Urban governance in Portugal and the Lisbon Expo'98 urban project by Elvis Paja

Comparative Study on Planning and Development of Chinese and Western Cities I --U --A --V UniversitĂ Iuav di Venezia

Urban Governance in Portugal and the Lisbon Expoâ&#x20AC;&#x2122;98 urban project

Comparative Study on Planning and Development in Chinese and Western Cities Università IUAV di Venezia Dipartimento di Progettazione e Pianificazione in ambienti complessi Corso di Laurea Magistrale in Pianificazione e politiche per la città, il territorio e l’ambiente

Study Course “Comparative Study on Planning and Development in Chinese and Western Cities” Professor: * Wang Lan - College of Architecture & Urban Planning, Tongji University, Shanghai, China a.y. 2016-2017

Curriculum Pianificazione della città e del territorio

January 15, 2017 Venice

Urban governance in Portugal and the Lisbon Expo’98 urban project Index: * Abstract * Portugal’s international and European integration * The planning institutional structure * Urban governance in the Lisbon Metropolitan Area * Changing governance in the LMA * Lisbon’s socioeconomic and urban context in the 1990s * Big development projects as catalysers of urban transformation the Lisbon Expo’98 World Fair * The intervention programme for the Expo’98 project * Expo’98 Urban Development Plan * Detailed Plans * References

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pg. 04 04 05 07 09 12 14 16 17 20 20

Work Team * Ignazio Marcolongo

* Elvis Paja

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Urban governance in Portugal and the Lisbon Expo’98 Abstract The aim of this study is to understand the urbanistic development of Portugal, in particular the city of Lisbon, and what is the elapse relation between its urban development and territorial policies. For this reason, we focus our analysis on these topics: the planning system and the planning institutional structure; the urban governance and the major plans for the city of Lisbon accompanied with some basic information about the Lisbon’s best practice. In a second part of this study we analyse and evaluate the Lisbon Expo’98 urban development project by elaborating the programme for the area of intervention, the urban and detailed plans, while reporting the architectural legacy that Expo’98 left to the city. Portugal’s international and European integration

Portugal’s processes of economic internationalization started in the 1960s. Portugal intensified the processes of economic modernization, sectoral restructuring and urbanization with EU accession (in 1986). We can find the traces of these processes of change in three “macro-sectors” which are: political; financial and organizational. In the first case the European integration has brought some fundamental changes regarding the public policy that “have been highly influential in driving forward the nature and direction of governance change” (Silva, 2006, pg. 4). From the financial point of view, “structural and cohesion funds have sponsored a round of largescale investment in basic infrastructures as well as encouraging the development of the policy agenda into new areas, such as the promotion of economic competitiveness” (Silva, 2006, pg. 4). From the organizational point of view, the process of bidding for the EU funds has led to changes in the state administration: by expanding the role for the Planning and Regional Development Commission (CCDRs); and by the quantitate growth of the inter-municipal activities and institutional arrangements. Furthermore, the rapid increase in publicprivate partnerships and private sector involvement in public policy delivery has been sponsored by the need for match funding for EU

projects. Some new institutional agencies have emerged like the local and regional development agencies, the public-sector companies, and, more recently, the creation of new forms of intermunicipal organizations. European competition law on liberalization has paved the ground for the creation of important and influential private sector actors (especially at the municipal level). The reconfiguration of the state has encouraged the development of new governance forms. This has been particularly evident in two key respects: the state decentralization, the growth of new policy challenges and rising levels of public expectations. The phenomenon of state decentralization started after the realisation of the postrevolutionary Constitution of 1976 (on April 25th, 1974, in Lisbon, there was the Carnation Revolution, which ended the Estado Novo and established the new democracy in Portugal). The Constitution established three levels of local government (regional, municipal and parish councils), but actually the new regional level was never established. Moreover, the rejection of the 1998 referendum’s proposals, for the creation of regional administrations, makes it unlikely the establishment of the regional level in the short term. The lack of a regional government, combined with the Europeanization process, has allowed the development of existing regional institutions, such as CCDRs that are centrally set by the state and it has promoted the development of new forms of local, metropolitan and regional governance systems. In 2002, the ruling political parties rejected the creation of directly elected administrative regions and instead centred their approach to the administrative decentralization. For this reason, the government tried to develop new forms of inter-municipal cooperation. This has been achieved through the extension and reform of the existing institutional model of metropolitan government, already in existence in Lisbon and Porto since 1991, to a wider range of urban areas. The legislation, approved in 2003, is now in the process of creating new forms of intermunicipal cooperation like the Grandes Áreas Metropolitanas (nine or more municipalities covering at least 350,000 inhabitants) and the Comunidades Urbanas (three or more municipalities covering at least 150,000 inhabitants). For those areas not able to meet the criteria, there is a third institutional model for inter-municipal cooperation: Comunidades InterMunicipal (CIM). This new architectural governance wanted to

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encourage the transfer of planning power and the increase of cooperation at the local level, but their financial capacity and autonomy remain unclear and possibly unstable. For example, the event of a big political change or lack of political consensus of the ruling parties could bring the destructuring of this governance scheme (Silva, 2006). The last 40 years has seen the overall improvement of citizen education, income and political freedom which have caused a growing public expectation to deliver a broader and more responsive services to the citizens’ needs. This has meant that the role and the political challenges of the central and local government in assuring basic welfare services (health, education) has increased. The decentralization process has mandated to the local authorities some powers that before were managed by the central state like social housing, local transport, green spaces and cultural facilities, because of fact that the local governance would possess a better understanding and a faster feedback of the rapidly changing citizens’ conditions and demands.

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The planning institutional structure In Portugal, there are three different planning levels: national, regional and local. The national level has as its institutions the Ministry and the Secretariat of State. The national level has competence in relation to the strategic framework of the national territory and in the field of regional and local development. The regional level is connected to the autonomous region (insular Portugal) and it is represented by the Regional Government (executive body) and by the Assembleia Regional (deliberative body). In mainland Portugal the decisions are made by decentralized units of the national government (for example: the Direcções, the Delegações and the Administrações Regionais). In close articulation with national policies, the regional level defines the strategic framework of the regional territory and lays down the guidelines for local planning. Fig. 1. Places of Continental Portugal in 2011, agglomeration with ten or more accommodations intented for housing of people and with a designation of its own, indipendently of belogning to one or more parishes (elaboration of the primary source: INE Instituto Nacional de Estadistica) Fig. 2. Satellite image of Continental Portugal (original source: ESRI & Digital Globe)

Urban governance CITY in Portugal and the Lisbon Expo’98 urban project PRODUCTION CYCLES

Insular Portugal

Mainland Portugal

National level

Ministry and Secretariat of State

defines the strategic framework of the national territory and the regional and local development

Regional level

Autonomous Region (Regional Government and Assembleia regional)

Decentralized units of the National Government (the Direcções, the Delegações and the Administrações Regionais)

defines the strategic framework of the regional territory, in close articulation with national policies; lays down the guideline for local planning

Municipal level

Càmara Municipal and Assembleia Municipal

manages the strategic development of the municipal territory and the land use regime

Table 1. The planning institutional structure in Portugal. (source: authors)

Type of tool

Denomination

Territorial scale

Features

Territorial development tools

* National program of spatial planning policy (PNPOT) * Regional plans for territorial planning (PROT) * Inter-municipal plans for territorial planning (PIMOT)

National level

Strategic plans that set out general guidelines relevant to the organization of the territory

Regional level Municipal level

Spatial planning tools

* Municipal plans for territorial planning (PMOT)

Municipal level

Plans that regulate the regime of land use by integrating the guidelines of national and regional instruments

Sectorial policy tools

* Sectoral plans (transport, industry, health, housing, etc)

National level

Sectoral plans that develop and realize the guidelines of PNPOT

Special nature of instruments

* Special plans of territorial planning

National level

Supplementary plans for the protection and enhancement of particulary sensitive and significant interest that make compatible the PNPOT and the PROT and prevail over PIMOT and PMOT

Table 2. Different planning tools, their denomination, territorial scale of influence and their generic features. (source: authors)

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National level

Sectorial policy tools

Territorial development tools

Special nature of instruments

Sectorial plans (transport, industry, health, housing, etc.)

National program of spatial planning policy (PNPOT)

Special plans of territorial planning (PEOT)

Sector plans Regional level

T I T O L O

Supplementary plans

D E L

Regional plans for territorial planning (PROT)

Municipal level

Inter-municipal plans for territorial planning (PIMOT) Strategic plans

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Spatial planning tools Municipal plans for territorial planning (PMOT) Regulative plans (land use)

Table 3. Interconnection and interdependency of the various planning tools. (source: authors)

State

State ‘Regional Offices’ (CCDR, etc) Municipalities

Public-private partenrships (PPPs)

Municipal Associations Metropolitan Government

Parishes Table 4. Public administration structure in the LMA. (orignal source: Silva, 2006, pg. 10)

The local level is made by the Câmara Municipal (executive body) and from the Assembleia Municipal (deliberative body). The level of local planning manages the strategic development of the municipal territory and land use regime. In Table 1 we graphically demonstrate the current planning institutional structure in Portugal, the different type of planning tools and their features (Table 2), and finally the way they are interconnected (Table 3). Urban governance in the Lisbon Metropolitan Area Lisbon is the capital city of the Portugal so the processes of economic and social changes are particularly marked in Lisbon Metropolitan Area (LMA). In this chapter we will focus on the current governance arrangements in the LMA. There is a ‘metropolitan government’ constituted of a special form of ‘municipal association’ between the 19 local authorities that compose the LMA. The metropolitan governments have the responsibility for planning, but mainly they represent a consultative board

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LMA (1991 law) GAML (2003 law) Municipalites (Concelhos)

LMA (2016)

216

207

118

3,209

2,953

2,921

Population (census, 2001)

2,682,687

2,661,850

Population (census, 1991)

2,540,276

2,520,708

2,821,876

836

901

966

Parishes (Freguesias) Total area (km2)

Pupulation (2016) Population density, 2001 (inhabitants/km2)

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Table 5. Dimension of the LMA. (source: http://www.aml.pt)

during the preparation and implementation of metropolitan plans, and are consulted on local issues of public investment from state and EU funding. Another type of institutional cooperation are the Municipal Associations, which are cooperative partnerships of municipalities based around the promotion of certain common territorial interests and/or the delivery of particular services. However, the Portuguese urban governance has clearly a top down structure (Table 4). The present governance system retains a high degree of centralization of competencies within the national government. The Ministries of Planning, Environment and Public Works together with the Ministry of Economy are the most influential state actors. The multiple forms of public-private partnerships, which now exist, reflect the increased liberalization and privatization of the Portuguese economy. As a result, the private sector has become much more directly involved in urban development. The interests of the business sector have also become more influential on the policy agenda, especially with respect to major concerns around transport infrastructures. The first legislation on urban planning was approved by the central government in 1932. Even if the development of urban planning system was elaborated from 1932 to 1946, it is only after the foundation of the first State Secretariat for the Environment, in 1975, that Fig. 3. Land Use in Lisbon and sorrounding regions. (Data credits: SIO, NOAA, U.S. Navy, NGA, GEBCO - David T. Sandwell, Walter H. F. Smith, and Joseph J. Becker Copyright 2008 - The Regents of the University of California - http://inspire-geoportal. ec.europa.eu/discovery) Fig. 4. Satellite photo of the LMA

started to take on the question of urban planning with a trenchant approach. Indeed, the Basic Law on the Urban Planning (L.48/98) was published in 1998 and defined: the frame of urban planning policies; the urban management tools; the rules and type of relationships between the different layers of public administration; the rules and relationships between all stakeholders (the PA, the social and economic partners and the citizens). The Law declared that the urban planning power is represented (from the top to the bottom) by the State, the Administrative Regions and the Local Administrations with the participation of the Associations and the Citizens. Law 48/98 underlines some fundamental key points: it promotes the coordination of the different PA layers in order to endorse the decision-making level closest to the citizen (the town hall is the prime drive for urban administration); it guarantees the equity through some urban tools like the equalization and the compensation; it promotes the public participation, guaranteeing information and the possibility of intervention in the process of elaboration and definition of planning instruments; it establishes a clear distinction between the strategic tools (State and regional jurisdiction) and planning tools directly binding on individuals. Changing governance in the LMA The Lisbon territorial marketing has been closely intertwined with the tourism sector and the cultural sector, which has attracted foreign investment. In this sense, the National Agencies (for example ICEP, the body formerly responsible for the promotion of foreign trade), some events (such as the European Capital of Culture 1994,

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Urban governance CITY in Portugal and the Lisbon Expo’98 urban project PRODUCTION CYCLES

Plano Geral de Melhoramentos 1904 (Garcia) Provision of new green spaces and the definition of a new street system, the Avenidas Novas. The Garcia plan supported the northern expansion of the city until the 40s. Plano Geral de Mehloramentos 1927 (Forrestier) Plan focused on the enhancement of the natural landscape and the definition of the street system. Forrestier ignored the residential question at a time where this topic was already a social concern in the city. The plan a modest if not residual impact on the city, since none of the proposals was build. Plano Director de Urbanização de Lisboa 1948 (Groer) The master plan is based on the preliminary studies on the street system, the green public space and the new social housing estates. The plans established, at the macro-structural level the great transformations that occurred in the city in the following 25 years. Zoning became a permanent characteristic of urban planning in Lisbon.

Plano Director de Urbanização de Lisboa 1959 (Gabinete de Estudos de Urbanização) This plan included some new proposals: the location of the first Lisbon bridge across the Tagus River in the western parte o the city in Alcãntara; a new access to the so-called North Motorway; a new alignment for the west wing of a proposed inner ring road, the Primeira Circular; and, finally, the street grid for Chelas. Plano Director da Cidade de Lisboa 1967 (Meyer-Heine) Rational plan that wanted to: build a distributive axis tangent to the city almost totally detached from the inner urban fabric circulation; construct four tunnels shaping an underground axis parallel to the river; and the extension of one of the main Lisbon avenues (António

time

1910

1926

1940

Foundation the Portuguese Republic Republican revolt of October 5, 1910 that deposed the Prince Regent and established the Republic Cuop d’État (Estado Novo) Coup d’état that caused the fall of the First Republic, and brought to power the military led by General Óscar Carmona

Decree No. 2879 The decree simplified the purchase processes, allowing the municipality to implement a more ambitious land policy. Other exceptional measures were those to ease the payment of studies and projects, the attribution of special fund, and a special expropriation procedure.

Creation of the Ganibete de Estudos de Urbanização 1954 Constitution of a new planning department in the municipality with the aim of preparing a new plan.

1974

1986

Foundation of the Portuguese Republic On April 25, 1974, in Lisbon, there was the Carnation Revolution which ended the Estado Novo and established the new democracy in Portugal Portugal in Europe Portugal joined the European Union

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Augusto de Aguiar).

time goes by

Plano Director Municipal 1994 (Soares) Besides establishing the regulation of land use, this PDM was conceived as an operational tool for municipal management. It was complemented by a number of other planning documents of a strategic and detailed nature. The Lisbon PDM also benefited from the simultaneous elaboration, at a lower level, of urban development plans and local plans that detailed several elements of the urban form. The common coordination of these three planning levels – strategic, municipal, and local – has to be emphasized as a remarkable achievement of the municipalities’ ruling coalition in the first half of the 1990s. Plano Director Municipla 2001 (Municipal planning department) The World Exhibition, in 1998, brought about a tremendous opportunity to requalify a large site on the eastern part of the city and along the riverside. Meanwhile, some new fundamental questions emerged: the alleged need for a third Lisbon bridge, the highspeed railway system and the possible relocation of the main railway station; the new Lisbon international airport; the physical and functional relationships between the former World Exhibition site, now called Parque das Nações, and the rest of the city and, in particular, the old historic centre. Within the new context provided by the Regional Plan for the LMA, ratified in 2002 after a long preparation process started in 1989, and a new strategic vision for the city based on strengthening four catching ideas – local neighbourhoods, entrepreneurship, culture and innovation – the PDM presented a number of main strategic objectives: urban rehabilitation, environmental improvement, the integration of uses and function, the selective occupation of gap and vacant sites, the strengthening of the city’s identity and cosmopolitanism.

(then known as European Community)

European Capital of Culture 1994 This event left traces in the urban matrix of Lisbon. The selection as the European capital of culture was a significant event, organized for the purpose of promoting and restoring the city, to improve and develop its infrastructure, and to construct new facilities for public and social use (galleries, museums, theatres, parks). World Fair Expo’98 1998 The selection of the location for the Expo’98 site on the eastern coastal zone, which was until the a structuralfunctional barrier to urban development and to an opening toward the Tagus River, led to intense transformation of the entire zone. The strategic project of Expo’98 was based on two subprojects: the organisation of the World Exhibition and the urban redevelopment and revitalisation of the eastern coastal zone of Lisbon, planned as a medium and long-term. The global project management was conceived and structured in two phases: the first phase included the concept of the Intervention Zone as well as the Expo’98 site, preparing the ground, building the necessary infrastructure and suprastructure, setting up the exhibition, and organizing and operating the exhibition; the second phase included leading and managing the project for the further development of the IZ. Law 48/98 The law sets out the basis of spatial planning policy and urban development by defining and integrating the actions promoted by the public administration, in order to ensure proper organization and utilization of the national territory with a view to its exploitation, having as objective the economic, social and cultural integration, harmonious and sustainable development of Portugal and then of its regions and urban agglomerations.

Table 6. The most important urban plans of Lisbon (left) and the major national and citywide events (right). (source: authors)

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the Expo’98, the Euro2004, and the failed candidacy for the 2007 America’s Cup) and some strategies (for example, the attraction of EU agencies to Portugal) have operated in favour of Lisbon. As the economic and political capital, Lisbon is one of the first cities of Portugal to benefit from loans from the European Bank for EU structural investment and social cohesion funds. EU resources were fundamental for the realization of all the great recent urban projects (expansion of metropolitan networks, highway, railway, construction of the Tagus bridge, Expo’98, upgrading of water and sanitation services). The series of large-scale projects that have characterized the development of Lisbon by the end of the 1980s (the expansion of the motorway network and metro systems, the Vasco da Gama Bridge and the construction of Expo ‘98, as well as further plans for development of a new airport) were all central government initiative. The new policy initiatives have focused upon public welfare issues (for example housing and transportation). These policies have also developed significantly with respect to economic development (such as policies encouraging the development of skills, innovation and competitiveness) and the environment. In this way, national government programmes such as POLIS, which underline the importance of the environment within urban regeneration, and PER, a program for the improvement of slums, are examples of how the municipalities in the AML have been faced with delivering a new and rapidly developing central government policy agenda. “The existence of a number of examples of innovative private–public deals provides evidence of a significant change in thinking by both private sector interests and public entities towards the potential benefits of partnership working. The most high profile example of this was perhaps provided by Expo98” (Silva, 2006, pg. 14). In Table 6 we show the most relevant urban plans of Lisbon (on the left) and the major national and citywide events (on the right) of the last century. Lisbon’s socioeconomic and urban context in the 1990s In this chapter we will take a short excursus on the context in which Lisbon was collocated at the end of the XX century, and represent some relevant urban and socioeconomic challenges

that needed to be handled – this to introduce our Lisbon Expo’98 study case and to preface its frame of reference. From the economic point of view Lisbon has seen the shift towards a service-based economy and the tertiary sector employment rise to 70% of total employment from 1991, with a concomitant fall in manufacturing employment to 28% according to the population census. In the city, service sector employment in financial services and tourism has grown rapidly via major inflows of foreign investment, whilst resident population levels have fallen. Since 1981 the overall population that lives in the LMA has been relatively stable (and it is about 25% of the national population: 2.6 million - Table 5), but Lisbon’s demographic evolution is characterized by an aging population and the movement of the middle class and the young generation in the neighbouring municipalities. Since the 1980’s, former areas of port and manufacturing activities had undergone dereliction and in some cases subsequent regeneration, causing abandonment and decay of the industrial areas along the river margin; a double process of relocation can be seen here: from the historic centre to the outskirts of the city and from the periphery to the surrounding municipalities (small industries and workshops in the first case and heavy industry in the second). From an urban point of view the eastern half of the city of Lisbon was characterized by the isolation and social segregation of the ‘poorer’ strata of the city’s popolation, separated from the rich western zone, from an axis perpendicular to the Tagus river that consisted of natural obstacles and was strengthened by the lack of road connection structures. The effect of this situation, as well as the lack of cultural and recreational facilities (exclusively concentrated in the western part of the city), made the eastern part unattractive for investments. Lisbon’s port, as an essential structure of historic connection between Portugal and its colonies, was emptied of its original function and it was seen as an obstacle for the relationship between the city and the riverfront. Since the 1960s Lisbon’s urban governance history was defined by a centralized political and administrative power that not always created the conditions for equal opportunities for all the population that represented. A political and industrial elite promoted processes of capital concentration and the urbanization of land. “In the absence of spatial policies promoting decentralization, capital was allowed to take

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Urban governance CITY in Portugal and the Lisbon Expo’98 urban project PRODUCTION CYCLES

full advantage of economies of agglomeration without having to relocate production” (Cabral & Rato, 2002). The 1970s and 1980s were characterized by the increasing importance of the tertiary economy sector and by the urban sprawl into the northern and southern areas of the LMA; urban policies were mainly regulated by shortterm management criteria. Summarizing, in the early 90s there was pressing demand to achieve a better distribution of functions in the LMA; policies to counter the decline and aging of the population by way of attracting new and young residents; recovery of the riverfront through the creation of new open and public spaces; improvement of the transport and communication infrastructure in order to prevent the breakup of the urban and metropolitan system and by enhancing its natural hidden potential. In the next part we will focus on a particular urban development project: the Lisbon Expo’98. Big development projects as catalysers of urban transformation – the Lisbon Expo’98 World Fair

In this context, the World Fair of 1998 was seen as a project capable of mobilizing the necessary resources to speed up the modernization of the city. In February 1990, the government initiated the application process and to the City of Lisbon was given the privilege of hosting the last International Exposition of the XX century (now on: Expo’98) under the jurisdiction of the Bureau International des Expositions (BIE). The theme of the event was “The Oceans, a Heritage for the Future”, which commemorated the 500th anniversary of Vasco de Gama’s arrival in India, and took place form May 22nd to September 30th. The city and the central government were highly interested in this opportunity of citybranding, and used this event to their advantage by promoting the regeneration and urban transformation of an important part of riverside with prospects for the environmental conversion and reclassification, also through the attraction of foreign investment. As soon as the confirmation was given by the BIE, the ruling government set up new planning instruments to replace the old urban plans. In 1994 was approved a Master Plan and a Strategic Plan, which picked the Riverside Arc as one of the four structural areas of the city, in particular the eastern riverfront was consider

as a ‘Logistic Platform’ for the metropolitan system as it offered the possibility to strengthen and reinforce the urban and economic integrity between the northern part of the municipality of Lisbon with the neighbouring Loures municipality. The Expo was seen as an occasion to give impetus to the urban renewal of the city, promote tourism and stimulate the economic development of the entire LMA. In planning terms, the Expo had the task to help modernize and upgrade a significant portion of the city, recompose the peripheral areas by accelerating the implementation of major road, transportation and communication systems in order to make the area more open and accessible. As a design project, it needed to boost the discussion around the city-river relationship and mobilize the urban government structure to accomplish awaited strategic objectives – in the Expo’98 case there were established special planning and financial conditions and tools that represented new ways of governance for Portugal, which were experimented in earlier urban development projects (UDP) in the US, UK, France and Spain. The appropriate location of the event was decided by analysing and searching where the greater catalyst effect could take place. The alternatives were: the metropolitan periphery, the west zone (Belém) or the eastern part of the city (as mentioned before was the poorest of them). The first choice was excluded for coordination and practical execution difficulties; the second was excluded as it would augment the internal imbalance of the city; the third option was chosen – an industrial site which had recently been abandoned but which had great development potential because of its proximity to the Tagus river – for it offered the greatest benefit to the modernization and rebalancing of the city structure and because it disposed a larger availability of soils. Once the site was chosen the City of Lisbon adopted a strategic plan for the eastern industrial/dockland area by means of new zoning regulations and planning objectives based on: (a) a support centre to the importexport enterprises integrated with offices, Fig. 5. Satellite image (2016) of the Lisbon and the location of Expo site, in blue dotted lines (original source: ESRI & Digital Globe). Fig. 6. The run-down part of eastern coast of Lisbon where the future Expo project would be developed. Fig. 7. The Expo site during the relocation works. Fig. 8. The construction of the new Expo project, just before the opening of World Fair Exhibition.

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shopping areas, accommodation and recreational parks; (b) a research and training centre on new technologies; (c) the reorganization of the Lisbon’s logistic platform as a regional interface in terms of passengers and goods; (d) the creation of public spaces along the east riverfront, integrating the different areas, community facilities, water sports and recreational facilities (Pelucca, 2010). In March 1993 was created an urban development corporation (UDC) named Parque Expo SA, a private coorporation with access to public funds. UDCs generally are created by initiative of the central government with the objective of regenerating an urban area by autonomously developing its own projects and attracting private investors; they have the power to acquire land and control its development process; most of them even surpass local authority regulations and established urban governance procedures when they possess specially conferred development power. There are many examples of UDCs in European countries that anticipated the Expo’98 case, the most resembling one (and nearly identical in organizational structure to Parque Expo SA) being Bilbao, Spain – where a declined industrial city, with loss of jobs and population was regenerated by the direct intervention of the central and regional government through the delegation of public resources and planning power to a UDC, named RIA 2000. If thoroughly compared to other UDCs (the first one in Europe appeared in 1981 in the dockland areas of London and Liverpool and more than 20 other similar cases followed it) we would clearly see a pattern and a trend of copying redevelopment strategies from precedent similar citywide projects, that make use of large international events to change the image of the city (Carrière & Demazière, 2002, pg. 3). Parque Expo SA had to accomplish two spatially different speculative operations: (a) one internal, that related to the production of high position value for the business, catering and services that were destined to reside inside the boundaries of the exhibition; (b) the other external of the Expo site, which consisted in the resale of urbanized land to private developers in order to build housing and offices. In addition, it had to manage and organize the representative and didactic theme of the ephemeral event during the official opening. The aim of this strategy was to assure the economic self-sufficiency of the operation.

The intervention programme for the Expo’98 project The Expo’98 Redevelopment Area covers a total area of 340 hectares, stretching along 5km of the Tagus estuary water-front, and includes 50 hectares around the former Olivais Dock – built as a hydroplane airport in the 1940s. The challenge of the Expo project was essentially to re-centre the city in its traditional urban shell, finding a new balance and new relationship in the city of Lisbon. In this context, the central riverside, from Cais do Sodré station in Santa Apolonia and tis connection to the downtown area of Baixa have played a strategic role. The Regional Strategic Plan for the metropolitan territorial planning (PROTAML) focused on the regeneration of the east riverside of the city, which in 1993 was abandoned and consider a run-down suburban area that needed the relocation of hazardous, polluted, and environmentally dangerous industrial installations – an oil refinery and fuel tanks, an abattoir, a sewage treatment plant, and a landfill dump site – in order to make it usable for future visitors and inhabitants. The Expo project enhanced the opportunities created by projects already programmed under the national and regional investment plans, financed by the EU Regional Development Fund (ERDF) (Cabral & Rato, 2002). Following the detailed studies of architectural and urban design ideas expressed in the competition for the renovation of the riverside area, launched by the Association of Portuguese Architects in 1988, a study of the Expo’98 site was carried out in 1991, with the preparation of the preliminary plan by the architects Carlos Duarte e José Lamas. Towards the end of 1992, once the corridor for the new bridge was decided (over the Tagus, between Sacavém and Montijo), the architects Graca Dias and Egas Vieira build the Preliminary Master Plan and authored the “design study for a new urban model in Expo’s surrounding area”.

Fig. 9. Post-Expo’98 Urban Plan - Nations’ Park (simulation of the final urban land use). Vassalo Rosa/ Parque Expo SA Fig. 10. Satellite image (2016) of the Expo site and the sorrounding neighbourhoods today (original source: ESRI & Digital Globe).

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Expo’98 Urban Development Plan It was in this context that Parque Expo SA (created by a central state decree on March 23rd, 1993) set up a clear urbanization plan for the redevelopment of the area as much as for its legacy, under the direction of architect Vassalo Rosa in November 1993. The comprehensive development programme, worked out by Parque Expo SA, was officially adopted by the Ministry of Planning and Development the 15th July 1994 and dispensed the need for public inquiry. The plan focused on the design of the public areas and buildings for Expo’98. The urban design concept was based on the “system of small plazas” and makes a definitive mark on the place. The availability of the whole area laid down the conditions for individual architectural expression – that is a constant in a World Exposition. “The emblematic buildings are therefore active participants in the creation of the urban design … in the same way that other buildings make a strategic contribution to the design of public space” (Vassalor Rosa, 1998, pg. 2). The involvement of prestigious figures within the international architectural scene constituted a big factor for rehabilitating the urban image of the site by raising the architectural quality of the whole surrounding area. Most of the buildings are an extraordinary legacy left behind to the city: the multi-modal international station designed by Calatrava, the Oceanarium (the most important in Europe), the Portuguese Pavilion designed by Siza Vieira, the panoramic Tower of the old refinery now re-used as the South Gate to the Central Boulevard, the multi-purpose Pavilion (a vast 11,000-seat arena for large-scale cultural and sporting events), the Exhibition Centre, the 600-berth marina, the careful landscaping of five kilometre of the river bank, etc. Public space as a whole is seen here as a structure-providing project and treated as a space for urban relations, combining all its function on the human scale. The pedestrian traffic on the waterfront is separated from the road infrastructure system which skirts the site. The environment component was a determining factor in the urban renewal of the Parque Expo’98 Redevelopment Area, combining water resources, climate, geology, transport, public spaces, green zones, the system views, diversity and density of use, facilities, infrastructure and services, cultural and architectural testimony, urban art and technological innovation, the uniqueness and

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Urban governance CITY in Portugal and the Lisbon Expoâ&#x20AC;&#x2122;98 urban project PRODUCTION CYCLES

Source: Esri, DigitalGlobe, GeoEye, Earthstar Geographics, CNES/Airbus DS, USDA, USGS, AeroGRID, IGN, and the GIS User Community

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Comparative Study on Planning and Development in Chinese and Western Cities CITY PRODUCTION CYCLES

sensitivity of the site. There are 110 hectares of open space (including a park of 84 hectares), and 30,000 trees were planted before the construction. Since the operation needed to be financially self-sufficient the economic strategy had a clear and important role by favouring up-marked properties. This was done by locating lowrise buildings close to the river front, while the high-rise buildings are closer to the historic neighbourhoods, volumetrically creating a levelled scheme of panoramic views – this also assures the improvement in marketability of the high-rise portion. The facilities on the Intervention zone, which mostly are concentrated in the expo park boundaries, have a local and citywide influence and are grouped in three types: housing, cultural and service-oriented, and commercial (Bischeri & Bosio, 2015, pg. 7). A variety and high density of mixed uses has been reached by ensuring important service and commercial facilities, which have local and citywide functions, like: the largest shopping centre in the country, university facilities, a hospital and the Lisbon Exhibition Centre – all these contribute to the attractiveness of the new central space. The impact of the Expo’98 urban project is clearly intended to be felt at a wider scale than the boundaries of Intervention Zone (50 hectares) or even of Action Zone (350 hectares). In all the official executive documents prepared by Parque Expo SA, the action zone was always promoted and portrayed as a new city-centrality – so the augmenting of accessibility through the reorganization of the road system was another key factor. The infrastructure includes the 13 kilometre long Vasco de Gama bridge and the Gare do Oriente transport hub (the inter-modal station: rail, subway, and bus lines), which guarantee easy circulation to the Nations Park (as the whole Expo site will be known later). The hierarchical and articulated road network facilitates the integration of the existing neighbourhoods with the new urban project. Detailed Plans The Urban Plan was subdivided in six Detailed Plans (DP) and Projects for Public Space, which covered the whole of the Redevelopment Area. At that time it was forecasted that the construction of the large-scale facilities on the 50 hectares of the interior of the Expo would be the priority and they would be completed before the

opening of the official exhibition by May 1998 – while the entirety of the project would continue until 2009 across the action zone. Again, one has to notice the important role and leadership of Parque Expo’98, whose activities were all along guided by long-term urban regeneration objectives. The DPs were developed simultaneously under the general direction and coordination of the Urban Plan (Architect and Urbanist Vassalo Rosa), in order to consolidate the guidelines of the urban concept proposed: * DP1, Central Area (Prof.Arch. Tomas Taveira), develops the morphology of the environmental already existing in Lisbon, and explores new forms linked to southern cultural anthropology. * DP2, Site Area (Arch. Manuel Salgado and Landscape Arch. Gomes da Silva), was the object of an initial masterplan (Arch. Marumatsu) and it articulates the ephemeral with the permanent components of the Lisbon World Exposition, in line with the modulated urban mesh of the city, so as to guarantee its visual identity. * DP3, Southern Area (Prof.Arch Troufa Real and Arch.Paes. Ribeiro Telles), valorises local morphological unique features and affirms urban reference models already rooted in the Portuguese urban planning culture. * DP4, Northern Area (Arch. Cabral de Mello e Arch. Maria Manuel Godinho), in line with the Urbanisation Plan, makes public space more diverse and informal, though without destroying its overall discipline. * DP5, Sacavèm Area (Arch. Maria Manuel Cruz and Arch. Ricardo Parrinha), valorises the uniqueness of its location and context, opposite the City Park. * DP6, Tagus and Trancào City Park Area (Arch.Paes. Hargreaves and Joào Nunes), reinvents and makes its aesthetic mark on the landscape of the river-front area. References * Alden J. (1996) , Lisbon Strategic planning for a capital city, Cities, Vol 12, No 1, pp. 25-36 * Balbo M. (2007), International migrations and the ‘Right to the City‘, Università IUAV di Venezie, Cosmopolitan Urbanism * Balsas C. (2007), City Centre Revitalization in Portugal A Study of Lisbon and Porto, Journal of Urban Design, Vol. 12, No. 2, pp. 231 – 259 * Baptista I. (2011), How Portugal Became an ‘Unplanned Country’ A Critique of Scholarship

Prof.NOME Wang COGNOME, Lan NOME COGNOME, NOME COGNOME, NOME COGNOME,

on Portuguese Urban Development and Planning, International Journal of Urban and Regional Research * Bischeri C., Bosio A. (2015), The Architecture of Expos and the Projection of Government Aspirations for the Host Cities: Brisbane ’88 and Lisbon ’98, In Proceedings of the Society of Architectural Historians, Austrlia and New Zealand:32, Architecture, Institutions and Change, pp. 44-55 * Cabral J., Rato B. (2003), Urban Development for Competitiveness and Cohesion: The Expo 98 Urban Project in Lisbon, Oxford University Press * Carrire J. P., Demaziere Ch. (2002), Urban Planning and Flagship Development Projects, Lessons from EXPO 98, Lisbon, Planning Practice & Research, Vol. 17, No.1, pp. 69-79 * Ceudech A. (2008), Grandi eventi, politiche per la mobilità dopo l’evento, TeMA, Vol. 1, No. 2, pp. 87-96 * Clark G., Huxley J., Nemecek S. (2010), The Urban Investment Opportunities of Global Events, A Report of the Urban Investment Network, Urban Land Institute, pp. 1-28 • Craveiro T., et al. (2005), Integrating the City - A third solution for Lisbon periphery, 42nd International Planning Congress ISoCaRP * Henriques J. (2009), Urban Agriculture and Resilience in Lisbon, Urban Argriculture magazine, No. 22 * Malheiros J. M., Vala F. (2004), Immigration and city change The Lisbon metropolis at the turn of the twentieth century, Journal of Ethnic and Migration Studies, Vol. 30, No. 6, pp. 10651086 * Mata D., et al. (2015), Lisbon, Case Study City Portrait, Fundação da Faculdade de Ciências de Lisboa (FFCUL) * Montanari A. (2002), Grandi eventi, marketing urbano e realizzazione di nuovi spazi turistici, Bollettino della Società Geografica Italiana, serie XII, Vol. VII, 4 * de Oliveira V., Pinho P. (2007), Urban form and planning in Lisbon and Oporto, Planning Perspectives, Vol. 23, No. 1, pp. 81-105 * de Oliveira V., et al. (2010), The study of urban form in Portugal, Urban Morphology, Vol. 15, No. 1, pp. 55-66 * de Oliveira Fernandes E., de Almeida F. (1998), Energy and environment at Expo’98 Lisbon, James & James Publishers Ltd, pp. 7-12 * Pelucca B. (2010), Progetto e rinnovo urbano, il caso del Portogallo, Casa editrice Il Prato, Padova * Pereira M., Carranca M. A. (2009),

Governance in the Lisbon Metropolitan Area: between the ambition of reinforcing the international rank and the will for deeper internal territorial cohesion, e-Geo, Universidade Nova de Lisboa, Lisbon * Petrovic Krajnik L. (2010), The Functional and Structural Transformation of the Eastern Coastal Zone of Lisbon Induced by Expo’98, Sustainable Architecture and Urban Development, Vol. 3, pp. 345-360 * Power M., Sidaway J. D. (2006), Deconstructing twinned towers: Lisbon’s Expo’98 and the occluded geographies of discovery, Social & Cultural Geography, Vol. 6, No. 6, pp. 865-883 * La Rocca R. A. (2008), Dall’evento all’impatto: Expo e mobilità urbana, TeMA, Vol. 1, No. 2, pp. 31-46 * Lourenço J. (2002), Expo’98 and Trickling Down Effects in Lisbon, The 38th International Congress “The Pulsar Effect” Planning with Peaks, Athens, pp. 1-12 * Santos A., de Brito J., Building deconstruction in Portugal: a case study, Sustainable Construction, Materials and Practices, pp. 1059-1066 * Silva C. N., et al. (2006), Governing Lisbon Evolving Forms of City Governance, International Journal of Urban and Regional Research, Vol. 30, No. 1, pp. 98-119 * Simeon M. I., Di Trapani G. (2011), Mega eventi e creazione di valore per il territorio: un’analisi delle Espozioni Universali e Internazionali, Sinergie Rapporti di Ricerca, No. 34, pp. 179-201 * Swyngedouw E., Moulaert F., Rodriguez A. (2002), Neoliberal Urbanization in Europe: Large-Scale Urban Development Projects and the New Urban Policy, Blackwell Publishing, Vol. 34, No. 3, pp. 542-577 * Tulumello S. (2015) - Reconsidering neoliberal urban planning in times of crisis, Lisbon, Urban Geography, Vol. 37, No. 1, pp. 117-140 * Vassalo Rosa L. (1998), The urban planning development for Expo’98, James & James Science Publishers Ltd, pp. 3-6 * Vincenti T. (2011), Realtà urbane a confronto, Il caso del waterfront di Porto un percorso valutativo ex post, Firence University Press * Wang L., Hoch Ch. (2013), Pragmatic rational planning, Comparing Shanghai and Chicago, Planning Theory, Vol. 12, No. 4, pp. 369-390

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Urban governance in Portugal and the Lisbon Expoâ&#x20AC;&#x2122;98 urban project

Ignazio Marcolongo, Elvis Paja