Urban policy goals and territorial planning articulations and lessons from planning urban regions in Portugal João Cabral / José Luís Crespo Faculdade de Arquitectura Universidade Técnica de Lisboa 4ª Rencontres Internationales de Recherche en Urbanisme de Grenoble Territorial planning imaging, anticipating and organising space Institut d Urbanisme de Grenoble 7 8 Février 2008
Urban policy goals and territorial planning 1. Problems in the articulation between policy goals and territorial planning - Can territorial planning still be a useful and necessary tool for promoting urban policies? 2. Rescaling politics and policies the changing system of urban regulation 3. The challenges 4. The Portuguese planning legislation and planning system 5. Learning from urbanisation trends in the Lisbon Metropolitan Area 1965-2001 6. Territorial planning scales, agendas and competences the emergence of evaluation and collaborative procedures and land use planning
Urban policy goals and territorial planning Rescaling politics and policies the changing system of urban regulation* Changes in the functional relationship between the prevailing modes of regulation and urbanisation and suburbanisation patterns Collapse of the comprehensive ideal of urban planning Urban infrastructure crisis Changing political economy of urban infrastructure development and governance Physical growth and extension of urban regions Challenge of social and cultural change and social movements. Increasing functional relationship between economic development and land use control Tensions between spaces of politics and policies associated with differentiated national, regional and municipal interests *e.g. Graham & Marvin (2001); Healey (1997)
Urban policy goals and territorial planning Imaging, Anticipating and Organising Space the challenges: To develop forms of reading, analysing and evaluating urban dynamics namely in terms of availability and allocation of resources and in the involvement of users and consumers To develop the capacity and the competence for formulating and implementing adequate (alternative) urban development models To guarantee social control over the use of resources through quality urbanism and an adequate land use planning system and development control
PNPOT (2006) National programme for spatial planning policies urban system and transport infrastructure network
Portuguese Planning System Role and Hierarchy of Spatial Plans Level National Regional Local Central State PNPOT PS PEOT Regional Administration(1) PROT(1) Municipality PIOT PMOT (1) The regional planning level is the responsibility of the central administration PNPOT - National programme for spatial planning policies (framework) PS - Sectorial plans from the different departments of the central administration (framework) PEOT - Special plans for protected areas, coastal zones and natural parks (regulatory and mandatory) PROT - Regional spatial plans (framework) PIOT - Intermunicipal spatial plans (produced by associations of municipalities) (framework) PMOT - Land use plans (municipal, urbanisation and local) (regulatory and mandatory)
Urban policy goals and territorial planning The Portuguese spatial planning system: Based on a written Constitution (1976) and a civil code in the tradition of the Napoleonic planning families. Law no. 48/98 establishes the general principles for the structure of the territorial planning legislation. Recent changes: 1) decision making and responsibilities on territorial plans given to Municipalities without providing the adequate resources (rules are applied the same way in metropolitan and rural areas) obligation of results, not of means; 2) consultation and participation procedures to include stakeholders and responsible authorities from the very beginning.
The Territorial Planning System versus The Political Economy of Spatial Development 1864 - Plano Geral de Melhoramentos 1934 - Plano Geral de Urbanização 1946 - Ante Planos de Urbanização 1949 - Património Cultural (Lei 2032/49) 1951 Regulamento Geral das Edificações Urbanas (RGEU) 1970 - Lei de Solos (DL 576/70) 1971 - Planos Gerais Urbanização / Planos Pormenor (DL560/71) 1973 Regime das operações de loteamento urbano (DL289/73) 1976 - Lei de Solos (DL 794/76) 1976 Código das Expropriações (DL 845/76) 1982 - Plano Director Municipal (DL 208/82) 1985 - Património Cultural Português (Lei 13/85) 1987 Lei de Bases do Ambiente (Lei 11/87) 1988 - Plano Regional Ordenamento Território (PROT) (DL176- A/88) 1989 - Reserva Agrícola Nacional (RAN) (DL 196/89) 1990 - Planos Municipais Ordenamento Território (PMOT) (DL69/90) 1990 - Reserva Ecológica Nacional (REN) (DL 93/90) 1993 - Rede Nacional Áreas Protegidas (DL 19/93) 1995 - Planos Especiais Ordenamento Território (PEOT) (DL 151/95) 1998 - Lei Bases da Política de Ordenamento Território e de Urbanismo (LBOTU) (Lei 48/98) 1999 - Regime Jurídico Instrumentos Gestão Territorial (RJIGT) (DL 380/99) 2001 Lei de Bases da Política e do Regime de Protecção e Valorização do Património Cultural (Lei 107/2001) 2001 Regime Jurídico da Urbanização e da Edificação (DL 177/2001, altera DL 555/99) 2007 Regime Jurídico da Avaliação Ambiental de Planos e Programas (DL 232/07) 2007 Regime Jurídico Instrumentos Gestão Territorial (RJIGT) (DL 316/07, altera DL 380/99) 1928 - Estado Novo 1931 - Lei Condicionamento Industrial 1945 - Lei Fomento e Reorganização Industrial 1953-58 - I Plano de Fomento 1959-64 - II Plano de Fomento 1968-73 - III Plano de Fomento 1974 - Revolução 25 April 1976 Constituição da República 1977 Competências Autarquias Locais (DL79/77) 1979 Lei Finanças Locais (Lei 1/79) 1986 Entrada Comunidade Europeia 1989-1993 - Plano Desenvolvimento Regional - I Quadro Comunitário Apoio (QCA) (Objectivo 1) 1991 - Lei Quadro Regiões Administrativas (Lei 56/91) 1994 - PROSIURB (Planos Estratégicos Cidades Média Dimensão) 1994-1999 - II QCA (Programa URBAN, Intervenção Operacional Renovação Urbana - IORU) 1997 - Esquema Desenvolvimento Espaço Comunitário (EDEC) 1998 Projecto Urbano EXPO 98 2000-2006 - III QCA 2000 - Programa POLIS 2003 Áreas Metropolitanas e Comunidades Intermunicipais (Leis nº10/2003 e nº11/2003) 2007 Política de Cidades POLIS XXI
Urban Region Area Population Pop. Density Nº Municipalities Metropolitan Area of Lisbon 3,213 Sq.Km 2,682,000 835 hab/sq km 18
Urban policy goals and territorial planning Urbanisation trends in the Lisbon Metropolitan Area 1965-2001* The role of public investments on roads and transport infrastructures An increase in accessibility largely supported by public investments on roads and transport infrastructures has led to structuring changes in the LMA: i) greater mobility and interaction in the metropolitan space; ii) circulation in the LMA to be carried out outside Lisbon, favoured a multi-polarisation of the metropolitan space; iii) structured the morphology of the metropolitan space as a continuous built space. The role of municipal land use planning Comparison of urban land uses from the 1990 s Municipal Master Plans, with the 2001 maps of urban occupation shows spaces classified for urban use in excess in terms of urbanisation needs and an uncoordinated and fragmented urban expansion and a relative incapacity of municipal regulation to implement an urban development model consistent with the planning principles foreseen by the legislation and the planning system. The role of regional metropolitan planning The three territorial plans produced for the LMA have thought and mapped different strategies for polycentric development (1964, 1990-04, 2003) only the last one was approved and ratified becoming a statutory document. There is no articulation between the municipal and the metropolitan planning levels and an effective territorial metropolitan strategy for the metropolitan area. *Cabral, J., Morgado, S., Crespo, J.L. e Coelho, C. Urbanisation trends and urban planning in the Lisbon Metropolitan Area in Pereira, M. S. (editor) A Portrait of State-of-the Art Research at the Technical University of Lisbon, Springer, 2007
Lisbon Metropolitan Area - urbanisation 1960-1991 Source: Pedro George, Sofia Morgado (2004)
Lisbon Metropolitan Area - urbanisation 2001 Source: Pedro George, Sofia Morgado (2004)
Lisbon Metropolitan Area urban agglomerations 1965/1992/2001 Source: Projecto Totta / UTL (2007)
Lisbon Metropolitan Area Regional Plan (2001)
Urban policy goals and territorial planning State and Municipal Agendas Central and Regional State agenda Legal and institutional framework Municipal agenda Land use control, zoning, public participation Rationalisation and efficiency of public investment Conformation to market dynamics, community pressures & to budget strategies (property tax) Coherence of environmental and infrastructural networks Land use conformation to property rights and to private and public interests
Challenges Imaging Urban policy goals and territorial planning Territorial planning competences Planning competences Capacity to read, analyse, evaluate dynamics and define objectives Articulating State and Municipal agendas and priorities Comprehensive evaluation the methodological and conceptual debate Anticipating Capacity to formulate alternative urban development models Collaborative planning the political and accountability debate Organising Space Capacity to guarantee quality urbanism & social control over use of resources Land use planning system and development control the formal debate (rule and order)