CONTROL Y GESTION DE LA URBANIZACION

1、MANAGEMENT AND CONTROL OF URBANISATION URB-AL NETWORK N7 DRAFT DOCUMENT Experts JORDI BORJA HERVE HUTZINGER MARIO COREA Draft Document coordinated by: JORDI BORJA Rosario, November 2000 In collaboration with ZAIDA MUXI AND RAQUEL ROLNIK _Red URB-AL N7- Documento Base1 CONTENTS INTRODUCTION CHAPTER I

2、 THE CHALLENGES OF URBANISATION IN LATIN AMERICA. ELEMENTS FOR DIAGNOSIS, RESPONSES AND PROPOSALS. 1st Part 10 CHALLENGES OF THE URBAN LATIN AMERICAN PRESENT 1.Population and Territories. 2.Social Polarisation, Deprivation and Informal Settlements. 3.Urban Infrastructures and Movement, do they build

3、 cities up or down? 4.The Opportunities the Territory offers have to be conquered. 5.The Challenge of Public Spaces. 6.Cities Competitiveness and New Economies: how they relate to Management of Urbanisation. 7.The Challenge of Sustainable Development. 8.Urban Violence and Public Safety. 9.Urbanism a

4、nd Architecture as Urban Policies. 10. A Vision for the City, the City as a Vision. _Red URB-AL N7- Documento Base2 2nd Part TERRITORY GOVERNANCE AND URBANISATION 1. The three levels of territory governance: metropolitan, central and district authorities. 2. Weaknesses and proposals to extend democr

5、acy in urban territories. 2.1. Centralisation and Decentralisation. 2.2. Political Organization. Executive Power and Legislative Power. Two Separate Powers. 2.3. Policies and Governance Discontinuance. 2.4. Metropolitan Structures. 2.5. Municipal Decentralisation. 2.6. Political Cronyism and Petty C

6、orruption as opposed to Bureaucratism. 2.7. Weaknesses of Political and Technical Tools that support Urban Planning, Management and Discipline. 2.8. Expansion of Strategic Planning and Projects Management. 2.9. Citizen Involvement. 2.10. Management Training. A New Urban Culture Arises. CONCLUSIONS _

7、Red URB-AL N7- Documento Base3 CHAPTER II MANAGEMENT AND CONTROL OF URBANISATION URBAN MANAGEMENT TOOLS NEW URBANISTIC TOOLS: SOME DESIGNING AND IMPLEMENTATION EXAMPLES. 1. Rosario, Argentina (1995). Linkage of public policy and planning tools. 2.Montevideo, Uruguay (1987). Regeneration of Declined

8、Urban Areas due to the existence of Social Housing. 3.San Pablo, Brazil (1990). Unique Ratio and Property Gain Fee. 4.Diadema, Brazil (1993). Social Priority Areas on Vacant Land. 5.Colombia (1995) Property Gain Fee. 6.Riberao Pires, Brazil (1999) CHAPTER III EUROPEAN CITIES INTRODUCTION TRENDS, CHA

9、LLENGES AND POLITICAL ISSUES IN EUROPEAN CITIES. 1. Trends and Challenges. 2. The New Context for City Public Policies. 3. Priority Policies and Programmes. POLICIES PROMOTING URBAN REGENERATION. 1. The Problems of Urban Regeneration. 2. Innovative Experiences, Open Questions. _Red URB-AL N7- Docume

10、nto Base4 POLICIES PROMOTING THE ECONOMIC AND SOCIAL INTEGRATION. 1. The Problems of the “Integrating” City. 2. New Experiences, Open Questions. STRATEGIC OR INTEGRATED PLANNING. 1. What is it about? 2. Strategic Planning at Regional or Metropolitan Scale. 3. Integrated Planning: Reorganisation and

11、Transport. 4. Urbanisation, Transport and Economic Development: A Complex Triangle. MANAGEMENT ASSOCIATED EVOLUTIONS. 1. What is it about? 2. Contractualisation. 3. Space and Role of the European Union in Relation to Urban Policies. BIBLIOGRAPHY INTRODUCTION 1. The urban development of Latin America

12、n cities has been the subject of multiple studies; focus has been made on their least favoured, most conflictive, even catastrophic aspects. Unfortunately, this negative vision has been more than justified and is still valid. The informal urban development, the huge social polarisation, the persiste

13、nce of urban deprivation, the social perception of a growing and almost uncontrollable urban violence, the very objective reality of dynamics that lead to unsustainable development (land waste, water and air pollution, depletion of hydrologic resources, severe lack of drainage systems and waste mana

14、gement systems), the increase of unemployment, illiteracy and infant mortality rates, etc. are not inherited phenomena but current concerns that may not be solved in the near future. In many cases, we could even say that present urban policies do not mitigate these functional and social problems, bu

15、t instead, may even be worsening them. The aim of this report is not to analyse or insist on these urban concerns since they are all very well known. We believe we have “shed too many tears” over the evils of our cities. We will be making reference to the CHALLENGES _Red URB-AL N7- Documento Base5 c

16、ities must tackle, ACTION PLANS or PROJECTS to deal with these challenges and the stock of POLITICAL AND TECHNICAL TOOLS cities have, use or require to implement policies for managing and controlling urbanisation. 2. The political leadership of cities is a relatively new fact in Latin America. The d

17、ecentralization of local governments has been in fashion since the 1980s and relates to the extension of democracy and the enhancement of government efficiency and public-private partnership. The role local authorities are to play in the political culture and the setting out of legal frameworks is n

18、ot clear yet. However, all countries believe it has to be strengthened. History teaches us that local authorities have not enjoyed enough political legitimacy (in many cases they only started to be regularly elected by local people in recent years), or have legal, technical and financial capacities

19、to set out regulations and guidance on urban development or to deal with the impacts derived from the formal and informal interventions of developers. Nowadays, however, there is a growing willingness to set out guidance, acknowledged in many legal texts even of a constitutional level and by interna

20、tional bodies. Local authorities are now allowed and even forced not only to play their traditional role but also to become promoters and integrators, that is to say, to implement active social and economic policies and to understand the management of urbanisation as an urbanism that will re-structu

21、re the real city and that will foster its economy and its possibilities of social integration. Therefore, it seems adequate to articulate public policies on urban development (for the inner city and for the outskirts) and to strengthen the role of local authorities. Local authorities are also to art

22、iculate their partnership with economic, social and cultural partners since development and management of the urbanisation will largely depend on the involvement of all players. 3. This Document aims at providing local authorities and city players with a motivating framework for action and cooperati

23、on that will help them define action ideas and action plans. We do not intend to provide an analytical study since the reality of our cities has already been identified. We intend to focus on current dynamics and challenges, on identifying goals and possible action _Red URB-AL N7- Documento Base6 pl

24、ans, on pointing out management tools and organizational structures that will help achieve our goals. Some examples will be mentioned. We do not believe they are the only existing examples neither do they provide a comprehensive picture. We hope they will stimulate cities member of the network to sh

25、are other lessons learned and conclusions drawn, both positive and negative, in order to contribute to the draft document, to the debate in the workshops and to the work of task forces arising from the meeting in Rosario, in 2000. The technical and political thinking on so contemporary and practical

26、 issues will further progress if cities, no matter their similarities or differences, share their expertise. Lessons learned and conclusions drawn by others can never be transferred mimetically; however, they are good at stimulating other peoples drive. Therefore, we believe it will be excellent if

27、Latin American and European cities of different size and characteristics participate in the network. Differences will contribute to the experience. 4. This document has two chapters (I and II) that generally refer to the challenges Latin American cities have to deal with, the main action plans propo

28、sed and the used or required tools to implement them. A third chapter, (Chapter III) refers to lessons learned in European cities. _Red URB-AL N7- Documento Base7 About the authors: Jordi Borja has coordinated this Draft Document, in collaboration with Zaida Mux. They both take full responsibility o

29、n the first two chapters even though Chapter II is mainly based on a report by Raquel Rolnik (Brazil). Herv Huntzinger is the author of Chapter III that refers to European cities. Mario Corea has contributed with notes and comments to the first two chapters. CHAPTER I THE CHALLENGES OF URBANISATION

30、IN LATIN AMERICA. ELEMENTS OF DIAGNOSIS, RESPONSES AND PROPOSALS. 1st Part 10 CHALLENGES OF THE URBAN LATIN AMERICAN PRESENT 1.Populations and territories The accelerated natural and migratory growth of the last 50 years has slowed down considerably in the 1990s, specially in the big cities, the inn

31、er cities and sometimes, in the first belt. As Europe has been witnessing since the 1960s or the 70s, urban growth is maintained or accentuated in the second metropolitan belts and in the intermediate cities. The 1991 census has shown a structural change in the Argentine urban system. We have been o

32、bserving this change since the beginning of the 70s. The most significant features of this change were: The Buenos Aires Metropolitan Region _Red URB-AL N7- Documento Base8 -Regin Metropolitana de Buenos Aires (RMBA) nationwide primacy decreased while most of the big and intermediate cities, special

33、ly the capitals of the provinces located outside the pampa, grew steadily. Studies carried out in the mid 90s showed a decrease in the migratory flows towards the RMBA meaning a significant number of people stayed in the provinces. Migratory flows started to move within the provinces: each provincia

34、l capital and some county capitals attracted population1. Esta cita est bien The intermediate cities face the biggest problems due to their fast urban growth. Most of the problems relate to the expansion and coverage area of urban services and infrastructures. The dynamics of intermediate cities gro

35、wth relates to their positioning within the urban system, economics and density. Housing, urban services provision and urban planning deserve special attention. (Cita 2: URBAN RESEARCH IN THE .) If we consider not only the inner city but also those cities with a population of several million people,

36、 we can see that urban density in Latin America compared with other continents has experienced a big growth as regards density in the Americas. Big cities growth rate has slightly declined from 1980 to 1995, though. Despite the decline of domestic migratory flows, rural population has also grown in

37、absolute numbers while farming land suffers more and more economic concentration and the need for labour falls. These factors have resulted in an internal exodus towards the cities. A large number of this migrating population is young people between 15 and 35 years old. In Lima, 78% of migrants are

38、that old. (Cita 3 SCHUTZ, EIKE). Based on data from the World Bank, in 1960, 47% of jobs belonged to farming and cattle raising, whereas in 1980, only 31%. 1 Catenazzi, Andrea / Reese, Eduardo Control y Gestin de las ciudades medias de la Argentina. Agosto, 2000. _Red URB-AL N7- Documento Base9 Crec

39、imiento de algunas ciudades latinoamericanas en relacin al crecimiento total del pas ciudadtasa crecimiento tasa crecimientopoblacin en milescrecimiento % pas 1970-19801980-1995en 19951970-1980 1980-1995 Buenos Aires1,6 0,7 10,990 1,17 1,23 Belo Horizonte4,3 3,1 3,899 1,26 1,33 Fortaleza3,7 3,9 2,66

40、 1,26 1,33 Porto Alegre3,8 2,7 3,349 1,26 1,33 Recife1,8 2,7 3,168 1,26 1,33 Rio de Janeiro2,2 0,9 9,988 1,26 1,33 Salvador3,9 3,4 2,819 1,26 1,33 Sao Paulo4,1 2 16,417 1,26 1,33 Santiago2,7 2,1 5,065 1,17 1,27 Bogot4 3,1 5,614 1,24 1,32 Medelln2,7 1,9 1,743 1,24 1,32 La Habana0,9 1,1 2,241 1,13 1,1

41、3 Guadalajara4,1 2,2 3,165 1,33 1,34 Mxico D.F.4,3 0,8 15,643 1,33 1,34 Monterrey4,9 2,2 2,806 1,33 1,34 Lima 4,1 3,5 7,452 1,31 1,35 Montevideo0,4 0,6 1,326 1,03 1,09 Caracas1,7 1,3 2,959 1,4 1,44 Valencia3,2 3,4 1,6 1,4 1,44 Source: CELADE (Centro LatinoAmericano de Demografa) “Latin America forec

42、asts of urban-rural population 1970- 2025” Demographic Bulletin n 56, Santiago de Chile, 1995. In short, when we make reference to population and territory, we would like to focus on the following: Inner cities density is uneven. On the other hand, their new production profile, the crisis of their t

43、raditional economy and the possibility of recovering redundant land from obsolete or relocated industries or utilities, provides significant opportunities for urban regeneration. Cities growth has been more horizontal than spatial with the resulting land waste. Informal, non-regulated growth has bee

44、n king together with fragmented growth, the urban sprawl based on homogeneous products (closed, self-served boroughs, industrial parks, etc). In short, fragmentation, social and functional segregation. Urban structures of the inner cities are generally scarce or weak. The city as a mixed use or inte

45、grating environment is present only in some historic urban districts. _Red URB-AL N7- Documento Base10 Outskirts witness a year on year growth. Migratory pressure will continue if rural areas continue to be unattractive places to live in. This growth leads to an uncontrolled and predator development

46、 of large areas in the metropolitan region. It is a heavy burden for the future of the city since it places the inner city under a tremendous pressure: the need for urban services provision. Besides, this new population will occupy public spaces for street sales or markets, will make use of social a

47、nd educational equipments and will jeopardize public safety. It is clear now that the management and control of urbanisation needs to be based on our existing urban environments and to accept all forms of urban growths to build up cities on existing urban environments, as the Urban Program from the

48、European Union recommends. Second, local authorities need urban tools and urban culture to build up cities in the outskirts. Local authorities should introduce practice guidelines not only to integrate informal settlements (slums) but also to set a framework for urban development that ensures their

49、integration to the city social and functional life. The weaknesses of the urban tools at hand and the absence, in most instances, of local bodies with strategic management and enforcement roles over the whole of the urban environment planning are challenges we still have to respond to. 2.Social Pola

50、risation, Deprivation and Informal Settlements Latin American cities show a huge social polarisation in every aspect of urban life. It has been possible to say that 50% of urban population live in the illegal city (Hardoy); mention has been made to 100 million of urban poors (CEPAL, World Bank); ref

51、erences to a similar number of people who suffer “from conflicts between a qualified minority and a majority living under precarious urban conditions; people suffering from “territorial exclusion”. This exclusion expresses much more than the imbalances in incomes and social possibilities: it is a fa

52、ctor that multiplies that same social polarisation and imbalance”2 (CITA _Red URB-AL N7- Documento Base11 4: ROLNIK RAQUEL.) That in irregular, marginal settlements deprived from the provision of basic urban services and highly dangerous for its dwellers and for the urban environment. However, we sh

53、ould focus on the implications of social imbalances and deprivation in the urbanisation process. The implications are: The most recent process that highly impacted on the 1990s: urban fragmentation (urban sprawl) due to intruding urban ghettos for the rich amid existing urban structures. These ghett

54、os can be “urban products”, i.e. large urban equipments “autistic” in relation to the environment, discriminative in favour of and essentially dedicated to consumer society practices. They could also take the form of community housing, neighbourhoods, cities or enclosed, self-served towns. Urban dev

55、elopment achieved through irregular settlements (slumming); wasted land; water pollution related to the absence of drainage systems; illegal hooking to basic urban services and utilities (electricity, running water supply); dissemination of non-regulated urban services (bus systems, sometimes health

56、 systems, district police stations, etc.); the occupation of unsuitable land turning the settlement vulnerable to natural catastrophes (floods, fires, land sliding, etc.); the building up of ghettos that replicate the vicious circle of marginal urban life, etc. Poor, deprived districts: . in most ur

57、ban areas, more than 50% of the population is currently living (1986) in marginal, “informal” settlements (slumming). Mexico 65%, Lima 60 %, Guayaquil 65 %, Bogot -55%. We can no longer talk about marginal settlements in a spatial sense. . distinguish two main groups: those located in the inner citi

58、es, in downtown areas and those in the outskirts, the peripheries. Their problems and, generally, their origin, are as different as their looks. 3 (es cita 5: SCHULTZ, EIKE) 2 Rolnik, Raquel /Cymbalista, Renato. Regulacin del Urbanismo en Amrica Latina. Desafos en la construccin de un nuevo paradigm

59、a. July 2000. Page. 2. 3 Schtz, Eike J. Op. cit. Pg. 80 _Red URB-AL N7- Documento Base12 The decline of the inner city and of the districts that belong to the “formal”, legal city but that have not up-graded their urban pattern. This lack of renewal serves as grounds for the dialectics of social and

60、 functional decline, resulting in slumming4 (es cita 6): the abandonment of basic or dynamic activities and attitudes typical of middle incomes sectors, the deterioration of physical environment, including the architectural and historical heritage, the loss of symbolic elements that give identity to