aula 1_Spatial planning in Portugal

Challenges for Spatial PlanningChallenges for Spatial Planningin Portugalin Portugal

JosJoséé Carlos Mota (Carlos Mota ([email protected]@ua.pt))Department of Social Science, Law and PoliticsDepartment of Social Science, Law and Politics

University of Aveiro University of Aveiro -- PortugalPortugal

StructureStructure

Spatial planning in PortugalSpatial planning in Portugal•• HistoryHistory

•• Spatial planning failureSpatial planning failure

•• Challenges and expectations of the Challenges and expectations of the ““newnew”” spatial planning legal spatial planning legal frameworkframework

•• New challenges for Spatial PlanningNew challenges for Spatial Planning

HistoryHistory

History has a height determinant in what we are today! History has a height determinant in what we are today!

Our history is made of wealthy periods (Ancient Colonies Our history is made of wealthy periods (Ancient Colonies –– Brazil, Brazil, Angola, Mozambique,Angola, Mozambique,……))-- who gave us the who gave us the spiceryspicery, gold, caf, gold, caféé –– but but …… took the most brave and courage.took the most brave and courage.But it is also made of strong difficulties But it is also made of strong difficulties -- Emigration 60Emigration 60’’s and 70s and 70’’s s --who also sent us their economies/savings but also took the youngwho also sent us their economies/savings but also took the youngand active people.and active people.In the middle we had 50 years of In the middle we had 50 years of New State dictatorship (1926(1926--74), 74), without democracy (yesterday we celebrated 35 years since April without democracy (yesterday we celebrated 35 years since April revolution).revolution).Finally, we had (and still have, since 86) the European funds thFinally, we had (and still have, since 86) the European funds the e gave us millions of Euros, but even so we didngave us millions of Euros, but even so we didn’’t manage to use t manage to use them in the correct way.them in the correct way.

All these have built up our culture and shape our attitude and All these have built up our culture and shape our attitude and behaviourbehaviour……

Why? Why? The history explains also that we had The history explains also that we had

State: Centralized; Bureaucratic; Paternalist attitude; InstitutState: Centralized; Bureaucratic; Paternalist attitude; Institutionalionalinertia; shortinertia; short--term concern and fragmented vision term concern and fragmented vision -- not holistic;not holistic;disarticulated action disarticulated action --> overlapping actions; > overlapping actions;

Citizens: Dependence from State; fragmented vision; lastCitizens: Dependence from State; fragmented vision; last--minute minute solutions; Individualism; Corporative; solutions; Individualism; Corporative;

The ability to slap together haphazard solutions (lastThe ability to slap together haphazard solutions (last--minute minute –– non non planned) has been key to the survival over the centuries! planned) has been key to the survival over the centuries!

So, how to develop Planning and Spatial Planning activity in thiSo, how to develop Planning and Spatial Planning activity in this s context?context?

««There is, in the west There is, in the west part of Iberia, a strange part of Iberia, a strange people: they donpeople: they don’’t t govern themselves and govern themselves and they donthey don’’t allow being t allow being governedgoverned””

III Century BC, roman general in a III Century BC, roman general in a letter to the imperator Gaius Julius letter to the imperator Gaius Julius Caesar, when Iberia was conquered Caesar, when Iberia was conquered

SpatialSpatial PlanningPlanning inin Portugal Portugal --breefbreef historyhistory

FirstFirst spatialspatial plansplans ((beginningbeginning 2020’’s s centurycentury –– 3030’’s)s)

�� Two big cities Two big cities (Lisbon, Oporto)(Lisbon, Oporto)

�� urban expansion urban expansion --new avenues new avenues ––Lisbon (> 60% Lisbon (> 60% population, last 2 population, last 2 decades XIX cent.)decades XIX cent.)

�� destroy old parts destroy old parts city city –– built new built new roads roads –– Oporto Oporto (inspired in (inspired in HaussmanHaussman projects, projects, Paris)Paris)

Barry ParkerBarry Parker

invited foreign urban planners invited foreign urban planners –– britishbritish and and frenchfrench: :

��Barry Parker (1915), worked with Raymond Barry Parker (1915), worked with Raymond UnwinUnwin in the in the project of Letchworth project of Letchworth –– (1903/04) garden city planed by (1903/04) garden city planed by Ebenezer HowardEbenezer Howard��ForestierForestier (1927), responsible for gardens of Paris ((1927), responsible for gardens of Paris (““BoisBois de de BoulogneBoulogne””), founders of French Urban Planners Association), founders of French Urban Planners Association��Etienne De Etienne De GrGrööerer (30/40(30/40’’), Institute ), Institute UrbanismeUrbanisme Paris (strong Paris (strong influence in Portuguese architects and civil engineers)influence in Portuguese architects and civil engineers)��DonatDonat--Alfred Agache(30Alfred Agache(30’’), influenced the new urban ), influenced the new urban planning legislation (1934); in 20planning legislation (1934); in 20’’s he made a very important s he made a very important Urban Plan to Rio Janeiro (Urban Plan to Rio Janeiro (BrasilBrasil) ) --> inspired his book > inspired his book ““La La RemodRemodéélationlation dd’’uneune capitalecapitale”” (1932)(1932)

no specialist in Portugal no specialist in Portugal --> important to give experience to > important to give experience to Portuguese techniciansPortuguese technicians

ForestierForestier

De De GrGrööerer

in 40in 40’’s the spatial planning s the spatial planning law sayslaw says……

�� Plans have to take in consideration the Plans have to take in consideration the adequate criteria of the present and adequate criteria of the present and future needs, and the best urban and future needs, and the best urban and public health rules; public health rules;

�� Need to develop cartography (all cities Need to develop cartography (all cities with more 2.500 with more 2.500 inhabinhab, with 10% , with 10% increase in 10 years; cities, increase in 10 years; cities, turisticturistic and and religious centres defined by religious centres defined by govgov.).)

�� Plans have to present public discussion Plans have to present public discussion results (be exposed 30 days in the results (be exposed 30 days in the ““usual public placesusual public places””))

�� Plans have to be coordinated by civil Plans have to be coordinated by civil engineers or architects engineers or architects

urban planning legislation (1934)urban planning legislation (1934)

“Having made his civic survey, the student retires, let us say, into the meditative cell. He takes with him a carefully built up store of mental imagery… of the given city and its inhabitants as evolving towards definitive ideals or degenerating towards their negation … (then) the student of sociology re-emerges into the world as civic statesman… The man of action is getting ready, with a programme and policy.”

Victor Branford (1914), p. 343

in 50in 50’’s the first zoning planss the first zoning plans……

�� The ambition of a global The ambition of a global idea for the city;idea for the city;

�� The separation of the The separation of the different functions different functions --> > ““modernist movementmodernist movement””ideas (30ideas (30’’s)s)

�� The structure and The structure and hierarchy of the road hierarchy of the road system;system;

PlanningPlanning inin EuropeEurope(40/50/60(40/50/60’’s)s)

�� II World WarII World War

�� Development of Welfare StateDevelopment of Welfare State

�� Planning concerns Planning concerns –– Rebuilt citiesRebuilt cities

�� Rational/Comprehensive Planning Rational/Comprehensive Planning --> > ‘‘Survey Survey before planbefore plan’’ --> (Planner as a > (Planner as a ‘‘neutral expertneutral expert’’))

……

�� (60(60’’s) s) AdvocativeAdvocative Planning (Planner as a Planning (Planner as a ‘‘representantrepresentant’’ of different interests of different interests --> > answer to social movements)answer to social movements)

6060’’s till 74s till 74

� laws/urban plans protected interests (and properties) from important economic groups (industry and finance) -> important families (highly protected economy)

� Small investors, emigrants and family savings couldn’t get in housing market

� Medium/low class people couldn’t by house in traditional housing market

� Problem -> clandestine construction in the periphery/metropolitan areas (without plans.. The “forgotten land”!) ->

� But although the last years of dictatorship -> still a strong control over public opinion (censorship) -> the dimension of the problem was not known…

24 April 74 24 April 74 (celebrate 36 years of the (celebrate 36 years of the ““carnation carnation

revolutionrevolution””))

76 76 –– new constitutional law new constitutional law ……

� 1976 -> the new National Constitution -> the first local elections

�� 77 and 79 where published two main 77 and 79 where published two main diplomas: the first local government law diplomas: the first local government law and the local government finance and the local government finance framework;framework;

� A new culture of management of local affairs was emerging and would be largely shaped by the priority of providing much needed basic services to the population. In this context, spatial planning was not among the priorities on the local political agenda (ROSA PIRES, A, 2005).

in the 80in the 80’’s the first municipal land s the first municipal land use plansuse plans

� 82 -> Central Government produced new legislation creating a new type of Plan: The Municipal Director Plan (PDM).

– This plan embodied several conceptual innovations -> covered the whole municipality; required an explicit socio-economic strategy to which land use proposals should relate; established rights and mechanisms for public participation.

�� 86 86 --> CEE > CEE –– Economic European Community Economic European Community

� Municipalities where technically ill-equipped to prepare plans and, still, spatial planning was not a political priority

PlanningPlanning inin EuropeEurope (70/80(70/80’’s)s)

�� Margaret Thatcher Margaret Thatcher -- NeoNeo--liberal liberal govgov..�� Crisis of Welfare State Crisis of Welfare State --> Privatization > Privatization

�� Planning influence Planning influence –– Deregulation Deregulation (similar to Rationalist Approach, not the (similar to Rationalist Approach, not the ‘‘technical/scientific rationalitytechnical/scientific rationality’’ but the but the ‘‘market market

rationalityrationality’’))

�� Management Theories applied in Management Theories applied in planning planning –– Strategic Planning (Planner as Strategic Planning (Planner as a a ‘‘managermanager’’))

92 92 --> Prime Minister > Prime Minister CavacoCavacoSilva (actual President) said Silva (actual President) said to municipalities to municipalities

--> no plans > no plans --> no European > no European fundsfunds

In the 90In the 90’’s s -- most significant planning practice in most significant planning practice in

PortugalPortugal

–– Mainly land use planning at municipal Mainly land use planning at municipal scale (305 Municipal Spatial Plans, 169 scale (305 Municipal Spatial Plans, 169 Urban Plans, 513 Detail Plans) Urban Plans, 513 Detail Plans)

… but most of the plans kept the characteristics of the traditional urbanization plans, emphasizing land-use regulation and lacking any strategic guidance in terms of development policy

–– Some experiences in Regional Spatial Some experiences in Regional Spatial Planning with a strong normative Planning with a strong normative perspective! perspective!

Institutional coordination Institutional coordination -- spatial planning spatial planning system in Portugalsystem in Portugal

National levelMinistry of Environment, Spatial Planning and Regional Development⇒ Directorate-General for Spatial Planning and Urban Development⇒ National Spatial Planning Programme

Regional levelNo formal regional government;Still, design and implementation of regional development policies & plans carried out by decentralised units of central government – 5 commissions⇒ Regional Spatial Plans

Municipal levelMunicipal planning & local planning308 municipalities⇒ 3 types of plan

Consequences of (the Consequences of (the absenseabsenseof) Planning in Portugalof) Planning in Portugal

Although we have 300 municipal plans…

�Urban sprawl, specially in metropolitan areas - urban settlements interpenetrate with green spaces and the urban structure is becoming fragmented and dispersed;

�The dispersion causes greater land consumption, greater infrastructure cost and greater number of displacements;

�Dispersed building created opportunities to real estate market -> new periphery urban centres

�Degradation of the quality of many residential areas- mainly in peripheries and in the old city centres -> housing problems

�Rural Areas -> major population loss; great decrease among younger; severely eroded economic base

ReasonsReasons

�� Spatial Planning in Portugal is really land use plan Spatial Planning in Portugal is really land use plan development (planning is not seen as a continuous development (planning is not seen as a continuous process)process)

�� Planning instruments (mainly Planning instruments (mainly local land use planslocal land use plans) ) show a great limitation in handling these new show a great limitation in handling these new realitiesrealities……

–– fragile and minimalist agenda fragile and minimalist agenda

–– reactive methodologyreactive methodology

–– weak operative conditionweak operative condition

failure of spatial plan activity in Portugalfailure of spatial plan activity in Portugal

fragile and minimalist agendafragile and minimalist agenda

– Attempt to control urban growth, land use change and urban form;

Why?


–– Statutory approach Statutory approach -- an extreme normative and an extreme normative and physical dimension; physical dimension;

Why?


–– No competitiveness, sustainability, social cohesion No competitiveness, sustainability, social cohesion dimension;dimension;

Why?

!

POLÍTICO

ECOLÓGICO

ECONÓMICO

INSTITUCIONAL

FÍSICO

SOCIAL


–– Absence of a quantitative approach (future urban Absence of a quantitative approach (future urban areas);areas);

Why?


–– Unbalanced Unbalanced -- periphery the periphery the ““forgotten areaforgotten area””..

Why?

reactive methodologyreactive methodology

–– Bureaucratic procedureBureaucratic procedure…… period of period of elaboration/approval elaboration/approval –– 10 years;10 years;

Why?


–– Absence of institutional debate (local, Absence of institutional debate (local, regional and national level);regional and national level);

Why?


–– No stakeholders involvementNo stakeholders involvement…… a lost a lost opportunity to legitimate proposals;opportunity to legitimate proposals;

Why?


–– No learning processNo learning process…… no shared vision!no shared vision!

Why?


–– No planning process!No planning process!

Why?

weak operative conditionweak operative condition

– A blueprint approach and largely focussed on the urban or municipal scale… not strategic

Why?


–– Worried about quantitative issues (m2)Worried about quantitative issues (m2)……not with urban quality;not with urban quality;

Why?


–– Reactive, worried about the legal procedure Reactive, worried about the legal procedure of administrative approval of private of administrative approval of private projects projects …… not with implementation not with implementation conditions (how much, who makes and conditions (how much, who makes and when it is made);when it is made);

Why?


–– Rigid character Rigid character …… without the flexible factors without the flexible factors essential to deal with a strong investment dynamic essential to deal with a strong investment dynamic and strong competition among cities. and strong competition among cities.

Why?


–– Plan implementation depends on local Plan implementation depends on local

administration administration …… without public financial without public financial

support!support!

Why?

WhatWhat wentwent wrongwrong? ?

Reasons (Reasons (PEREIRA, 2003PEREIRA, 2003)?)?

–– Reactive attitude from municipalities (92 Reactive attitude from municipalities (92 --> money from European > money from European founds); close dependence from the private entrepreneurs initiatfounds); close dependence from the private entrepreneurs initiative, ive, without control over land (or land policy);without control over land (or land policy);

–– Disarticulation between different public actors Disarticulation between different public actors --> the lack of > the lack of coordination is explained by the fear of loosing the leadership coordination is explained by the fear of loosing the leadership or a or a leading role;leading role;

–– The absence of a framework for action The absence of a framework for action --> letting spontaneous spatial > letting spontaneous spatial dynamics occur; lack of political will dynamics occur; lack of political will --> the market leading;> the market leading;

–– Inefficiency of: Inefficiency of: �� Technical process of elaboration (lack of technical expertise; Technical process of elaboration (lack of technical expertise;

difficulties of a multidifficulties of a multi--disciplinary plan ,...),disciplinary plan ,...),�� Institutional supervision process (central/regional administratiInstitutional supervision process (central/regional administration on

lack experience in supervising plans, limited number of lack experience in supervising plans, limited number of technicians technicians –– 306 municipalities) 306 municipalities)

�� Public participation (limited just to the discussion of final Public participation (limited just to the discussion of final proposals proposals –– public inquiry).public inquiry).

PlanningPlanning EuropeEurope (90(90’’s)s)

�� Tony Blair Tony Blair –– UK UK –– The The ‘‘third waythird way’’�� The role of State The role of State –– ‘‘GovernanceGovernance’’�� Collaborative and Communicative Planning Collaborative and Communicative Planning

((‘‘the planner as a mediatorthe planner as a mediator’’; involvement of ; involvement of dif. Actors; interactive planning; consensus dif. Actors; interactive planning; consensus building; social capital)building; social capital)

�� Europe Europe -- ESDP ESDP –– European Planning European Planning PerspectivePerspective

�� Spatial Planning, not physical planning Spatial Planning, not physical planning ((‘‘Sustainable CommunitiesSustainable Communities’’))

Recent ExpectationsRecent ExpectationsPortuguese legal framework (Spatial Planning Framework Law, 1998)

NationalNational�� PNPOT PNPOT –– first National first National

Spatial Strategy (2006)Spatial Strategy (2006)�� New Urban Policy (2007)New Urban Policy (2007)

RegionalRegional�� PROT PROT –– five Regional Spatial five Regional Spatial

Plans (2007)Plans (2007)

MunicipalMunicipal�� PDM PDM –– Local Spatial Plan Local Spatial Plan

(after 2007)(after 2007)�� Weak financial situation of Weak financial situation of

Local Authorities Local Authorities –– but with but with European funds 2007/2013European funds 2007/2013

ExpectationsExpectations & & resultsresults1999/20101999/2010Expectations (ROSA PIRES, � Clarified the role of the regional and national levels in spatial planning,

introducing the PNPOT (National Programme for Spatial Planning Policy),

� Defined the types of special plans which are to be prepared under the responsibility of Central Administration but may be focussed on specific areas of national relevance (namely in environmentally sensitive areas, as is the case of the coastal zone).

� Tried to consolidate the strategic perspective - a strategic framework to spatial planning - sustainability and intergeneration solidarity and spatial competitiveness;

� Reinforced public participation;� Concern with the implementation of plans (how to do it, when, where

and with whom)

But … the reality!� the issue with greater impact was related with land betterment, an

attempt to improve the physical effectiveness of spatial plans.

The future of planning in The future of planning in Portugal?Portugal?

What are the really important questions?What are the really important questions?

Is the law?Is the law?

The instruments The instruments -- plans?plans?

The practice?The practice?

The planning culture?The planning culture?

QuestionsQuestions to debateto debate

� Why do we need Planning? – Regulate the Physical system / Market / Society?– The role of the State?

� What kind of Planning? – Agenda - Economic Recovery / Climate change / Liveability / Social

Justice– And what about the old agenda – Sustainability / Competitiveness /

Social Cohesion; – Who defines the agenda? Governments/Market? Local/Global level?

� What type of Methodological concerns?– Technical Rationality?– Comunication? Participation? – Institutional capacity?

� What Instruments/Results?– Spatial/Strategic?– Politics, Plans, Projects (articulation -> process)?

Documents

aula 1_Spatial planning in Portugal