8/9/2019 PDF Cabral

1/20

Urban policy goals and territorial

planning – articulations and lessonsfrom planning urban regions inPortugal

João Cabral / José Luís CrespoFaculdade de Arquitectura – Universidade Técnica de Lisboa

4ª Rencontres Internationales de Recherche en Urbanisme de GrenobleTerritorial planning – imaging, anticipating and organising space 

Institut d’Urbanisme de Grenoble 7 – 8 Février 2008

8/9/2019 PDF Cabral

2/20

Urban policy goals and territorial planning

1. Problems in the articulation between policygoals and territorial planning - Can territorialplanning still be a useful and necessary toolfor promoting urban policies?

2. Rescaling politics and policies – the changingsystem of urban regulation

3. The challenges

4. The Portuguese planning legislation andplanning system5. Learning from urbanisation trends in the

Lisbon Metropolitan Area 1965-20016. Territorial planning scales, agendas andcompetences – the emergence of evaluationand collaborative procedures and land use

planning

8/9/2019 PDF Cabral

3/20

Urban policy goals and territorial planning

Rescaling politics and policies – the changing system of urbanregulation*

• 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” associatedwith differentiated national, regional and municipal interests

• *e.g. Graham & Marvin (2001); Healey (1997) 

8/9/2019 PDF Cabral

4/20

Urban policy goals and territorial planning

Imaging, Anticipating andOrganising Space 

the challenges:

• To develop forms of reading,analysing and evaluating urbandynamics namely in terms ofavailability and allocation ofresources and in the involvement ofusers and consumers

• To develop the capacity and thecompetence for formulating andimplementing adequate (alternative)urban development models

• To guarantee social control over theuse of resources through qualityurbanism and an adequate land useplanning system and developmentcontrol

8/9/2019 PDF Cabral

5/20

8/9/2019 PDF Cabral

6/20

PNPOT (2006)

National programme forspatial planning policies – urban system and transportinfrastructure network

8/9/2019 PDF Cabral

7/20

Portuguese Planning System –Role and Hierarchy of Spatial Plans

PMOTPIOTMunicipality

PROT(1)Regional

Administration(1)

PEOTPSPNPOTCentral StateLocalRegionalNationalLevel

(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 andmandatory)

8/9/2019 PDF Cabral

8/20

Urban policy goals and territorial planning

The Portuguese spatial planning system:

• Based on a written Constitution (1976) and a civil code inthe tradition of the Napoleonic planning families.

• Law no. 48/98 establishes the general principles for thestructure of the territorial planning legislation.

• Recent changes:• 1) decision making and responsibilities on territorial plans

given to Municipalities without providing the adequateresources (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 verybeginning.

8/9/2019 PDF Cabral

9/20

The Territorial Planning System versus The Political Economy of Spatial Development

1986 – Entrada Comunidade Europeia1989-1993 - Plano Desenvolvimento Regional -I Quadro Comunitário Apoio (QCA) (Objectivo 1)

1991 - Lei Quadro Regiões Administrativas(Lei 56/91)1994 - PROSIURB (Planos Estratégicos CidadesMédia Dimensão)1994-1999 - II QCA (Programa URBAN,Intervenção Operacional Renovação Urbana -IORU)

1997 - Esquema Desenvolvimento EspaçoComunitário (EDEC)1998 – Projecto Urbano EXPO 98

2000-2006 - III QCA2000 - Programa POLIS2003 – Áreas Metropolitanas e ComunidadesIntermunicipais (Leis nº10/2003 e nº11/2003)2007 – Política de Cidades POLIS XXI

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 deUrbanismo (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 eValorização do Património Cultural (Lei 107/2001)2001 – Regime Jurídico da Urbanização e da Edificação (DL177/2001, altera DL 555/99)2007 – Regime Jurídico da Avaliação Ambiental de Planos eProgramas (DL 232/07)2007 – Regime Jurídico Instrumentos Gestão Territorial (RJIGT) (DL316/07, altera DL 380/99)

1974 - Revolução 25 April

1976 – Constituição da República1977 – Competências Autarquias Locais(DL79/77)1979 – Lei Finanças Locais (Lei 1/79)

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)

1968-73 - III Plano de Fomento1970 - Lei de Solos (DL 576/70)1971 - Planos Gerais Urbanização / Planos Pormenor (DL560/71)1973 – Regime das operações de loteamento urbano (DL289/73)

1928 - Estado Novo1931 - Lei Condicionamento Industrial1945 - Lei Fomento e Reorganização Industrial

1953-58 - I Plano de Fomento1959-64 - II Plano de Fomento

1864 - Plano Geral de Melhoramentos1934 - Plano Geral de Urbanização1946 - Ante Planos de Urbanização

1949 - Património Cultural (Lei 2032/49)1951 – Regulamento Geral das Edificações Urbanas (RGEU)

8/9/2019 PDF Cabral

10/20

18835 hab/sq km2,682,0003,213 Sq.KmMetropolitan

Area of Lisbon

Nº MunicipalitiesPop. DensityPopulationAreaUrban Region

8/9/2019 PDF Cabral

11/20

Urban policy goals and territorial planningUrbanisation 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 andtransport infrastructures has led to structuring changes in the LMA: i) greatermobility and interaction in the metropolitan space; ii) circulation in the LMA to becarried out outside Lisbon, favoured a multi-polarisation of the metropolitanspace; 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 the2001 maps of urban occupation shows spaces classified for urban use in excessin terms of urbanisation needs and an uncoordinated and fragmented urban

expansion and a relative incapacity of municipal regulation to implement an urbandevelopment model consistent with the planning principles foreseen by thelegislation 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 noarticulation between the municipal and the metropolitan planning levels and aneffective 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 MetropolitanArea” in Pereira, M. S. (editor) A Portrait of State-of-the Art Research at the Technical University of Lisbon , Springer, 2007

8/9/2019 PDF Cabral

12/20

Lisbon Metropolitan Area - urbanisation 1960-1991

Source: Pedro George,Sofia Morgado (2004)

8/9/2019 PDF Cabral

13/20

Lisbon Metropolitan Area - urbanisation 2001

Source: Pedro George,Sofia Morgado (2004)

8/9/2019 PDF Cabral

14/20

Lisbon Metropolitan Area – urban agglomerations1965/1992/2001

Source: ProjectoTotta / UTL (2007)

8/9/2019 PDF Cabral

15/20

Lisbon Metropolitan Area Regional Plan (2001)

8/9/2019 PDF Cabral

16/20

8/9/2019 PDF Cabral

17/20

8/9/2019 PDF Cabral

18/20

8/9/2019 PDF Cabral

19/20

Urban policy goals and territorial planning

State and Municipal Agendas

Land use conformation to propertyrights and to private and publicinterests

Coherence of environmental andinfrastructural networks

Conformation to market dynamics,community pressures & to budgetstrategies (property tax)

Rationalisation and efficiency ofpublic investment

Land use control, zoning, publicparticipationLegal and institutional framework

Municipal agendaCentral and Regional Stateagenda

8/9/2019 PDF Cabral

20/20

Urban policy goals and territorial planning

Territorial planning competences

Land use planning system anddevelopment control – theformal debate (rule and order)

Capacity to guaranteequality urbanism &social control over use

of resources

OrganisingSpace

Collaborative planning – thepolitical and accountabilitydebate

Capacity to formulatealternative urbandevelopment models

Anticipating

Comprehensive evaluation – the

methodological and conceptualdebate

Capacity to read,

analyse, evaluatedynamics and defineobjectives

Imaging

Articulating State and Municipalagendas and priorities

Planning competencesChallenges