Implementing Progressive Planning in Niterói, Brazil ... Progressive Planning in Niterói, Brazil:...
Transcript of Implementing Progressive Planning in Niterói, Brazil ... Progressive Planning in Niterói, Brazil:...
Implementing Progressive Planning in Niterói, Brazil: Where Rhetoric Meets Practice
Abigail Friendly IMFG Postdoctoral Fellow
November 3, 2015
• Research context
• Historical background
• Research themes and conceptual framework
I. Context1. Context
II. Case study III. Participatory planning
IV. Social justice V. Final thoughts
“Our City”
• Juxtaposition: Statute of the city vs. local implementation
• Sentiments of many informants: disillusionment; lei que não pega
• Many challenges tied to Brazilian context
• Statute creates possibilities, but can these be used?
Lei que não pega1. Context
II. Case study III. Participatory planning
IV. Social justice V. Final thoughts
• Rapid urbanization
• Bel-India (Edmar Bacha)
• Historical asymmetry: exclusion from property, land speculation, clientelism, elitist planning practices
• Formal vs. informal
The research context
Favela Paraisópolis vs. wealthy neighbourhood of
Morumbi, São Paulo
1. Context II. Case study
III. Participatory planning IV. Social justice V. Final thoughts
Brazil in the 1980s and 1990s
The urban reform movement: “A city for everyone is possible” A new ‘citizens’ Constitution: 1988
1. Context II. Case study
III. Participatory planning IV. Social justice V. Final thoughts
The Statute of the City: 2001
The Statute’s 2 dimensions
Concept of social
function
Processes for democratic
management
21
1. Context II. Case study
III. Participatory planning IV. Social justice V. Final thoughts
PARTICIPATORY)INSTITUTIONS
SOCIALLY)JUST)OUTCOMES
private)sector
poli<cal)par<es
civil)societycity)council
professional)associa<ons
local)government
ministério)público
A relational framework
Participation + Civil society + Power + Social justice
1. Context II. Case study
III. Participatory planning IV. Social justice V. Final thoughts
II. The case study: Niterói, RJ
“If no man is an island, the same applies to cities. Niterói, of course, offers its residents the highest level of quality of life of the State of Rio de Janeiro (and one of the best in Brazil, certainly) but it is not exempt from the ills that affect other Brazilian municipalities... despite recent improvements, it still faces serious urban problems.”
– Jorge Roberto Silveira, Former Mayor
Niterói in relation to Rio State
1. Context II. Case study
III. Participatory planning IV. Social justice V. Final thoughts
Niterói’s planning system: the 1990s
“Without sanitation, with a choked road system, precarious transport and lagoons plagued by squatting and land speculation”... The area is lauded as “having enormous potential for tourism and as the ‘new Niterói’ which should house the city’s expansion”
– Niterói in the XXI century, 1991
Niterói in the XXI century (1991)
1. Context II. Case study
III. Participatory planning IV. Social justice V. Final thoughts
The 1992 master plan
The social function of property: “means the right of every citizen to have access to housing, public transport, basic sanitation ... health, education, security”
– Niterói’s Master Plan
1. Context II. Case study
III. Participatory planning IV. Social justice V. Final thoughts
An overview of Niterói
Rio de
Janeiro
São Gonçalo
Maricá
Pendotiba Leste
Norte
Praias da Baía
Oceânica
Baía deGuanabara
South Atlantic Ocean0 5 km
NITERÓI
Niterói’s 5 planning regions: Praías da Baía, Ocêanica, Norte, Pendotiba, Leste
Icaraí neighbourhood, Niterói
Favela Morro do Estado, centre of Niterói
1. Context II. Case study
III. Participatory planning IV. Social justice V. Final thoughts
III. Participatory planning1. Context
II. Case study III. Participatory planning
IV. Social justice V. Final thoughts
Participatory planning in practice
Participation in the master
planning process
Master Plan Management of the master plan Law-making
Legislative body (approves law)
Urban development conference (every 2 years)
Urban development council (monthly, composed
of representatives)
Public hearings
(no timeline, general
population)
1. Context II. Case study
III. Participatory planning IV. Social justice V. Final thoughts
Jorge&Roberto&Silveira&(PDT)
1989$%$1992
1989 1997
Statute&of&the&City
2001
João&Sampaio&(PDT)
1993$%$1996 1997$%$2000
Jorge&Roberto&Silveira&(PDT)
Jorge&Roberto&Silveira&(PDT)
2001$%$2002
Master&Plan
CMUMA&Municipal&urban&
development&council
1992 1993 1995
PUR&Praias&da&Baía&Region
Godofredo&Pinto&(PT)
2002$%$2004
Godofredo&Pinto&(PT)
2005$%$2008 2009$%$2012
Jorge&Roberto&Silveira&(PDT)
2002 2003
2nd&PUR&Praias&da&
Baía&Region
PUR&Oceânica&Region
2004
COMPUR&Municipal&urban&
development&council
2005
PUR&North&Region
2007 2009
4
2013
Rodrigo&Neves&(PT)
2012$%$2016
Municipal&conferences
Participatory planning in Niterói1. Context
II. Case study III. Participatory planning
IV. Social justice V. Final thoughts
Advertisement for a community meeting for the participatory
master plan, 1991
Participation in master plans 1. Context
II. Case study III. Participatory planning
IV. Social justice V. Final thoughts
Urban development councils1. Context
II. Case study III. Participatory planning
IV. Social justice V. Final thoughts
Composition of COMPUR
6%6%
11%
28%
11%
11%
28%
Municipal governmentCity councilBusiness sectorSocial & popular movementsUnionsProfessional / academic entitiesNGO
1993 - 1998 CMUMA (conselho municipal de urbanismo e meio ambiente)
2003 - COMPUR (conselho municipal de política urbana)
Civil society in Niterói
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1. Context II. Case study
III. Participatory planning IV. Social justice V. Final thoughts
IV. Social justice
Planning ideas Good Bad Ambiguous
➊ Public space HeterogeneityLack of access; homogeneity
➋ Planning Citizen participation Rule of experts
➌ Distribution of benefits
Redistributes to the worst-off
Favours the already well-to-do
Assists the middle class
➍ CommunityRecognition of the
other; diversity Homogeneity
Urban values of social justice
1. Context II. Case study
III. Participatory planning IV. Social justice V. Final thoughts
To create change “in the sense of universalization. This would mean redistributing income, redistributing resources to ensure that everyone has the right to housing, to ensure that everyone has the right to sanitation, to ensure that everyone has the right to mobility... Urban policies have a structural component in the conditions of social reproduction. So the redistribution of income via urban policies is a key component for social reproduction itself.”
“Urban property fulfills its social function when it meets the basic requirements for ordering the city set forth in the Master Plan, assuring that the needs of the citizens are satisfied with regards to quality of life, social justice and the development of economic activities.”
Fair distribution of the costs & benefits of urbanization; one outcome of social function
Redistribution to all, to democratize outcomes
The urban reform movement
The meaning of social justice
The Statute
1. Context II. Case study
III. Participatory planning IV. Social justice V. Final thoughts
!"#$%&'#(&%)(*%$(+,&-.!/
0"+1&'#(&%)(*%$(+,&-."/
$+23"#,3'%,'3(&%"4"%$,5
Solo criado (outorga onerosa do direito de construir)
• Development rights generated in exchange for social interest works, apply concept of social function of property
• Premised on a separation between property & development rights
1. Context II. Case study
III. Participatory planning IV. Social justice V. Final thoughts
Using Solo criado
Operações Interligadas1. Context
II. Case study III. Participatory planning
IV. Social justice V. Final thoughts
• Included in Niterói’s 1992 master plan
• Originated in mid-1980s in São Paulo
• No venue to discuss with civil society
1959 1996
Icaraí, Niterói
• Solo criado applied since 2002
• Changes to Niterói, verticalization pressures
The application of solo criado1. Context
II. Case study III. Participatory planning
IV. Social justice V. Final thoughts
The governance of solo criado1. Context
II. Case study III. Participatory planning
IV. Social justice V. Final thoughts
Master Plan
Regional Urban Plans
(PURs)
+
1992 Master Plan: Includes solo criado, not regulated2004 Master Plan: Applied solo criado
Fund for urbanization, housing & land
regularization (FUHAB)
Legislation
2002: PUR Oceânica
2005: PUR North
2002: PUR Praías da Baia
➥ ➥Social
interest works
Regularizing informal settlements
Infrastructure improvements
Sanitation
Social housing
FUHAB Management Council
Representatives of civil society & local government
Year Total+value+(US$)
2004+/+2005 859,018
2006 633,037
2007 1,306,791
2008 2,093,532
2009 2,516,164
2010 3,784,370
2011+(un>l+09/2010) 2,600,332
Total+collected 13,793,244
• Annual collection is low
• Only applied in some parts of the city
• Spending used towards slope retention
Annual collection from solo criado in Niterói
Challenges of solo criado1. Context
II. Case study III. Participatory planning
IV. Social justice V. Final thoughts
V. Final thoughts1. Context
II. Case study III. Participatory planning
IV. Social justice V. Final thoughts
• Lack of monetary & human resources
• Nature of decentralization problematic
Challenges of applying the Statute1. Context
II. Case study III. Participatory planning
IV. Social justice V. Final thoughts
The role of power
Sign protesting ‘No to high rise development’
• Urban growth machine; business as usual
• Interests of the poor not at forefront
• Those with political & economic connections drive urban policy
1. Context II. Case study
III. Participatory planning IV. Social justice V. Final thoughts
Tragedy in Niterói, April 2010 “Niterói doesn’t have a mayor”
This is clearly what I call ‘action between friends’ ... It is when you want to favour your friends...This is the root of the current municipal government. This is terrifying but true.– Architect, Niterói, December 3, 2010
The role of power
“”
1. Context II. Case study
III. Participatory planning IV. Social justice V. Final thoughts
Epilogue
Like+a+ghost+that+haunts+ci>es+leaving+marks+on+the+living+space+and+memory,+the+popular+uprisings+around+transporta>on+assail+the+history+of+Brazilian+metropolises+since+its+forma>on+...+[The+protests]+are+a+worthy+expression+of+rage+against+a+system++completely+delivered+to+the+logic+of+the+commodity.+
–+Movimento)Passe)Livre+(MPL)
“
”
Photo by Leona Kaya Deckelbaum
1. Context II. Case study
III. Participatory planning IV. Social justice V. Final thoughts
Next steps
Section 37: Toronto Solo criado: São Paulo
“#comeoutside the city is YOURS”
Thank+you+