Politics of Urban Transformation in Pre-Olympic Rio de Janeiro: Contentions and Confluences Between Citizen- and Market-centred Agendas

Abstract

This article uses an urban upgrading programme (PAC Favela) as a lens for examining the contextual dynamics and forms of neoliberal urban development in pre-Olympic Rio de Janeiro. Critical scholarship has contended that Rio’s entrepreneurial governance and mega-event induced state of exception pushed forward a neoliberal urban agenda. While not rejecting this overarching narrative, the present article argues that this tendency was shaped by contextual politics at different scales, producing variegated forms of urban development. At the federal level, urban policy and practice under lulismo – the political ideology characterizing the 2002–2016 Workers’ Party governments – was marked by an ambition to achieve both social and economic transformation. The PAC Growth Acceleration Programme’s investments in favela upgrading were emblematic of this ambition. Through a multi-scalar case study of the social and economic interests and actors at the community, state and federal levels that engaged with PAC in the Rocinha favela in Rio, the article shows that PAC’s interventions were the outcome of contentions and confluences between citizen- and market-centred urban agendas. While the balance gradually shifted in favour of the market-centred, neoliberal agenda, outcomes should still be seen as inherently hybrid. On the one hand, the case of PAC in Rocinha presents a perspective ‘from below’ and important insights into the contested and contradictory nature of urban transformation in pre-Olympic Rio de Janeiro. Furthermore, it illustrates the necessity for contextual analyses of perceived de-politicized neoliberal entrepreneurial urban governance and development.