Designing urban rules from emergent patterns: co-evolving paths of informal and formal urban systems - the case of Portugal

Abstract

In many societies, informality has been a relevant part of the construction of the urban fabric. This is valid along a city’s history and in recent urbanization processes. In the past, informality was in the origin of many of urban planning. Very soon urban planning adopted, as one of their main missions malfunctions in cities. Therefore, the need of formalization became one of the main reasons on the emergence, the control of informal processes. As an answer to informal individual solutions, urban planning responded with standardized rules and the urge of creating spaces fitting into pre-established rules instead of rules fitting into spaces. Urban planning as a discipline has gradually changed its path. The contrast between urbanization promoted under formal urban planning and informal urbanization is only one sign of the mismatch between urban planning actions and informal urbanization dynamics.Considering this tension between formal and informal dynamics, in some cases, planning rules and planning processes continue ignoring informal dynamics; in other cases, planning rules are designed to integrate informality “without losing its face” through “planning games” [1]; and a third and less explored way in which planning systems interact with informality and from that interaction learn how to improve (we consider it a process of enrichment) planning rules while they promote an upgrade of informal interventions [2]. This latter win-win situation in which both informal and formal systems benefit from their interaction is still rare: most of the time either only one side benefits or none benefit from the interaction. Nevertheless, there are signs that from this interaction co-dependent adaptation might occur with positive outcomes for the urban system – in which co-evolutionary dynamics can be traced.We propose to look at the way building rules have been designed in Europe in a context considered successful in the sense of dealing of informality – the one of Portugal. The country experienced a wave of informality associated with illegal urbanization since the 1960’s in the main urban areas. The process of interaction between informal and formal urban systems proved to be a success in statistic terms. Slum clearance reduced the existence of informal occupations to almost zero. Informal settlements involving land tenure have been dealt with in the last two decades with considerable positive impact in the urban fabric.Based on this, with this paper we will evaluate how informal and formal systems are impacting each other and changing along the time the shape of building and of planning rules. For this we will look at the planning tools created to formalize informal settlements in the Lisbon Metropolitan Area from the last forty years to see how urban and building rules were adapted to respond to the specific needs of informal settlements; how this adaptation moved from temporary and exceptional to permanent rules; finally, how were these new rules able to “contaminate” the general planning and building codes. We aim that these findings would help us to contribute to a “healthier” relation between formal and informal urban systems, not ignoring each other, not controlling each other but instead learning with each other. By achieving this, planning systems become more responsive; on the other hand, informal occupations can be upgraded without being destroyed with the contribution of the planning systems.