Towards a Method of Participatory Planning in an Emerging Metropolitan Delta in the Context of Climate Change the Case of Lower Paraná Delta, Argentina
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25 2018 Towards a Method of Participatory Planning in an Emerging Metropolitan Delta in the Context of Climate Change The Case of Lower Paraná Delta, Argentina Verónica M.E. Zagare Towards a Method of Participatory Planning in an Emerging Metropolitan Delta in the Context of Climate Change The Case of Lower Paraná Delta, Argentina Verónica M.E. Zagare Delft University of Technology, Faculty of Architecture and the Built Environment, Department of Urbanism TOC abe.tudelft.nl Design: Sirene Ontwerpers, Rotterdam Layout: Phoebus Panigyrakis ISBN 978-94-6366-090-7 ISSN 2212-3202 © 2018 Verónica M.E. Zagare All rights reserved. No part of the material protected by this copyright notice may be reproduced or utilized in any form or by any means, electronic or mechanical, including photocopying, recording or by any information storage and retrieval system, without written permission from the author. Unless otherwise specified, all the photographs in this thesis weretaken by the author. For the use of illustrations effort has been made to ask permission for the legal owners as far as possible. We apologize for those cases in which we did not succeed. These legal owners are kindly requested to contact the publisher. TOC Towards a Method of Participatory Planning in an Emerging Metropolitan Delta in the Context of Climate Change The Case of Lower Paraná Delta, Argentina Dissertation for the purpose of obtaining the degree of doctor at Delft University of Technology by the authority of the Rector Magnificus Prof. dr.ir. T.H.J.J. van der Hagen Chair of the Board for Doctorates to be defended publicly on Wednesday 17, October 2018 at 12.30 o’clock by Verónica Mercedes Esther ZAGARE Master in Urban Economics, Torcuato Di Tella University, Argentina Architect, University of Belgrano, Argentina born in Buenos Aires, Argentina TOC This dissertation has been approved by the promotors. Composition of the doctoral committee: Rector Magnificus, chair person Prof.dr.ir. V.J. Meyer Delft University of Technology, promotor Dr. D.A. Sepúlveda Carmona Delft University of Technology, copromotor Independent members: Prof.dr. F. Klijn Delft University of Technology Prof. D. Kozak University of Buenos Aires, Argentina Drs. R. Peters Global Centre of Excellence on Climate Adaptation Prof.dr. P. Silva Leiden University Prof.dr. W.A.M. Zonneveld Delft University of Technology TOC Acknowledgements Obtaining a PhD has been a gratifying but difficult journey, and I know in my heart that this thesis wouldn´t have been possible without the encouragement and accompaniment of many people. First, I would like to express my sincere gratitude to my promotor, Prof.dr.ir. V.J. (Han) Meyer, for the continuous guidance of my PhD research. His support and patience helped me not only during the time of research but also in the stage of writing. He always motivated me to improve my work sharing his immense knowledge on the subject and bringing up critical questions and precise comments, which contributed to my research and to the publications and presentations in conferences that I have developed over these years. Besides my promotor, I would like to thank my daily supervisor, dr. Diego Sepúlveda for his support during my research and for his accompaniment during the workshops that were developed to implement the method designed in this thesis. I´m also grateful to Dr. Daniel Kozak (CEUR, CONICET), for his recommendations and opinions throughout my research. During these years, Delta Alliance has given me the great opportunity to coordinate the Delta Alliance Argentinean Wing. It allowed me to be part of different activities and learn about experiences of delta planning around the world. I´m proud of being part of such an active network, and I´m grateful to Renske Peters, for all her encouragement and kindness, and also to Cees van de Gutche, and Kim van Nieuwaal. In Argentina, I also thank the representatives of the organizations and institutions that are part of the Argentinean Wing, for their trust and collaboration: Ing. Daniel Perczyk (Fundacion Torcuato Di Tella), Dr. Rubén Quintana (Fundación Humedales, Wetlands International), Dr. Cynthia Goytía (Centro de Investigaciones de Políticas Urbanas y Vivienda, Universidad Torcuato Di Tella), Ing. MSc. Darío Ceballos (Instituto Nacional de Tecnología Agropecuaria – INTA Delta), Dr. Patricia Kandus (Instituto de Investigaciones e Ingeniería Ambiental, Universidad de San Martín) and Arch. Andrea Behar (Instituto Superior de Urbanismo -ISU- of the University of Buenos Aires). I especially express my gratitude to the Instituto Superior de Urbanismo (ISU) of the University of Buenos Aires, where I started my research, especially to Dr. Juan Manuel Borthagaray (1928-2016), whom I remember with great affection. One of the parts of this research consisted of the development of workshops, which required hard work in order to guarantee that these activities would meet the expectations TOC of the research. I thank Lic. Daniel Blanco (Fundación Humedales, Wetlands International) who accompanied me through these activities with expertise. I also thank Hernán Carlino (Fundacion Torcuato Di Tella) and I appreciate the presence of all the actors that participated in the workshops. Among these actors, I especially thank Arch. DPU. Margarita Charriere (Observatorio Metropolitano – CPAU), Dr. Alejandro Rossi, Dr. Rubén Quintana, and Sr. Fernando García de García for their presentations in the workshops. I must also thank the Lincoln Institute of Land Policy for their support for developing the first workshop carried on in 2013, Fundación Cambio Democrático for being in charge of the facilitation of the second workshop in 2015 and Todor Kesarovsky, for his expertise in GIS, which was crucial for the interactive mapping carried on also in the second workshop. I would like to show my appreciation to Dr. Agustina Martiré, who contacted me with my promotor and with TUDelft for the first time some years ago when still doing a doctorate was a dream for me. Thanks to the support of the secretaries in the department of Urbanism, Ms. A. Leeuwenburgh, Ms. A. Roos, Ms. K. Visser, Ms. D. Hellendoorn and Ms. D. Karakuza, who always helped me and guided me given the fact that I was most of the time far away from the Netherlands. Finally, I definitely could not have done this PhD without the help and support of my parents, Mercedes and Oscar, who always supported me in all the challenges I set for myself. My mother encouraged me from the beginning, and helped me taking care of my children, both in Argentina and in our trips to the Netherlands, so that I can develop my work. Without her love, it would have been impossible to accomplish this goal. I also want to thank from the bottom of my heart my beloved husband, Christian, who has accepted to accompany me always and has done so, with all the love of the world. It has not been easy to travel this road, which included many trips to the Netherlands and to other places, to which he always accompanied me with joy and love, accommodating his work commitments to be always by my side. His support and love have been vital in the development of this project. And finally, I want to thank my children, Amelia and Augusto, who have given me the necessary strength to finish my research, especially in the most difficult moments, and accompanied me day by day with their joy and love. I hope they enjoyed the trips to the Netherlands and had fun during their adventures in the Dutch and Argentinean Deltas, remembering everything with happiness, as I do. TOC Contents 1 Introduction 15 1.1 Introduction 15 1.2 Problem Statement 17 1.3 Towards a Theoretical Understanding and Methodological Approach to the Complexity of Metropolitan Deltas from the Perspective of Spatial Planning 19 1.4 The Paraná Delta as a Complex System 20 1.5 Research Question 21 1.6 Outline and Structure of the Thesis 22 2 Towards a Broad Comprehension of Emerging Metropolitan Deltas 25 2.1 Introduction 25 2.2 Definition and Classification of Deltas 25 2.2.1 Deltas as determinants for the development of cities 31 2.2.2 Drivers and pressures over deltas 32 2.3 Considerations Regarding the Concept of Metropolitan Delta 33 2.4 Concluding Remarks 42 7 Contents TOC 3 Towards a Methodological Approach for Planning, Design and Governance in Emerging Metropolitan Deltas 43 3.1 Introduction 43 3.2 Complex Adaptive Systems Approach to Metropolitan Delta Analysis 44 3.2.1 Systems and the “General System Theory” 44 3.2.2 Beyond System Theory, Complexity Theory 46 3.2.3 Complex systems 48 3.2.4 Emerging metropolitan deltas as complex adaptive systems 49 3.3 Planning and Design Approaches 50 3.3.1 Theory of Communicative Action 53 3.3.2 Collaborative approaches 55 3.4 Governance In Complex Adaptive Systems 56 3.4.1 Stakeholder synchronization 57 3.5 Governance, Planning and Design Experiences in Emerging Metropolitan Deltas 58 3.5.1 A change in paradigm of flood defense and planning 60 3.5.2 The Layer Approach and the introduction of the use of scenarios in delta planning 61 3.6 Linking Climate Adaptation and Urban Development from an Actor-oriented Perspective 62 3.6.1 Characteristics and Types of Scenarios 64 3.7 Concluding remarks 66 4 The Paraná Delta 69 4.1 Introduction 69 8 Towards a Method of Participatory Planning in an Emerging Metropolitan Delta in the Context of Climate Change TOC 4.2 The Natural Delta (substratum or base layer) 70 4.2.1 Landscape and geomorphology 70 4.2.2 Ecosystem functions and services 75 4.2.3 Climate Change 76 4.3 Networks and Regional Development (network layer) 80 4.4 The historical evolution of urbanization in the Lower Paraná Delta and its surroundings (occupation layer) 87 4.5 Institutional Context and Governance in the Paraná Delta (governance layer) 99 4.5.1 Federal organization of the country 99 4.6 The Municipalities of Tigre and San Fernando 112 4.6.1 The Municipality of Tigre 113 4.6.2 The Municipality of San Fernando 126 4.7 Metropolitan Governance in Buenos Aires 132 4.7.1 Legal considerations regarding provincial capacities and limitations 134 4.7.2 Governance structure in the Paraná Delta 135 4.8 Dichotomies within the System 138 4.8.1 Continent vs.