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Towards a Pragmatic Neighbourhood Development Model Acioly Towards a Pragmatic Neighbourhood Development Model Acioly Towards a Pragmatic Neighbourhood Development Model. Urban Spatial Information System-USIS as a decision support tool in an automated & integrated design environment DRAFT DISCUSSION PAPER 1 Claudio Acioly Jr. Faculty of Architecture TU Delft, 1/03/94. Contents 1. The Concept of Planning 2. From Town Planning to Integrated Urban Planning 3. From City to Neighbourhoods 4. Pre-conditions for Effectiveness in Urban Planning 5. Information and Decision Support Tools in Urban Planning 6. Computers and New Planning Paradigms 7. The Planning Model and the Urban Setting 8. Appendix Planning Cycle in an Automated Environment Some Bibliographic References Table of definitions UD, UP and UM 1 Towards a Pragmatic Neighbourhood Development Model Acioly 1. THE CONCEPT OF PLANNING Planning is a deliberate action. It is a process in which future actions are pre-defined through a sequence of choices that aims at a pre-established objective. Thus, it is a set of procedures that implies targeted actions, setting motion to accomplish a desired and supposedly improved and new situation. Planning is a problem solving oriented process and implies an understanding about the present and the forecasting of outcomes of the actions presently undertaken. Based on this definition, it is possible to describe urban planning as a process through which courses of actions are selected and decisions are made in order to accomplish a better living environment. The decision making process is based on the analysis and consequently understanding of the available information and on the capacity of urban planners to forecast the best results from the choices made. Contemporary urban planning has been greatly influenced by the British town planning postwar movement which considered it as an instrument of the welfare, an activity inherent to the responsibilities of the State which should benefit the majority of the population (Glass, 1973:50). Thus, town planning was viewed as an instrument of social policy in which governments would act to protect the public interest. This conception assumes that town planning is a neutral and scientific activity, not subject to the vested interests of powerful and influential groups of society. However, experience has showed the ingenuity of this assumption and in developing countries it showed that this neutrality is a myth. This conception is originated from the late nineteenth century utopian and social reformers, specially E. Howard and his "Garden cities of tomorrow". This concept has greatly influenced the activities of town planning. As a result, there was a great emphasis given to urban development control mechanisms that are reflected in land use plans and legislative procedures and which are materialized in comprehensive and master plans. There was a belief that this would be the pre-condition to provide the physical basis for better urban community life. Specially among a generation of town planners who thoroughly believed that the physical environment was the major determinant of social processes. This physical determinism produced certain dogmas and paradigms in the profession of town planning and consolidated certain practices of town planning that were only concerned with the physical scenario of buildings and urban spaces and disregarded the other dimensions of the urban environment. Rationality in town planning became a synonym of wisdom. Planning was to become a scientific procedure only dealt with by those eligible for that. The outcome was a technocratic control in the process 2 Towards a Pragmatic Neighbourhood Development Model Acioly of urban development and a great emphasis to physical planning. In many cases, it served to legitimate the position of town planners in the planning bureaucracies of the State. It is very important to have a clear understanding of what planning is all about in order to understand its goals and the nature of the problems it deals with. However, for the purpose of this study, I will concentrate on other aspects of the planning process, those related to the procedures, tools and methodologies. 2. FROM TOWN PLANNING TO INTEGRATED URBAN PLANNING As a result from the evolution of planning as a discipline and the subsequent recognition of town planners as professionals, a vast number of publications started to appear. Different authors, scholars, theoretists and planners were formulating planning theories and decision making models in order to refine not only the process but also the product of town planning (Faludi, 1973; 1978. Paris, 1982). The planning process was often seen as a cycle, composed of a succession of decision steps that start at the level of policy formulation and problem identification and continues through plan implementation and plan evaluation. The latter stage materialized the cyclic character of planning which was often emphasized by analysis based on system theories. Basically, there was an unanimous concern about the limitations inherent to the rather narrow focus of the ongoing practices of town planning, reflected in land-use and comprehensive physical plans. The emphasis on this aspect had transformed town planners in land planners, physical planners, spatial planners, etc. In 1956, Meyerson (quoted from Robinson, 1965; 1973:171) had already identified some main deficiencies in city planning. According to him, city planning fails in a number of aspects: 1. it fails to provide current and meaningful information to support rational and coherent private and public decision; 2. it is inept to translate the remote, goal-oriented master plans into meaningful and operative goal-action statements for decision making within and without the government; 3. it fails to induce the kind of forward planning at the operating departmental level that would lead to eventual accomplishment of previously adopted long-range goals and policies, and 4. it fails to evaluate the intended and unintended 3 Towards a Pragmatic Neighbourhood Development Model Acioly consequences of previously implemented actions. Within the scope of my study, it is relevant to highlight some early sings appointed by some authors about the need to urgently develop valuative methods to forecast the relative social payoffs that will result from a particular planning decision and to improve the quality and outcome of the planning process, having as a precondition an integrative view of the urban environment (Webber, 1963; 1973:102). The speed of changing which characterizes the dynamics of the urban environment was already highlighting the limitations and the shortcomings of the ongoing practice of town planning due to its emphasis to the physical aspects of cities. Since the mid 60s, town planning practice has been through a process of reform which has basically enlarged its scope towards the notion of urban planning. The latter deals not only with the built environment of cities but also with different social, economic, political and cultural phenomena that influences the overall development processes. Friedman follows this line of thought and broadens the definition of planning by defining it as a way to managing the non routine affairs of the city. He argues in favour of a concept that goes beyond the physical oriented activities, the arrangement of spaces, functions and activities, and above all he links the concept of planning to that of management (Friedman, 1965; 1973:212). By doing so, he introduces a fundamental idea in the discussion and contributes to a very important change in the conception and practice of planning. The idea of management brings along the concept of flexibility and implies a careful manipulation and overview of the existing potentials, opportunities and available resources such as information and availability of data, human resources, financial and material means, institutional capacity, etc. which are preconditions for rationality in the process of choosing a course of action. Another positive development was the recognition of urban design as a specific area of professional knowledge. The separation between areas of competence started to become more explicit and the concern with the process of design and the formulation of spatial configurations was demanding the development of theories, tools and techniques that would help to refine and improve the quality of the physical design output. More and more, there was a claim for a more comprehensive knowledge about the urban environment and the necessity to 4 Towards a Pragmatic Neighbourhood Development Model Acioly obtain reliable information and quick access to changing occurring in the physical and social fabric of cities. Not only the scale but the scope of planning became a matter of concern, and consequently it became evident the need to develop tools to support this integrated view of urban planning. 3. FROM CITY TO NEIGHBOURHOODS It is worth mentioning that the US government's Community Renewal Program-CRP, launched in 1959 as an amendment of the 1949 Housing Act, already reflected the preoccupations expressed by Meyerson, mentioned before in this text. The CRP was concerned with the dynamic aspect and responsive character of urban planning, with the need to generate information that can reveal the changing conditions and problems at the neighbourhood level. Above all, the CRP stressed the multifaceted character of urban planning because after all "urban renewal should not be designed to help buildings" (Robinson, 1965; 1973:185) but to provide realistic responses
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