Habitat Debate December 2004 a Message from the Executive Director
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Habitat Debate December 2004 A message from the Executive Director In 19th century Europe and North that the planning function still falls short. America, the slum problem in cities was Slums are multiplying, urban crime is ram- the catalyst for modern urban planning. pant, development keeps sprawling, trans- But we need to bear in mind that it took port efficiency is declining, energy costs well over a century to substantially elimi- are rising, health problems increase, and nate those slums. many citizens are walling themselves off Slums are the worst, most degrading from others. What’s happening here? Has manifestations of urban poverty, depri- planning failed and does it need to be re- vation, and exclusion in modern world. placed by a more effective approach? And it is a fact that today we have both As the articles in this issue reveal, plan- the technical know-how (such as Geo- ning is accepted everywhere as a neces- graphical Information Systems un- sary function – a hallmark of human soci- dreamed of in the 19th century) the power ety. Municipalities, communities, and and the resources to plan effectively for states all engage in planning. Where it is the target established in the Millennium not working, however, there has been Declaration. much experimentation and innovation to As we enter the 21st century, urban plan- make planning fit the prevailing mood and ning faces the challenge of harmonizing political mode of governance. There have the global norms with locally distinct cul- been some striking success stories. here was a time when messengers tural conditions. While the broad frame- The question raised in this issue of the were executed for being the bear work for planning can have universal ap- Habitat Debate is how to make planning T-ers of bad tidings, and to blame peal, societies and countries should si- more relevant. It would seem that com- urban planners for our urban crises is like multaneously be able to develop their munication throughout the development turning back the clock and going back in own proposals and solutions. Rapid process is part of the key. Open and trans- history to a time when no-one could have change, driven mainly by business and parent governance and inclusive are an- foreseen the problems that we now face. technology, has to be tempered by cul- other big part. Likewise, some humility. We live in a world where UN-HABI- ture and local specificities. Planning thus needs to be interdiscipli- TAT research shows that nearly 1 billion In recent decades, spatial planning has nary, taking in social and cultural situa- people, or 32 per cent of the global urban been grossly maligned. Many of the ills tions. There is no substitute to planning. population languish in slums, mostly in of urbanization have been conveniently But if it is not anchored to local condi- developing countries. In a process that dropped upon the doorstep of urban plan- tions, it can easily be substituted by an- we call the urbanisation of poverty, the ners. Planning, however, does not exist archy. locus of global poverty is moving into as an independent function or as a sepa- Thus the success of planning in the cities. rate agenda. It is one of the responsibili- future may depend on the success with We have to find a concept of urban ties of government to anticipate the fu- which we can cross the boundaries be- planning, which combined with concerted ture and to prepare for it. tween the arts, design, urban and spatial action by local authorities, national gov- There are many reasons why planning planning, public policy, market forces, ar- ernments, civil society actors and the in- may not result in a better living environ- tistic creativity and cultural management. ternational community, works to alleviate ment for all. Planners’ advice may be good Planning needs to be continuously re- the plight of slum dwellers. If we fail, the or bad, taken or ignored. Planners may invented. number of slum dwellers is projected to not have adequate training. Politicians double over the next 30 years to 2 billion, may have a distorted sense of the public making the cauldron of misery and the interest. Plans may be unrealistic, given potential for social unrest twice as great their resource requirements. Powerful eco- Anna Kajumulo Tibaijuka as it is today. Member States of the United nomic interests may feel threatened by Nations are committed to “achieve a sig- planning recommendations. Plans may Executive Director nificant improvement in the lives of at not reflect the priorities of community least 100 million slum dwellers by the year groups or business interests. Implemen- 2020”. UN-HABITAT is the agency man- tation authority may be fragmented dated to help governments, municipali- among jurisdictions. ties and all urban actors find the way here. In trying to correct these deficiencies, It means that urban planners and their planning has opened itself to public par- political leaders have not only to address ticipation, to a more realistic view of the needs of slum dwellers for better shel- stakeholder interests, to advocacy work, ter, but also the broader problems of ur- to setting social priorities, to environmen- ban poverty, unemployment, urban gov- tal impact analyses, to multi-jurisdictional ernance, low incomes, and a lack of ac- management and other areas where con- cess to basic services like water and elec- sensus signals good governance at work. tricity. Yet, in today’s world, it would appear 2 Habitat Debate December 2004 3 Global Overview Habitat Debate December 2004 Planning for a better future By Paul Taylor This often left the plans out of date even cern for governance. Management and before they were completed. In the de- managerialism were outflanked, just as rban spatial planning has been veloping world, most of what was imple- planning had been, by an inability to re- in the doldrums for many years. mented had not been planned, and infor- spond fast enough to changes in the ex- UIt has typically been regarded as mal development overwhelmed the as- ternal environment. Management might be old-fashioned, technocratic, and bureau- sumptions and projections of the plans more realistic and efficient, but not nec- cratic, stifling development by wrapping and their visions of orderly development. essarily forward looking. Governance, it up with red tape. Cartoonists depict The world was proving just too chaotic with its emphasis on participation and in- planners as faceless officials, insensitive and dynamic to be encompassed within clusion, responds to the growing demand to the public and responsible for many the bounds of comprehensive master from civil society to address the needs of of the ills faced by modern cities. plans. the poor in a manner that reflects their From the 1950s to the 1970s ur- And even if plans were produced priorities, not just those of planners, tech- ban planning, despite isolated manifes- expeditiously, they took little account of nocrats and administrators. Various glo- tations of public unease with the direc- implementation realities. Plans were of- bal programmes such as UN-HABITAT’s tion it was taking, was a magnet for the ten the product of specialised agencies Urban Management Programme and the brightest and best of those involved in and departments composed of physical Sustainable Cities Programme have pio- government. It was the embodiment of planners. They had little power over neered techniques of participatory urban the dream of the brave new world. Plan- sectoral and infrastructure provision en- decision making with a sectoral focus on ners were socially and politically progres- tities, which were generally reluctant to themes such as the environment, poverty sive. Planning was seen as the means by implement plans in which they hardly had and gender. which government could deliver equi- any say. The only power left to planners table and economically efficient devel- was the control of land use, which they The revival opment in both the developed and the exercised through costly, bureaucratic, developing world. Indeed, in a number So, just as we may have been con- quasi-legalistic and often punitive re- sidering its demise, everywhere there is of countries in the economically devel- gimes. The reliance on this tool has been oped north, it has fulfilled many of its an expectation for a revival in urban plan- one of the main reasons for the alienation ning. This was evident in a vigorous de- expectations. Land use planning has of the citizenry from the process con- been an essential component in the avoid- bate at the Second World Urban Forum in ceived as having public – as opposed to Barcelona in September 2004. The revival ance of city sprawl, economical land use private – interests as its focus. and efficient infrastructure provision, of planning has been evident for some One of the greatest failures of time throughout Western Europe, where especially public modes of transport. planning in the developing world has But, as the neo-liberal world view new approaches to strategic and eco- been its inability to respond to growing nomic planning have incorporated spa- gained dominance during the 1980s, poverty and exclusion. Planning dealt some of the problems of urban spatial tial planning components. with the world through planners’ eyes, The main reason for this is the rec- planning became more evident. But to and planners rely extensively on data. ascribe this to the fall-out of the ascen- ognition that planning is a much-needed The formal economy produces data, but integrative mechanism. Choices need to dancy of a new development model does by definition, the informal economy and not wash. Planning often failed the tasks be made between infrastructure sectors, society is less likely to.