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)
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
1970 - Lei de Solos (DL 576/70)
1971 - Planos Gerais Urbanização / Planos Pormenor (DL560/71)
1973 – Regime das operações de loteamento urbano (DL289/73)
1968-73 - III Plano de Fomento
1976 - Lei de Solos (DL 794/76)
1976 – Código das Expropriações (DL 845/76)
1974 - Revolução 25 April
1976 – Constituição da República
1977 – Competências Autarquias Locais
(DL79/77)
1979 – Lei Finanças Locais (Lei 1/79)
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)
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
Metropolitan
Area of Lisbon
Area
Population
Pop. Density
Nº Municipalities
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
Municipal agenda
Legal and institutional framework 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
Urban policy goals and territorial planning
Territorial planning competences
Challenges Planning competences Articulating State and Municipal
agendas and priorities
Imaging
Capacity to read,
analyse, evaluate
dynamics and define
objectives
Anticipating Capacity to formulate
alternative urban
development models
Organising
Space
Comprehensive evaluation – the
methodological and conceptual
debate
Collaborative planning – the
political and accountability
debate
Capacity to guarantee Land use planning system and
quality urbanism &
development control – the
social control over use formal debate (rule and order)
of resources