Review of Master Plans in advanced neoliberalism: the case of Porto Alegre, Rio Grande do Sul

Oliveira, Clarice Misoczky de; Nicolini, Igor

doi:10.1590/2236-9996.2024-6160374-en

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Original article • Cad. Metropole 26 (61) • Sep-Dec 2024 • https://doi.org/10.1590/2236-9996.2024-6160374-en copy

Review of Master Plans in advanced neoliberalism: the case of Porto Alegre, Rio Grande do Sul

Authorship SCIMAGO INSTITUTIONS RANKINGS

Abstract

On the 20th anniversary of the City Statute, a national phenomenon is perceived: the review of master plans. The study aims to investigate the effects of advanced neoliberalism on master plans based on the experience of Porto Alegre/Rio Grande do Sul. The methodology is a case study informed by participant observation and consultation of documents and media. Systematization was carried out through temporal reconstruction and content analysis. The theoretical framework explores the neoliberal state and project-based planning. The results indicate the implementation of the minimal state; focus on the productive city under financialization; the socio-environmental tone of the 2030 Agenda; authoritarianism and the planning of trends and leverage applied by project-based planning, producing the fragmentation of the master plan.

neoliberal state; urban planning; neoliberal planning; master plan; Porto Alegre

Trend planning	Although it is based on regulations, such regulations must meet private interests and land use policies by fulfilling trends and market forces.
Leverage planning	The public sector must encourage weakened markets by reducing taxes and fees, donating land, and selling land at below-market prices.
Private administration planning	The public sector transfers the management of urban renewal processes in specific areas to the private sector.

2016	DEC. 1^TH COMPREHENSIVE PLAN SEMINAR. Organized by CMDUA technicians and advisors. It took place in the last month of the ending administration and addressed the necessary MP review for the next administration. A historical review of Porto Alegre’s planning was carried out at the event.
2017	OCT. CMDUA DEFINES PRIOTITY TOPICS. DEC. PROMISE TO START THE REVIEW. The secretary points out the relevance of using UNs Sustainable Development Goals to access lines of credit for hiring a consultancy during a meeting at the Health and Environment Committee (Cosmam) of the Chamber of Councilors..
2018	NO RECORDS OF ACTIVITIES
2019	AUG. PMPA and UN-Habitat sign the Understanding Memo. Pacto Alegre agreement. AUG.-DEC. GT IN CMDUA ENTITIES, RS PUBLIC PROSECUTORS OFFICE AND UNIVERSITIES. SEP. 1^th ON-LINE CONSULTATION VIA DIGITAL PB. It counts on 126 respondents. OCT.-NOV. TERRITORIAL WORKSHOPS. Holding only one workshop per Management Region and CMDUA Planning (RGP); eight workshops, in total. DEC. SIGNATURE OF THE AGREEMENT LETTER BETWEEN PMPA AND PNUD, Brazilian Cooperation Agency (ABC) and Ministry of Foreign Affairs (MRE). Technical cooperation agreement to prepare the PDDUA review. Contract value worthy R$11 million, and 30% of services were on the hands of Federal University of Rio Grande do Sul (UFRGS) and 70% of private consultants were from Pnud, in compliance with the International Technical Cooperation Project (PCTI).
2020	MAR. BEGINNING OF THE COVID-19 PANDEMIC IN PORTO ALEGRE. MAR. Public Prosecutors Office recommendations. Temporary suspension of the process as long as the health emergency lasted due to the pandemic. JUN. NORMATIVE INSTRUCTION (NI) 15/2020. Stopped all review activities, except for activities under the responsibility of the Municipal Administration. (Porto Alegre, 2020PORTO ALEGRE (2020). Instrução Normativa n. 15/2020, de 23 de junho. Institui que ficam suspensas todas as atividades do processo de Revisão do Plano Diretor de Desenvolvimento Urbano Ambiental (PDDUA), e dá outras providências. Porto Alegre, RS, Secretaria Municipal de Meio Ambiente, Urbanismo e Sustentabilidade.). DEC. 2020 DEADLINE FOR THE MASTER PLAN REVIEW. It must take place every 10 years, according to the City Statute.
2021	FEV. NORMATIVE INSTRUCTION 04/2021. Established the procedure to review the PDDUA (Porto Alegre, 2021).
2022	MAY NEW CONSTITUTION OF THE ADVISORY WORKING GROUP (WT) AT CMDUA. NI 04/2021 downgraded the role of the Council from Deliberative to Advisory regarding WTs. AUG. RESUMPTION OF IN-PERSON ACTIVITIES through an interactive exhibition: outcomes of the 8 territorial workshops held in 2019. AUG.-OCT. 2^th ON-LINE PUBLIC HEARING. SEP. ERNEST YOUNG (EY) HIRED BY PNUD to support the review work NOV. MEETING WITH REPRESENTATIVES FROM THE MP REVIEW ADVISORY WT. At the time, there was talking about land regularization, but based on maps that did not identify informal settlements in Porto Alegre (PoA). NOV. SEMINAR to introduce Pnud and EY. Priority for technicians’ registry. There was no room for debate, only for questions asked in writing.
2023	AUG. NEW DEADLINE FOR COMPLETING THE REVIEW.
2024	JUN. NEW DEADLINE FOR COMPLETING THE REVIEW.
2025	2025. THIS IS THE NEW DEADLINE FOR COMPLETING THE REVIEW, without a defined month.

2017	DEC. PROMISE TO START THE PDDUA REVIEW. In a meeting at Cosmam, the secretary highlighted the relevance of using UN SDGs to access credit lines for hiring a consultancy.
2019	AUG. PMPA and UN-Habitat signed the Understanding Memo. Pacto Alegre support. AUG.PACTO ALEGRE PROMOTES THE 1st MEETING of the project integrated to the Master Plan. DEC. SIGNATURE OF THE LETTER OF AGREEMENT AMONG PMPA AND Pnud, ABC AND MRE. Technical cooperation agreement to prepare the PDDUA review. Contract worth R$11 million, and 30% of services were under the responsibility of UFRGS and 70% of them were on the hands of private consultants by Pnud, according to PCTI.
2020	JUN. BRDE FINANCING APPROVED to hire consultancy worth R$ 10.64 million. NOV. INTERNAL CALL AT UFRGS for those interested in forming IPA teams in POA 2030, Inovador, Integrado, Resiliente e Sustentável.
2021	JAN. UFRGS HANDS OUT 2 PROPOSITIONS TO PMPA to carry out IAP corresponding to 30% the PCTI signed by PMPA and Pnud. FEV. 1^stSIGNIFICANT PCTI REVIEW. MAR. PMPA DEFINES THE WINNING TEAM, which presented work scope different from that defined in PCTI. This factor needs to be reviewed at different instances, including at the Ministry of Foreign Affairs, since it is an international cooperation. JUN. IAP BETWEEN UFRGS AND PNUD WAS ISSUED. NOV. 2^nd PCTI SIGNIFICANT REVIEW
2022	APR. UNIVERSITY COUNCIL (CONSUN) REPROVES ONE OF THE UFRGS PROPOSITION and sends it to the Faculty of Architecture for merit assessment. APR. PMPA DECIDED TO REMOVE UFRGS FROM THE REVIEW PROCESS. APR. VICE RECTOR DENIES THE DELAY and asks the mayor to reconsider the withdrawal of UFRGS from the process. Secretary of Smamus reiterates PMPA’s decision. SEP. ERNST YOUNG HIRED BY Pnud to support review work. NOV. 1^st POA 2030 SEMINAR presenting Pnud and EY. Priority for registering technicians. There was no room for debate, only questions asked in writing.

2016	MAY HIRING THE Urban Technology Center (NTU-UFRGS) for the 4D Master Plan development.
2017	MAR. COMPLETION OF THE PORTO ALEGRE 4D MASTER PLAN. DEC. PROMISE TO START THE PDDUA REVIEW. The secretary highlighted the relevance of using UN SDGs to access credit lines to hire the consultancy during a meeting at Cosmam.
2020	MAR. INÍCIO DA PANDEMIA DE COVID-19 EM PORTO ALEGRE. MAR. RECOMMENDATION BY THE PUBLIC PROSECUTORS OFFICE. Temporary suspension of the process, as long as the state of health emergency due to the pandemic lasts. JUN. NORMATIVE INSTRUCTION 15/2020. Suspending all review activities, except for those under the exclusive responsibility of the Municipal Administration (Porto Alegre, 2020PORTO ALEGRE (2020). Instrução Normativa n. 15/2020, de 23 de junho. Institui que ficam suspensas todas as atividades do processo de Revisão do Plano Diretor de Desenvolvimento Urbano Ambiental (PDDUA), e dá outras providências. Porto Alegre, RS, Secretaria Municipal de Meio Ambiente, Urbanismo e Sustentabilidade.).
2021	FEB. NORMATIVE INSTRUCTION 04/2021. It established the procedure for PDDUA reviewing. APR. INTRODUCING STUDIES BY THE HISTORICAL CENTER PROGRAM, AT CMDUA. SEP. RECOMMENDATION BY THE PUBLIC PROSECUTORS OFFICE: RESUMING THE MP REVIEW AND RESPECT TO DEMOCRATIC MANAGEMENT. SEP. RECOMMENDATION BY THE PUBLIC PROSECUTORS OFFICE: FOLLOWING THE MP RESERVATION PRINCIPLE. NOV. REHABILITATION PROGRAM FOR CENTRO HISTÓRICO (CH) APPROVED. JAN. PRIVATE SECTOR PRESENTS SEVEN PROJECTS FOR CONSTRUCTION IN CH.
2022	JAN. PRESENTATION OF STUDIES FROM THE 4^TH DISTRICT PROGRAM, AT CMDUA. AUG. 4^TH DISTRICT PROGRAM APPROVED. AUG. APRESENTING THE CONSTRUCTION PROJECT OF A BUILDING 130 m IN HEIGHT. OCT. MAYOR SANCTIONS THE 4D PROGRAM LAW. OCT. PMPA APPROVES THE CONSTRUCTION OF A BUILDING (117 m, in height).
2024	JUN. NEW DEADLINE FOR COMPLETING THE REVIEW.
2025	NEW DEADLINE FOR COMPLETING THE REVIEW.

2016	DEC. 1^ST COMPREHENSIVE PLAN SEMINAR. Organized by technicians. It took place in the last month of the administration that was about to end. It guided the necessary MP review for the administration that was about to start its term. There was a historical review of Porto Alegre’s planning at this event.
2017	OCT. CMDUA DEFINED PRIORITY TOPICS. Social Interest Housing (HIS) was not part of it. NOV. MAYOR’S DECLARATION: “It will be none other than the communication elite, the business elite and the political elite who will carry out the much-needed reforms. Delegating this to ‘John Do’ and ‘Jane Do’ is irresponsible”.
2018	MAR. ELECTIONS FOR CMDUA 2018-2020 ADMINISTRATION. JUN. INSURANCE OF 2018-2020 CMDUA BIENNIUM MEMBERS, AFTER MONTHS OF DELAY. NOV. BEGINNING OF PEOPLE”S BOROUGH ACTION PLANS. Technical assistance action in urban planning. Five of the eight RGPs participated in the process. Six workshops were held per region, on average; in total, approximately 30 workshops were held.
2019	AUG.-DEZ. WT WITH ENTITIES FROM CMDUA, PUBLIC PROSECUTORS OFFICE AND UNIVERSITIES. SEP. 1^st ON-LINE CONSULTATION VIA DIGITAL PB. Only 126 respondents. OCT.-NOV. TERRITORIAL WORKSHOPS. Holding only one workshop per RGP; total number of eight workshops. DEC. CREATION OF ‘ATUA POA – TODXS NÓS’: for the right of ‘todxs nós’.
2020	MAR. BEGINNING OF CONCILIATION HEARINGS VIA Prosecutors Office BETWEEN ATUA POA – TODXS NÓS and PMPA. OCT. LAUNCHING THE PLATFORM ATUA POA – TODXS NÓS AND PMPA. OCT. CONCLUSION OF POPULAR REGIONAL ACTION PLANS.
2021	MAY EXECUTIVE EXTENDS MANAGEMENT OF THE 2018-2020 BIENNIUM UNTIL MAY 2022, after one-year delay in calling CMDUA elections. SEP. PROSECUTORS OFFICE RECOMMENDATION: RESUME OF THE MP REVIEW AND RESPECT OF DEMOCRATIC MANAGEMENT.
2022	MAY NEW CONSTITUTION OF ADVISORY WG AT CMDUA. NI 04/2021 downgraded the role of the Council from Deliberative to Advisory, with regard to WTs. MAY MANAGEMENT TERM OF THE 2018-2020 BIENNIUM CLOSED, without calling for new elections. JUN. PUBLIC CALL for entities interested in joining the Consultative WT. AUG. RESUME OF IN-PERSON ACTIVITIES with interactive exhibition: results of the eight territorial workshops held in 2019. AUG.-OCT. 2^ND ONLINE PUBLIC CONSULTATION. OCT. EXPANSION OF ENTITIES PARTICIPATING IN THE ADVISORY WT. NOV. MEETING WITH REPRESENTATIVES OF THE MP REVIEW ADVISORY WT. At the time, there were talks about land regularization, but with maps that did not identify informal settlements in PoA. NOV. 1^st POA 2030 SEMINAR presenting Pnud and EY. Priority for registering technicians. There was no room for debate, only questions asked in writing. NOV. ATUA POA – TODXS NÓS delivered, at the seminar, documents and priority topics for Pnud and EY. The topics were: HIS, the place, environment, management and participation profiles. DEC. THERE HAS BEEN NO CALL FOR ELECTIONS FOR CMDUA YET. The administration should have ended in June 2020. The Public Prosecutors Office indicated that it assessed the postponement of elections due to the pandemic as positive, but it recommends resuming work in September 2021. After the recommendation, CMDUA spent 14 months without calling elections. DEC. CMDUA MEETING WITH EY. Advisors were invited to meet the team of experts who will work on consulting for the review.
2023	OCT. AFTER POPULAR ACTION, THE COURT OF JUSTICE OF RIO GRANDE DO SUL (TJ-RS) DETERMINES SUSPENSION OF CMDUA’S OPERATION AND NEW ELECTIONS WITHIN 90 DAYS. NOV. CONFERENCE UNDER JUDICIAL DETERMINATION OF NON-VALIDITY on the occasion of the suspended CMDUA and still no elections. DEC. MAYOR ANNOUNCES POSTPONEMENT OF THE REVIEW TO 2025. It indicates halt on the occasion of the municipal elections.
2024	JAN.-MAR. CONDUCTION OF CMDUA ELECTIONS. The Council had been without elections for four years. MAR. ENTITIES FILE COURT ACTION FOR TRANSPARENCY IN ELECTIONS AND RESPECT TO THEIR COMPOSITION IN ACCORDANCE WITH THE CURRENT COMPREHENSIVE PLAN.

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[1] Translation: this article was translated from Portuguese into English by Deyse Assis de Miranda. Email: contato@gooddealconsultoria.com