Paper Scenarios Eline Bugarin 09.01

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RE-CONSTRUCTING THE CITY:VISIONS AND STRATEGIES APPLIED IN

THE CONTEXT OF METROPOLITAN

GUADALAJARAby Eline Bugarin

9-Jan-2012


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i. IntroductionGuadalajara the second largest city in Mexico and home to over 4 million inhabitants is considered to be an

important metropolis for the nations development to the North West corridor. Being a metropolitan area, the

complexities and challenges lying behind its spatial and administrative performance are a permanent challenge

to the governmental institutions held accountable for its development. Embedded in a context where social

disparities and equitable accessibility to services are still two of the major challenges to overcome throughout

the nation, urbanisation often falls behind in political agendas. The result is an overwhelmingly ill urban space

insufficient to meet the needs of the inhabitants of Guadalajara. But, how do governmental institutions cope

with the urban dilemmas of the ill metropolitan Guadalajara?

This paper addresses this question with the purpose of exploring and in so understanding- the rationale

behind current practices and discourses aimed at constructing the future of a city in the Mexican context,

through the example of Guadalajara city i

The construction of the city of Guadalajara is then depicted in the contrast of both bottom-up and top-downapproaches. In this context, the paper will explore the visions proposed by the Committee of Guadalajara

2020, as well as those presented by the different institutions accountable for the design and implementation of

urban development policies in the metropolitan city. Both visions are explored with the aim of exploring firstly,

how each of the proposals is constructed and which problems they aim to solve, and secondly, the languages of

communication acquired by each party and its effectiveness. The purpose of this is understanding to what

extent the proposals are aligned or, contrarily, the different depictions for the future of Guadalajara city

emerging from each of the proposals. In order to contextualise the reader within the city of Guadalajara and its

problematic, the first section the emerging city addresses briefly the evolution of the city as to highlight the

main events which have led to some of its most aching problems, such as a chaotic overgrowth due to

extensive migration and housing shortage. In the following section planning bodies and documents adescription of the urban planning system is provided with the purpose of explaining the different levels and

planning programs through which local and regional institutions define goals for the development of the city, as

well as strategies of urban intervention. Afterwards, the section towards a future cityaddresses the visions for

the city emerging from governmental institutions, contrasted with the emerging citizen movement Guadalajara

2020. Here the different proposals for the city are analysed along with their convergence. Finally, in the last

section, a small conclusion is given as to address the differences in organisation, interests and communication

language adopted by both approaches. This leads to a final reflection on current urban practices in the Mexican

context, especially in Guadalajara city, along with a reflection on the value of using scenario construction as a

strategy to involve the different actors and parties involved in the making of the city. This may prove helpful to

surpass existing problems such as discontinuation of intervention projects when new administrations take over.

. The question of a future common goal immediately arises. In

exploring the ongoing discourse in urban planning for the city, specific objectives and desires are revealed which

gradually portray a possible- future outcome. Interestingly, an overview of ongoing planning programmes

unveils different actors participating in the construction of a common future outside of governmental

institutions. This bottom-up organisation formed mainly by local investors and entrepreneurs aims at improving

the quality of life in the city by promoting a series of strategies addressing problems related to mobility, public

spaces and the environment. The strategies are defined in a project called Guadalajara 2020, which provides

also the name for the organisation.


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and documents defining the citys intervention strategies. Furthermore, the lack of organisation among the

different municipal agencies integrating the metropolitan area, as well as the clash of different political agendas;

prevent a clear articulation of intervention strategies at the Metropolitan level. Instead, single-small scale actions

are followed, accentuating a dispersed and unequal development of the city. Although the different levels of

organisation and their methods and tools for intervention will be discussed into more depth in the following

section, it is clear that the lack of administrative organisation together with an uncontrolled expansion of the

city, poor mobility infrastructure, urban exclusion and the environmental impact of these conditions; have

come to represent some of the major acknowledged problems by planning agencies and the public.

iii.Planning bodies and documentsInterestingly, the city of Guadalajara showed initiatives to establish an urban order earlier than most Mexican

cities, which means that opposite to other states and cities of the country, the culture of urban planning has

been long present. Nowadays, the city is embedded in an organisational structure established by the

Constitution. Therefore urban planning in Mexico, and consequently in Guadalajara, is aligned to the

geopolitical organisation of the Mexican territory, which is divided in 31 states and one Federal District. Thus,the organisation falls in the administrative sequence National, State, and municipalities (see for example Fig. 1);

the latter being the direct administrative body acting upon the city with locally elected governments and

councils. It is important to point out that re-election is not possible neither at the National, nor at the State and

municipal level, except in the case of deputies, which do not hold competences in regards to urban planning.

This constitutes one of the major problems to overcome in the planning system of Mexico, particularly when

considering there is no guarantee on the continuation of projects when new administrations take over.

In concomitance with the geopolitical structure there exist several documents gradually defining intervention

strategies at the different levels of organisation. Generally speaking, the Estate establishes the main axes of

development and thus investment, while each individual state sets its own focus axes and strategies. Finally, themunicipal bodies are responsible of setting clear lines of action and of breaching the void between citizens and

upper levels of management.

a . Orga nisation at the national levelThe main institution for spatial development is the Ministry for Social Development (SEDESOL in its Spanish

acronym) through its Department of Urban Development and Regional Planning. With the National

Development Program (known as PND), it presents the federations view on the development of the national

territory, while taking into account the perspective and initiatives of the states and municipalities. The national

strategy focuses on five main axes of intervention: 1) Rule of law and security; 2) Thriving economy fostering

employment; 3) Equality; 4) Environmental sustainability and 5) Effective Democracy and responsible foreign

policies( Poder Ejecutivo Federal, 2007). Specifically, in terms of urban and regional development, it seeks the

coherence of simultaneous action among the different departments of the national public sector managing the

territory. Historically, there seemed to be a tendency to provide goals and perspectives of development based

on quantitative approaches and population redistribution. Attempts are being made now to shift into more

qualitative based assessments and goals, and issues like polarization between areas in relation to the global

economy, excluded areas, changes in economic vocation, greater inequality and spatial asymmetries; among

others, are some of the assessment concepts taken. In general terms, the PND sets the national strategies to

focalise investment across the nation by formulating specific programs and allocating economic resources to

accomplish these programs; although these strategies are only addressed in quite general terms. A recent effort

has been made to integrate these strategies into an aimed future vision of the nation through a recently

published document called Mexico 2030. Nevertheless, it is also a loosely defined document which only sets


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aims for the Mexican population in high contrast to the current violent situation lived in the country ii. Thus,

there is no allusion to programs or clearly defined strategies to gear towards the aimed future. The same can

be said in describing the relationship between the Federal government and the states, as there is little emphasis

in defining clear schemes to articulate coordination between both levels. This may be due partly to the

autonomous nature of the states (as established by the constitution), and partly to a shown tendency of

establishing a relationship mostly in monetary terms. Although there are programs at the national level which

address problems like housing at a very small scale level iii

b. Orga nisation at the State level

no correlation exists between these programs and the

strategies defined by the States, nor the cities.

Each State has an agency for regional and urban planning as defined by the Constitution. In the state of Jalisco

this body is the Secretariat for Urban Development (SEDEUR in the Spanish acronym). This body is responsible

to set the strategies guaranteeing the development of the State according to their own strategic guidelines. In

the case of the state of Jalisco, these guidelines are closely related to National interests but here they are

further specified in more concrete lines of implementation. The strategies are founded in a vision for the State

towards 2030 (Jalisco, 2007). This vision is presented in the Plan for the State Development Jalisco 2030, knownas PED (Programa Estatal de Desarrollo) a document equivalent to what all states of the country must

present and in which the lines and strategies of intervention for the state are set. The PED-Jalisco 2030

presents its intervention strategies through an extensive document which analyses previous trends of the region

in relation to defined areas of intervention, also aligned to the national axes for development. The aim of

following this methodology is to avoid past mistakes and rectify methods of intervention, under the rationale

that providing guidelines for a future development must reflect on past events and tendencies followed by

previous administrations (ibid). Within this framework, the aim of the document is to develop general

objectives, indicatives and strategic goals to accomplish four strategic axes of development, namely:

employment and economic growth, social development, justice and respect, and good governance. Regardless

of the good intentions behind this methodological framework, most of the proposed strategies are definedquite vaguely, for no clear definition is given on the extent to which proposed plans articulate the different

levels ranging from decision making (municipalities) to defining strategies (national). Furthermore there is no

clear hierarchy in priorities, and thus no clear differentiation in the urgency of addressing acute problems. The

language of communication is usually set in the form of a long written document, accompanied by charts and

statistics, explaining in detail each of the strategic axes for development. There is an occasional use of maps

particularly in the case of mobility which is addressed in the Social Development axes. This brings another point

of discussion on the document with regards to its organisation, which translates in a lack of a clear definition of

goals and means to gear towards these goals; although this will be addressed into more detail in the next

section. Because of the importance of the metropolis of Guadalajara for the nation and for the State of Jalisco iv

Within the States department for urban planning, exists the Council for Metropolitan Urban Planning, which is a

body specifically concerned with the development of Guadalajara as a metropolis. The department sets its

objectives in a document called Regional- Metropolitan Plan of Guadalajara. The main objective of the plan is to

function as an intergovernmental agency across municipalities integrated in the Metropolitan Area of

Guadalajara, while also coordinating policies between the three different levels of planning.

,

a great emphasis is paid to the development of the city in the PED-Jalisco 2030. In the document the city isalways addressed as the Metropolitan Area of Guadalajara. As it will be shown in the municipal organisation

description, this is important since Metropolitan visions are only developed at this level of administration.


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The department is constituted by a council presided by the

States governor and all the presidents of municipalities

integrating the metropolitan area. The council sets as its

main goal to foster an integrated planning approach

stemming from the territory as a strategic element to

accomplish sustainability, competitiveness, and high living

standards. The reality though, is that in legal terms, the

agency does not have any administrative power and the

initiatives emerging from this body are highly dependent

on the will of municipal administrations, which the agency

recognises to be one of its main constraints (Len, 2008).

The strategies of the agency are explained in the form of

texts addressing the problems of mobility, supply and

collection of water, environmental impact, and

infrastructural services, which result in the formulation of

maps highlighting the location of proposed strategies (fig.

3). Currently, the strategies presented by this department

are not yet approved as there seems to be great

disagreements among the integrants of the council,

particularly in terms of representativeness in decision

making (Villaseor, 2012).

c. Orga nisation a t the municipa l levelAs previously mentioned, each state is subdivided in

municipalities with their own elected town hall

representatives. Within each municipality there is usually aCommittee for Urban Planning which sets intervention

programs and land use regulations for urban areas through

the Partial Plan for Urban Development (Plan Parcial de

Desarrollo Urbano-PPDU). An example is the Partial Plan

of Guadalajara municipality, according to which urban

development within the municipality should be oriented

towards the exploitation of its competitive advantages

namely: centrality and accessibility, image and urban

patrimony, and physic and social infrastructure) by leveraging and rearranging its territory, consolidating

urban areas linked to the economic performance of the metropolis, improving mobility infrastructure, anddecreasing socio-territorial contrasts (Urbano, 2003, p. 3). The Partial Plan is organised in thematic plans

addressing: Designation of areas, land use, and urban structure. As each municipality is subdivided in boroughs,

the maps are developed in sections corresponding to the (physical) extension of each borough; also as a mean

to present details at the plot size (Fig. 4). Although the document acknowledges the importance of being part

of the metropolitan area, the guidelines set by the Metropolitan Council are only taken into consideration, but

it is unclear to what extent they are followed, if at all. Having a decentralised system for governance, and a lack

of a strong inter-institutional agency, only contributes to exacerbate problems related to coordination across

levels and consensus on ideas.

Figure 3 Plan developed by the Council for Metropolitan

Urban Planning Vision

Figure 4 Partial Plan of Guadalajara Municipality: Strategic

Projects


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iv.Towards a future cityThrough the analysis of the different planning bodies which intervene (directly and indirectly) in the

development of the city, emerges a concern to define visions across different organisation levels of both formal

and informal nature. While the former stems from different levels of established governmental institutions, the

latter is constituted by self-organised citizens. Both forms of organisation are long established in the urban

planning system. Although it is clear that governmental institutions have its foundation in the Constitution and

therefore are an accepted way of organising the territory; self-organised citizens play a very important role in

the same process. This can be seen in the abundance of organised groups from irregular settlements whose

purpose is to improve living conditions of these settlements, as they usually lack of many services and

infrastructure. In parallel, there are other types of organisations which in essence hold the same purpose,

improving living conditions, but come from quite different methods of work. Such is the case of Guadalajara

2020 which will be addressed here.

Within both forms of organisation (formal and informal) there is a production of documents and strategies

which portray a future vision for the city. Although the different government planning documents and agencies

representing the formal planning system where presented in the previous section; here however, we address

the way in which these documents formulate a vision, as well as the different tools used in this process.

a . Top- down: Jalisco 2030Within the formal planning bodies exists The PED-Jalisco 2030. It establishes itself as a development plan with a

long term strategy based on the current needs and hopes of its inhabitants; although the plan also takes into

consideration short (2010) and medium (2013) term strategies. The regional plan becomes relevant in the

development of the Metropolis of Guadalajara considering, on the one hand, the importance the city acquires

in the States developmentv

The plan is presented as founded in strategic planning methodologies under the argument that problems are

dynamic and thus are always an unfinished process which need to be looked in retrospection. Parallel to this,

there is an emphasis on developing a strategy based on public consultations, with the purpose of integrating the

concerns and opinion of the inhabitants in formulating future visions. The defined methodology formulates

visions structured in four stages. The following chart lists the stages along with the purpose of each.

mostly in regards to issues like mobility, economic growth, population distribution,

and improvement of infrastructure. On the other hand, the plan constitutes the most proximate action

program for the Council for Metropolitan-Urban Planning.

Stage Purpose

Analysis and diagnosisReveal trends based on a retrospective analysis of thecurrent situations and aiming at setting up projections for

the future (visions).

Public consultationsIntegrate public opinion (academic institutions and society)

to the formulation of proposals.

Definition of desired futuresSet up desired futures which align strategies to societal

needs, as well as to present feasible proposals.

Strategies for interventionDefine specific plans of action and implementation of

programs for each of the different axes of intervention.Table 1 Methodological framework in the formulation of the PED-Jalisco 2030

In elaborating a vision towards 2030, two methodologies are recognised as valuable tools to formulate a plan.

The first methodology is based in the definition of desired futures, from which a set of goals and actions gearing

towards the aimed future are established. The second methodology is based on a projection of tendenciesbased on past accomplishments which are extrapolated in future trends, and consequently set up a line of


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action from the present towards the future (similar to forecasting). In the case of this plan, the former

methodology is chosen as most valuable, in as much as according to the plan- it incentivises a clear rupture of

adopted paradigms and past tendencies. This is also aligned to the participatory aim of the plan. Within this

framework, the defined vision is set towards the year 2030 expressed in a paragraph as follows:

We, citizens of Jalisco, feel proud to have a leading State, in prosperity within the global context, with aclear and shared purpose, and with the best development opportunities and quality of life. Extreme poverty

has been eradicated and all its inhabitants income opportunities are sufficient to have a dignified life, with

education, welfare, safety and housing in each part of the region. Families coexist with joy in a climate of

respect for the environment, equity and high participation.

Although there seems to be a clear concern to systematically present visions and shared principles, there is a

fairly utopian undertone in the presented visions; perhaps due to the lack of precise lines of action. This is

further accentuated in the tendency to constantly relate terms expressing deep concerns of todays world such

as environmental impact and equity sometimes with no clear relation to the elaborated statement. Leading to

more vagueness in the points addressed. Some additional points of discussion can be brought to surface if we

analyse some of the problems and goals identified in relation to the communication of ideas and the definition

of intervention strategies. For example, if we take into consideration the concern for creating equal

opportunities for development throughout the State, as well as the strategic geographical position of the city

within the national and the international context (as emphasised in the document); much more could be said

about the citys problems on mobility, even more so at the regional level. Contrarily, it is only emphasised that

changes need to happen. It can be concluded that the exercise of scenario making, is serving only as a tool to

mostly criticise the current situation, but not to propose alternative solutions to the problem.

b. Top down: Regional- Metropolitan Plan of GuadalajaraAs explained in the previous section, the Regional-Metropolitan Plan of Guadalajara, is constituted by a regional

Committee with very limited power in the decision making process and execution of plans. The main goal of

this agency is to set up a Metropolitan Vision of the city of Guadalajara by encouraging a joint participation of

the municipalities integrating the metropolitan area. Perhaps for this reason, the agency does not present a

vision based on a specific date. Instead, it presents quite clear points of concern regarding the growth and

performance of the city. Moreover, it expresses a strong concern over the environmental impact of the

metropolis over surrounding ecosystems and natural reserve areas. It also highlights the importance of fostering

the economic growth of the city and its relation to the performance of economic corridors. Thus, the vision

presented by this agency is generally the result of identified problems in the urban area, which may be aligned

to the fact that the Committee is constituted by town hall representatives in conjunction with the States

governor. In high contrast to the methodology followed by the State; the committee presents both, the

analyses of the city and the formulated visions in the form of thematic maps (see for example fig. 3). The

strategies proposed in the maps, are further detailed by specifying goals and aims.

c. Bottom-up: Guada laja ra 20 20In parallel to governmental institutions for urban planning there is an emerging body of self-organised citizens

called Guadalajara 2020. This bottom-up organisation is integrated by a group of entrepreneurs in conjunction

with citizens concerned with the metropolitan development of the city, and in tight cooperation with local

universities and governmental institutions concerned with urban planning. Their primary aim is to make of

Guadalajara a harmonic, sustainable, ordered and enjoyable area, which enhances civic conscience and aligns

the desires of the different actors participating in the production of the city (Guadalajara 2020). For this reason,

the organisation stresses on the need to create public-private partnerships in gearing towards successful jointstrategies.


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The vision for the city presented by the

organisation depicts the improvement

of the citys image towards the year

2020 with the purpose of promoting a

stronger identity among citizens. At a

first instance, the main concern of the

organisation was to position

Guadalajara as a leading destination for

business tourism within the whole Latin-

America. With this aim, they elaborated

a strategic plan to improve business

tourism infrastructure for the whole

metropolitan area. One of the major

differences to be highlighted between

the operative structure of this

organisation and the States, is the highly

participatory nature of the former.

Particularly when taking into

consideration that proposals stemming

from Guadalajara 2020 are product of a

concerted process among citizens and

politicians, in the form of publicly held

forums. This attitude has consequently

led to a wide acceptance of their

proposed projects among the different

actors involved in the making of the city.

An example of this can be found on the

one hand, in the financial support

received from the States administration

to execute some of the organisations

proposed projects; and on the other, on

a wide public participation on

implemented projects, such as the Recreational Road(known as Via RecreActiva in Spanish) one of the major

achievements of the organisationvi

There is a great difference between the organisations priorities and forms of action in relation to the State. Asmentioned before, the State mostly presents strategic axes for intervention by highlighting current problems

found in the city and the State in general. On the contrary, Guadalajara 2020 highly emphasises on mobilising

society, as the base of all the proposals made by the organisation. This emphasis is clearly aligned to their

methodological framework in which proposals are based on conclusions reached through open forums where

governmental and academic institutions, as well as population in general are invited to participate. Some

defined lines of concern which have emerged from past held forums are:

.

_Promoting a metropolitan vision of the city_Environment_Security_Education and Employment

_ Identity and Patrimony_Social equity and Public spaces_Regional logistic

Figure 6 Analysis of population density

Figure 5 Exploration of proposals


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In the formulation of scenarios, the organisation takes almost the same approach as the State. That is to say, it

presents a desired transformation for the city through written statements. However, there is a great difference

in the formulation of intervention proposals. For example, in presenting a project for implementing a non

motorised urban mobility network, there is a strong emphasis in the use of mapping as means to represent

geo-statistical analysis of issues related to mobility (Guadalajara 2020, 2009). Mapping is also used as tool to

explore opportunities and problems of mobility infrastructures in relation to existing program within the city.

To envision possible outcomes of the intervention, there is a great use of architectonic representation such as

sections (fig. 5). Judging from this project it can be said that the organisation Guadalajara 2020 makes a great

emphasis on representation tools; although considering that most of the rest of the projects of the organisation

are still a work in progress, it is hard to assess whether this constitutes the organisations methodological

framework.

v. ConclusionsIn reviewing the array of institutions and organisations which intervene in the developing process of Guadalajara

city, emerges different working methodologies to formulate future visions and proposals. On a first instance, itcan be said that in the case of governmental institutions the role of scenarios is to describe, as in words of

Vettorato, one or more situations that could develop from the present, and as a hypothetical sequence of events that

has the purpose of mobilising the actors (Vettorato, p. 3). One of the missing points of the constructed scenarios

in this case, is the possibility of using scenarios as a tool to evaluate different possible outcomes. Instead, the

stated vision is presented as universally accepted to all the inhabitants of Jalisco, and therefore irrevocable.

This leads to a construction of scenarios that is only argumentative in nature, leaving aside any type of a solid

construction of an image, and essentially based in the construction of an irrefutable image.

In an opposite direction is the Council for Metropolitan Urban Planning. Although it can be said that in essence

it pursues to accomplish the same values as the State (of welfare and higher urban living standards), it does notframe a specific time to achieve the desired visions. Rather, it focuses on formulating clear lines of action to

encourage participation and realisation of projects. Thus the image of a future city is based on an analysis of

plausible solutions stemming from a consensus of the parties involved in the decision making of the city. One

may argue that particularly in such position within the administrative structure, the scenario construction could

be a more effective exercise to integrate and evaluate different opinions and proposals, and thus increase

participation and approval of targeted projects.

More similar to the States discourse is the vision proposed by the Guadalajara 2020 committee. Although

essentially the method is the same (formulate a desired point of societal change), the visions defined by the

Committee are found to be more plausible and defined. This might be highly influenced by the committees

wish to encourage participation of different actors: academia, government and society. In this sense, a bottom-

up organisation seems to offer a more integrated planning approach in as much as it acknowledges the diversity

of opinions, and the value of participation as a way to ensure successful performance of implemented

proposals. Through Guadalajara 2020 the image becomes a powerful language to communicate desired states

and thus ensure the share of a common vision.

If the different visions come to terms is still very much an unanswered question. Rather, one could say that the

disassociation of the different parties only contributes to enhance the depiction of a fragmented city.


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Notesi It must be clarified that the case of Guadalajara represents but one of different ways to approach urban practice in the

Mexican context and therefore is not generic throughout the nation. Different practices exist as the Estate provides only

guidelines and each individual province defines their own language to apply them.ii There is a great emphasis in the document in gearing towards a situation of general safety and well being in response to

the proliferation of violence throughout the country due to the war against organised crime (cartels) declared by the

current national administration.iii See for example the work of the CONAVI (National Committee for Housing- Consejo Nacional de Vivienda). Through

one of its programs, it provides small loans for individual citizens to improve housing conditions.iv Beyond economic development, the importance if the city can be phrased also in terms of population distribution within

the State, as nearly 65% of the States population inhabit in the Metropolitan area.v As explained before, this is related to the importance of the city for the economic development of the region.vi Known as the Recreational Axis for Guadalajara (Va RecreActiva), the project started in the year of 2004 and is still

operative. The project consists in interrupting car traffic in some of the most important roads in the city to allow people to

cycle freely. The event is held every Sunday, from 9:00 AM to 14:00 PM. Moreover, in the intersections of public services

along the road there are activities organised for the public.


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