Urban policy goals and territorial

planning articulations and lessons

from planning urban regions in
Portugal
Joo Cabral / Jos Lus Crespo
Faculdade de Arquitectura Universidade Tcnica de Lisboa
4 Rencontres Internationales de Recherche en Urbanisme de Grenoble

Territorial planning imaging, anticipating and organising space

Institut dUrbanisme de Grenoble 7 8 Fvrier 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 Urbanizao

1946 - Ante Planos de Urbanizao

1949 - Patrimnio Cultural (Lei 2032/49)

1951 Regulamento Geral das Edificaes Urbanas (RGEU)

1928 - Estado Novo

1931 - Lei Condicionamento Industrial

1945 - Lei Fomento e Reorganizao Industrial

1953-58 - I Plano de Fomento

1959-64 - II Plano de Fomento

1970 - Lei de Solos (DL 576/70)

1971 - Planos Gerais Urbanizao / Planos Pormenor (DL560/71)

1973 Regime das operaes de loteamento urbano (DL289/73)

1968-73 - III Plano de Fomento

1976 - Lei de Solos (DL 794/76)

1976 Cdigo das Expropriaes (DL 845/76)

1974 - Revoluo 25 April

1976 Constituio da Repblica

1977 Competncias Autarquias Locais
(DL79/77)

1979 Lei Finanas Locais (Lei 1/79)

1982 - Plano Director Municipal (DL 208/82)

1985 - Patrimnio Cultural Portugus (Lei 13/85)

1987 Lei de Bases do Ambiente (Lei 11/87)

1988 - Plano Regional Ordenamento Territrio (PROT) (DL176- A/88)

1989 - Reserva Agrcola Nacional (RAN) (DL 196/89)

1990 - Planos Municipais Ordenamento Territrio (PMOT) (DL69/90)

1990 - Reserva Ecolgica Nacional (REN) (DL 93/90)

1993 - Rede Nacional reas Protegidas (DL 19/93)

1995 - Planos Especiais Ordenamento Territrio (PEOT) (DL 151/95)

1998 - Lei Bases da Poltica de Ordenamento Territrio e de
Urbanismo (LBOTU) (Lei 48/98)

1999 - Regime Jurdico Instrumentos Gesto Territorial (RJIGT) (DL
380/99)

2001 Lei de Bases da Poltica e do Regime de Proteco e
Valorizao do Patrimnio Cultural (Lei 107/2001)

2001 Regime Jurdico da Urbanizao e da Edificao (DL
177/2001, altera DL 555/99)

2007 Regime Jurdico da Avaliao Ambiental de Planos e
Programas (DL 232/07)

2007 Regime Jurdico Instrumentos Gesto Territorial (RJIGT) (DL
316/07, altera DL 380/99)

1986 Entrada Comunidade Europeia

1989-1993 - Plano Desenvolvimento Regional I Quadro Comunitrio Apoio (QCA) (Objectivo 1)

1991 - Lei Quadro Regies Administrativas
(Lei 56/91)

1994 - PROSIURB (Planos Estratgicos Cidades
Mdia Dimenso)

1994-1999 - II QCA (Programa URBAN,
Interveno Operacional Renovao Urbana IORU)

1997 - Esquema Desenvolvimento Espao
Comunitrio (EDEC)

1998 Projecto Urbano EXPO 98

2000-2006 - III QCA

2000 - Programa POLIS

2003 reas Metropolitanas e Comunidades
Intermunicipais (Leis n10/2003 e n11/2003)

2007 Poltica de Cidades POLIS XXI

Urban Region
Metropolitan
Area of Lisbon

Area

Population

Pop. Density

N 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 1990s 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