of basic rights for large sections of the
neighbourhood's population. In some cases, these institutions try—with
good results—to make innovations in socio-educational, welfare and
cultural services in a neighbourhood with a particular social need.


12
   I here use some of the arguments presented in a newspaper article published in La Repubblica
Napoli on 13.09.2022.
13
   Giovanni Laino, “Superare i campi Rom: cosa e come fare.” Autonomie locali e servizi sociali, no.
1 (2016): 45-64.
14
   Antonio Di Gennaro and Giuseppe Guida. “Scampia, l’università è pronta le lezioni partono fra
un mese.”, in La Repubblica Napoli, 11 september 2022, 2-3.
                                               URBANA Vol. 1, N. 1, 2024   237



The launch of the new Federico II campus in Scampia is therefore a great
occasion that raises many expectations, but the effectiveness of the
investment—in terms of making it an Engaged University—cannot be
taken for granted. A lot depends on one decision: whether the medical
stronghold will be a collection of nursing and body care activities or,
starting from the idea of health as an all-encompassing social fact, it will
be combined with other interventions to combat vulnerability and
poverty among children, women and the elderly, some of which are
already active in the neighbourhood.
To do this, the rector and senior referent of the Faculty of Medicin—in
agreement with the mayor of Naples—aim to promote a local
development coalition that will be hosted on the premises; this could be
an opportunity to rationalise, relaunch and develop the mixed welfare
system that effectively operates in the district. In this sense, the launch of
the new training and health service centre could also act as an
authoritative request to reinforce a local development coalition that the
third sector and the municipality alone have, in fact, never managed to
establish for over twenty years. This coalition represents the true
qualitative leap that, together with the worthy commitment of local
individuals and groups, can overcome a very spontaneous, often
disjointed and ineffective phase of public investment, even if this quality
improvement has not yet been clearly articulated.
To conclude, in Scampia, the Federico II University cannot repropose a
model like that implemented in San Siro by the Politecnico di Milano
(Urban Living Lab) or in the Corviale district in Rome (a mediation and
support desk for the implementation of a relocation policy for families in
upgraded housing). Rather, this new opportunity could launch a more
advanced and challenging model. Without looking too far ahead, I believe
it is essential to start a serious preliminary investigation that would allow
the university to also allocate resources to a small group of motivated
young researchers who, under the supervision of senior lecturers, could
conduct action research that would be of great interest from this
perspective. I have already proposed to set up a small working group and
convene the most qualified actors for a sort of neighbourhood social
committee that, together with referents from the municipal
administration, would stimulate (or force) municipal departments to
work in an integrated manner. This committee could also run new
internal and external services, always ensuring transparency of resource
allocation. A similar negotiating table could urge and support the most
qualified actors of the third sector to create a local development coalition,
tempering competition and trying to build a climate of social dialogue—
one that does not seek to eliminate conflict—for the evaluation of social
needs and their best possible treatment thanks to policies of different
scales and innovative practices aimed at improving the effectiveness and
protagonism of the involved actors.
                                               URBANA Vol. 1, N. 1, 2024    238



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