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Privatizing Urban Planning and the Struggle for Inclusive Urban Development: New Redevelopment Forms and Participatory Planning in São Paulo

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Privatizing Urban Planning and the Struggle for Inclusive Urban Development: New Redevelopment Forms and Participatory Planning in São Paulo Privatizing Urban Planning and the Struggle for Inclusive Urban Development: New Redevelopment Forms and Participatory Planning in São Paulo by Joshua Daniel Shake A dissertation submitted in partial fulfillment of the requirements for the degree of Doctor of Philosophy (Urban and Regional Planning) in The University of Michigan 2016 Doctoral Committee: Professor Martin J. Murray, Chair Associate Professor David S. Bieri, Virginia Tech University Assistant Professor Harley F. Etienne Clinical Professor Melvyn Levitsky Associate Professor Eduardo Cesar Leão Marques, University of São Paulo © Joshua Daniel Shake 2016 DEDICATION To my mother, who gave me my love for books, inspired my passion for travel, and always encouraged me to ask questions about the world around me. She may no longer be here with me, but I know I would not be where I am today without her guidance and love and that she continues to provide both. ii ACKNOWLEDGMENTS Over the past four years, I have discovered that completing a Ph.D. is an odd mixture of personal dedication, determination, and desire, along with making sure you have the right people around you to provide guidance, help, and support along the way. While in the limited space here I cannot give due credit to all of those that contributed in some form to this endeavor, I do want to call attention to a few very important individuals without whom I would not have completed this undertaking. My first and largest thank you goes to my committee members: Martin Murray, Eduardo Marques, Harley Etienne, David Bieri, and Melvyn Levitsky. Their feedback and advice on research, academic, and non-academic issues will always be valued. My Chair and Adviser, Martin Murray, has been an unrelenting backer of me and my research, as well as Ph.D. student issues in general. I remember when I visited the University he followed up with a few phone calls as I was looking at housing, with suggestions and insights on various neighborhoods in Ann Arbor. His help in writing countless letters of recommendation to secure funding cannot be overlooked, either. But just as important have been the countless conversations, debates, and theoretical discussions we have held over a beer during the past few years and that have deeply informed my perspectives and passions. I would also like to call attention to Eduardo Marques, who has served as my Adviser in São Paulo. I have gained countless nuanced insights into the ways Brazilian government works and does not work through his mentorship. He also assisted me through the sometimes labyrinthine layers of Brazilian iii bureaucracy—through cartorios, tracking down signatures, and countless other steps—to secure my visa and allow me to stay in São Paulo as a visiting researcher at the University of São Paulo. I would also like to thank the faculty in the Urban and Regional Planning program at Michigan. Over the years I have developed personal relationships with many, and all have been more than welcoming to discuss research ideas. I would like to specifically thank and apologize to Scott Campbell. I cannot count the number of times I have taken advantage of his open office door, popped in to say hi, and ended up having a 30-minute discussion. I have truly appreciated these over the years. Additionally, I would like to thank all of the administrative staff that make the program run—especially Lisa Hauser and Laura Brown—as well as the staff of the USP International Office, that helped me secure my visiting researcher status there. I have also been very fortunate to have a great set of colleagues and cohort-mates in the PhD program. Although this process is self-driven, it has been very important to have such wonderful people around me who are going through the same process and can commemorate and commiserate the highs and lows. Just as important have been the close friends I have made in Ann Arbor and made sure I got to know more than just the campus: Ian, Ed and Niki, and Chris I appreciate your jokes, exposing me to the local music scene, and unrelenting friendships. I would also like to thank the Urban and Regional Planning program, the Rackham Graduate School, the University of Michigan International Institute, and the University of Michigan Center for Latin American and Caribbean Studies for funding my field research and making all of this possible. iv I also could not have asked for a smoother fieldwork period. I am very grateful to the people that I met, interviewed, emailed, and in many cases interviewed and emailed again and again. Without their candid perspectives and insights, this dissertation would not exist. I would also like to call special attention to all of the old and new friends I have and have made at the Prefeitura de São Paulo, whose help, information, and document provision were priceless. Thank you to my two adopted Brazilian families: Paschoal-Guerreiro and Braz. Your support and shelter throughout various phases of my times in São Paulo helped to make it evermore home. Thank you to Aunt App (Martha) for always believing in me and knowing exactly what this whole process entails. Thank you to Nana (Margie) for your constant support and grandmotherly worrying. Thank you to my brother, Ethan, as we have dealt with considerable difficulties and loss together in the past few years. I also want to thank my Dad for continuously believing in me, your example of love, and for so many things that are impossible to put into words. Last, but definitely not least, thank you to Ana for being there even when we were thousands of miles away; for believing in me when I sometimes did not believe in myself; for showing me that this is possible; and for putting up with my “chatices.” v TABLE OF CONTENTS DEDICATION ii ACKNOWLEDGMENTS iii LIST OF TABLES ix LIST OF FIGURES x LIST OF APPENDICES xii LIST OF INSTITUTIONS AND COMMUNITY GROUPS xiii ABSTRACT xv CHAPTER I. Introduction 1 Megaprojects and Redevelopment 2 Redevelopment in São Paulo 6 Research Questions and Hypotheses 16 Case Description 18 Methodology 26 Structure of this Dissertation 33 II. Brazilian Urban Planning and Redevelopment after Modernism: Participatory, Privatizing, and Culture-led 35 Economic Functions, Spatial Form, and Centrality in São Paulo 36 vi Shifting State Powers: Brazilian Urbanism since 1960 43 Urban Planning in São Paulo 48 Collapse of Dictatorship and Rise of Democratic Governance 52 Neoliberalism takes Hold: Economic and State Restructuring 56 Precedent Redevelopment Projects 62 Neoliberal Redevelopment: Operação Urbana Centro and Procentro 63 The Re-emergence of Culture-led Redevelopment: Monumenta and Ação Centro 67 The Failures of Culture-led Redevelopment: Luz Cultural 74 III. A New Redevelopment Tool through Privatized Urban Planning 78 The Birth of the Nova Luz Project: Incentives Attempt 80 The Creation of a New Redevelopment Instrument: Urban Concessions 86 Developing the Nova Luz Plans 89 Beyond Nova Luz 97 Conclusions 109 IV. Winning the Battle, but Losing the War: Participation in the Nova Luz Project 113 Emergence of Municipal Councils in Brazil 114 Municipal Council Dynamics 115 From Municipal Councils to Project-specific Municipal Management Councils 118 Forms of Participation in the Nova Luz Project 119 Participatory Planning through the Management Council 120 Communication Strategies and Public Hearings 129 vii Extra-formal Participation and the End of the Project 132 Maua Occupation 137 Conclusions 141 V. Intramunicipal Competition: Real Estate Interest and Public Participation across Coexisting Redevelopment Projects 145 Interurban Competition, Intraurban Competition, and Intramunicipal Competition 147 Urban Operations 151 Faria Lima 157 Agua Espraiada 162 Business and the Favela in Agua Espraiada 166 Middle Class Resistance in Faria Lima 171 Conclusions 173 VI. Conclusion 180 Cities as Assemblages 183 New Redevelopment Forms 186 New Forms of Participation 189 Intramunicipal Competition and the Context of Redevelopment in São Paulo 192 Implications for the Practice of Urban Planning 196 APPENDICES 200 BIBLIOGRAPHY 220 viii LIST OF TABLES TABLE 1. Nova Luz Project Basic Information 22 2. Breakdown of Research Methodologies and Types of Evidence 30 3. Economic Activities of São Paulo in 1976 and 2001 40 4. Recent Mayors of São Paulo 49 5. Nova Luz Project Basic Information 92 6. Public Housing Proposed in Nova Luz Project 100 7. Nova Luz Project Proposed Design Features and Public Facilities 101 8. Summary Comparison of Redevelopment Projects 187 ix LIST OF FIGURES FIGURE 1. Busy Commercial Street in Region 19 2. City of São Paulo and Nova Luz Project 20 3. Streetscape Adjacent to Estação da Luz 23 4. Dissertation Concept Diagram 33 5. São Paulo and Metropolitan Region 37 6. Timeline of Selected Events in São Paulo and Brazil 61 7. View of Estação da Luz and Parque da Luz Region 67 8. Site Map of Selected Redevelopment Project Areas in Centro Region 73 9. Sala São Paulo and Estação Julio Prestes 76 10. Nova Luz Project Area Map 79 11. Site Map of Lots to be Renovated and Demolished in Nova Luz Project 93 12. Site Map of Proposed Ground Floor Uses in Nova Luz Project 98 13. Site Map of Proposed Upper Floor Uses in Nova Luz Project 99 14. Detailed Implementation Plan for Nova Luz Project 103 15. Full Implementation Plan for Nova Luz Project 103 16. Site Map of Implementation Phasing for Nova Luz Project 104 17. Municipal Management Council Meeting 124 x 18. Nova Luz Project Public Hearing 130 19. Meeting Between Community and City Groups 136 20. Before and After Photos of Resident Improvements at Maua Occupation 138 21. Locations of Luz, Faria Lima, and Agua Espraiada Redevelopment Areas in São Paulo 146 22.
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