INNOVATION FOR PUBLIC POLICIES INEQUALITY ON TRACKS AND WHEELS A STUDY ABOUT ACCESS TO THE METRO AND THE BRT IN RIO dapp.fgv.br [email protected] +55 (21) 3799.4300 CITIES Ficha catalográfica elaborada pela Biblioteca Mario Henrique Simonsen/FGV Inequality on tracks and wheels (Recurso eletrônico): a study about access to Metro and the BRT in Rio / Coordenação Marco Aurélio Ruediger. – Rio de Janeiro : FGV, DAPP, 2016. Dados eletrônicos. Inclui bibliografia. ISBN: 978-85-68823-27-9 1. Transporte urbano – Rio de Janeiro (RJ). 2. Planejamento urbano – Rio de Janeiro (RJ). 3. Política urbana – Rio de Janeiro (RJ). 4. Espaços públicos – Rio de Janeiro (RJ). 5. Sistema BRT de transporte. 6. Metrô. I. Ruediger, Marco Aurélio, 1959- . II. Fundação Getulio Vargas. Diretoria de Análise de Políticas Públicas. CDD – 353.953 INEQUALITY ON TRACKS AND WHEELS A STUDY ABOUT ACCESS TO THE METRO AND THE BRT IN RIO Rio de Janeiro, 2016 FGV is an institution with a philanthropic, educational, technical and scientific nature, created on 20 December 1944 as a private entity, whose aim is to act in a broad manner in all questions with a scientific nature, with an emphasis on the social sciences, administration, law, and economy, contributing to the socio-economic development of the country. Head Office Praia de Botafogo 190, Rio de Janeiro | RJ, CEP 22250-900 ou Caixa Postal 62.591 CEP 22257-970 | Tel: (21) 3799-5498 | www.fgv.br Founding President Luiz Simões Lopes President Carlos Ivan Simonsen Leal Vice-Presidents Sergio Franklin Quintella, Francisco Oswaldo Neves Dornelles e Marcos Cintra Cavalcante de Albuquerque Director Marco Aurelio Ruediger DAPP +55 (21) 37994300 | www.dapp.fgv.br [email protected] TEAM IMPLEMENTATION TEAM Coordination Marco Aurelio Ruediger Research Coordination Janaina Fernandes Researchers Miguel Orrillo Bárbara Barbosa Margareth da Luz Translator Eoin O’Neill Irene Portela Graphic project Rebeca Liberatori Braga CITIES INEQUALITY ON TRACKS AND WHEELS A STUDY ABOUT ACCESS TO THE METRO AND THE BRT IN RIO THE CASE OF THE METRO AND THE BRT IN RIO DE JANEIRO CITY This is a study of access to the city. The focus is egalitarian access to public spaces, to cultural goods, to the collective and social use of the city, as well as to opportunities for employment and income. It is not a study of fares, nor of transport engineering, but rather a study of the possibility of access. Theoretical assumptions from different areas of knowledge were used, and a special methodology was developed to allow us carry out the analysis. Therefore, it is a discussion about socio-spatial justice, something which configures a “just city”. Susan Fainstein (2011) described the principles of a just city as democracy, equality, and diversity. She concluded, based on the research she carried out, that absolute equality in socio-spatial terms is not observable, since the strengthening of some of these principles often causes tension with others. Rather, equality involves respect for the equitable distribution of the “benefits” and “disadvantages” of urban policies. Equality does not at all imply the suppression of frontiers and differences between groups and localities. However, equality considers frontiers as porous, leaving individuals free to choose where they want to circulate and meet, allowing exchanges and the intermixing of different social classes, promoting dialogues which naturally converge or diverge. Access to high capacity transport in this sense becomes a facilitator for this circulation, which is reinforced by the time taken to move around the large Brazilian metropoles. A study published in 2015 by the Sistema FIRJAN demonstrates that over 17 million Brazilians take more than 114 minutes to move between house-work-house in metropolitan regions. Rio de Janeiro was the region with the greatest time of movement, 141 minutes. “In the metropolitan area of Rio de Janeiro, 2.8 million workers take on average 141 minutes to move between house-work-house, considering only those movements above 30 minutes. “ (Sistema FIRJAN, 2015) 6 | DEPARTMENT OF PUBLIC POLICY ANALYSIS In this context, the manner in which the city is planned can cause or induce circulation and interaction. The role of the state and urban planning becomes essential to guarantee spaces where it is possible for social mixing, even without guaranteeing interaction or exchanges. On the other hand, it can allow the transformative potential of this meeting between individuals, groups, and social movements to have the possibility of moving and transforming the urban spaces of the city. Despite recognizing the complexity of this question, this study understands that the public authorities cannot avoid implementing policies, even if temporary, to minimize these inequalities. Among these actions, the question of fares has become relevant. The 2013 Jornadas de Junho revealed the importance of this agenda for urban social movements and cannot be neglected in a discussion of urban planning. The objective of this study is to verify if residents of what are defined and denominated here as the primary zones of high capacity stations have their possibility of access and circulation facilitated by the proximity of public transport. The first study presented here is about the Rio de Janeiro metro and BRT. It was found that there is a great variation in the possibility of access to circulation through these types of transport by the people residing in the primary zones of the metro and the BRT. For example, even for an resident in a primary zone of the metro and the BRT who receives vale-transporte (subsidized transport vouchers) during the week to access their place of work, part of their options of leisure could be concentrated far from their residence. The use of forms of transport just at the weekend, for purposes of leisure, can be hindered by the fare and their possibility of access to the city via the BRT or metro can be compromised. According to IPEA (2012): “Residents of Brazilian urban areas use approximately 15% of their income on urban transport, spending on average around five times more on private transport than on public transport in their daily journeys” (IPEA, 2012). These points reinforce that those who have less income, even living close to a high capacity transport station, can have difficulty moving around the city, depending on the percentage of per capita income spent to use types of transport, which is what is shown in the following study. INEQUALITY ON TRACKS AND WHEELS: A STUDY OF ACCESS TO THE CITY | 7 UNEQUAL ACCESS Description of primary zones of metro and BRT stations This study takes the primary zone of metro and >>Ordinary tickets, which correspond to the full fare BRT stations to be a region in a radius of up to 800 in operation per trip on the chosen type of transport; meters from each station. This is based on the time that people are willing to walk to access high capacity >>Integrated tickets (BUs), which allow the use of transport. more than one transport/ modal service (integrated transport) within the same journey with a pre- Primary zone is, therefore, the area consisting of one determined price. In 2012 there were two categories or more census sectors whose criteria of inclusion is of Integrated Ticket: BUC – Single Carioca Ticket (for the distance of 800 meters from its central point to use in Rio de Janeiro municipality); and BU – Single the central point of the respective station. Inter-Municipal Ticket (covering RMRJ). Afterwards these were unified to cover all of RMRJ in the same The census sector is the territorial unit for the manner. Nevertheless, according to the variations collection of census operations defined by IBGE, of type of transport used in a determined journey, with physical limits identified in continuous areas and two ceiling prices apply: R$3.95 just for integration respecting the political and administrative division of between municipal buses of Rio de Janeiro and trains Brazil (IBGE). In the methodological notes the decision or ferries (RMRJ); and R$ 4.95 for all the other types to use 800 meters and the metric of the calculation of of integrated transport” (GOVERNO DO ESTADO DO distances are explained in greater detail. RIO DE JANEIRO, P.72, accessed in October 2016). It is important to highlight that the geolocation of In relation to how much income is used, the calculation stations of Line 4 of the Metro and some stations of takes into account the value of the full fare in force the TransOeste and TransOlímpica BRT routes were for using the chosen modes of transport, the metro arbitrarily obtained using information from the sites at R$4.10 and the BRT at R$3.80, during 22 working of Metro Rio, BRT and Google Maps, since neither days and 8 weekend days. The return journey was the transport’s digital network plan nor the exact always used, i.e., 44 trips during the week and 16 latitude and longitude of the stations were found on during the weekend, without the subvention of the official websites. The possibility of the rectification single ticket or anything similar. of data in the future is assumed should the digital network be made available by official bodies. The In relation to how much was spent on integrated criteria adopted are explained in the methodological transport, the BRT and the metro, the calculations notes. were made based on the fare of R$7 with the same number of trips. The income of the surrounding areas According to the PDTU of the State Government of was updated according to an approximation of variation Rio de Janeiro in RMRJ (the Metropolitan Region of of the Monthly Employment Report (IBGE) for Rio de Rio de Janeiro) two types of tickets are used: Janeiro, as explained in the methodological notes.