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This is the first book to address future informal settlements at the global scale. It
argues that to foster favorable conditions for the sustainable evolution of future
informal cities, planners must consider the same issues that are paramount in
formal urban developments, such as provision of:
Planning and Design for Future Informal Settlements makes a call for responsible action
to address the urban challenges of the developing world, suggesting that the vitality
of informality, coupled with spatial design and good management, can support the
efficient use of resources in better places to live.
The book analyzes the strengths and weaknesses of informal urbanism and the
challenges faced by the fast-growing cities of the developing world. Through case
studies, it demonstrates the contributions and limitations of different attempts
to plan ahead for urban growth, from the creation of formal housing and urban
infrastructures for self-built dwellings to the improvement of existing informal
settlements. It provides a robust framework for planners and designers, policy
makers, NGOs, and local governments working to improve living conditions in
developing cities.
David Gouverneur was National Director of Urban Planning for the Ministry of
Urban Development of Venezuela and co-founder of the Urban Design Program
and Director of the Mayor’s Institute in City Design at Universidad Metropolitana
in Caracas. He has 33 years’ experience of teaching Architecture, Urban Design,
and City Planning. His professional practice focuses on urban plans for distressed
neighborhoods, upgrading informal settlements, historic districts, new centralities,
and areas affected by disaster. He is currently Associate Professor in Practice of the
Department of Landscape Architecture at the University of Pennsylvania, teaching
Landscape Urbanism Studios, Cross-disciplinary Design Studios, and Electives,
with an emphasis on developing countries.
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Planning and Design for Future Informal Settlements
Shaping the self-constructed city
David Gouverneur
First published 2015
by Routledge
2 Park Square, Milton Park, Abingdon, Oxon OX14 4RN
and by Routledge
711 Third Avenue, New York, NY 10017
List of figures xi
Acknowledgments xvii
Foreword xix
Introduction: Shaping the future of the self-constructed city: a call to action xxiii
1.2 When city planning and urban design work against informality 8
1.3 Housing and urban performance 10
1.8 Conclusions 33
vii
Contents
2.1.4 Rise and fall of the plans for the improvement of informal
settlements 57
viii
Contents
6 Enacting 203
6.1 Advocating for the IA initiative 203
ix
Contents
Conclusions: Looking into the future of the cities of the developing world 261
Bibliography 269
Index 279
x
Figures
xi
Figures
2.4 Urban design plan for the improvement of Consorcio Social Las
Casitas del Inca settlement, Caracas, Venezuela. Project and photo:
Carmen Ofelia Machado 50
2.5 Proposed recycling and community center in Barrio La Morán,
Caracas, Venezuela. Project and photos: Enlace Arquitectura, Elisa Silva 55
2.6 Reoccupation of the Catuche Ravine, Caracas, Venezuala.
The preexisting settlement was razed by torrential flooding in
December 1999 Photo: David Gouverneur 56
2.7 Virgilio Barco park-library, Bogotá, Colombia. Project: Rogelio
Salmona. Photo: David Gouverneur 64
2.8 Metro-Vivienda/Patio Bonito Project adjacent to informal settlements,
Bogotá, Colombia. Project: Konrad Bruner, Gustavo Perry, Eduardo
Samper, and Ximena Samper. Photo: Rudolf Fotografía, Archives of
Germán Samper 69
2.9 (Top) El Transmilenio, BRT System. (Bottom) Alameda El Porvenir,
pedestrian and bike promenade. Bogotá, Colombia. Photos: Oscar
Grauer 73
2.10 (Top) El Tintal park-library. Project: Daniel Bermúdez. (Bottom)
Community park in the El Porvenir neighborhood. Bogotá,
Colombia. Photos: David Gouverneur 76
2.11 Ceremonial plaza/amphitheater in Parque Simón Bolívar, Bogotá,
Colombia. Photo: David Gouverneur 78
2.12 (Top) Metro-Vivienda. Project: Eduardo Samper. (Bottom)
Colsubsidio. Project: Germán Samper and Ximena Samper. Bogotá,
Colombia. Photos: David Gouverneur 80
2.13 Parque de La Luz/Plaza Cisneros. Medellín, Colombia. Photo: David
Gouverneur 85
2.14 Open spaces and Biblioteca España (library), Barrio Santo Domingo,
Medellín, Colombia. Photos: Oscar Grauer 88
2.15 Cultural center in the settlement of Moravia. Medellín, Colombia.
Project: Rogelio Salmona. Photo: Oscar Grauer 91
2.16 (Top) Open space below station of the San Javier Metro-cable line.
Project: Empresa de Desarrolho Urbano, Medellín. (Bottom) Parque
Explora. Project: Alejandro Echeverri. Medellín, Colombia. Photos:
Oscar Grauer 93
2.17 Promenade and housing relocation program along Juan Bobo
Ravine, Medellín, Colombia. Photo: David Gouverneur 99
xii
Figures
xiii
Figures
xiv
Figures
xv
Figures
xvi
Acknowledgments
This book was a great collaborative effort from a large group of peers working
in different cities, sharing their knowledge and supporting me with inexhaustible
patience as the manuscript took shape. My special gratitude goes to those who
toiled closely with me and offered critical feedback, theoretical references, edits,
graphic production, and continuous encouragement. This team, which included
some of my closest collaborators and friends, was passionately engaged in
envisioning a better future for the self-constructed city.
I am honored that Professors Sergio Fajardo and Alejandro Echeverri have
written the foreword for this book. Sergio Fajardo is the former Mayor of Medellín
and current Governor of the Colombian Department of Antioquia, and Alejandro
Echeverri was the General Manager of La Empresa de Desarrollo Urbano de Medellín
during Fajardo’s municipal mandate. Their contributions to Medellín were pivotal
to the transformation of troubled informal settlements and overall improvement
of the city’s performance. Their political and urban vision had a major influence
on this work.
My motivation to examine the future of informal settlements also stemmed
from the creative work of talented professionals, leaders, and academics. In
particular, I am thankful to Peter Land, Germán Samper, Teolinda Bolívar, Josefina
Baldó, Federico Villanueva, José Antonio Abreu, Gail Epstein, and Udo Weilacher
who shared their time and insight as the book was emerging, providing invaluable
feedback.
I am profoundly grateful for the mentorship and support of Marilyn Taylor,
Genie Birch, Cindy Sanders, Jonathan Barnett, James Corner, Lindsay Falk, Frank
xvii
Acknowledgments
Matero, David Leatherbarrow, John Dixon Hunt, and Richard Weller from the
School of Design at the University of Pennsylvania.
Next, I would like to acknowledge Oscar Grauer and María Altagracia
Villalobos, both of whom accompanied me through the entire process of
producing this publication. Their help with concept development, close exami-
nation on the content of every chapter, and search of adequate and accurate
sources to support the ideas here contained, certainly qualifies them as co-authors
of this book. Without them this publication would not have been possible.
I would like to express my gratitude to Nuri Bofill and Aron Cohen for helping
me visualize the scope of this project. Special recognition should go to Ian Sinclair
and Aaron Kelly for revising the text with acute eyes as the chapters were being
assembled, decanting the ideas, providing clarity and polishing the language, and
to Margari Aziza Hill who carefully crafted the final edition.
I would like to thank those who collaborated with me, providing information
and structure to early versions of important chapters, including Nick Pevzner, who
contributed to the Introduction and the Venezuelan case study, Tomás Neu, who
worked on the Colombian case studies, both sections contained in Chapter 2, and
Thabo Lenneiye who contributed to the Zimbabwean case study examined in
Chapter 7.
I sincerely thank David Maestres, Trevor Lee, María Altagracia Villalobos,
Autumn Visconti, and Leonardo Robleto for the preparation of images and
graphic design that enrich this book, as well as to my peers, students, and friends
that provided photographic material.
I would also like to commend the faculty and students who participated in
the series of exercises that helped shape and illustrate the Informal Armatures
approach, and particularly to those whose work is included in the publication.
I extend my gratitude to my close friends and peers, Graciela Flores, Ximena
Samper, Peter Rowe, Ken Greenberg, David Graham Shane and Theodore
Eisenman, for their support and guidance.
Finally, I would like to thank my family members and extended family Elliot
and Elisa Fineman, Elsa Brambilla, Mercedes Elena Torres and Ana María Torrico,
for their love and encouragement.
xviii
Foreword
We first met David in 2007 when La Fundación para la Cultura Urbana invited us
to Caracas to share the process of change that we had led in Medellín. David, who
acted as moderator, bombarded us with questions as we concluded our lectures.
This was the beginning of our friendship, since it was evident that we shared the
dream of transforming our cities by improving our barrios and working with the
people. Caracas and Medellín mirrored each other in terms of their structural
problems of inequality and violence, but also in terms of the opportunities for
improving living conditions that they both provide.
The intense and complex processes of transformation that have been taking
place in Medellín recently cannot be properly understood without considering
the social forces, specifically political changes in the municipal government, which
resulted in a new respectful and inclusive relationship among public policy, the
citizens, and the territory of the entire city.
This meant providing a space for people, especially for those who had not been
heard in the past, to voice their concerns. In order to fight fear in Medellín, we felt
compelled to produce a relationship that respected diversity and brought together
this fragmented city. We sought to reclaim Medellín’s streets by giving new
meaning to public spaces. Opportunities for education, culture, and innovation
within the barrios were at the core of this vision.
Since 2007, David has been a dynamic advocate for Medellín, spreading the
ideas that were advanced in our city through academic work, critical discussion,
and research. His experience as National Director of Urban Planning for the
Ministry of Urban Development of Venezuela from 1991 to 1996, as well as his
passion and commitment as an educator and researcher in Venezuela and in the
xix
Foreword
USA, have provided him with knowledge and understanding of the processes of
emergent informal urbanization. This book constructs a rigorous discourse, which
is sustained by his ample technical expertise.
In this book, David courageously tackles the complexities of how to physically,
socially, and economically integrate the emergent informal settlements with the
formal city and vice versa. In order to do so, he balances environmental, morpho-
logical, and managerial aspects. David suggests a novel strategy which is reflected in
principles contained in what he calls a “tool kit” that is flexible enough to be applied
in different contexts. He has called his method the “Informal Armatures approach.”
The principles and strategies that unfold in this book are sustained by a clear
ethical attitude that seeks to challenge the prejudices towards the informal city.
Biases towards informality are still reflected in pejorative terminology frequently
used to designate these settlements, such as slums, favelas, or tugurios. The stigma-
tization of these dynamic urban areas impedes the implementation of visions,
strategies, and programs that would help new informal areas attain similar living
conditions and opportunities to those of the formal city.
This book offers a simple working approach that can make a significant
difference in the future of the predominantly informal city, which can be
achieved through a proactive attitude, in conjunction with political will. The ideas
contained in this book may raise many eyebrows, particularly in the governmental
and technical milieus of developing countries, by acknowledging that informal
settlements will be the main form of urbanization in the near future.
David not only accepts this process as a given, but also he proposes a way to
foster informal development in order to enhance overall urban performance.
Reducing socio-economic inequality is a fascinating and controversial idea for
many, but if his ideas prove to be true, they can help achieve a more balanced and
less distressed urban society in this part of the world.
He proposes to channel the informal forces to develop new urban networks
that will become, in time, a middle ground between the formal and the informal.
In addition, he proposes to draw on those forces “ahead of time.” He envisions
an end result that would be a win–win situation where both formal and informal
settlers will gain. David not only includes down-to-earth strategies on how to
accomplish this goal, but also provides us with an urban vision of a more equitable
society in the near future.
We require a new ethos to guide the building of fair urban scenarios that will
blur the distinctions, as well as reduce antagonistic positions, between formal and
xx
Foreword
xxi
Figure 0.1: Highway separating informal settlements of Petare from La Urbina, Caracas, Venezuela
Introduction
Stark disparities mark the widening gap between the developed and developing
worlds. Staggering figures indicate a great demand for innovative approaches to
help diminish unequal living conditions between affluent nations and impover-
ished states and between the wealthy formal districts and poor self-constructed
neighborhoods that comprise most cities of the developing world.
Self-constructed cities, commonly referred to as informal settlements, are
the product of culturally driven individual and communal initiatives. Informal
settlements evolve without prescribed planning, design, or legal guidelines.
Self-constructed cities are a dynamic form of urbanization in constant transfor-
mation, rich in diverse socio-economic relationships and physical morphology and
with a unique ability to adapt to local conditions.
Yet, informal settlements often aggregate haphazardly, creating neighborhoods
covering massive urban areas that typically exacerbate social and environmental
problems. This process excludes close to a billion builder-residents from the
benefits of contemporary, formal city living.
This population is expected to double over the next two decades. As informal
settlements continue to transform and expand, they might soon become the
dominant form of urbanization in most developing countries. The forces that
guide the growth of self-constructed cities have deflected any attempt to tackle
the problems with conventional methods. The sheer number of inhabitants that
will live, and already live, in informal settlements has global implications.
This book presents an overall strategy for guiding the growth of emerging
informal settlements, anticipating that properly supported self-constructed cities
can become balanced, efficient, accessible, and desirable urban areas. Its primary
xxiii
Introduction
xxiv
Introduction
xxv
Introduction
was tested on the ground at a small scale, with simple and cost-efficient tools. It
explores the notion of performative research as a method that fits the challenges
of informal growth.
Chapter 7 adapts the guiding principles and design components of Informal
Armatures to local conditions, demonstrating through academic case studies
how this approach may respond to the nuances of place and culture. It illustrates
the diversity of scales and conditions that the Informal Armatures approach is
expected to address.
The Conclusion considers the potential effects of Informal Armatures on the
future of self-built cities. It suggests that additional research, experimentation, and
pilot projects will be needed to match the methods and design solutions of the
Informal Armatures approach to the coming challenges of developing cities. This
chapter reiterates that inaction is deleterious to the social, economic, and environ-
mental conditions for the majority of the population living in developing countries.
xxvi
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Figure 1.1: 23 de Enero Housing Project surrounded by informal settlements, Caracas, Venezuela
Chapter One
1
Urbanization in the developing world
Figure 1.2: Improved informal settlement of El Risco de San Nicolás, Las Palmas de Gran Canaria,
Canary Islands
the limited impact of social housing programs. The fourth section analyzes the
contributions and limitations of the programs referred to as “Sites and Services” as
urban frameworks for self-constructed neighborhoods. A review of the different
approaches, in Sections 1.5 and 1.6, indicates that all of these models have not been
able to encompass the magnitude and complexities of ongoing urbanization in
developing countries, especially in light of the scale of informal urbanization and
worldwide environmental challenges. Section 1.7, then, suggests that the Informal
Armatures approach may offer a new way forward.
2
Urbanization in the developing world
3
Urbanization in the developing world
frequently reflect the conditions of the imperial centers, or new urban proto-
types are created to facilitate the economic exploitation of acquired territories.
Such models derive from the urban and agricultural systems embedded in the
colonizer’s culture but evolve to accommodate local conditions, eventually
creating hybrid models of occupation. The effects of these colonial formations
were noticed in the first half of the twentieth century. For example, in a 2006
study on the Spanish colonial period in Latin America, Urbanismo Europeo en
Caracas (1870–1940), Arturo Almandoz pointed out that in 1944 Francis Violich
first referred to this effect as “Old World-like” in his 1944 publication of Cities
of Latin America. Housing and Planning to the South.3 As colonization advanced,
local populations adapted to new territorial and urban patterns, or were forced
out or willingly migrated to peripheral areas where they continued to live as
they did prior to colonial occupation. Regardless of the degree of hybridization
during colonial occupation, the newly imposed models resulted in the erosion or
destruction of the indigenous forms of territorial occupation and culture.
In Spanish America for instance, the independence of the colonies brought on
a reshuffling of power within the new nations with the introduction of legal, insti-
tutional, economic, and social reforms. But urban and architectural patterns after
independence remained essentially unaltered. Frequently, the former colonizers
were replaced by powerful, wealthy groups of the local population. They still
adhered to the urban and cultural patterns of the deposed colonizers, maintaining
marginalized groups in the same conditions of economic disadvantage and spatial
exclusion.
Marginalized groups in these societies often share some of the values of the
more affluent and/or educated people, but are strongly influenced by cultural
patterns that stem from pre-colonial customs and recent rural origins or from
other cultural contributions that enriched the cultural palette during colonial
times. Residents of informal areas frequently voice their complaints against living
conditions within their settlements, aspiring to achieve standards closer to those
found in the formal sector. However, they rarely say that their ultimate goal is
to move out, because they consider that their homes and neighborhoods can be
gradually improved. While there may literally be no option for the poor to leave
newly established informal settlements, there is often no will to do so, as emotional
and social bonds flourish in their self-constructed environments.
This description might appear as an oversimplification of the social and ethnic
milieu that is common to many developing countries in which different groups
4
Urbanization in the developing world
5
Urbanization in the developing world
6
7
Figure 1.3: Urban design proposal with peripheral informal settlements, Ciudad Fajardo, Venezuela. Project: Luis Sully, Luis Pernía, and Luis
Urbanization in the developing world
1.2 When city planning and urban design work against informality
For many already independent and developing nations, the twentieth century
represented a new period of external influences and significant territorial and
urban changes. The 2005 revision of the United Nations (UN) World Urbanization
Prospects Report, reveals a shift from a mere 13% of the population living in cities
in 1900, to 29% in 1950, and 50% in 2006.7
This process is characterized by rapid urbanization, industrialization, moderni-
zation, and, in time, participation in global economic processes. Urban growth
generally results from rural-to-city migration and the improvement of health
conditions with decreasing infant mortality rates. As population increases and cities
begin to grow, increasing in their density or expanding their cumulative surface
area, authorities plan ahead and envision how the city may evolve in an orderly
manner. Urban plans determine what would be urban and what will remain rural;
however, this artificial separation not only creates speculative land markets, but also
establishes an inconvenient divide of territorial conditions that should be handled
as an integrated system.
Plans estimate land uses and requirements for the transformation of existing
areas and for city expansion. They also define principal mobility systems, infra-
structure, and services, accompanied by zoning ordinances intended to regulate
quantitative aspects or urban layouts and buildings. Urban planners expect that
developers and leaders of communal initiatives will respect these dispositions and
that projects will be submitted to local planning agencies for the bureaucratic
processes of approval.
These quantity-oriented plans and ordinances are generic by nature and hardly
different from those introduced decades before in industrialized nations. Notably,
these plans and ordinances do not have variables that may address qualitative,
spatial, or performative aspects, nor do they respond to particular contextual and
8
Urbanization in the developing world
cultural conditions of each city and district. The production of such plans and
ordinances is carried out by the professional elite, educated in foreign countries or
in local institutions that are highly influenced by foreign values and urban models.
This sometimes results in planning codes that are not always relevant or applicable
in these contexts.
These models are reflected in legal documents, which for the most part expand
the preexisting urban boundaries, automatically transforming rural land into urban
land. Through this process, planning and legal exercises contradict the socio-
economic reality and spatial and functional requirements of the urban poor. The
central failures of formal urban planning in serving marginalized social groups are
the following:
a. Unequal land-ownership distribution: Frequently the land into which the cities
are expected to expand lies in private hands since they are the product of
the colonial redistributions of agricultural, grazing, or mining estates, which
were passed on to the wealthier groups after independence, remaining idle or
under agrarian production until the new planning instruments deem them
as urban.
b. Radical land value shifts: When enacted, the urban plans generate surplus value
prompting a highly speculative real-estate market.
c. Lack of access to the financial market: The urban poor, particularly at a stage of
early settlement, cannot access the real-estate market simply because they do
not have savings or collateral to obtain loans to acquire a lot or a house within
the formal real-estate market, nor do they have enough income to rent a house
and pay utilities for a dwelling within this market.8
As a result of these factors, the production and approval of urban plans push the
urban poor out of the city boundaries onto distant sites without services and
frequently onto land that is considered unfit for urbanization.
As National Director of Urban Planning in Venezuela in the early 1990s, I
and my team enacted hundreds of plans of this nature, all having similar effects.
Despite our efforts to house the urban poor, the plans led to their exclusion from
those areas. In some cases we produced detailed urban design proposals, depicting
the three-dimensional, environmental, and experiential qualities of the urban
scenarios. Despite these intricately crafted design efforts, a large percentage of the
urban expansion areas incorporated in these instruments would remain vacant
9
Urbanization in the developing world
for years after the plans were produced. Meanwhile the informal sector occupied
“extra-urban sites,” often of larger dimension and higher population density than
those that had been envisioned in the plans.
The challenge now is to intelligently guide rampant urbanization and include
the population currently excluded from the formal real-estate market. Preemptive
planning and design should provide for informal occupation, minimize the differ-
ences between formal and informal settlement, foster sustainable living conditions,
and promote a balanced relationship between the urban and the rural, particularly
in the threshold between them.
10
Urbanization in the developing world
Figure 1.4: Ciudadela Colsubsidio, Bogotá, Colombia. Project: Germán Samper and
Ximena Samper
11
Urbanization in the developing world
12
Urbanization in the developing world
13
Urbanization in the developing world
those units create. These programs also develop housing tailored to minimum
design and construction standards. Such solutions offer little possibility for
improving the conditions either of public space or within the dwellings, which is
a valuable attribute of informal development.
These programs are similar in building type and scale to those introduced in
industrialized nations, reflecting the state of the art and intended to adapt the
solutions to local conditions. Brazil, Mexico, Chile, Colombia, and Venezuela
had built entire neighborhoods of social housing as early as the 1940s. The
Villa Presidente Ríos in Chile (1940), the Multifamiliar Presidente Miguel Alemán
complex, Mexico, D.F. (1948), or the famous Conjunto Copan by Oscar
Niemeyer, in São Paulo (1951) are among the compelling projects completed
in this period.
Other efforts from this period include the works of Karl Brunner, an Austrian
architect from the Technischen Hochschule of Vienna who from 1934 to 1939
was the Director of the Department of Urbanism of Bogotá, Colombia.17
Brunner’s schemes can be considered iterations of the European “ensanches” or
urban expansion areas or streetcar districts. Urbanización El Silencio in Caracas,
Venezuela (1941–1945), was conceived as a mid-rise, inner city urban renewal
operation, which would increase population density, reinterpreting colonial
courtyards, organizing neighborhood clusters, and producing a pedestrian-
friendly, mixed-use district, which included covered sidewalks and high quality
urban spaces at a city scale.
This period is followed by one in which a wide array of architectural, technical,
managerial, and financial solutions were tested following the CIAM principles.
Numerous large-scale residential projects were constructed further away from the
urban centers, typically as “urban islands.” They were serviced by unreliable public
transportation or depended on private car ownership. Residents in these projects
were stigmatized as living in the peripheral “projects” which began to experience
the same problems as similar inner city public housing in industrialized nations,
such as poor maintenance, un-defendable or deteriorated open spaces, high levels
of violence, and general decay.
In the 1950s, the Venezuelan Government carried out what was considered one
of the most ambitious public-housing projects in the world, now known as 23
de Enero. It was an ensemble of dozens of high-rise mega slabs, meant to relocate
recent squatter settlements and accommodate new migrants. The project promptly
became a social disaster as new residents occupied buildings in conditions that
14
Urbanization in the developing world
were all alien to the incoming migrants’ way of life such as adapting to the use
of elevators, garbage chutes, modern kitchens and bathrooms, or paying rents
and utilities. Some residents passed their apartments on to wealthier groups for
a moderate sum and continued to squat in the steep, vegetated areas in between
these buildings, reproducing many of the rural ways of life to which they were
accustomed. Eventually these open spaces were occupied entirely by informal
settlements, for which the planned residential project did not include the provision
of community services and local commercial activities.
Project 23 de Enero was the first of many large-scale social housing projects to
be built in Caracas as a method of replacing informal settlements and accommo-
dating new urbanites. While prolific in the amount of units built, every year the
number of residents in informal areas surpassed those that were accommodated
by formal housing. Today, Venezuela presents the highest housing deficit in the
region,18 and it was estimated that by 2005 32% of the urban population would
live in informal settlements.19
Governments in all developing countries prioritize the provision of housing
for lower-income groups, estimating existing and projected deficits. One difficulty
in identifying the existing housing deficit is the lack of adequate information, as
many residents of informal settlements are not on cadastral records. In many cases,
informal occupants are illegal immigrants without legal documentation. Further,
extended families or different families may live under one roof, and only a portion
of them may be represented. This makes quantification of the housing demands
fiercely speculative.
Additionally, the indicators used to determine the accumulated housing deficits
may vary from one city to another, according to the degree of acceptance and
tolerance towards informal settlements, and the actual conditions of the existing
informal housing stock and districts. For instance, in nations in which informal
development is still seen as unacceptable, local authorities may produce more
conservative estimates of how many new formal social dwellings are required
to replace them all. In countries that have recognized informal settlements as
a valid form of urbanization, more in depth inventories and studies are carried
out to determine the physical condition of the units, the general condition of
overcrowding, as well as that of the urban settings, their accessibility, infrastructure,
services, and so on. This may include an estimate of the dwellings located on
hazardous sites or sites subject to environmental risk, indicating the number of
units that should be relocated.
15
Urbanization in the developing world
The weaknesses of informal settlements most often stem from inadequate sites,
the lack of an overall urban framework capable of structuring public space, and
the lack of provisions for civic services and amenities. These simple considerations
prompted academics, designers, as well as governments and institutions, to focus
more on providing adequate land and urban frameworks, rather than constructing
finished homes.What the urban poor require most is access to jobs, urban amenities,
basic infrastructure, and communal services—all of which, even in the context of
16
Urbanization in the developing world
Figure 1.5: (Top) Board from PREVI Project Competition. (Bottom) Neighborhood block and vision of
how the dwellings could look, Lima, Perú. Entry of Germán Samper
17
Urbanization in the developing world
18
Urbanization in the developing world
19
Urbanization in the developing world
and policy making world-institutions, shifting the paradigms for dealing with the
ever-growing housing crisis of the urban poor.
In the early 1970s, the International Bank for Reconstruction and Development
commissioned Professor Caminos to write a handbook on housing the urban
poor. The result was the Urbanization Primer, which compiled many of Caminos’
notes, observations, and work experiences from the previous decade. Urbanization
Primer is a seminal publication on the topic of low-income housing, a compre-
hensive manual of design criteria and urban configurations that provides precise
information on the advantages and quantitative parameters associated with
different schemes.33 In Venezuela, while at the Universidad de Los Andes in
Mérida, Caminos wrote Gente, Vivienda y Tierra, or People, Housing and Earth,
which explained how housing typologies for urban and rural communities could
adapt traditional construction techniques for social housing that could grow over
time.
Professor Caminos’ son, Carlos, also an architect, became a professor at the
Universidad de Los Andes at the School of Architecture and City Planning. My
first direct encounter with the Sites and Services program was with Carlos as he
produced his own version of the Sites and Services manual for the Ministry of
Urban Development of Venezuela; many years later I would be Director of this
institution. Carlos delivered seminars to instruct this institution’s staff on the agile
use of the Sites and Services handbook, asserting that solid theoretic frameworks
and experimentation should be translated into formats that can be easily grasped
by those willing to implement the proposals.
The work of both Sert and Caminos directly preceded international attempts
to refocus the low-income housing problem on the urban framework rather
than the housing itself. John F. C. Turner, an architect who was intimately
involved in the production of foundational research on informal settlements,
bridged the gaps between low-income housing, informal settlements, and what
would later become the Sites and Services program.34 His two books, Housing
by People and Freedom to Build, an edited collection of essays, would drive the
British architect’s theories on autonomous housing to the international stage.
Examining housing in a variety of contexts, from the United States to Perú,
these two books border on the philosophical in their advocacy and argument
for autonomous housing.35
While his theories and concepts tended to be much more radical than the
World Bank and UN programs upon which he based his ideas, Turner’s research
20
Urbanization in the developing world
21
Urbanization in the developing world
a. It selected a safe site by acquiring land, although it was rather detached from
the existing urban areas.
b. The project was subdivided into sections, allowing the implementation of
various winning entries that avoided monotonous patterns, which often
characterize public-housing projects.
c. The proposals offered different solutions to take advantage of lot configuration,
and to expand the basic housing units.
d. The entries depicted the three-dimensional quality of the new neighbor-
hoods, providing architectural and constructive recommendations on how
the units could be expanded by the users and incorporate productive uses.37
e. The schemes were designed to incorporate community spaces, to have the
ability to be developed over time, and to incorporate future services and public
amenities.38
f. The proposals considered the occupants and utilized local materials sensitive
to climatic conditions, as well as anti-seismic structural components that could
handle simple building technologies.
This competition gained worldwide attention for its innovative design ideas, the
prestige of the different designing firms that were invited to join it, the quality
of projects that were selected, and the implementation of winning schemes
according to the proposals. The competition had a major impact on the state of
the art in Latin America. One of participants of the PREVI competition was
Germán Samper, who still dedicates most of his professional life to publishing and
designing social housing. His work has influenced many generations of planners
and architects. His projects for self-constructed homes notably include the project
La Fragua on which he worked closely with his wife Yolanda Martínez de Samper,
and which began development as early as 1958, in the south of Bogotá in what has
come to be known as Vivienda Productiva (Productive Housing).39 His work refers
to the principles of efficiency in the use of resources, as land and infrastructure
22
Urbanization in the developing world
In 2011, I had the opportunity to visit the PREVI project almost 35 years after
the competition was held and the winning entries were constructed. After over
two hours riding in congested traffic through a continuous extension of informal
settlements in the South of Lima that had not been subject to improvement plans,
my taxi driver announced that we were approaching the PREVI site. I was struck
by how the residents transformed their initial small dwellings or precarious shells
into high quality homes. These homes surpassed any social housing dwellings
in size and design conditions. They were part of a stable neighborhood and it
was evident that residents enjoyed and maintained well-kept small open spaces,
demonstrating that they had defended these areas designed for common uses as
suggested in the original schemes. With widespread public support, the various
stages of the project from site selection, competition, to construction of initial
projects contributed to the development of this vast informal area of Lima.
However, I was rather surprised to see that the current conditions of this high
profile, and, for its time, cutting edge project were only slightly better than those in
the informal, unplanned settlements. Indeed, the conditions were only marginally
better than other informal settlements erected during the same period in Lima.
The PREVI competition seemed too light handed, delivering excellent results on
a community scale, but with less impact at a city scale. Previous visits to upgraded
informal settlements in Río de Janeiro, Bogotá, and Medellín may have raised
my expectations too high. The impact of the informal settlement improvement
plans for these cities, some of which will be analyzed in Chapter 2, stands out in
contrast to the outcome of the PREVI projects. The following considerations may
be derived from this simple comparative analysis:
23
Urbanization in the developing world
The principles behind the Sites and Services program still represent a powerful
working method for addressing challenges of urbanization in the developing
world, particularly operating on a neighborhood scale. In order to take advantage
of limited financial resources and address the pressing demands of the urban
poor, policy makers and designers must choose between providing frequently
small and low standard finished housing for only a few, and offering a richer
urban framework that will benefit greater numbers.This framework includes lots
where the community can construct their dwellings over time, tailoring them
to their needs.
Since the emergence of the Sites and Services program, there have been
important innovations in design solutions that have enhanced its objectives.
Among them is the more recent and acclaimed Elemental program, advanced
under the leadership of architect Alejandro Aravena, working at La Universidad
Católica Pontificia in Santiago de Chile.40 This initiative is based on similar
principles, with solutions that offer unfinished housing shells or “half-homes”
providing initial urban and architectural unity, allowing the users to expand and
improve their dwellings while introducing interior and external changes. The
projects quickly acquire the character of self-constructed settlements; others have
created new neighbourhoods and larger districts.
The Informal Armature approach recognizes the contributions of the Sites and
Services program, taking it to another level by operating on different scales and
addressing more complex urban issues.
24
Urbanization in the developing world
However, each of these approaches or views diminishes their true depth and
vibrancy. Informal settlements have the potential to become dynamic and balanced
urban environments depending upon whether stakeholders take preemptive
measures and utilize innovative tools.
Whether they are the product of spontaneous individual occupation, communal
organization, or “pirate developers,” informal settlements can provide an adequate
shelter and establish local social networks, which are two aspects that institu-
tional planning and public-housing programs usually fail to deliver. These social
networks also foster an intricate web of efficient micro-economic relations.
The crux is that the positive aspects of informal urbanism are usually counter-
acted by severe urban deficiencies. For informal settlers urban components
normally associated with the public realm, such as mobility systems, infrastructure,
open spaces, services, and amenities, are difficult to incorporate without external
support. Consequently, it is challenging for these residents to gain access to
education, information, better-paid jobs, health services, public safety, recreation,
and the benefits of city services and management, all of which characterize the
formal city.
Informal settlements represent for many the opportunity to have shelter, when
they cannot access the formal housing market. The precarious initial wood or
scrap shells usually evolve into solid structures. The dwellings grow in response
to family needs. When the lots are very small, expansion occurs by adding floors.
Families can increase their revenue by creating additional space to rent or use for
commercial or manufacturing activities.
Informal settlers may also respond to the topographic conditions, since no
major land grading is required to build individual homes. In some cases where
on-site water is not available, water introduced to serve the homes brings about
new vegetated areas, or allows for local food production.They are rich and organic
urban forms of an additive and fractal nature, homogeneous in appearance, yet
diverse in their spatial configurations and aesthetics. Informal settlements have a
self-made identity; they are personalized urban products.
Derived from similar lot sizes, building techniques and construction materials,
the general appearance of the neighborhoods results in homogeneity that contrasts
to many areas of the multifaceted formal city. The rather unfinished external
appearance of the homes often contrasts with the level of care provided in the
interior of the dwellings. In advanced phases of consolidation, the rustic facades
25
Urbanization in the developing world
26
Urbanization in the developing world
27
Urbanization in the developing world
informal settlement of Sao Paulo may travel an average of five hours per day to
access the benefits of the formal city. One could argue that these large informal
agglomerations could benefit from the economies of scale, complexities of
relations, modes of production, and cultural richness of an extensive formal
urban area. However, large conglomerates also require forms of governance,
services, infrastructure, modes of mobility, and spatial and functional solutions,
features that informal settlements simply cannot obtain or develop without
external assistance.
The disparities and segregation that separate the formal and the informal, as
well as environmental and social problems within informal settlements, are exacer-
bated as informal settlements expand into ostensibly homogeneous, seamless large
areas. These areas may hold millions of inhabitants, with growth rates higher than
those of the formal areas of the same cities. As described in the UN-HABITAT
report on the State of the World Cities 2010/2011: Bridging the Urban Divide,
by 2010 827.6 million people lived in informal urban areas.41 While the quality of
the dwellings in these areas improves over time, their general performance tends
to decline with traffic congestion, failing infrastructure, and surges of pollution and
crime.
It is important to note that informal settlements do not occur in a vacuum.
They need to extract the resources and the socio-economic drivers that the
existing city has to offer. Thus, two contrary forces operate defining their
location. On one hand, the newly arrived settlers seek proximity to the city’s
services, infrastructure, jobs, amenities, institutions, and social forces—commonly
in the same location as others who have followed similar paths—all of which
may be considered inward forces. On the other hand, without access to formal
real-estate markets, settlers must occupy the settlements at minimum cost and
effort. Consequently they are forced to squat on cheap or undesirable land,
frequently pushed towards the fringe of the cities. These can be considered
outward forces.
Sometimes settlements are located more centrally but on land considered
officially off-limits for occupation, such as flood plains, very steep slopes, under
power or gas lines, or on brownfields. In other words, the occupants try to balance
these forces: gaining access to cheap land and at the same time being in proximity
to the city’s assets.
Communities that are located in the outer fringe face more acute challenges
associated with poor accessibility and lack of public services. They are at a greater
28
Urbanization in the developing world
Figure 1.6: Informal settlements of La Bombilla in Petare, formal city adjacent to the Caracas,
Venezuela
distance from the jobs, services, and amenities of formal cities or the older, and
more consolidated, informal neighborhoods. This balance of forces that shape
access to suitable land and urban assets is at the core of the Informal Armatures
approach.
This book is an urgent call for action and strategic planning, and design for
informal settlements, which will be the dominant form of urbanization. It intro-
duces the notion of Informal Armatures, merging the formal with the informal.
29
Urbanization in the developing world
This approach seeks to take advantage of the adaptive capacities of informal settlers
while avoiding the problems of random occupation and evolution. Informal
Armatures is a hybrid method in which the virtues of the vibrant social informal
fabric are coupled with sustainable planned visions and design interventions.
At first glance, the term Informal Armatures seems contradictory, since,
“informal,” by definition, does not follow “formal” rules or guidelines. However,
in many cities in developing countries, formal land and informal markets are so
inextricably intertwined that no resident can reside in one without the other.
Hernando de Soto thoroughly demonstrates this in his book The Other Path.42 De
Soto speaks of a middle ground, in which the formal and the informal are closely
interrelated.
Despite the economic and functional relations between the two worlds, there
is still an acute physical segregation, as both informal and formal modes of
urbanization have distinct spatial locations, and morphological and performative
capacities. The informal component usually remains in a subordinate state of
dependency. This creates disparities, which are a source of conflict, discrimination,
and resentment that ultimately translates into different degrees of violence. Over
time both components tend to grow apart, and the disparities increase, as do the
tensions.43
Minimizing urban disparities is at the core of the Informal Armatures approach.
Attaining this goal may lead citizens in both formal and informal areas to under-
stand that informality is a part of everyone’s lives, thereby helping to increase
the integration of those marginal segments of society. It is in this middle ground
that changes, in both the physical and non-physical realms, need to occur. The
main contribution of the Informal Armatures approach is that it offers conditions
that allow informality to engage with the beneficial aspects of the formal and
vice versa.
In order to establish a balanced performance of the new predominantly
informal neighborhoods, districts, and cities, it is necessary to identify those
aspects that merit attention and leave untouched those aspects that thrive without
intervention. To do so, it is important to grasp the logics of informality, evaluating
benefits and drawbacks, as well as ponder the methods that others put forward to
deal with informal urban growth. Chapters 2 and 3 will provide the reader with
a wide array of precedents to illustrate the positives to draw on and negatives to
avoid. In more controlled societies or open economies, there is tacit agreement
among politicians and professionals that cities require some form of guidance,
30
Urbanization in the developing world
31
Urbanization in the developing world
What is then the nature of guidance and interventions that may significantly
help new informal settlements prosper? The Informal Armatures approach is
envisioned as a multilayered initiative that incorporates physical and non-physical
aspects of city design. It is built on the belief that it is crucial to understand and
be responsive to the territorial attributes and cultural demands of future settlers,
that it is of paramount importance to select appropriate sites, and to be selective
of the design strategies and operations that will galvanize transformative processes
from the earliest phases of occupation.
The Informal Armatures approach can help residents enhance social networking
within the settlements and also to establish institutional ties, increase levels of
political participation, provide access to information, and acquire useful skills for
income generation, food production, exchange of goods, and marketing of products
and services, which would normally not occur in unaided informal settlements.
It is expected that the physical and performative conditions within areas subject
to the Informal Armatures experiment will allow the community not only to
improve living conditions at a neighborhood scale, but also to establish relations
on an urban, regional, and perhaps even a global scale. The initiatives should be
able to capitalize on the internal forces of settlements, making them less dependent
on global economic forces and political actors. The approach can create scenarios
that encourage civic participation, tapping into the cultural heritage of settlers and
expressing them in new urban environments.
Additionally, Informal Armatures should be able to address contemporary
challenges of urbanism that were not included in previous agendas. Conventional
initiatives of city planning and public housing, Sites and Services programs, simply
could not foresee pressing contemporary challenges. The challenges faced by the
cities of the twenty-first century certainly will include: climate change, scarcity
of water and food production, efficient energy supply, economic interdependency
from financial meltdowns, the quest for identity and cultural recognition, the
production and exchange of goods and diversification of sources of reliable
income, the protection of biodiversity, the close interaction between the rural and
the urban, and social unrest.
Chapter 2 will discuss the recent informal settlements plans and projects which
have begun to explore some of these aspects at a local scale. Informal Armatures
is expected to deal with these complexities in a simple and efficient manner,
fostering the occupation and evolution of new settlements from their early phases,
as they become part of broader and urban systems.
32
Urbanization in the developing world
1.8 Conclusions
Given the unprecedented scale of global urban population growth and the lack
of effective, sustainable urban solutions, a new paradigm for sustainable urbani-
zation is due. This is especially the case after decades of social housing failing as
the principal tool for curbing the problems of informal development. Perhaps we
should shift our attention from the top-down process of creating good houses, to
the creation of neighborhoods and cities as a positive effect on immense human
capital resources.
Land use planning, social housing, and Sites and Services programs developed
in many developing countries during the twentieth century have provided great
insight and concrete results, but have demonstrated severe limitations in dealing
with population growth, limited time frames of implementation, and the demands
of very large urban areas. These initiatives did not anticipate the contemporary
challenges of climate change, water management, food sufficiency, global economic
meltdown, or incremental violence. As captives of their time and context, these
approaches focused exclusively on the socio-economic, design, and managerial
questions involved in the production of urban housing and good neighborhoods.
Despite the certainty with which informal urbanization will churn ahead as a
dominant form of human habitat, the biases against informality, or at least towards
fostering the growth of new informal areas, continue. Even in countries that have
successfully embraced informal settlement improvement plans and have legally
and institutionally accepted informal growth as an inseparable component of
their cities, public sectors are not equipped with the tools needed to manage new
informal growth. Often they are cautious when asked to stimulate self-constructed
neighborhoods. These biases against informality still haunt the predominantly
formal professional and political milieu, and impede the development of adequate
solutions.
This book posits that the Informal Armatures approach is a viable alternative
to cope with the rapid urbanization process of developing countries, meeting the
housing demands of those who cannot access the formal real-estate market by
creating sustainable neighborhoods and better cities. Such an objective will only
be possible if political leaders are willing to embrace new solutions. Sustainable
habitats and dignified living conditions for millions of new urbanites that will
live in the predominantly informal cities of the developing world require creative
thinking, new design, and nuanced managerial paradigms.
33
Urbanization in the developing world
34
Urbanization in the developing world
These disparities have fueled the recent political scenarios, resulting in strong
shifts towards social programs and political inclinations. Some countries have
experienced very good results in dealing with urban growth and minimizing
disparities between the haves and the have nots; others, leaning towards populist
regimes, have not only failed to diminish these disparities, but have also seen an
increase in tension, violence, and higher rates of poverty.
To meet the goal of fostering a more equitable and environmentally balanced
global society, we need to ensure that those who have the vision, resources,
and managerial skills, and the will to act, understand the stakes and commit to
making a difference. Without the political, managerial, institutional, and social
support to engage the visions, values, and dynamics of the informal dwellers,
designs and technical ideas cannot be implemented. The Informal Armatures
approach aims to meet this challenge with a clear set of theoretical, practical, and
pedagogical tools.
Notes
1 See John F. C. Turner. Uncontrolled Urban Settlements: Problems and Policies.
New York: United Nations Centre for Housing, Building, and Planning,
1968, p. 4.
2 Vinicius Valentin and Miguel Raduan. “Colonialism and Underdevelopment
in Latin America.” August 4, 2009. http://www.politicalaffairs.net/coloni-
alism-and-underdevelopment-in-latin-america/ (accessed May 29, 2013).
3 See Arturo Almandoz. Urbanismo Europeo en Caracas (1870–1940). Caracas:
Fundación para la Cultura Urbana, 2006; and Francis Violich. Cities of Latin
America. Housing and Planning to the South. New York: Reinhold Publishing
Corporation, 1944.
4 See Keri E. Iyall Smith and Patricia Leavy. Hybrid Identities. Theoretical and
Empirical Examinations. Leiden: Brill, 2008.
5 These tactics are sometimes used to favor the real-estate market, when the
settlements have occurred on very valuable land.
6 Additional information on this case will be included in Chapter 7, including
design proposals to deal with the applicability of the IA approach in this
sensitive context.
7 For additional details see United Nations, DESA, Population Division. World
Urbanization Prospects. The 2005 Revision. UN Report, New York: United
Nations Publications, 2005.
35
Urbanization in the developing world
36
Urbanization in the developing world
or Stopgap to the Third World Housing Shortage. Aldershot, UK: Gower, 1986,
p. 10.
23 Ibid., p. 77.
24 See Eric Mumford. “CIAM and Latin America.” In Sert: Arquitecto en Nueva
York, ed. Xavier Costa et al., 48–75. Barcelona: Museu d’art Contemporani de
Barcelona, 1997.
25 See Donald Appleyard. Planning a Pluralist City: Conflict Realities in Ciudad
Guayana. Cambridge, MA: MIT Press, 1976, p. 11.
26 Ibid., pp. 55–60.
27 Other important figures participated in the project including Willo Von
Moltke, who was the Director of Urban Design for the Guayana Project from
1961 to 1964, Lisa R. Peattie, and William Doebele.
28 See Donald Appleyard. Planning a Pluralist City: Conflict Realities in Ciudad
Guayana. Cambridge, MA: MIT Press, 1976, pp. 55–60.
29 Ibid.
30 Ibid.
31 See Horacio Caminos and Reinhard Goethert. Urbanization Primer. Cambridge,
MA: MIT Press, 1978.
32 Ibid.
33 Ibid.
34 See Horacio Caminos, John F. C. Turner, and John Steffian. Urban Dwelling
Environments. Cambridge, MA: MIT Press, 1969. This survey analyzed 16
different neighborhoods (8 in Boston and 8 in the Third World) comparing
the physical environment as well as demographics, family patterns, social
habits, and economic trends. See also Building Community: A Third World Case
Book. London: Building Community Books, 1988. While his wife Bertha
edited the book, Turner did the research for and wrote the introduction and
conclusion to Building Community during his tenure as coordinator for Habitat
International Coalition’s NGO project (1983–1986) for the UN International
Year of Shelter for the Homeless (1987).
35 See Colin Ward. “Preface,” in John Turner. Housing by People. New York:
Pantheon Books, p. xxxi.
36 See Fernando García-Huidobro, Diego Torres Torriti, and Nicolás Tugas. Time
Builds! The Experimental Housing Project [PREVI], Lima: Genesis and Outcomes.
Barcelona: Editorial Gustavo, 2009, p. 10.
37
Urbanization in the developing world
37 Ibid., p. 15.
38 See Marcela Ángel Samper and María Cecilia O’Byrne, Casa + casa + casa
= ¿ciudad?, Germán Samper, Una Investigación en Vivienda. Bogotá: Ediciones
Uniandes, 2012, p. 136.
39 Ibid., p. 90.
40 Elemental is an initiative well suited to serve the housing demands of lower-
income groups in Chile and in other nations, which, in contrast to most
developing countries, have achieved remarkable levels of economic devel-
opment and relatively low population growth rates. For additional information
see Alejandro Aravena and Andres Iacobelli. Elemental: Incremental Housing and
Participatory Design Manual. Berlin: Hatje Cantz, 2013.
41 See United Nations, DESA, Population Division. World Urbanization Prospects.
The 2005 Revision. UN Report, New York: United Nations Publications, 2005.
See also United Nations Human Settlements Programme (UN-HABITAT).
State of the World’s Cities Report 2012/2013: Prosperity of Cities. Official Report,
Nairobi: United Nations Human Settlements Programme (UN-HABITAT),
2012.
42 Hernando de Soto. The Other Path. New York: Harper & Row Publishers,
1989.
43 See Peter Rowe. Making a Middle Landscape. Cambridge, MA: MIT Press,
1991.
44 See Oscar Grauer. Principles, Rules and Urban Form: The Case of Venezuela. PhD
Thesis, University Microfilms International, 1991.
45 See the pre-revolution Peruvian presidential elections and the role of political
will in Chile and Delhi. See Jan Van der Linden. The Sites and Services Approach
Reviewed, Solution or Stopgap to the Third World Housing Shortage. Aldershot, UK:
Gower, 1986, pp. 77–78, 140.
46 Marie Huchzermeyer. “The New Instrument for Upgrading Informal
Settlements in South Africa: Contribution and Constraints.” In Informal
Settlements. A Perpetual Challenge?, eds. Marie Huchzermeyer and Aly Karam.
Cape Town: UCT Press, 2006, pp. 41–61.
47 See Ananya Roy and Nezar AlSayyad. Urban Informality:Transnational Perspectives
from the Middle East, Latin America, and South Asia. Lanham, MD: Lexington
Books, 2004.
38
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Figure 2.1: Community spaces in the Barrio Santo Domingo, Medellín, Colombia
Chapter Two
41
Lessons from Venezuela and Colombia
Figure 2.2: View of the formal city from the Barrio San Agustín, Caracas, Venezuela
This section presents a brief description of the context in which informal growth
has occurred over the last six decades in this country, leading to today’s complex
political scenario.While the current Venezuelan social division is partially inherited
42
Lessons from Venezuela and Colombia
43
Lessons from Venezuela and Colombia
from colonial times, it is also the consequence of rapid and unbalanced urbani-
zation and modernization processes throughout the twentieth century when the
impoverished, agriculture-based nation became one of the world’s leading oil
producers.
As the oil industry expanded and the Venezuelan Government gained a greater
share of revenues, public funding increased and consolidated into an economic
model of state-dominated capitalism. Consequently, whoever gained political
control also gained direct access to the country’s wealth. The concentration of
wealth in larger cities, the generation of jobs, mainly in the construction industry,
and access to health and educational services generated rapid migration. In
addition to migrating from the countryside to Venezuela’s urban centers, migrants
came from Europe, other Latin American countries, and the Caribbean.
As the administrative and political center of this unexpected wealth, Caracas
became the symbol of this modernization process. The colonial city gradually
began to mutate, and an emergent entrepreneurial class embarked on urbanization
projects and real-estate operations on the agricultural land in the Caracas Valley
as early as the late 1930s. In the absence of an urban plan for the expansion of
the city, landowners competed to offer new suburban residential districts scattered
along the flat areas of the valley. Caracas was going directly from being a compact
colonial town to a fragmented patchwork of suburban districts. Towards the late
1960s private developers had urbanized most of the flat-lands of the city and
much of the steep terrain that enclosed the valley in the south. Growth to the
north was limited by the extremely steep topography over which Avila National
Park had been designated in 1958.1 Over time, and due to a process of continuous
zoning adjustments, the suburban, garden-city schemes would repeatedly increase
in density, and the single-story homes would be replaced by high-rise solutions,
incorporating apartments, commercial buildings, and office spaces.2
From the 1940s to the early 1970s, waves of poor migrants arrived in Caracas
from the countryside in search of services and jobs in the booming construction
industry. Prior to the 1950s the city doubled in size and by the 1950s the
population had surpassed 1 million.3 The National Government responded to
the lack of affordable housing for these migrants by erecting large-scale housing
projects. The “23 de Enero” housing project, described in Chapter 1, is a good
44
Lessons from Venezuela and Colombia
45
Lessons from Venezuela and Colombia
46
Lessons from Venezuela and Colombia
47
Lessons from Venezuela and Colombia
During the late 1980s and early 1990s, while most academic efforts and public
funding in Latin America dealt with the formal city, a group from the School of
Architecture of the Universidad Central de Venezuela was undertaking research
on how to upgrade informal settlements. Three architects and professors at the
university led the group: Teolinda Bolívar, Josefina Baldó, and Federico Villanueva.
At the beginning, they were nicknamed by the local design community as the
“barriólogos,” in a rather derogative manner, implying that their work was not
design oriented. Critics were not able to understand the relevance of their
research, particularly at a time in which a rich oil nation was rapidly heading
towards a social confrontation.
To test their ideas, they selected two barrios in which a high percentage of the
settlements were in high-risk areas. The first one, named Aguachina, was situated
at the southwestern fringe of Caracas. Here, the residents occupied the very steep
and geologically unstable slopes. The other project, Catuche, grew along a ravine
in a gorge that traversed one of the oldest districts of the city.11 Catuche’s torrential
floods, like the many others that descended from Mount Avila National Park, had
been registered throughout the history of the city, with a recurrence of 80–100
years. However, during the last floods at the turn of the twentieth century, water-
courses in the Caracas valley were free from urban occupation.The oldest barrios in
the city had emerged during the last 65 years. Not only did Catuche occupy most
of the flood plain of the ravine of the same name, but some 80 homes had been
built over the creek, increasing the risk level for the entire settlement in the event
of a major flood.
Through numerous community meetings with experts in Aguachina, the team
clearly explained disaster risks with simple mapping, revealing the nature of the
soils, and how terracing and wastewater increased the risks of landslides. In Catuche,
the team built large-scale topographic/hydrological models to illustrate the impact
that a major flood would have in the area. This approach was fundamental to
establish a bond between the professionals and the barrio residents. As the initial
improvement proposals were implemented as planned, the community gained trust
in the technical team, accepting them as managerial leaders. Connections between
academia and private institutions as sources of financing were key elements for
moving ahead with the program.
48
Lessons from Venezuela and Colombia
From 1991 to 1995, I was appointed and served as the National Director of
Urban Planning for the Ministry of Urban Development of Venezuela. Operating
under the provisions of the Planning Law of 1987 (LOOU), this federal agency
had regional branches throughout the country. LOOU, as a legal instrument that
defined the contents of different planning mechanisms, assigned responsibilities
that the federal and the municipal governments shared.13
This law was one of the first instruments in Latin America to give legal status
to the informal settlements and establish general technical guidelines for carrying
out barrio improvement plans. In the following years, the Venezuelan Government
produced a national inventory of informal settlements, providing baseline infor-
mation on the amount of people that lived in informal settlements as well as of
the overall state of the settlements.14 The inventory provided basic data such as the
number of households, a gross estimate of population, site conditions in relation to
imminent risks, accessibility, availability of infrastructure and services, income level,
and conditions of the dwellings. The inventory was developed over approximately
five years for informal settlements throughout the country, but not for the largest
and probably most challenged ones—those of Caracas.
While the legal perspective towards informal development transformed and
scholars conducted studies in response to the provision of this law, actions had
49
Lessons from Venezuela and Colombia
Figure 2.4: Urban design plan for the improvement of Consorcio Social Las Casitas del
Inca settlement, Caracas, Venezuela
50
Lessons from Venezuela and Colombia
51
Lessons from Venezuela and Colombia
52
Lessons from Venezuela and Colombia
53
Lessons from Venezuela and Colombia
Informal Armatures approach, especially when large, new informal settlements are
anticipated. By focusing on aspects that necessarily fall in the realm of regional
planning and large-scale interventions, this approach resolves structural problems
that cannot be tackled through the summation of micro-interventions in each
neighborhood.
The Caracas Barrio Plan proceeded to a more detailed scale, addressing
specific requirements for each neighborhood, which were divided into Urban
Design Units (UDUs). Here, the proposals would consider among other aspects
the construction of local access roads and improvement of pedestrian links, the
creation of systems of public spaces, and the introduction of communal services,
the production of substitution dwellings, as well as alternative uses for the unstable
or risk-prone areas such as parks, recreational-sport facilities, or urban agriculture
in order to avoid re-occupation after the unsafe built-up areas had been cleared.
This technical study is a pertinent reference for contexts that are commencing
planning operations in informal settlements. It demonstrates the importance of
basic mapping and the need for establishing a relatively accurate database. It is
a working method suitable for very large areas of informal settlements, taking
into account aspects that must be visualized to include broader systems, while
proposing precise interventions in the informal fabric adapted to the particular
conditions of the neighborhoods. It also provides important insights on how to
address interventions on very rugged and steep terrain where the settlements have
grown without a previous urban layout.
When the Plan was close to 70% completion, a brief summary was prepared,
revealing the severity of living conditions in the barrios of Caracas, and the social
consequence that resulted from a lack of action in the areas where close to a third
of the residents of the capital city lived. This summary expressed in very simple
terms the objectives and the modus operandi of the Caracas Barrio Plan, and
the estimated requirements for federal funding, which totaled approximately one
billion US dollars.
Due to the complexity of the operation, financing would be released over a 15-year
period. The summary also pointed out that the Plan required combined efforts from
National, Regional, and Municipal authorities, including the five Municipalities (of
varying leadership) which comprised the Metropolitan Area of Caracas. This infor-
mation was presented on several occasions to the “Consejo de Ministros” (Secretarial
Council), with the participation of the concurrent President of the Republic, Rafael
Caldera, who had been elected on a strong socially based agenda.
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Lessons from Venezuela and Colombia
Figure 2.5: Proposed recycling and community center in Barrio La Morán, Caracas,
Venezuela. Project and photos: Enlace Arquitectura, Elisa Silva
55
Lessons from Venezuela and Colombia
Figure 2.6: Reoccupation of the Catuche Ravine, Caracas, Venezuela. The preexisting settlement
was razed by torrential flooding in December 1999
56
Lessons from Venezuela and Colombia
Although the Plan proposed some of the most relevant, innovative, and nuanced
mechanisms for dealing with informal urbanism, the discussions at the Consejo de
Ministros proved to be fruitless in a period of rising social tensions. There was no
political commitment from the Presidency, or the different federal agencies, to
assign financial and human resources to support the Plan. The government did
not even coordinate efforts to define courses of action. The administration had
completed 75% of its mandate and there were clear political indicators that major
political changes were ahead. A few months later, the Ministry published the
Caracas Barrio Plan but it did not receive presidential approval, which was a basic
condition for it to receive legal status, federal funding, and institutional support.
After five years in office, it was time for me to resign.
2.1.4 Rise and fall of the plans for the improvement of informal settlements
In 1994, President Caldera pardoned those who had participated in the attempted
coup d’état against the mandate of Carlos Andres Pérez, including Hugo Chávez
who had been imprisoned. In December 1998, Chávez was democratically
elected President. During his electoral campaign, Chávez revealed the main goals
of his presidential term, promising a revamped socially oriented agenda and zero
tolerance for governmental corruption.
During his first week in office, Chávez named Professor Josefina Baldó as the
head of the CONAVI (Consejo Nacional de la Vivienda or the National Housing
Council). This federal agency had played a pivotal role in Venezuela, defining the
housing policy, allocating program funding by regions, for new housing, Sites and
Services programs, and barrio improvement plans. For the first time in this agency’s
history, barrio improvement plans were given the highest national priority. As a
result, allocation of funds for new urban development and subsidized housing,
which at the time were mostly carried out by private entrepreneurs, diminished
significantly. Professor Baldó presented the Caracas Barrio Plan to the newly
elected President, not only as a tool to ameliorate living conditions of the urban
poor in the capital city, but also to establish the criteria and technical framework
from which to launch an aggressive national plan for cities where informal devel-
opment represented even a higher percentage of the urban population than in
Caracas.
Realizing that few professionals in Venezuela had experience with barrio
improvement plans, Professor Baldó, assisted by architect Villanueva, organized
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58
Lessons from Venezuela and Colombia
The adversaries of barrio improvement plans argued that they would be able
to build hundreds of thousands of new, low-cost, “dignified units” in just a few
years, on vacant land, which would allow lower construction costs and simplify
negotiations. Some of these “large tracts of land to build on” were within the
country’s various military forts, or on public land, much of which was distant from
an urban center, without infrastructure services and access to public transportation
or employment. Additionally, most of these sites were green fields, foreshadowing
the unnecessary ecological consequences of deforestation and increased water and
energy consumption.
Some homes of these isolated projects were assigned to the very poor who
had traditionally no access to formal housing, although the new residents in no
time realized that these formal housing programs required a minimum of cash
flow, which they did not have, in order to pay for formal services, and in some
cases mortgages, besides having limited possibilities to expand the dwellings or
to include income-generating uses. These homes were not sustainable habitats
for the very poor, since they were typically detached from the city’s services,
employment, transportation, and the socio-economic benefits of existing
informal settlements.
Natural forces shifted the course of history. In December 1999, while these two
opposing forces continued their wrangling, an extraordinary, disastrous climatic event
affected the central Venezuelan coastline, the Caribbean Cornice of Caracas. Experts
noted that this type of episode only occurred with such an intensity every 500 to
1,000 years.21 The usual small creeks that descend from Avila National Park became
destructive torrents, causing massive devastation of the narrow coastal fringe. There
were more than 25,000 casualties, as entire urban areas were washed out to sea.
Unfortunately, the Catuche gorge (located in the Caracas valley and not on the
coast), where Baldó’s emblematic informal improvement plan had been carried out,
was among those areas devastated by torrential flooding. The entire rehabilitated
settlement was wiped out, including the four-story walkup apartment buildings
that had been built to relocate—safely—the residents that previously lived adjacent
to and on top of the torrent. Luckily, there were no fatalities in Catuche, since the
community had been trained on early alert procedures and everyone was able to
evacuate on time. This event ravaged the faith of residents of Catuche, who had
trusted the professional teams that coached them during the preparation and
implementation of the barrio improvement plan. It was also a major blow to the
National Barrio Rehabilitation program.
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Destructive quakes typically hit Caracas at 60–80 year intervals, with a few smaller
quakes in between these periods that cause little harm.24 The last major quake
occurred in 1967. On this occasion there was not a single fatality in the informal
areas, because informal dwellings at the time did not surpass two stories and they
swayed with the seismic waves.
Since then, informal areas have grown not only horizontally on more unstable
land, but also vertically to the point where some barrios average more than eight
stories in height. These buildings expanded through the simple addition of floors,
held up by randomly reinforced concrete supports. Many barrio residents are
construction workers; although their informal structures incorporate planar trusses
they will not resist lateral forces during a strong seismic event. This represents a
major threat for hundreds of thousands living in these communities.
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Lessons from Venezuela and Colombia
Creating awareness about the importance of keeping the low-rise barrios from
growing upwards and finding structural solutions to stabilize the already vertical
barrios is easier said than done. The piecemeal nature of construction methods and
the resultant complex architectural forms require a difficult and highly technical
response, a response drawing on user participation in the same manner as the
dwellings were created.
Though daunting, this task is of paramount importance, since the lack of action
may result, in the near future, in hundreds of thousands of casualties. A few years
ago, geologist and former Secretary of Science and Technology at the beginning of
Chávez’s presidency, Carlos Genatios passionately explained on national television
the consequences of a high intensity earthquake in Caracas. He spoke about not
only the fragility of the vertical informal constructions, but also how the lack of
vehicular access and space, in the majority of the dense steep mountainous barrios,
would impede any attempt to rescue the hundreds of thousands who would inevi-
tably become trapped under the rubble.
Technical solutions to reduce damage in informal settlements in the event of
a major quake require a great deal of experimentation, trial, and error. Evaluating
how the settlements perform during a seismic event may allow for the suggestion
of different approaches, the introduction of improvements, and the publication
of simple codes and handbooks to better prepare the communities to build safer
self-constructed settlements. Professors Bolívar, Baldó, and Villanueva produced
a simple handbook to inform communities about the risks of building upwards
in highly seismic areas and recommended solutions for enhancing the structural
stability of informally constructed dwellings. But this effort required sustained
educational programs, and pilot projects, in areas that are normally not given
particular attention until a catastrophic event occurs.
During his tenure, Hugo Chávez advocated for the poor through populist-
oriented policies. Chávez provided heavy subsidies, and in many cases direct fiscal
and proprietary handouts to gain political support. Such actions along with other
political moves and rhetoric worked to alienate the upper and middle classes, the
residents and users of the formal city.
Despite the grandeur of their political rhetoric, urban policies of this era
failed to create sustainable conditions for the poor beyond government subsidy.
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62
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catered to a small percentage of the urban poor, and left most of the informal
settlements neglected. Further newer informal settlements continue to emerge
with no preemptive planning action. Unplanned informal growth will result in
the intensification of urban problems affecting the lower-income groups and the
performance of entire cities.
The social and political divide has increased. Those in the poorer groups,
predominantly residents of the informal areas, and the middle class, residing in
formal areas, are unwilling and sometimes unknowing actors in a socially and
physically divided society. The set of political principles, intended to introduce
structural reforms to benefit the majority and redistribute resources more
equitably, has, in execution, resulted in social fragmentation, mistrust, and antag-
onism between those who favor and those who oppose the Socialist Revolution.
A top-down political agenda of heavily subsidized social programs catered to
the lower-income groups in order to gain their support, but was not capable of
delivering onsite organization or providing the technical and managerial skills to
significantly improve living conditions in the informal settlements.
Great efforts must be made to improve the connectivity between the formal
and the informal cities, consciously and spatially. For true interconnectedness,
and, ultimately, vibrancy, residents on both sides have to overcome mistrust and
increase the level of tolerance. Compelling planning and design moves can make
a significant difference.
This case study reveals the importance of well thought out political advocacy
and good managerial leadership as essential conditions for technical planning
and design ideas to flourish. The few successful interventions in informal settle-
ments in Venezuela, as holistic urban operations, occurred where there was
sustained involvement of municipal governments, institutions, technical teams, and
community organizations.
While the histories of Colombia and Venezuela are closely tied and influenced by
their physical proximity and shared geographical systems, these Latin American
siblings have followed rather distinct paths since colonial times. During colonial
rule, Colombia, due to the exploitation of its natural resources—emeralds, gold,
and agricultural products—was a vice-royalty considered a highly valued territory
by the Spanish crown. In contrast, Venezuela, since at the time it offered few
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Figure 2.7: Virgilio Barco park-library, Bogotá, Colombia. Project: Rogelio Salmona
64
Lessons from Venezuela and Colombia
65
Lessons from Venezuela and Colombia
Towards the 1980s the influence of the drug culture had permeated virtually all
levels of Colombian society, infiltrating the political, institutional, economic, and
legal structures.
While production of cocaine was centered in Colombian Amazonia, there were
several rival drug cartels in different areas of the country on the marketing and
commercialization side of the production line. Through the 1980s, Medellín, the
capital of the Department of Antioquia, had become the epicenter of drug distri-
bution and exports. Drug production and distribution, and the related violence,
reached their climax under Medellín Cartel’s notorious leader Pablo Escobar who, by
1989, was listed by Forbes Magazine to be one of the richest billionaires in the world.32
It is also estimated that, prior to the evolution of the drug cartels, the guerrillas
controlled almost half of the national territory.33 After the 1980s, paramilitary
groups also disputed the areas impacted by guerrilla warfare and the drug trade
that were financed by private groups to secure land and assets because the
government was failing to do so.
Drug trafficking increased and government efforts paled in comparison to
the economic and logistic power of the drug lords. For many Colombians that
resided in the rural areas, the only option for avoiding violence was to migrate,
or to support the drug traders (narco-traficantes), the guerrillas also involved in the
drug trade (narco-guerrilla), or the privately financed armed groups (para-militares).
Approximately 2 million people were displaced by guerrilla warfare and 1.2
million by paramilitary groups. Internal migration contributed to the growth
of the already large informal settlements that were present in almost all large
Colombian cities. Social disparities and drug related activities also increased crime
and affected governance within the urban areas.34
It naturally follows that the numerous informal settlements became fertile
territories for drug related operations. Drug organizations offered a young and
jobless population the prospect of easy money, status, and protection. Until 2005,
Colombia was the top supplier of drugs to the USA, creating epic health, social, and
criminal problems in both countries.35 Despite costly government efforts to fight
the “war on drugs,” drug consumption and drug related crime increased steadily
in the USA and in Europe. The drug culture gave Colombia a dubious interna-
tional reputation, and in many instances isolated the nation diplomatically, affecting
commercial trade and curtailing economic growth of non-drug related activities.
Regular road trips between Colombian cities, particularly over the mountainous
roads, almost came to a halt due to the threat of kidnapping and generalized
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Lessons from Venezuela and Colombia
violence, which was also affecting life within the cities. In fact, in 2012 more
than 5 million victims of the armed conflict and generalized violence had left
Colombia. This figure includes hundreds of thousands that migrated to Venezuela,
adding to the percentage of the population that already lived in informal settle-
ments in this country.
As a result of the period of violence that began in 1948, official records
account for 600,000 victims.36 After decades of violence, economic decline, loss of
governance, and isolation lacerated one of the most educated and productive Latin
American nations. A concerted effort to reclaim the stability of the country took
place. The year 1998 marks a milestone in the relationship between the USA and
Colombia, and a turn-around in the spiraling downfall of the country.
Between 1998 and 1999 the administration of Colombian President Andrés
Pastrana conceived a plan to end armed conflict and create an anti-narcotics
strategy. During the presidencies of George W. Bush and Alvaro Uribe, both
nations signed a treaty that was called “Plan Colombia.” This Plan included, but was
not limited to, US military/counter-narcotics aid. Under the agreement, the USA
would provide funding and logistical/military support to reduce the production
of drugs in Colombia and curtail its transport to the USA. In practical terms, it
translated into the construction of air bases in Colombia to which US personnel
would have access. This allowed for the monitoring of drug related activities and
military/intelligence operations, in addition to various other strategies to reduce
drug production.37
Adequate information and logistics helped the Colombian Government target
areas of drug production, distribution, and “managerial” centers, dismantling many
of the hard-to-access laboratories and trafficking facilities. This contributed to the
detention or elimination of top figures in the drug trade, including Pablo Escobar
in 1993.38 The operations led to a decline in the amount of drugs arriving in the
USA from Colombia, and also to a gradual reduction of violence. Drug production
and trafficking retreated to remote areas, sometimes pushing across the borders to
Venezuela and Ecuador.39 The retreat of drug trafficking, in turn, led to improved
governance within Colombia. In the late 1990s the changes became noticeable on
the national level, as safety and connectivity between different regions improved.
The sense of improved governance had a significant collateral effect: it created
the space for highly educated elites to permeate different spheres of politics
and government. Those who once felt alienated and incapable of having any
impact began to participate in politics. Renewed leadership introduced legal
67
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68
Lessons from Venezuela and Colombia
The following case studies took place in Colombia’s main cities: Bogotá, with
approximately 8.9 million inhabitants, and Medellín, with close to 3.5 million.
This represents a good cross-section of Colombian urbanism, as there has been a
long tradition of economic and cultural rivalry between Bogotá, as the center of
political power, commerce, services, and culture, and Medellín, as an agricultural
and industrial economic motor of the country.
The urban renaissance in both cities, including the transformation of their
informal settlements, has become a global benchmark that proves urban trans-
formation is possible in a relatively short period under even the most adverse
circumstances. From these case studies we extract valuable lessons that are funda-
mental in the IA approach, with the intent of deploying them in a nuanced way
to guide the evolution of new informal settlements.
Figure 2.8: Metro-Vivienda/Patio Bonito Project adjacent to informal settlements, Bogotá, Colombia.
Project: Konrad Bruner, Gustavo Perry, Eduardo Samper, and Ximena Samper
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70
Lessons from Venezuela and Colombia
flat land within the municipal boundaries of the city and began encroaching on
more rugged terrain and on ecologically sensitive areas. This vast and homoge-
neous aggregate of informal settlements lacked public spaces, communal services,
and adequate means of transportation or employment opportunities. Some settle-
ments located in the distant outer fringe, on higher elevations, fell under the
control of guerrilla groups. By 2000, the population living in informal settlements
in Bogotá surpassed 3.5 million, close to 50% of the total population. With few
exceptions, most live in one of two distinct geographical areas: a rich north and a
poor south.
For city officials and planners, the task was to effectively reduce the basic dispar-
ities between the formal and informal city, in terms of infrastructure, mobility, public
space, services, amenities, security, and jobs. Demographic pressure on the capital
city spilled over into the small towns dispersed through La Sabana. Population
growth also put pressure on natural resources, eroding the wetland system, taxing
the aquifers, impacting ecosystems, and diminishing valuable agricultural land.
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72
Lessons from Venezuela and Colombia
Figure 2.9: (Top) El Transmilenio, BRT System. (Bottom) Alameda El Porvenir, pedestrian and bike
promenade. Bogotá, Colombia
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Lessons from Venezuela and Colombia
Towards the late 1990s traffic congestion had brought Bogotá to a virtual gridlock.
Low-income groups relied on irregular services provided by thousands of privately
owned, highly congested buses and minibuses that followed routes and schedules
at their discretion, while middle- and high-income groups used single occupancy
vehicles. High occupancy vehicles and single occupancy vehicles chaotically
competed for road space. Constant gridlock affected the city’s performance and
nerve wracking traffic jams altered the traditional good natured demeanor of the
74
Lessons from Venezuela and Colombia
Bogotanos. To address this need, the city had planned to introduce a Metro system
for decades but elevated costs deterred advancing with the project.
Peñalosa’s solution was the introduction of an exclusive right of way Bus Rapid
Transportation System (BRT), named the Transmilenio, modeled after the BRT
system in the celebrated Brazilian city of Curitiba. The project took advantage
of several wide avenues that crossed Bogotá, which were an outcome of Le
Corbusier’s 1950s urban plan.45 Key to the implementation of the Transmilenio was
the political move to offer the myriads of concurrent independent bus operators
the opportunity to become commercial partners of the Transmilenio, benefitting
those who previously provided transportation services in the absence of an
adequate public system. Without this strategic move, the political resistance would
have made the Transmilenio impossible.
The Transmilenio offered rich and poor alike the option of riding a comfortable,
quick, and reliable mode of transportation. Feeder lines with smaller buses, which
shared the streets with private vehicles, served the main transportation corridors.
The terminal stops, called “Portales,” became important hubs for these secondary
lines, some of which extended to communities in the agricultural hinterland.
These Portales quickly became nodes of activity and prompted private investment
on fringe locations as commercial and leisure centers.They provided amenities and
services, while reducing pressures on the traditional mobility corridors and areas
of centrality.
Redesigning the wide avenues in cross-section to accommodate the mass-transit
system also offered the opportunity to string the city with a system of enlarged
sidewalks and bicycle lanes. Previously, bicycles were not a popular form of leisure
or mode of transportation in Bogotá. Some of these mobility corridors included
what Peñalosa’s administration designated as “Alamedas,” miles of pedestrian and
bicycle corridors linking existing informal and formal neighborhoods, some of
which were laid down as organizers of vacant land that would soon be occupied
by residential and mixed-use developments. The function of these Alamedas is
a valuable precedent for one of the principal tenets of the IA approach, since
they operated in a preemptive manner. The Alamedas were pedestrian-friendly
mobility corridors and linear public spaces deployed on vacant land that would be
urbanized.
Peñalosa’s message was clear: in a city in which less than 25% of the population
had access to a private vehicle, priority was to be given to public transportation,
pedestrians, and bicycles, and not to the construction of roads and highways. Also,
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Lessons from Venezuela and Colombia
Figure 2.10: (Top) El Tintal park-library. Project: Daniel Bermúdez. (Bottom) Community park in the
El Porvenir neighborhood. Bogotá, Colombia
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Lessons from Venezuela and Colombia
the quality of the interventions had to be the same throughout the city in terms
of design standards, materials, and maintenance. Informal communities that had
been neglected for decades were targeted for some of the earliest technical and
managerial interventions that were typically deployed only in the formal city.
Several Transmilenio lines, and their collateral public space improvements, were
completed during Peñalosa’s mandate and others continued during subsequent
administrations.The project provided decent transportation, services, and amenities
to ample sectors of Bogotá. It would be difficult to imagine today a Bogotá
without the Transmilenio, as well as the pedestrian and bike friendly solutions that
accompany it. Peñalosa’s detractors, on the other hand, signaled problems during
the construction of the Transmilenio, including the presence of some underutilized
enlarged sidewalks, or streets that were truncated by the Transmilenio lines. Perhaps
the main problem today is that the system is operating at maximum capacity. A
Metro-line or other form of rapid transit might soon be required to supplement
the existing system, a move that Peñalosa, while running for his second mandate
as Mayor, passionately opposed.
There still are outlying informal areas without transportation services, mainly
those at the fringe and on mountainous locations where the terrain and dense
urban informal patterns do not provide for these rights-of-way that would allow
the introduction of new lines. Among the principal lessons to be learned from
the Bogotá case, or any case for that matter, is that cities transform and constantly
generate new demands. Addressing the transformative nature of cities is one of the
main drivers of the IA approach. The response to this challenge is the emphasis
that IA places on anticipating and securing the eventual spatial requirements of
informal areas and providing them with alternative uses until they are needed to
fulfill future needs.
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Lessons from Venezuela and Colombia
previously described. In many cases, these new facilities of public education were
operated by the private sector, ensuring efficiency and low operational overheads.
These interventions had a major impact on the transformation of the areas in
which they were located. A robust example is that of the “Biblioteca de El Tintal.”
The renowned Colombian architect Daniel Bermúdez designed this impressive
facility, taking advantage of the defunct structure of a garbage processing plant built
in the 1960s in what was then the outskirts to the city. As occurs in most devel-
oping countries, open-air garbage dumps and recycling plants ignite the growth of
informal settlements as the newcomers extract materials from the debris to build
their homes. Over time, informal settlements engulfed the waste processing plant.
The precarious informal settlement gradually formalized with a stable stock of
dwellings, but continued to suffer environmentally from the negative influence of
the recycling facility, until it was closed down.
The park-library project rapidly transformed the area into an animated
centrality. In a short time, the improved conditions and concentration of users
attracted developers to invest in the construction of a new shopping mall and
formal housing, erected on vacant land adjacent to the informal settlement. The
project exemplifies the transformative power of a site that once served a particular
function and presented a stellar urban opportunity for adaptation and transfor-
mation, which is another important consideration of the IA approach.
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including the Parque Entre Nubes. This park took advantage of a former quarry,
adjacent to an informal settlement in a higher elevation and fringe location
to the south of Bogotá, offering stunning views of the city. It also introduced
innovative performative features in terms of environmental regeneration and water
management.
Other recreational facilities were the result of a combination of urban interven-
tions, with multiple benefits, as was the case of the linear park that was placed in
Juan Amarillo, a wetland adjacent to the largest informal settlement in the north
of the city. International organizations including the World Bank and the Inter-
American Development Bank funded this intervention.46 The government made
the case that untreated effluent from the adjacent informal settlement, with a
population of over 130,000, was polluting the wetland, which was an important
nesting point in the flight path of birds between North and South America.47
The operation required relocating parts of informal settlements that were on the
flood plain of the wetland to substitution housing, and the construction of a ring
road between the settlement and the new park, which eased vehicular access and
allowed for the incorporation of sewer lines to prevent wastewater from infiltrating
the wetland. This new facility stretched over 2 kilometers, with an average width
of 50 meters. The park included a scenic promenade along the water’s edge and
flexible green spaces, serving a very low income area where there were no open
spaces at all.
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being occupied. The urban layout of Patio Bonito reduced the vehicular roadwork,
introduced a system of pedestrian alleys and plazas, and included community
services, such as daycare centers and laundry areas.
Patio Bonito was also interconnected to broader systems of public spaces and
mobility corridors, such as the pedestrian-bike Alameda called El Porvenir, and a
series of new promenades along the ravines and flood plains of the Bogotá River.
These ensured the connectivity of the new districts with the preexisting informal
areas and enhanced the spillover effect mentioned above.48
This project was designed by a team that included Eduardo Samper, son of
Germán Samper. Many in Colombia would agree that the adaptation of such
urban design principles to social housing is largely based on the innovations of
Germán Samper and is a critical contribution to Colombian architecture. While
his training in the 1950s as an architect occurred during the peak of the Modernist
Movement, Samper built his own discourse that had a clear understanding of local
conditions. This reflected a renewed interest in the intimate and human scale in
the 1960s and 1970s.49
It is important to mention that, despite the efforts to provide affordable housing
in Bogotá, even the most highly subsidized projects were inaccessible to the
poorest, and the largest, segments of the population. As a result, the informal city
continued expanding, encroaching on rough terrain in the higher elevations to the
far south of the city. The settlements put pressure on protected watersheds and had
a spillover effect by occupying valuable agricultural land in the city’s agricultural
hinterland, La Sabana de Bogotá. Chapter 7 includes a case study that explores ways
to improve the process of urbanization in La Sabana.
It is also noteworthy that affordable housing built in the vicinity of existing
informal settlements benefitted the adjacent informal areas. It contributed to
infrastructure, public spaces, and amenities, as well as enhanced social mixing, and
accelerated the upgrading of adjacent informal areas. The spillover effect of social
mixing, infrastructure, and services is another lesson than can be applied in the IA
approach.
There were, however, some drawbacks to the Peñalosa administration’s initia-
tives. Some projects were underfunded and underpaid. Construction firms rushed
to build projects, sometimes without proper quality control and supervision, in
some cases resulting in the early deterioration of the projects or public works.
Some public works required repairs or were subject to lawsuits in following
administrations. In a region that usually was mistrustful of the private sector
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running public services, the privatization of the electricity company to pay for
many of the projects had strong detractors.
Other urban interventions, such as the Parque del Tercer Milenio, were contro-
versial and, ultimately, less successful than Patio Bonito.The municipal government
violently razed 16 hectares of what was then considered the most degraded
neighborhood in all Colombia, El Cartucho, in order to create this park. This
area was an eighteenth century extension of the foundational grid of Bogotá,
located less than 400 meters from the Plaza de Bolívar, in the heart of the old city
and close to national and municipal institutions. More than a challenged neigh-
borhood, El Cartucho had become a refuge for the homeless, street kids, heavy
drugs users, and criminals.50 This level of social degradation prompted Peñalosa
to proceed as he did, at a point in his term at which he had already secured the
respect of his constituent bogotanos for the unprecedented transformation of the
city.
The park was completed in the few months that followed the forced demolition,
but the challenges of the area were far from over. Without residential components
on the site, the myriad non-conventional residents and users were not incorpo-
rated in the design process nor were plans made for their relocation; they were
simply forced to move out. They went on to occupy the partially vacant, adjacent
manufacturing district.
The design of the park did not help either. The new open space was not
responsive to adjacent site conditions, cutting off the street grid and traffic flows.
A system of earth berms were built up at the perimeter of the park, adjacent to
the city avenues, visually isolating the park from the city. Consequently this park is
barely utilized, presenting itself as a large void in the center of Bogotá. Moreover,
the park is usually taken over by some of the displaced former residents after 3 pm,
when not even the police will attempt to enter. Lots adjacent to the new park
remain today vacant, adding to the sense of being a disconnected and scarcely used
large open space. Peñalosa admits that the park and surrounding district require a
new direction.
El Cartucho neighborhood, however, may have been an anomaly in Bogotá, with
problems that surpassed those of any other challenged neighborhood. The failure
of the Parque del Tercer Milenio, in comparison to Peñalosa’s success stories, demon-
strates that interventions in existing urban areas have to be carefully orchestrated.
If relocation is required, it must be done with the consent of residents, or at least
calibrating the social implications of relocation.
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In 2004, Sergio Fajardo was elected Mayor of Medellín. Fajardo won the position
campaigning door to door without the support of the traditional political parties,
on a platform of efficient executive leadership and anti-corruption. Fajardo came
from a family of architects and city planners; his appreciation for urban design was
in his DNA and lived experience.
While in Caracas in 2007, I met Mayor Fajardo for the first time. He had been
invited to lecture by the Fundación para la Cultura Urbana (Foundation for Urban
Culture), a research institution that, after many years of operation, was closed in
2010 after government intervention in the stock agency that ran and financed the
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work ethics and political leadership. The significant reduction in the levels of
violence in targeted low-income communities in Medellín was evidence that the
preliminary interventions were working. Also, residents were actively using the
public spaces and new community services. The residents of some of the most
challenged areas of the city felt gratified by a public initiative that was making a
difference after decades of neglect and undelivered promises.
Due to the geographic similarities between Medellín and Caracas, the Medellín
agenda struck a chord with the audience in Venezuela. Both regions share similar
climates and vegetation, with the same sized population and a similar urban
configuration. In both, the formal mixed-use areas occupied the lower eleva-
tions of the valleys, some wealthy neighborhoods comprising high-rise buildings
were located high on the hills, and a high percentage of the informal settlements
were located on very steep slopes at the outer fringe. The higher the informal
settlements were located, the more difficult accessibility became. Likewise, infra-
structure, public spaces, and services were more precarious, and of course the level
of poverty and violence increased.
Medellín’s strategy was very clear: raise the bar by investing in interventions
that respond to local conditions. Reflecting on their lectures, I could not hide a
sense of joy and envy. The sister city of Medellín had achieved the goals that we
had not been able to accomplish in Caracas. Why? The biggest difference I could
perceive was that after years of Medellín losing the battle to a culture of drugs
and violence, there had been a strong political commitment, manifested in a sense
of practicality and urgency intended to make a difference. Political will translated
into powerful management and the implementation of the proposals relied on
exceptional planning and design skills.
By contrast, in Venezuela, despite a “socialist agenda,” there was no real political
will behind the Caracas initiatives. Additionally, although The Caracas Barrio Plan
was a solid technical compendium for the totality of informal settlements of the
city, comprehensive as it was, it could not provide immediate answers, even if there
had been political support.
The Caracas Plan required the development of numerous site-specific proposals
and managerial platforms to become effective. In contrast, the Medellín operation
was conceived and delivered quite differently. Its manifesto was reduced to a
statement of purpose that Fajardo scribbled on a piece of paper at the beginning
of his mandate as Mayor. As a good mathematician he formulated an equation to
solve the structural problems affecting his city.
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Identifying what was at stake and the opportunity to make a difference during
his term as Mayor, Fajardo synthesized his program for Medellín in a one page
handwritten note, which translates as:
The note ended with an arrow pointing to the solution to the problem: To make
Medellín the most educated city. “Medellín: La más educada” became the motto
of Fajardo’s administration.
As the plans unfolded, it was clear that he was referring to education in the
broadest terms, whether it is accessing knowledge and information, tapping
communal or individual potentials for creative thinking and actions, stimulating
new patterns of behavior, fostering self-esteem, or nurturing the joy of learning.
During the conference, Mayor Fajardo also presented a diagram of Medellín,
identifying the different districts in shades of green. The darker zones were the
wealthier areas, the lighter ones the poorest in which the problems were concen-
trated. The latter were mainly occupied by informal settlements. The greater the
distance from the main city corridors, the newer neighborhoods lacked infra-
structure and services and became more inaccessible. The steeper the topography,
the more the road network/city grid gave way to a system of winding pedestrian
paths. These light green areas were very poor and secluded mountain-top neigh-
borhoods, places in which living conditions were most difficult.
The access of service vehicles to provide police surveillance, ambulance services,
or garbage collection was limited, and residents invested hours each day just to
reach the formal city. Rival drug gangs controlled different areas, with frequent
outbursts of violence that affected gang members and ordinary citizens alike. The
killings became so frequent that many residents opted to leave. This was the type
of neighborhood that the Fajardo administration targeted for priority actions.
Mayor Fajardo would say “Our goal is to make all the city ‘dark green’.” The
Mayor’s team proclaimed that if they wanted to close the socio-economic divide,
the poorer areas required the best of everything that could be offered. The city
attracted the best-qualified professionals to coordinate the planning and design
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Lessons from Venezuela and Colombia
Figure 2.14: Open spaces and Biblioteca España (library), Barrio Santo Domingo,
Medellín, Colombia
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Fajardo’s team presented a simple but powerful strategic plan for the city that
encompassed the following five aspects:
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Lessons from Venezuela and Colombia
experience is presented for the first time to viewers, invariably the questions they
raise are: how was all this done in only a few years and how did they pay for this?
Fajardo personally involved himself in the formulation of urban policy.Through
executive meetings with the various administrative and technical branches under
his administration, Fajardo demanded coordinated efficiency and results around
common goals, with a short list of priority tasks. If Fajardo felt that a particular
agency or manager was not responding, it would be immediately substituted and
delegated to other administrations. In some instances, ad hoc units were created to
deliver particular services through outsourcing.
The goal was to deliver quickly, to evaluate, adjust, and deliver again. Fajardo
analyzed where sources of existing financing might be found and put them to
work more efficiently. He relied on municipal revenues through taxation and on
funding from a powerful municipal agency called Empresas Públicas de Medellín
(EPM). The EPM was a municipal holding, which provided electricity, gas, water,
and telecommunications services. Including its off shore investments and opera-
tions, it ranked as the ninth company in generating revenues in Colombia.53 He
also envisioned that funding of specific projects could be obtained internationally
due to the social and political implications of the programs and projects.
With respect to revenue generation, Medellín had an updated property database
and a rather high rate of tax collection. The city had a robust, up-scale real-estate
market and a strong industrial and commercial base which paid property taxes.
The main problem in Medellín was not the lack of municipal funds; rather it was
the ways they were being used. Irresponsible spending, fragmented use of public
funds, and generalized corruption were, according to Fajardo, principal concerns.
Having a clear vision and well-expressed set of priorities, along with an efficient
team, Fajardo addressed the issue of revenue allocation.
Mismanagement and clamping down on corruption was a separate issue.
Fajardo dedicated time to installing monitoring systems and mechanisms to
increase transparency and detect irregularities. Corruption fell drastically and funds
became readily available to carry out the plans.
For international funding and support, Fajardo’s administration steadily pursued
foreign financial assistance. The crux here was to present concrete projects to
potential supporters in such a way that they could clearly understand the nature
and quality of the projects, their social impact, and how they would fit in with
the greater urban strategy. Some of the emblematic new communal services, like
the Parque Biblioteca España park-library in Barrio Santo Domingo, were products of
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Lessons from Venezuela and Colombia
Figure 2.15: Cultural center in the settlement of Moravia, Medellín, Colombia. Project: Rogelio
Salmona
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this initiative. This facility was partially equipped with the support of the Spanish
Government.
While the financial muscle of Medellín’s local government was an uncommon
situation in most developing countries, the levels of corruption and violence were
uncommon also. Four lessons come out of the Medellín case study: first, that there
has to be a vision; second, that commitment and high level managerial conditions
are required to set a course of action and priorities; third, while efficiency is also
influenced by the availability of financial resources, the most important factor
is how limited resources are allocated; and finally, mechanisms of transparency
and efforts to diversify sources of funding locally and internationally can make a
significant difference.
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Figure 2.16: (Top) Open space below station of the San Javier Metro-cable line. Project:
Empresa de Desarrolho Urbano, Medellín. (Bottom) Parque Explora. Project: Alejandro
Echeverri. Medellín, Colombia
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Lessons from Venezuela and Colombia
Comprehensive Urban Plans (Planes Urbanos Integrales) are perhaps the most
compelling contribution of the Medellín experiment to the field of informal neigh-
borhood improvement. They represent a compendium of planning, managerial,
and design moves that are carefully choreographed to create synergies and propel
these communities to higher standards of living.
As had occurred in the case of Caracas, the technical teams in Medellín
identified the different neighborhoods, which at first glance seemed to be part of
an undifferentiated informal agglomeration. Residents had arrived from different
geographic areas and in different periods. Each neighborhood varied in the degree
of social organization, area attributes, problems, aspirations, and opportunities.
Taking into account regional origins, social behavior, and daily patterns, to identify
the sometimes blurred boundaries of neighborhoods, helped facilitate appropriate
engagements with the community in their regeneration. The next step was to
establish the initial moves that would have major impact in the shortest period,
initiating the improvement process. The initial moves varied from one district to
another but were usually related to the following aspects:
• Improving accessibility and mobility, sometimes with very creative means such
as the introduction of aerial gondolas connected to the Metro-lines, open-air
escalators, and pedestrian bridges over ravines;
• Creation of articulated and well-designed systems of public spaces meant to
increase levels of socialization;
• Retrofitting existing community services, and including new ones, easily acces-
sible from public spaces;
• General improvement of infrastructure;
• Relocation of homes on high-risk areas such as flood plains of ravines; and
• Construction of relocation housing to enable the previous interventions.
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Lessons from Venezuela and Colombia
The Northeastern PUI is perhaps the most highly visible of them all, since it repre-
sented one of the most difficult points of departure. I remember taking a walk
with a community leader in this neighborhood in 2008, a few years after the first
interventions had been accomplished. She pointed out the scars of high caliber
shooting on the walls of many homes, saying: “You can imagine that the neighbors
of all these dwellings had to move away from Santo Domingo during the period of
extreme violence.” Former residents returned, and the new additions to the homes
and well-kept gardens were good indicators of the changes ahead.
There were some conditions that made Northeastern Commune an ideal pilot
project to test the PUI ideas. The previous municipal government had proposed
the construction of an aerial gondola system linked to the Metro, which was under
construction when Fajardo took office. The Parque Biblioteca España would benefit
from its unique scenic location and the proximity to the final Metro-cable station.
Shortly after the Metro-cable went into operation in Santo Domingo as part
of the network of urban interventions the main problem of this novel transpor-
tation system was that it was over-utilized. Residents usually have to wait over 45
minutes in line during peak hours to board a gondola to take them from their
neighborhood to the city or vice versa. As occurred in the case of the Transmilenio
in Bogotá, a valuable indicator of the success of the initiatives was that the projects
were being intensely used and cared for.55
The PUI of Santo Domingo was exemplary of the careful sequencing of inter-
ventions that would gradually improve the once troubled district, each time
making it healthier and more resilient, as well as strengthening its socio-economic
networks. This measured and transformative process in informal planning and
design is also at the heart of the IA approach.
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Lessons from Venezuela and Colombia
This was the case for a portion of Barrio Moravia, a settlement in a lower
valley location, adjacent to the Aburrá River, which had been constructed over
a condemned landfill, exposing residents to severe health hazards. The displaced
residents were relocated to the vicinity of the San Javier Metro-cable, in formal
housing solutions. This resulted in a new front of urbanization on vacant land.
Residents would benefit from a risk-free habitat and they could reconstitute social
ties. But they were under completely new urban conditions, which included being
on a peripheral location, at a distance from their traditional sources of income and
lifestyle.
New social housing: Social housing to cover accumulated demands, not
associated with informal settlement improvement plans, was also provided.
Residents who qualified for the program needed stable sources of income in
order to access financing or have the means to acquire them. It is estimated that
during Fajardo’s administration some 8,000 homes were constructed, serving a
population of close to 35,000. In comparison, it is estimated that the investments
in the PUIs had direct incidence improving living conditions for over 350,000
inhabitants residing in informal areas, while the spillover benefits brought to
the overall performance of the city remain non-quantified. Some figures give a
rough idea of the multiplying effect of investing in the urban framework/public
realm, versus the effect of simply building new housing, particularly when the
poorer segments of the population are usually excluded from formal housing
programs.
As the PUIs were being advanced to target the most challenged informal areas
of Medellín, the municipality began to implement an ambitious program on a
broader city scale. Some interventions were meant to link the informal neighbor-
hoods to the formal city. Others dealt with ecological and economic corridors
and special nodes within the formal city. While the details of this comprehensive
effort surpass the scope of this book, it is useful to consider how a comprehensive
approach to the broader urban scenario impacted informal settlements. Based on
the nature of the programs, these operations can be classified in the following
categories:
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Lessons from Venezuela and Colombia
This category encompasses rather larger scale interventions over territories with
unique programs that could not be replicated in other areas of the city. This
provided a particular impulse, character, use profile, and economic vitality to
the sites where it was implemented, having a transformative effect over a larger
territory. The first moves of this nature were proposed adjacent to challenged
informal settlements, to be extended later to the main urban corridors and special
nodes of formal areas of Medellín.
An example of the first category is the area next to the Metro stop Universidad,
adjacent to Moravia, the conflictive informal district that had emerged on the
landfill referred to in the previous section. This retrofitted cultural-recreational
node encompassed: the Universidad de Antioquia Campus, one of the largest in
the city, the Planetarium, and the Botanical Garden. The Planetarium and the
Botanical Garden had become virtually defunct, with very few visitors due to
the lack of security in the area and the poor maintenance and management of
these facilities. Both were renovated with cutting edge architectural and landscape
design interventions.
The new covered plaza or entrance pavilion of the Botanical Garden, known
as the Orquideorama, was meant to provide shade during the celebrated orchid
show of Medellín, which had become a marketing icon for the city.56 It was also
used for multiple income-generating events. The striking new Parque Explora was
added to the node, a Science and Technology Center extending out into exterior
spaces with a learn/play artifact plaza. A revamped Avenida Carabobo, the historic
route that connected the center city with its immediate hinterland, linked all these
facilities. The enlarged and improved sidewalks and promenades along Avenida
Carabobo provided easy pedestrian access, and a mere 10 minutes’ walk from the
informal settlement of Moravia.
Moravia was also part of the PUI project. Interventions in this settlement included
a cultural center, one of the last works of famed architect Rogelio Salmona, and
a pedestrian promenade along a decontaminated ravine. The combination of the
formal metropolitan interventions and the neighborhood-scale projects in Moravia
created a vibrant district where all urban components benefit from their proximity
to each other, with their complementary spatial and functional relationships.
There were other large-scale projects in the city which had a spillover effect
on adjacent or closely located informal areas. One such project, located in a
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Lessons from Venezuela and Colombia
formal area of the city and close to the informal areas at the base of the Nutibara
Hill, was the construction of a very large sports complex that was built to hold
the Pan-American Games in 2010. This special node has become a hot spot in
Medellín for the following reasons: the quality of the sporting facilities and their
management, the compact/urban manner in which the sport venues were articu-
lated, creating a network of covered areas, the existence of dozens of small shops
and restaurants operated by micro-entrepreneurs in open spaces of the complex,
the location of the facilities adjacent to important city corridors served by the
main Metro-line, and the improvement of pedestrian links to the adjacent areas.
The complex is intensely used until evening hours mainly by children and young-
sters of all social strata.
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Figure 2.17: Promenade and housing relocation program along Juan Bobo Ravine, Medellín,
Colombia
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Figure 2.18: Recent formal housing projects adjacent to existing informal settlements, near La
Aurora Metro-cable station, Medellín, Colombia
between districts. Increased mobility along and across the creeks, and the environ-
mental upgrading of the polluted waterways into green corridors, transformed
the dark forgotten gorges that separated neighborhoods into active pedestrian
corridors and public spaces, uniting adjacent neighborhoods instead of dividing
them.58
This greening operation along the waterways, initiated in the poorer neigh-
borhoods where risk conditions and levels of water pollution were highest,
became part of an ambitious program of developing public spaces along the
ravines in the formal city and along the Aburrá River. Another important
component of the greening program was to create a green buffer in the higher
elevations to halt urban expansion from encroaching on protected zones as
an environmental and recreational eco-zone between the city and the rural
hinterland.
In 2011, a new Metro-cable line was inaugurated, departing from a station
adjacent to the last stop of the Northeastern system. This line provided access to a
lush vegetated area, known as the Parque Arvi. The once neglected and dangerous
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Lessons from Venezuela and Colombia
Barrio Santo Domingo was now the gateway for a protected open space of metro-
politan importance. The visitors to the park also helped to boost commercial
activities in Santo Domingo, especially at weekends. The plan to connect the micro
with the macro was becoming a reality. The greening program, though it will take
time to complete, is expected to lace the entire urban fabric together, creating a
vast recreational system and protecting and cleaning the waterways.
Special attention to the public realm and city management were basic elements
of Medellín’s revival. Medellín was transforming from a war zone to a city of
peace in a three-year period. The initial interventions multiplied and diversified,
catapulting the city to higher levels of performance, economic vitality, and creative
existence. This message of optimism and hope, with tangible results, motivated
other cities in Colombia and on the continent to undertake similar challenges.
In recent years, numerous researchers, universities, institutions, and governmental
agencies from all continents have organized field trips to Medellín to directly
observe these experiments of urban change. They have also used the informal
settlements in this city to develop academic work and research on urbanization
and city planning. The city has become a laboratory for anthropologists, social and
political scientists, criminologists, and environmentalists.
Fajardo and Echeverri have toured the planet passionately presenting their work.
The Medellín experiment helped to raise awareness on why and how informality
should be given the highest priority, centering their discourse on social equity.The
city has received numerous awards for these achievements. In September 2013,
Professor Fajardo, now the Governor of Antioquia, received our group of faculty
and students from the School of Design at the University of Pennsylvania. He
began his presentation by saying, “I am not going to delve into the planning and
design moves that have been able to transform the city, this you will appreciate
as you visit the different areas. There are brilliant professionals who can design
beautiful architectural and urban interventions, but what makes a difference in
changing societies is the political project that supports these transformations.” His
remarks summarized the Medellín experiment.
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Lessons from Venezuela and Colombia
In other words, the city did not foresee this trend as a unique opportunity to
demonstrate that both formal and informal components could be better articu-
lated in order to create a balanced district and socially integrated neighborhood,
while addressing broader urban and environmental issues. What was missing
here was a preemptive holistic district PUI, a model that had proven to be so
beneficial when dealing with the improvement of consolidated informal areas, in
this case intended to bring together the informal with the formal in a sustainable
scenario.
From URBAM we additionally received valuable information derived from
their research concerning the future growth of the city and its metropolitan
area. URBAM presented a summary of their findings, which were contained in
a document called Medellín 2030. This study estimates the population projection
over the next 20 years, and also identifies areas most recommended to absorb this
increment, whether by re-densification of underutilized existing districts or by
urbanizing new areas. The study was a priority task considering the limited avail-
ability of land for urban expansion in Medellín due to the constraints of its natural
setting.
The research included strategic development goals, indicating aspects that
were highlighted as critical problems and also opportunities. One of the main
problems explored was that the informal areas were gradually expanding onto land
unsuitable for human occupancy due to the conditions of the geology, soil, steep
topography, and rain patterns, particularly on the higher elevations of the eastern
areas of the city. The areas with such conditions were mapped as high-risk zones,
and were defined as not fit for occupation. Some existing settlements were already
encroaching on this restricted zone, and had been subject to landslides with loss of
lives during recent years. Some up-scale residential districts had also been affected.
The Medellín 2030 Plan envisioned a green band to avoid urban expansion
onto these higher elevations and to protect environmental assets. The URBAM
group was also critical of a proposal of the current municipal administration to
include an alternative public transportation system between the green band and
the urban areas, since they considered that this initiative would further increase
occupation pressures on the fragile upper fringe.
After a thorough explanation, I felt obliged to ask the following questions: what
were the population projections for the following 20 years? What percentage of
this increment would correspond to new self-constructed neighborhoods? And
where were they expecting the city to grow in the near future to accommodate the
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Lessons from Venezuela and Colombia
different income groups? These questions were relevant to envisioning the future
of the city, since it was clear that the majority of the lower-income population
would not be able to participate in the real-estate market or be absorbed even by
the highly subsidized public-housing programs.
The URBAM team indicated that the Plan anticipated an increase in the total
population of 750,000 to 800,000 inhabitants, and that the area most recom-
mended for urban expansion would be located to the north of the city, across
Medellín’s boundaries, in the Municipality of Bello. Here there was abundant flat
land, with relatively good soil and proper accessibility provided by existing arteries.
The final stop and the maintenance yards of the main Metro-line were in the area
of Bello closer to Medellín.
URBAM explained that if they were to project the current trends, taking into
account the proportion of the population that now lives in the formal city versus
those residing in the informal city, over 350,000 inhabitants would most likely
be absorbed by the informal sector over the 20-year period. This could happen
either by gradual re-densification of existing informal areas, as the dwellings are
expanded by their occupants, or by settlement in new unoccupied land.
A few days later, we had the opportunity to visit Bello, the area favored by
the technical studies for urban growth. Here, also, market forces were rapidly
colonizing the area in a fragmented manner with residential projects, many of
which were of very high density in vertical solutions, and acting as gated commu-
nities. These projects were frequently built in proximity to informal areas. As had
occurred previously in Medellín, the informal areas had begun growing along
regional roads in the lower elevations and flatter land, until they encroached on
very steep hills, expanding into high-risk zones.
URBAM also informed us that the Plan considered the creation of an area of
new centrality in Bello, which would include offices, commerce, residences, and a
Metropolitan Park. The project, however, had not yet materialized. The Medellín
Metro kept the development of the extended transportation line on hold until
there were a critical number of people in the area to justify such investment.
Local authorities in Bello did not count on the managerial, technical, and
financial support of their counterpart in Medellín to handle these heavy growth
pressures. Thus, the future of this strategic territory was being defined by a patchy
urbanization process that included formal and informal areas. Properly guided, it
would have a major influence on the performance of the metropolitan area of
Medellín. But, it was not difficult to imagine that if the fragmented and unplanned
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Figure 2.19: (Top) Informal dwellings being demolished and replaced by formal housing.
(Bottom) Walled-off open space adjacent to a Metro-cable station in the Barrio San
Agustín. Caracas, Venezuela
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Lessons from Venezuela and Colombia
surrounded by poorly designed open spaces and high fences that separated them
from the neighborhoods.
Furthermore, these spaces are closed when the Metro-cable is not in service.
The stations are at the highest point of the settlement compared to where the
majority of the population live; most users will not walk up to the crest of the
hill to take the system to get them back down to the city. Additionally, three of
the stations were placed at the same elevation, offering a redundant service. Users
could have walked, following the crest of the mountain, from one to another in
approximately 12 minutes. Appropriate locations for the Metro-cable stations and
a coherent urban plan would have increased significantly the number of users in
San Agustín and adjacent districts.
For instance, Metro-cable station #3 was located only 250 meters from one
of the most emblematic architectural but unfinished icons in Latin America,
constructed in the 1950s, which was called El Helicoide. This was to be a large
shopping mall, a striking curvilinear topological building that included vehicular
ramps and also an inclined elevator linking it to the city below. The building was
crowned by one of Buckminster Fuller’s earliest geodesic domes. El Helicoide, with
a surface of over 100,000 square meters, was never completed due to the fall of
the dictatorship of Marcos Perez Jimenez in 1958. Since 1990 it has been used
by the Venezuelan special police agency, and is obviously off-limits to the public.
Removing this police facility, as Medellín had done with the penitentiaries, to
build their biblioteca-parques, and placing one of the stations here, would have
offered the opportunity to use this unfinished structure to house major cultural,
educational, commercial, and employment facilities, badly needed in San Agustín.
Moreover, extending the line over the gorge that separates El Helicoide from
one of the most populated informal settlements farther west, and then down to
a formal lower-income district, would have maximized the use of the system
and made a significant urban impact by incorporating hundreds of thousands of
additional users to the system and associated services. Instead, the government
began replacing informal homes with elevator equipped apartment towers, leaving
the demolished areas unattended.
Although fewer than 20% of the residents were located in these formal
dwellings, this signaled to the remaining community that their future was not in
their current dwellings. This kept them from doing any improvements, cutting off
individual and communal initiatives, modifying the character and lifestyle of the
original residents.60
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Lessons from Venezuela and Colombia
Neither the theoretic framework, the working methods advanced in Venezuela for
the improvement of existing informal settlements, nor the remarkable achieve-
ments in Colombia, offer clues on how to spur and guide the growth of new
informal settlements. While it is evident that there was a sincerely constructive
dialogue with informality, it is still difficult for politicians and professionals to
openly foster new informal and self-constructed occupation, that is, to induce the
growth of settlements which, at least in the early phases, are perceived as illegal
and aberrant compared to conventional modes of city making.
Biases against new informal settlements still prevail in the developing world,
despite the fact that, statistically, informality will be the driving force of urbani-
zation through the many years to come. Informal settlement improvement plans,
similar to those envisioned by the talented academics and researchers in Venezuela,
or the proactive politicians and highly qualified professionals in Medellín, have
proven that a shift in paradigms concerning informality is the best way to incor-
porate these areas into broader urban dynamics, allowing them to break away from
their typical condition of submission. In other words, the “informal urbanization
process” needs to move beyond “remediation”-oriented strategies for fixing
unresolved problems, and into an approach that embraces the essence of the
“informal” process as a valid urbanization framework.
A paradigm shift is required to envision, design, and manage the growth of
the predominantly informal cities that will occupy new territories in the decades
ahead, one that considers them inseparable and equally important components
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Lessons from Venezuela and Colombia
of the many urban systems. The vitality of informality has a better chance to be
fostered into sustainable urban scenarios if we act in a preventive manner, which
comes before occupation occurs and the settlements evolve. This is the essence
of the Informal Armatures approach that will be explained in the following
chapters.
Notes
1 See República de Venezuela. Declaratoria del Parque Nacional El Avila. Official
Document, Caracas: República de Venezuela, 1958.
2 For additional details on how such a vertical trend reflects a suburban origin
see Peter Rowe. “Two Cities, Two Valleys and Their Middle Landscapes.”
In La Ciudad-Región: El Paisaje Intermedio, eds. Marcela Ángel, Fernando
Jiménez, and Ximena Samper. Bogotá: Universidad de Los Anges, 2006,
pp. 14–21.
3 See Fundación Polar. Diccionario de la Historia de Venezuela. Caracas: Fundación
Polar, 1988.
4 For details on design considerations for these settlements see Josefina Baldó
and Teolinda Bolívar. La cuestión de los barrios. Caracas: Fundación Polar,
Universidad Central de Venezuela, Monte Ávila Editores, 1996.
5 For detailed understanding of the relationship between the urban and the
rural areas in Venezuela see Agustín Blanco. Oposición entre ciudad y campo en
Venezuela. Caracas: Ediciones FACES UCV, 1974.
6 For a comprehensive description of the political transition in Venezuela from
the 1960s to the 1990s see Miriam Kornblith. “La crisis del sistema político
venezolano.” Nueva Sociedad 134 (1994): 142–157.
7 See Heinz Dieterich. “Socialismo del siglo 21.” Colección Pez en la red
(Fundación para la Investigación y la Cultura) 55 (2007): 195.
8 For the full version of the agreement see República de Cuba y República
Bolivariana de Venezuela. Convenio Integral de Cooperación Entre la República de
Cuba y la República Bolivariana de Venezuela. Official Document, Cuba–Caracas:
República de Cuba y República Bolivariana de Venezuela, 2000.
9 El Universal. “Caracas es la segunda ciudad más violenta del mundo por
homicidios según estudio.” El Universal, August 26, 2009.
10 For a full version of the official list see Citizens’ Council for Public
Security and Criminal Justice. Seguridad Justicia y Paz. 2013. http://www.
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Lessons from Venezuela and Colombia
seguridadjusticiaypaz.org.mx/biblioteca/prensa/viewdownload/5/163
(accessed September 7, 2013).
11 For an official description of the project from 1996 see Consorcio Catuche.
“Desarrollo urbano y ambiental del Valle del Río Catuche (Caracas,
Venezuela).” Habitat. 1996. http://habitat.aq.upm.es/dubai/96/bp377.html
(accessed September 7, 2013).
12 Ibid.
13 For the full text of the regulation see República de Venezuela. Ley Orgánica de
Ordenación Urbanística. Gaceta Oficial No. 33.868. Official Document, Caracas:
Gaceta Oficial, 1987, p. 30.
14 See Federico Villanueva and Josefina Baldó. Un Plan para los Barrios de Caracas:
síntesis del Plan Sectorial de Incorporación a la Estructura Urbana de las Zonas
de Barrios del Área Metropolitana de Caracas y de la Región Capital. Consejo
Nacional de la Vivienda, Caracas: Impresión Minipres C. A., 1998.
15 For a chronological evolution of housing policy transformation in Venezuela
from 1999 to 2007 see Teresa Pérez de Murzi. “Política de vivienda en
Venezuela (1999–2007). Balance de una gestión en la habilitación física de
barrios.” X Coloquio Internacional De Geocrítica. Diez años de cambios en el mundo,
en la geografía y en las ciencias sociales, 1999–2008. Barcelona: Universidad de
Barcelona, 2008.
16 See Josefina Baldó and Teolinda Bolívar. La cuestión de los barrios. Caracas:
Fundación Polar, Universidad Central de Venezuela, Monte Ávila Editores,
1996.
17 See Federico Villanueva and Josefina Baldó. Un Plan para los Barrios de Caracas:
síntesis del Plan Sectorial de Incorporación a la Estructura Urbana de las Zonas
de Barrios del Área Metropolitana de Caracas y de la Región Capital. Consejo
Nacional de la Vivienda, Caracas: Impresión Minipres C. A., 1998.
18 Ibid.
19 Ibid.
20 On the role of the design competitions as part of the plan see Josefina Baldó.
“El programa de habilitación de barrios en Venezuela: Ejemplo del control
del proceso de construcción y de administración de los recursos por parte de
comunidades organizadas.” Tecnología y Construcción [online] 23, no. 1 (2007):
9–16.
21 To better understand the natural event and the consequences see Academia
Nacional de la Ingeniería y el Hábitat. Declaración: Deslave del Litoral Central.
112
Lessons from Venezuela and Colombia
113
Lessons from Venezuela and Colombia
35 Ibid.
36 Ibid.
37 The United States Government Accountability Office has made available an
official report on the “Plan Colombia.” Plan Colombia: Report to the Honorable
Joseph R. Biden, Jr., Chairman, Committee on Foreign Relations, U.S. Senate.
Official Report, Washington, D.C.: United States Government Accountability
Office, 2008, p. 108.
38 See Nuevo Día GDA . “El último día de Pablo Escobar.” El Tiempo. December
3, 2012. http://www.eltiempo.com/gente/ARTICULO-WEB-NEW_
NOTA_INTERIOR-12418129.html (accessed September 13, 2013).
39 See Natalia Matamoros and Bayardo Ramírez. “Entrevista Bayardo Ramirez,
Penalista y Expresidente de la CONACUID.” El Universal. September 29,
2013. http://www.eluniversal.com/sucesos/130929/venezuela-es-primer-
traficante-de-droga-en-america-latina (accessed September 30, 2013).
40 See Edgar Torres. “Jueces Sin Rostro Avanzan Contra Las Bases Del Cartel.”
El Tiempo. April 23, 1992. http://www.eltiempo.com/archivo/documento/
MAM-97022 (accessed September 30, 2013).
41 See República de Colombia. Ley 388 de 1997. Official Document, Bogotá:
República de Colombia, 1997.
42 See Departamento Administrative Nacional de Estadísticas (DANE). Censo
2005–2006. Official Report, Bogotá: DANE, 2007.
43 See Gabriel Alejandro and Rivera Reyes. “Una década de gestión del espacio
público en Bogotá, apreciaciones desde la perspectiva de las políticas públicas.”
Revista de Estudios Sociales, 2002: 90–97.
44 See Federico Fernández, “Laboratorios de reconstrucción urbana: Hacia una
antropología de la política urbana en Colombia.” Antípoda (2010): 51–84.
45 See María Cecilia Orozco. Le Corbusier, Le Corbusier en Bogotá, 1947–1951.
Establecimiento del Plan Director por Le Corbusier en París, 1949–1950 (edición
facsimilar). Vol. 1. Bogotá: Ediciones Uniandes, 2010.
46 “II Foro Técnico Regional sobre Reasentamiento de Población.” Banco
Mundial; Banco Interamericano de Desarrollo. Bogotá DC, May 25, 2005.
http://siteresources.worldbank.org/INTLACINSPANISH/Resources/3_3_
IDU_sin_titulo_doc_es.pdf (accessed October 27, 2013).
47 See Ivonne Malaver.“Enrique Peñalosa Medio Ambiental.” El Tiempo. February
21, 2000. http://www.eltiempo.com/archivo/documento/MAM-1222310
(accessed September 30, 2013).
114
Lessons from Venezuela and Colombia
48 See Marcela Ángel Samper and María Cecilia O’Byrne. Casa + casa + casa =
¿ciudad? Bogotá: Ediciones Uniandes, 2012.
49 See a57. “La vivienda de Germán Samper: arquitectura para la gente.” a57.
November 9, 2011. http://www.a57.org/articulos/resena/La-vivienda-de-
German-Samper (accessed September 13, 2013). See also Marcela Ángel
Samper and María Cecilia O’Byrne. Casa + casa + casa = ¿ciudad? Bogotá:
Ediciones Uniandes, 2012.
50 Camilo Andrés Cifuentes Quin. “Urbanism and the urban in the Bogotá
transformation. Expert discourse and a word from the residents.” DEARQ 11
(August 2012): 138–147.
51 To learn more about the film see Urbanized. Directed by Gary Hustwit. 2011.
http://urbanizedfilm.com/ (accessed September 30, 2013).
52 See Angel Ricardo Gómez. “Fundación para la Cultura Urbana tiende
a desaparecer.” El Universal. July 17, 2010. http://www.eluniversal.
com/2010/07/17/til_art_fundacion-para-la-cu_1975886.shtml (accessed
August 2, 2013).
53 See Grupo Empresarial EPM. EPM. March 9, 2013. http://www.epm.com.
co/site/Home/Institucional/Historia.aspx (accessed August 2, 2013).
54 See Jaime Ruíz Restrepo. Medellín: Fronteras de discriminación y espacios de guerra.
Medellín, July, 2003. http://aprendeenlinea.udea.edu.co/revistas/index.php/
ceo/article/viewFile/6496/5965 (accessed April 4, 2014).
55 Some critics point out the limited capacity of this transportation system. At the
moment, there are only two Metro-cable lines, and a few outdoor escalators,
serving informal areas, which are located on steep terrain in Medellín. Many
more of these Metro-cables and other vertical mobility systems may be
required. In a similar way, a city with the complexity and expanse of Medellín
cannot depend solely on a pair of bus lines.
56 On the history of the Botanical Garden see Jardín Botánico de Medellín.
Botánico Medellín. 2012. http://www.botanico.org/nuestro-jardin/historia.
html (accessed August 2, 2013).
57 See Jasón Betancur Hernández. “Intervención del río Medellín: la Sociedad
de Mejoras Públicas y la administración municipal de Medellín, 1940–1956.”
Revista de Historia Regional y Local 4, no. 8 (July 2012): 241–273.
58 Ibid.
59 The 11th Veronica Rudge Green Prize in Urban Design by the Harvard
Graduate School of Design, in 2013 honored two projects that demonstrated
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Lessons from Venezuela and Colombia
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Figure 3.1: Sketch of the Informal Armatures concept by David Gouverneur
Chapter Three
They are not slums, marginalized urban areas. They are important urban
components in the making that require attention and creative thinking
in planning and design. If we intend to succeed in providing a sustainable
habitat for the urban poor, we just have to move quicker than the pace of
growth of the informal settlements.1
I have intentionally avoided in this book the use of the English term “slums” or
any similar term in other languages, such as favelas in Portuguese, or the Spanish
denominations of tugurios, or villas miseria, because of their negative and derogative
connotations. These terms were originally employed by wealthier groups, and also
by institutions and academics to describe poorer neighborhoods in inner cities
or peripheral new settlements, which presented different standards of living and
cultural values. As is clear throughout the book, informal settlements have the
potential of becoming satisfactory places to live; a change in attitude towards them
may begin by referring to them in a positive manner.
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The concept of Informal Armatures
to deal with urbanization in other contexts. IA operates under the belief that culti-
vated fostered informal settlements should be conceived as part of larger urban
systems, largely because they are poised to become the leading drivers of urbani-
zation in developing countries.
For these reasons, the IA approach differs significantly from previous approaches,
such as the ones envisioned in the Sites and Services programs or in plans and
projects for the improvement of existing informal settlements, by offering more
extensive and complete urban frameworks for self-constructed neighborhoods,
districts, and cities. IA is a multifunctional and transformative method that takes
advantage of contextual conditions, merging compelling formal design and
managerial techniques with the dynamics of informality. The IA initiative is struc-
tured on simple principles that can induce significant change, provided the public
sector and/or institutions and community-based organizations are committed.
That is, there is collective effort to advance these principles and design moves,
engaging the population in shaping their urban habitat.
The IA approach, where informality and intentionality merge, can be compared
to rods submerged in a nutrient-rich underwater environment facilitating the
initial phase of occupation and growth of the self-constructed areas. The informal
settlements behave as mollusks. Such organisms require a favorable milieu and
support medium to grow. The root system of mangroves, for instance, allows clams
to adhere and aggregate until they become larger colonies. Each clam, like an
informal dwelling, is similar in appearance, internal structure, and performance. If
the support systems and the nutrients are rich, the colony flourishes. As the colony
matures, the ecosystem becomes more complex as both the support system and
the organisms evolve.
The concept of biodiversity, where multiple living organisms thrive as part of
a network of interconnected and evolving ecosystems, also applies to these hybrid
urban territories. When formal and informal urbanization grow apart and work
independently, the system suffers. When closely interconnected, they both thrive
and the system becomes stronger and more resilient. Establishing a network of
formal and functional relationships, in which the community plays an important
role, IA supports thriving communities that are adaptable to changing conditions.
As was explained in previous chapters, in most developing countries, formal
and informal areas are spatially segregated, even within cities where both compo-
nents are in close proximity. In many developing countries, the formal residential
areas are the product of mid-twentieth century planning and design principles.
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The concept of Informal Armatures
During the past decades many have been developed as urban enclaves or gated
communities, whether for security or adopting trends from developed countries.
Many consider informal settlements to be urban enclaves where non-residents are
unwelcome.
The formal/informal segregation results in uneven finance, management, and
maintenance. The formal city absorbs an elevated percentage of public investment
because it contributes greater tax revenues, as well as the political leverage that
residents in formal areas can exercise.2 When informal settlements evolve and
consolidate on their own, they usually do not attain sustainable conditions, because
residents cannot address issues about the public domain without some form of
government or institutional support.
This situation does not nurture social tolerance, nor does it allow distribution of
infrastructure investment, including services, mobility, open space, and amenities,
all of which tend to be concentrated in the formal city. Under these conditions,
cities become increasingly socially divided and dysfunctional.
The IA approach operates in a middle ground, recognizing the benefits and
limitations of informal growth, while introducing working methods and design
solutions derived from the formal city or hybrid urban systems. As a preemptive
method, the IA approach envisions favorable spatial and performative conditions
before informal occupation takes place. In addition, IA supports the transfor-
mation process until assistance is no longer required.
The interconnectivity between different components and scales gives the system
robustness and synergy, creating surplus value. Different functions can be accom-
modated in the IA approach. For instance, in the early phases of occupation, public
spaces may allow temporary shelters for newcomers, support food production, and
serve as informal recreational and sport areas and informal markets.
This might manifest as a network of mixed-use areas and more self-sufficient
districts that help to reduce consumption and foster local social ties. Unique
programs in IA territories may include: urban agriculture, recycling or production
of on-site construction materials for dwellings, cooperative construction of infra-
structure, manufacturing programs, or special education.
A review of the historical evolution of urbanization practices in a particular
context can provide valuable insight on the nature of strategies necessary to
sustainably populate emergent hybrid urban landscapes. Some IA initiatives may
provide metropolitan-scaled infrastructural, economic, and service functions,
which act as “urban equalizers” that help informal settlements perform on par
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The concept of Informal Armatures
Figure 3.2: Consolidated informal settlement adjacent to agricultural terraces along the Guiniguada
ravine, Las Palmas de Gran Canaria, Canary Islands
with the formal city. Others may scale down to serve neighborhoods and even
smaller clusters.
The IA approach relies on transformative processes, recognizing that informal
settlements, particularly in the earliest phases of occupation, are extremely
malleable. Informal settlements can adapt to different site conditions and can
transform or expand rapidly. Although informal dwellers have been constantly
uprooted from both rural and urban areas throughout time, they rapidly adapt to
new conditions by assimilating a multiplicity of lifestyles. Therefore, we can infer
that the informal city has a greater transformative capacity than more regulated
formal areas.
The four main contributions of the IA program are as follows: (a) consistent
management and communal engagement in order to ensure the best use of
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The concept of Informal Armatures
123
The concept of Informal Armatures
• The belief that the IA approach can make a difference and receive proper
political, technical, and financial support;
• The availability of appropriate land to carry out operations, whether in public
hands or in the private domain;
• The engagement of the urban actors that will participate in the experiment,
and particularly the community/users in all phases of the operation, each one
lending their utmost priority and responsibilities;
• The spatial layout and the morphological definition of the organizing design
moves/components that can favor the best use of a site’s assets;
• The resources to navigate the system, monitor changes, and for those
actors needed in the initial phases to withdraw when tutelage is no longer
required.
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The concept of Informal Armatures
The urban landscapes created through the introduction of the IA approach can
address the sustainability issues considered indispensable in developed societies. It
is important to keep in mind that there are significant differences between the
industrialized world and the developing nations when it comes to translating
concepts into realities. As such, developing nations require solutions to absorb
informal logics and resources in order to become sustainable and resilient in the
coming decades.
The societies that have the greatest population growth are those that tend
to have fewer economic, technical, and administrative resources. The way these
resources are used, transformed, and multiplied to create value is usually more
important than the resources themselves. Also of importance is the realization that
poorer communities tend to be less aware of the consequences of shortsighted
actions in the urban environment. This is particularly true when settlers have been
displaced and, in unfamiliar new local conditions, act under survival pressures.
The environmental impact of the urban poor in developing countries can also
be severe but differ from urbanization in industrialized societies. It is difficult to
ask a population that can scarcely access food or potable water to be friendly to the
environment, particularly if there is no one to help facilitate access to basic needs.
Creating the conditions for sustainable growth and informing and educating the
community can induce a shift in values, where survival and sustainability go hand
in hand.3
For these reasons the IA approach towards sustainable informality should rely
on simple, low-cost, innovative, and easily implementable techniques. Design
should be non-prescriptive and able to adjust to constantly changing local condi-
tions. Pressing social demands and limited financial resources require carefully
orchestrated actions, in addition to the combined efforts of otherwise disparate
groups with an understanding of the IA principles, components, and modes of
operation.
The central tenets of Landscape Urbanism, which focuses on the structuring
of urban space around green infrastructure and environmentally sensible practices,
encompassing simultaneously morphological and performative aspects, seem to be
well suited for implementation in the developing world.4 Cities in the developing
world will have an important impact on the planet’s future. Introducing green
125
The concept of Informal Armatures
126
The concept of Informal Armatures
127
The concept of Informal Armatures
can provide guidance as new settlers become familiar with composting techniques
for small family agricultural plots.
Family agricultural plots can enable the residents to grow smaller scale fruit-
bearing trees, including diverse species that require more attention. The ensemble
of thousands of individual family gardens can produce large quantities of food, a
production that could be organized through cooperatives fueling small business
and markets. The tree canopy within public spaces and in the family plots can
contribute to the larger urban ecology, adjusted to local climate and supporting
diverse species of insects and birds. Trees will provide abundant shade and yield
fruits that are picked by people of all ages, some to be directly eaten on the spot,
some to be prepared at home in a variety of dishes, and others to help foster the
local economy. In less than a decade, such interrelated actions at various scales
could easily enhance the production of food in new settlements.
Farming as a major component of informal settlements is neither new nor
untested. In South Africa, for example, urban farming in informal settlements
has proven to be a very effective two-fold strategy. At the same time, it improves
the financial conditions of informal communities. It is a landscaped transfor-
mation process that helps new urban residents reproduce elements of the rural
environment they left behind, enriching the urban environment with arrange-
ments that allow for faster urban adaptation.7 The crux of the IA approach
regarding urban agriculture is its proactivity, in which the logic of food production
guides the landscape transformation process prior to settlement.
In order to gain the full support of all the actors involved, such as government
officials, NGOs, experts, institutions, schools, and the general public, it is crucial
to have a decision making team in place that has the capacity to channel efforts
in a productive manner and allocate funds with full transparency. It is common
in developing countries to hear the following expression: “Our country is rich in
natural resources and opportunities, but our leaders are corrupt and inefficient.”
Visions, skills, and transparency are perhaps the most important resources to make
IA a viable approach.
To take advantage of the benefits of the IA initiative, developing countries
must rely on the finest human capital at hand in order to compensate for the
lack of economic capital. This entails integrating and incorporating effective and
128
The concept of Informal Armatures
129
The concept of Informal Armatures
communities simply cannot address many of these aspects fast enough, particularly
when settlements become more complex and grow into large urbanized terri-
tories. Time and scale are crucial aspects of the equation.
The first settlers, who usually arrive in very small groups, focus their attention
on survival and basic needs. But an informal urban conglomerate of 500,000
or millions of inhabitants, which is not uncommon in the mega cities of the
developing world, will require very different support systems, infrastructure, open
spaces, and access to goods, services, jobs, and amenities. These may even need to
be of equal or better quality than those found in the formal city if the goal is to
make a significant difference and equalize living conditions between both forms
of urbanization. The more challenged the communities are, the higher the quality
of the interventions should be.
There seems to be an intermediate condition in which the city, if seen as
an integrated system, can benefit from the qualities of both the formal and the
informal systems, creating better conditions for both by establishing effective
spatial and performative links. The formal brings into play the ability to foresee
the outcome of the urbanization process. It selects better sites, takes advantage of
resources, and creates added value derived from planning, design, and management.
The informal operates with the transformative energy, the velocity, the adaptability,
the resilience, and the ingenuity of communities. These are attributes which the
formal city does not have. The IA approach positions the vitality of informality as
the principal driver of outcomes.
IA embraces the dynamic aspects of the organic growth and freedom that
characterizes the informal city. The IA approach celebrates the will of the inhab-
itants of informal communities, and their desire to express and exhibit their
cultural values, in constructing their dwellings. It allows them to transform their
dwellings from basic shelters into homes and communities. The IA approach
intends to balance inward (informal) and outward (formal) forces, in order to
provide access to affordable and adequate land. In some cases, creating the condi-
tions for accelerating informal transformation may necessitate the reallocation
of some resources from the formal city. In the long term, this would reduce the
informal city’s overdependence on the formal city and make a stronger metropolis.
For the successful implementation of IA, planners, who envision how new
territories will be occupied and transformed, and the direct beneficiaries, who
construct better habitats for themselves, should be able easily to understand its
concepts and design criteria. Quality and complexity are not necessarily congruent.
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The concept of Informal Armatures
By looking all the way back to the colonial period in Latin America, the Laws
of the Indies, we identify a simple set of criteria responding to clear goals (in this
case a colonial enterprise) which were easily executed. Their simplicity allowed
ordinary people to deploy the conceptual and physical product of the Spanish
Kingdom. The Laws were a sort of handbook that translated principles into codes
and design components. They provided explicit guidelines for site selection and
urban and architectural products, but implicitly assumed the cultural idiosyncrasies
of the founders, colonizers, and eventually the local population.
The IA approach seeks to develop simple methods and design solutions that
are deeply sensitive to local conditions, which can address urgent needs with
an awareness of the socio-economic and environmental issues at stake. Though
based on generic principles and design components, IA maintains its nuance by
remaining responsive to local conditions. The Laws of the Indies included recom-
mendations for the selection of sites in terms of defendability, health, availability
of water, agricultural land, and growth potential.
The system was, however, insensitive to natural features like streams and
wetlands, varying geological and soil conditions, the risks of natural disasters, or
even the existence of scenic values on the sites. Even less importance was given
in the Laws to cultural aspects and the ways locals took advantage of site condi-
tions. This happened primarily because the model was to be applied uniformly in
distant, diverse, and unknown territories, imposing European models.
In the case of the Laws of the Indies, trial and error offered clues to better
site selection, and adapting urban and architectural solutions to local conditions.
To illustrate this point, let’s consider that some significant settlements had to be
relocated, defeated by the forces of nature. Others severely altered the existing
natural systems, and eroded the functional relationships that the local population
had with their landscapes. Some colonial settlements destroyed productive wetlands
and Pre-Columbian green infrastructure, as well as rich urban and architectural
products, as in the cases of today’s Mexico City, Cuzco, or Bogotá.
By contrast, the IA approach is particularly responsive to local site conditions. It
addresses far more complex ecological and cultural aspects, since the main benefi-
ciaries and executers of the initiative will be settlers. These settlers are not always
familiar with local conditions, since they might arrive from different regions and
may encounter diverse and unfamiliar ecologies. The IA approach can help this
transition, blending local conditions and the cultural values that the settlers bring
with them.
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The concept of Informal Armatures
The IA task is further complicated when considering the many variables that
have to be addressed, the magnitude of the endeavor in terms of population, and
the global distribution of existing and expected informality. Furthermore, the
globalized world and immediate access to information in contemporary urbanism
have a strong influence on local conditions, lifestyles, and aspirations, as well as
local economic drivers.
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The concept of Informal Armatures
The IA, as a hybrid urban approach, has a good chance of becoming a resilient
and sustainable urbanization method. The standards of living in these new areas
are expected to be, in time, equitable to those in the formal city. Certainly, formal
and informal settlements will be different in character and performance, each with
their own personality. They will offer many urbanites choices in terms of their
benefits, while eroding the physical and cultural barriers that today separate the
formal from the informal.
The IA approach to physical organization can then accommodate various
activities, creating a network of relations in which physical and non-physical realms
come together.The manner in which the IA steers territorial occupation can greatly
determine the future of the settlement. The most difficult task may be to define the
proper distribution and equilibrium between the components that define the public
realm, the land fit for new settlement, land for supplementary and productive uses,
and the performative conditions that will stimulate systemic growth.
Probably one of the main sources of uncertainty and fear on the part of the
new settlers is the fact that they are facing an unfamiliar environment, that they
may be evicted from the land they occupy, their sites may not be stable, and their
efforts may be lost. Thus areas designated for their occupation in the IA approach
should reaffirm a sense of belonging and hope for new settlers. The community
should perceive facilitators of IA as trustworthy partners who help deliver an
efficient way to inhabit the land and engage in a productive and rewarding
urban living. A simple way to imagine how an IA fostered territory is spatially
organized is to visualize a system of performance strands that define the public
realm, capable of sustaining multiple uses and functions. These strands, by default,
act as placeholders for informal occupation, which will act as receptor zones for
the new settlers.
The public realm interventions of the IA approach are physical insertions in the
territory with precise dimensions and physicality, which may be achieved by very
simple and inexpensive measures. The facilitators of the IA experiment must have
the skills to motivate the settlers to engage in the initiative, inviting them to be
an active part of subsequent transformations. These initial formal and managerial
conditions should be able to convey to settlers that the IA program offers clear
advantages as a collaborative enterprise.
It can be expected that, during the early phases of occupation, the IA facilitators
will center their work on urgent and immediate needs, without losing sight of the
future of the settlement as part of larger and more complex urban systems by:
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The concept of Informal Armatures
a. Providing settlers with a sense of security that they are occupying a piece of
land from which they will not be evicted, receiving a title and an address that
identify them as settlers;
b. Securing access to potable water, even if it is only initially provided by a well
or a cistern, and access to food, including the possibility of growing their own
individually or through cooperatives in designated lots;
c. Offering settlers safe public spaces for socialization. These might be symbolic
foundational public spaces, with the potential to be associated with the admin-
istrative entity in charge of propelling the IA and helping settlers feel confident
that the IA will provide them with the initial support and information to create
satisfactory urban conditions;
d. Facilitating sources of recycled, site-produced, or outsourced construction
materials to begin dwelling construction, with technical assistance on the
individual and communal levels.
The public spaces of the IA approach should be flexible enough to host diverse
activities, ranging from informal markets, to sporting events, to community rituals
and cultural events. They should also include lighting, to make night gatherings
safe at a time when, especially in nascent settlements, it is likely that the settlers
are using candles and kerosene lamps. Initial support systems could include basic
health facilities and daycare centers for families. Public spaces for cultural events
and markets can help foster civic pride, encouraging a sense of ownership and
shared responsibilities.
This is one example of the array of services, goods, and emotional conditions
that informal settlements rarely enjoy during the initial phases of unsupported
occupation. Simple landscape and design interventions might begin to establish a
sense of belonging by providing basic gathering spaces. Basic services, like potable
water and sanitation facilities, minimum lighting, and humble community center
constructions, might then suffice as initial structuring elements in space. Perhaps,
most importantly, there is the human component represented by the IA facilitators,
who can contribute by shaping the new settlements, as well as helping to foster a
sense of attachment of the community to the site.
Important decisions for the facilitators of the IA approach will be to establish
the appropriate balance between the interventions on the public realm and the
means to assist the community in the self-constructed areas, decisions that are
intrinsically connected. In the IA initiative the structuring operations of the public
134
The concept of Informal Armatures
realm are intended to act as a supportive urban landscape system, with broader
city and metropolitan implications, in conjunction with a public framework at a
neighborhood scale.
Due to the financial limitations of first-wave informal settlers it can be expected
that the facilitators of the IA should be able to provide small lots and basic initial
housing shells that will offer the settlers the possibility of dwelling expansion. The
compactness of these lots and dwellings should be compensated through more
generous systems of public spaces. Many dense and successful pre-Modernist
cities offer a rich public realm for civic enjoyment, presenting tight urban infill,
comprising predominantly residential/mixed-use components.
In these cities, the residential units tend to be smaller than those found in less
dense urban scenarios where little attention is paid to the public realm. In other
words, greater urban amenities in the public realm often correspond to smaller
dimensions in the private domain. But again this cannot be written in stone. Some
communities with a stronger agrarian heritage and fewer demographic pressures
and land restrictions may profit from assembling larger residential lots to accom-
modate bigger or extended families and including individual or communal gardens.
Whether creating smaller parcels with large public spaces, or larger lots to
accommodate individual gardens, the IA approach establishes an integrated system
of public and individual/communal initiatives, both in constant transformation.
The nature and velocity of such transformations may vary from one context to
another. IA facilitators should have a sense of how the public and private realms
have evolved locally in order to have a better appreciation of how they may
interact and transform in the IA territories.
For instance, in many of the larger Latin American cities, adobe courtyard walls,
and low-rise structures on the colonial grid, were replaced by myriad building
types in the absence of historic preservation bills. By contrast, the infill component
of the informal settlements that emerged in most developing countries only after
the second half of the twentieth century followed a more predictable pace, from
the initial occupation to later phases of consolidation.11
In Latin America, many plazas and street grids resulting from the Laws of the
Indies have barely changed centuries after they were first inscribed into the land.
Despite this, the grid has allowed for the introduction of some new forms of infra-
structure and modes of mobility, and its permanence has helped to convey a sense
of place and urban organization, morphologically and functionally differentiating
these foundational urban cores from the other parts of the city.
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The concept of Informal Armatures
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The concept of Informal Armatures
Figure 3.4: Recent informal settlement in the higher elevations of the Northeastern Commune,
Medellín, Colombia
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The concept of Informal Armatures
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The concept of Informal Armatures
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The concept of Informal Armatures
a. The selection of favorable sites, taking into account their internal conditions as
well as their relations with the existing urban areas, rural settlements, and the
natural landscape;
b. The assortment of initial space-marking components, including the definition
of their location and the establishment of a set of relevant roles. This includes
the elements that will define the public realm, as well as the areas where settlers
are invited to begin the construction of their dwellings;
c. The means (physical and non-physical) to ensure that the public realm remains
public and free from unwanted permanent occupation, be it informal or formal;
d. The capacity to manage and monitor the entire system as the settlement
evolves, adjusting initial components and managerial conditions and intro-
ducing new ones.
Notes
1 This quote was taken from the lecture presented by David Gouverneur,
“New Forms of Urbanization,” during the IX National Housing Convention,
organized by the Venezuelan Construction Chamber in October 2004, in
Caracas, Venezuela. The general topic of this event was how to attain a better
habitat, produce more housing, and offer more employment. Other lecturers
during this event were Enrique Peñalosa from Colombia, Jaime Lerner from
Brazil, Ken Greenberg from Canada, Flavio Ferreira from Brazil, and Graciela
Flores from Venezuela. All presentations emphasized the importance of
envisioning the provision of shelter as an integral component of urban design
and management.
2 On the characteristics of the formal city see Oscar Grauer. Principles, Rules
and Urban Form: The Case of Venezuela. PhD Thesis, University Microfilms
International, 1991.
3 This idea bears some resemblance to the one espoused by Michael Rios in
“Marginality and the Prospect for Urbanism in the Post-Ecological City,” an
article in Andrés Duany and Emily Talen’s Landscape Urbanism and its Discontents.
Gabriola Island, BC: New Society Publishers, 2013. Rios advocates taking “a
socio-ecological perspective” that sees social and ecological sustainability as
not just going hand in hand, but as two inherently interconnected concepts.
4 On the definition of “Landscape Urbanism” see Charles Waldheim. The
Landscape Urbanism Reader. New York: Princeton Architectural Press, 2006.
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The concept of Informal Armatures
141
Figure 4.1: Barrios de Petare, Caracas, Venezuela
Chapter Four
Forces at play
The IA approach focuses on addressing the urgent demands of the urban poor.
Twenty-first century cities must efficiently use resources, diversify economic
drivers, and embrace effective forms of management and governance. To work
towards a future less reliant on fossil fuels, the IA approach prioritizes low energy
consumption by reinserting compact, walkable, and mixed-use areas into urban
habitats. These were all features of preindustrial and informal cities. While incor-
porating these well-established principles of city making, the IA approach also
tackles contemporary challenges of developing countries, such as scarcity of food
and water, sanitation and health, waste management, efficient mobility, information
access, economic drivers, political participation, and peaceful living.
David Grahame Shane argues in his book Urban Design Since 1945: A Global
Perspective that the post-war city was characterized by models that relied on cheap
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Forces at play
oil and mounting globalization forces.1 These forces concentrated new economic
activities in aging urban centers, which lost their residential population as cities
expanded outward and colonized new territories.2 In industrialized nations this
manifested in the decay of pre-oil urban centers and the emergence of auto-
oriented suburbs.
Cities of developing countries followed a similar pattern, with wealthier
residents moving to suburbia as poorer immigrants and city residents began
occupying the depopulating urban centers. Poor immigrants re-densify older
urban areas in crowded and unhealthy tenements, in addition to introducing a
diversity of informal, commercial activities. However, it wasn’t long before the
low-income population began squatting on the urban fringe, giving birth to
peripheral and underserviced or deurbanized informal settlements.
The formal and the informal peripheries were to become predominantly single-
use residential areas. As population increased, with higher growth rates within
the lower-income groups, the inner cities changed roles again. The tenements
were gradually replaced by higher real-estate commercial-oriented activities, and
the informal periphery expanded further. Growing physical separation of the
wealthier suburban areas from the peripheral informal settlements would result in
social segregation, affecting the performance of the entire city.
The predominantly informal city of the future must carefully address social
segregation by diminishing the disparities between both urban forms and tackling
the dysfunctional conditions present in many developing cities today. The formal
and the informal areas must be handled as integral components of a rich and
evolving urban ecosystem.
In order to respond to this challenge, the wealthier suburbs must be sustainably
reimagined, requiring re-densification, creating new mixed-use sub-centers,
incorporating jobs, and encouraging social mixing. Similarly, the peripheral
informal settlements must be transformed, incorporating local and metropolitan
services, amenities, public spaces, infrastructure, efficient forms of mobility, and
employment. Improved urban conditions in existing informal areas and the
inclusion of formal design and managerial aspects in the IA fostered territories will
also contribute to accelerated social mobility and mixing.
Strategies acting on the urban periphery—which usually corresponds to
suburban patterns in the industrialized world—as well as on peripheral informality,
should focus on making these areas less dependent on older city centers and main
city corridors where jobs, services, and amenities are generally concentrated,
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Forces at play
forcing the suburbanites to commute and consume more energy. These changes,
in addition to the reinforcement of public transportation, will help ease the
dependence on private vehicles and reduce vulnerability to energy shortages.
Sustainable practices favoring re-densification and mixed-use formal districts
may be plausible in suburbia, in new urban expansion areas, and in central
locations. These trends are already emerging in some wealthier nations, fostered
by creative zoning. However, the growth of the predominantly self-constructed
city, accommodating the needs of the poorer groups, will inevitably occur on
the urban fringe, which significantly expands city boundaries. Since the majority
of the population must self-construct their neighborhoods because they cannot
access the formal real-estate market, very different proactive managerial and design
moves will be required to favor mixed-use, balanced, and socially integrated cities.
This is the main challenge of the IA approach.
It is important to clarify this aspect. One of the most valuable commodities for
poorer groups is to have access to very cheap or free land to begin to construct
Figure 4.2: Commercial activity in the vicinity of the Santo Domingo Metro-cable station, Medellín,
Colombia
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Forces at play
their shelters. Densification of the districts for the very low income groups will
occur gradually as they consolidate and expand their dwellings, and not through
a change of zoning or the construction of formal housing or mixed-use projects.
Consequently, unless there are tracts of underutilized land within the existing city
limits that can readily be made available for this purpose, which is not usually
the case, proactive land banking and public policy could offer an opportunity to
reimagine a more sustainable future for the predominantly informal city.
According to the IA approach, these instruments of land management can then
assure the successful combination of self-constructed areas with a diversity of uses
for other social groups and include other formal interventions. This is among
the critical foundations for the formal and informal cities to achieve a mutually
beneficial relationship and become an integral system.
Balancing the expansion of new informal settlements with the existing formal
and informal cities is crucial for creating more sustainable cities. This is only one
of a long list of considerations that should be addressed by the IA approach. Other
considerations include the following: the protection of valuable agricultural land,
water conservation, food security, waste reduction, the provision of materials for
the construction of the self-constructed districts, energy production, and alter-
native modes of economic production.
For the majority of informal settlers, adapting to their new habitats represents a
new beginning that instills a sense of hope and progress, as well as anxiety and fear.
The socio-cultural values of the settlers, their skills, and their experience in rural
or urban living may vary greatly from one country, region, city, or neighborhood
to another. Equally different will be the manner in which they confront and adapt
to their new urban environment.
In general, these new settlers may come from two very distinct environments:
migrants arriving from rural areas, displaced by poverty, land, religious or ethnic
conflicts, or violence; or they are already urbanites coming from challenged
informal or low-income communities, driven away by violence or overcrowding.
In some countries, such as Venezuela, rural migration came to a halt more than
three decades ago. Other countries, including Bolivia and Perú, the majority of
Central American countries, most African nations, and some Asian countries, are
still experiencing marked rural-to-urban migration.
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Forces at play
The fear of an unknown habitat can compromise the future of the settlement
and expose its residents to violence and intimidation. Newcomers represent easy
targets, as they are naïve about how to survive in the urban milieu. Indeed the
hopeless nature of many informal areas helps to perpetuate crime, violence, and
intimidation. Rates of violence are not uniformly high in the world’s informal
settlements; however, the highest indicators of violence in these settlements are
seen where multiple gangs fight over control of illicit economies, such as drug
production and trafficking, prostitution, and gambling.3
Violence often correlates with accessibility issues, and therefore lack of policing.
It also corresponds with high unemployment rates, weak family structures, low
education levels, and drug related activities. Secluded informal settlements, virtually
inaccessible from the formal city, can become “safe havens” for drug traffickers
who exploit various areas of the market, namely production, distribution, and sales.
In the absence of efficient policing mechanisms, the only competition for a drug
cartel in market domination is another gang. Gang rivalries often result in battles
over territory, where many innocent people are harmed or killed. Furthermore,
lacking access to education and jobs, young men are prone to participating in these
activities, which offer quick and easy money.
Violence in these informal settlements affects everyone, not only those involved
in the drug trade. Gangs operate freely, assaulting residents along pedestrian paths
and on public transportation routes serving poor neighborhoods. In a report on
crime in Medellín, written before the radical urban transformations described
earlier in the book, titled Conflicto, violencia y actividad criminal en Colombia: Un
análisis especial, there are accounts of how stray bullets from targeted attacks on
other gang members frequently killed innocent people.4
Degrees of violence vary significantly from one country to another, and even
within the same nation, region, or city. Some countries, such as Zimbabwe, which
has strong top-down political control, are relatively safe, while others with equally
centralized political systems and a strong military presence, such as Venezuela, are
extremely violent. Some countries with a very large population and high levels of
poverty, such as India, are less violent societies; while others with low population
and small cities, El Salvador for example, have very high rates of violence.
Empirical data suggest that violence rates are higher in informal settlements
than in formal areas, with homicides in informal areas alone reducing the life
expectancy of a resident of Brazilian informal settlements by seven years.5 In
some countries, such as Venezuela and Brazil, officials deploy the military to
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Forces at play
control criminal violence in informal areas where adolescents and young men are
frequently involved in drugs and the use of weapons.
Even with high levels of violence, informal-settlement dwellers frequently
develop strong emotional connections with their neighborhoods. The processes
of socialization are clearly hindered, however, when there are no public places to
gather or when environmental and safety concerns limit the use of public space.
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Forces at play
move in? Which design elements may help to provide a compelling spatial quality
and function when the initial public buildings and the dwellings of the settlers are
still very precarious constructions? How can the site features be taken into account
to enhance the identity and place bonding of the settlement? How can settlers be
involved in the implementation of the schemes from the early stages of the settle-
ments? How can IA facilitators select the best local human capital, those with the
talents and skills to operate efficiently?
This can be attained through a combination of morphological and performative
conditions, starting with the provision of public spaces which are well located,
properly maintained, and animated with different activities.The physical definition
of these places, the presence of “community eyes” on them, and the institutional
support to design and maintain them, all contribute to creating stewardship for the
emerging public spaces. Prefiguring the public realm using simple means is one of
the best tools to convey to settlers a sense of communal belonging, opportunity,
and peace.
Public spaces and the civic buildings of the IA initiative should be able to
convey sociability, security, and enjoyment. Informal settlements are usually
perceived as unfortunate, on the fringe and excluded from the benefits of city
life. This marginal condition is evident in the poor quality and inadequately
maintained public realm of the informal settlements. The IA approach offers the
opportunity to reverse these conditions early in the process.
Further, the IA interventions call for proposals to be highly responsive to
territorial features, such as topography, hydrologic systems, vistas, climate, and
traces of the rural past. Here, IA designers and participants define the appropriate
spatial configuration of public spaces, which may be achieved with simple design
moves and at low costs. These include, but are not limited to, the following: taking
advantage of the shade of existing trees or planting new ones, employing subtle
grading interventions, or treating pavements.These design interventions contribute
to shaping spaces that the settlers can promptly connect to. Spatial definition can
also be managed in simple ways, for example using wooden markers or ropes to
delineate the borders of lots that will promptly be occupied by self-constructed
informal urban infill.This mode was simulated in an IA occupation drill, illustrated
in Chapter 5.
These spaces should not be too wide, in order to guarantee visual engagement
with the adjacent buildings. Chapter 5 provides general information on the role,
character, and dimensions of the system of public spaces. It is also suggested
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150
Forces at play
Figure 4.4: Open spaces along the San Javier Metro-cable line, Medellín, Colombia
community was asked to imagine how their public places would be and offer
input on the locations, scales, programming, physicality, and names of public
spaces.6 The community’s participation in guiding the transformation, appearance,
construction, and performance of its own habitat created a strong sense of
belonging and citizenship.
One of the most important tasks for ensuring the sustainability of informal settle-
ments is to foster their physical and functional integration with the adjacent urban
areas, in other words to avoid the inequities produced by physical segregation
that were described earlier in this book. The IA approach offers the possibility
for improving connectivity and mobility between new informal settlements,
preexisting ones, and the formal city by providing the infrastructure and services
that would normally only be found in the formal city.
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More recently, in Río de Janeiro, urban elevators and cable cars were built
to facilitate connections from the Metro and bus lines to informal settlements
and new public spaces. Efficient modes of transportation, accompanied by well-
designed and maintained open spaces, became nodes of intense urban activity,
which in turn encouraged social encounters among people from different social
strata.9
From the Caracas, Río, Bogotá, and Medellín experiences, we also learn that
these interventions in the public realm, related to transportation systems, create
safer and more attractive urban environments. These case studies also reveal that
adjacent informal settlements with access to well-maintained public spaces and
mobility options quickly begin to transform. Residents realized the opportu-
nities offered by better accessibility and safer environments, so they improved the
appearance of their constructions, opened small shops, restaurants, and bars, and
even upgraded their dwellings by expanding their homes for their own use or to
gain rental space.
Investment in mobility infrastructure and associated public spaces may
also be used to encourage the occupation of new informal settlements on
un-urbanized land.The conundrum here is that while spontaneous construction
often occurs where some sort of accessibility exists, official plans usually refrain
from suggesting infrastructure investment in order to foster self-constructed
initiatives.
To illustrate this point we would have to refer again to the pedestrian and
bike Alamedas laid out over non-urbanized land in Bogotá, the Metro-cable of
San Javier, the second gondola system constructed in Medellín, or to the recently
inaugurated Catuche Metro-cable in Caracas. In Bogotá, the pedestrian and bike
Alamedas were used to link informal settlements with the formal city. This was
the case of the Alameda El Porvenir, which presented sections that traversed
un-urbanized land, clearly indicating that pedestrian-friendly spaces were to be
a priority for these new urban areas. However, the adjacent vacant land was only
reserved for subsidized formal public-housing initiatives and not to encourage
informal occupation.
Similarly, the final station of the San Javier Metro-cable in Medellín could have
been used to settle a new predominantly self-constructed region and create a new
centrality. It was, instead, used simply to provide access to fragmented patches
of new social housing and market rate units, undermining the potential of this
important mobility device to help the poorer segments of the population.
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Forces at play
The degree of attention that developing countries dedicate to the mobility of the
physically impaired varies from one city to another. Sometimes, the codes that
address the needs of the physically impaired have been adopted from those applied
in industrialized nations, but they are not enforced. Such is the case in Venezuela,
where as National Director of Urban Planning (1991–1995) I enacted the national
codes for disabled access in public spaces and public buildings.10
Even today, most sidewalks in the formal areas of Caracas lack ramps and
are cluttered with obstacles that impede the passage of wheelchairs. And for
the majority of the urban poor living in the steep hills of Caracas and other
Venezuelan cities, these codes have no meaning at all, considering that often
these neighborhoods don’t even have sidewalks. By contrast, Medellín’s formal
and informal districts alike have an impressive system of renovated sidewalks and
open spaces that are disability-friendly, including guiders in the pavements for the
visually impaired.
While statistics are not readily available, some developing countries have high
rates of disabled young men living in informal settlements, many as a result of
violence or motorcycle accidents. In a number of developing countries, the
relatively inexpensive cost of this means of transportation and the lenient traffic
rules concerning motorcycle usage has increased accident rates. For example, in
Venezuela the motorcycle association continuously declares how “motorcycle
accidents have become a public health problem. At any given moment, in each of
the major hospitals in Caracas there are more than 100 injured from this cause.
There are children maimed by or killed in these accidents.”11
The IA approach offers a unique opportunity to provide appropriate condi-
tions for disabled access in newly urbanized territories, by including a simple set
of regulations and design solutions in a preemptive manner. By doing so for the IA
accompanied initiatives, they may become citywide references. Initially enforcing
the codes and enabling creative design solutions may be difficult since they depend
on policing and proactive response. However, once communities appreciate the
difference these solutions make, they will apply the necessary pressure to continue
implementing them.
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Forces at play
modes of public transportation together with regional, urban, and local mobility
infrastructures. The IA approach seeks to define appropriate uses, such as insti-
tutions, agricultural areas, and large parks, which may act as buffers to protect
regional corridors from occupation. While informal settlements are essentially
pedestrian friendly, they require efficient modes of mobility. The innovative
solutions, such as the Metro-cables, pedestrian and bike Alamedas, BRTs such as
the Bogotá Transmilenio, or water-buses and ferries, in areas where large informal
settlements on waterfronts exhaust land transportation options, are all valuable
precedents for IA initiatives.
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Forces at play
to settlers. In the future, these may be the rights-of-way required for implementing
mobility systems.
Another option is to shift the mobility corridors to different locations as
demands change. An initial mobility backbone may induce the early occupation
of new settlements, allowing for public transportation.When the demand surpasses
the capacity of these first solutions, adjacent corridors may be employed to handle
transportation lines and the preliminary ones can be converted to a bike and
pedestrian-friendly system.
These evolving, flexible land uses are critical to the IA approach. Even as
such land uses transform, IA initiatives emphasize the ability to bundle different
functions, including mobility, with a diversity of other functional aspects. These
aspects include: water management, urban agriculture, alternative sources of
energy, creative modes of economic production and marketing, and ecological
services.
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Notes
1 See David Grahame Shane. Urban Design Since 1945: A Global Perspective.
Hoboken: Wiley, 2011.
2 Ibid.
3 Ibid.
4 For the full report see Fabio Sánchez, Ana María Díaz, and Michel Formisano.
Conflicto, violencia y actividad criminal en Colombia: Un análisis espacial. Bogotá:
CEDE (Centro de Estudios sobre Desarrollo Económico) document no.
2003-05.
5 For detailed statistics on sources and types of violence in such settlements
see United Nations Habitat. The Challenge of Slums. Global Report on Human
Settlements. London: Earthscan, 2003.
6 The “Talleres de Imaginarios” or Workshops of the Imaginary are a social
methodology that involves the community in the development of projects
and promotes active participation in all stages of the process, from identi-
fying problems and opportunities through field trips, to the formulation and
approval of projects. This enables the formation of consultation, participation,
and community decisions, as against a comprehensive intervention model.
To learn more about the process see PUI Empresa de Desarrollo Urbano.
Proyectos Urbanos Integrales. http://proyectosurbanosintegrales.blogspot.com.
es/p/que-es-el-pui.html (accessed November 1, 2013).
7 On the importance of connectivity to achieve social equality see United
Nations Conference on Environment and Development. Rio Declaration on
Environment and Development. Conference Report, Río de Janeiro: United
Nations, 2012.
8 On informal urbanization and pattern repetition see David Gouverneur.“De los
superbloques a los asentamientos informales. Concepciones disímiles, resultados
similares.” La ciudad viva. March 2006. http://www.laciudadviva.org/opencms/
export/sites/laciudadviva/recursos/documentos/De_los_Superbloques_a_
los_Asentamientos_Informales.pdf-ee21e2583c667528b8c78f69be3970e6.pdf
(accessed July 29, 2013).
9 The mobility interventions in Río de Janeiro also significantly reduced crime
rates in associated areas. For more on mobility in developing countries see
Eduardo Vasconcellos. Urban Transport, Environment and Equity: The Case for
Developing Countries. London: Earthscan, 2001.
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Figure 5.1: Conceptual design components of the Informal Armatures approach. From top to
bottom: Corridors, Patches, Stewards, Ensemble. Sketches by David Gouverneur
Chapter Five
This chapter describes the design components that facilitate deployment of the
IA approach. These components work in concert to spur the growth and trans-
formation of new informal settlements. To facilitate its implementation, the IA
approach deploys a simple set of generic design and spatial/morphological strat-
egies. In essence, the components are the IA initiative’s toolkit or lexicon. They
take advantage of informality’s dynamic nature to steer the growth of sustainable
self-constructed cities. IA’s design components offer an array of urban ecologies
that are not often found in either informal or formal cities.
These design components can be organized into three general categories:
Corridors, Patches, and Stewards. Each category has a strong influence on the
spatial organization and performance of the host urban system. The simplicity
of this lexicon is agile enough to deal with various scales of intervention all at
once. Design elements then receive the benefits of accumulated complexity and
value over time. Corridors, Patches, and Stewards influence each other, inducing
morphological, experiential, and functional changes that support a network of
new physical and performative relationships. Chapter 6 further delves into aspects
related to the implementation and performance of IA’s three-pronged approach,
with Chapter 7 providing case studies that explain how the design solutions may
adapt to different contexts and scales.
The deployment of Corridors, Patches, and Stewards is guided by the following
key principles: engagement with natural and cultural landscapes, working with
organically evolving forms, and neighborhood improvement with healthy gentri-
fication. The graphics that accompany this section illustrate how these three
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IA components and principles
Figure 5.2: Existing site conditions and Corridors: Attractors (in hatched lines) and Protectors (in
areas shaded grey). Image: David Gouverneur, Trevor Lee, David Maestres, and Autumn Visconti
components operate individually and the ways in which they work as a system.
The following words offer a hypothesis of the nature, spatial organization in the
sites, and expected results for each component.
5.1 Corridors
Initial design strategies play an important role in defining the spatial and perform-
ative conditions of the new settlements, as the first of many layers that will shape
the territory. The IA approach simultaneously creates the public realm alongside
initial occupation. The spatial configuration, management, and programming
of these spaces are meant to encourage user participation and promote social
cohesion. As discussed in earlier chapters, the informal settlement improvement
projects in Venezuela and Colombia carved out open spaces from the compact
urban fabric in areas where there already existed well-established and socially
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IA components and principles
Figure 5.3: Accessibility and public spaces create safe and animated districts. Barrio Santo
Domingo, Medellín, Colombia
165
IA components and principles
5.1.1 Attractors
Attractors intensify activity. They serve as gathering places for the community,
providing a wide array of services and activities. They facilitate the occupation
process by acting as magnets, offering a combination of assets that the settlers
normally seek in unassisted informal occupations, but with enhanced morpho-
logical and administrative conditions to establish the benefits of anticipated
neighborhoods. Attractors offer important urban qualities that are rarely present in
166
IA components and principles
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IA components and principles
Figure 5.4: Academic proposal for the protection of wetlands and agricultural land in Funza-
Mosquera, Sabana de Bogotá, Colombia. Images: Luke Mitchell; Instructors: David Gouverneur and
Abdallah Tabet
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IA components and principles
began to visit. The visitors were attracted to the unique sites enhanced by the
mixture of informal and formal landscapes.
The ways in which an Attractor is initially defined, as well as its transformative
qualities, will vary according to context. In some cases, the provision of potable water
or the presence of a community center that facilitates the assignment of lots to build
homes will suffice to attract settlers to desirable locations. In others, the extension
of a mobility corridor with communal services on non-occupied land, such as the
Alameda El Porvenir in Bogotá, or La Aurora Metro-cable station in Medellín, will
catalyze urbanization. However, the IA approach is expected to support a diversity
of uses and landscapes that aim to quickly steer a nascent settlement into a healthy
future. Thus the Attractors, and likewise the Protectors which are described in
the next section, should encompass multiple spatial conditions and functions in
accordance with the different stages of a settlement’s evolution.
5.1.2 Protectors
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IA components and principles
170
IA components and principles
5.2 Patches
Attractors and Protectors define the framework of the public realm, acting as place-
holders for urban infill. Although supplemented by more formal interventions,
the urban infill will be predominantly self-constructed by the community. Thus,
urban infill will be a combination of individual and communal efforts, publicly
supported initiatives, and developer-driven operations. In the IA approach, these
infill areas fall under the general category of Patches.
The combined influences of the Corridors on the Patches, where people live,
shop, and produce, set the IA approach apart from other un-fostered informal
settlements, providing morphological and functional conditions that informal
settlements could not achieve without external support. The IA approach defines
two very distinct sub-categories of Patches: Receptors, where informal occupation
is expected to occur, and Transformers, which sustain a diversity of productive
and income-generating uses. Receptors are areas made available for the settlers to
self-construct their dwellings. Transformers are dynamic, rapidly changing zones
for the provision of services, commerce, and production, and eventually more
complex urban uses and real-estate operations.
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IA components and principles
Figure 5.5: Patches: Receptors and Transformers combined. Image: David Gouverneur, Trevor Lee,
David Maestres, and Autumn Visconti
Receptors are components that secure the land where the informal settlers will
be attracted. The Receptors are conceived as an opportunity to plant the seed of
strong, cohesive, and vibrant neighborhoods. A good rule of thumb to define their
size is to envision the organization and scale of the Receptors as identifiable patches
that should be easily accessed by foot. This simple measuring stick will vary from
one context to another, depending on behavioral patterns, topography, climate,
environmental conditions, and safety. Pedestrian accessibility to basic community
services like schools, sports facilities, day care centers, neighborhood stores, and
parks may be good indicators for defining the scale of the neighborhoods.
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IA components and principles
Figure 5.6: (Top) Initial phase of settlement in Hopley Farms, Harare, Zimbabwe. (Bottom)
Consolidated informal settlement in Chacao, Caracas, Venezuela
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IA components and principles
Since the process of self-constructing the housing and neighborhoods can usually
be accomplished by the settlers without much assistance, the IA approach does
not offer particular solutions or recommend formal organizations to deal with the
Receptors. But even in the unassisted scenario, the evolution of the neighbor-
hoods initiating from Receptor areas within an IA approach will be significantly
different from those of unguided informal occupation. The urban results of the
guided approach, however, are typically much better because the efforts that are
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IA components and principles
required to improve settlements in the future are far less effective than planning,
designing, and preparing for pre-organized occupation. This is especially the case
when settlements require particular assistance, like when settlement occurs in
seismic areas, or over very steep slopes. Additionally, public assistance within the
Receptor Patches will accelerate growth of the communities and make a signif-
icant impact in their evolution.
Contexts in which good management and funding are scarce will likely focus
on the Corridors and Patches while favoring a laissez-faire approach to Receptors,
resulting in unguided squatting, which, in turn, may require informal settlement
improvement projects down the road when they are denser and more established,
thus more difficult to intervene in and improve. In all cases, community leaders
are expected to help administer the IA initiative from an early stage, allowing for
their considerations on how to introduce design and management conditions in
the Receptor Patches, bringing in their aspirations, skills, and labor.
The IA model creates the conditions for an urban ecology where various
people and conditions overlap and interact. This diversity is attainable within the
Receptor Patches. Envisioning the occupation of the Receptors as a combination
of “come and squat schemes,” together with Sites and Services programs, and a
percentage of formal housing, induces faster transformations and creates stronger
neighborhoods. The IA approach moves beyond dialectic top-down or bottom-up
initiatives, to articulate a “middle ground” where the settlers can share the positive
contributions of each occupation model at any time.
An analysis of the socio-economic conditions of the potential settlers can help
identify appropriate public realm solutions, as well as private dwelling combina-
tions. IA facilitators should have the ability to explain how the program is meant
to perform, and gain the trust of the various settlers. In some cities, rural-to-urban
migration, combined with demographic pressure from within existing informal
areas, leads to informal growth. Rural migrants tend to have lower expectations
and fewer means to access their own goods and services from the formal city. For
them, the priority is to secure a lot to build their homes and to access the basic
services that are provided by the Corridors and Patches. That is, they will be more
dependent on public support in this early stage of becoming urbanites.
The urbanites that move to the new IA fostered district will likely have regular
incomes, receive family support, or have some capital from selling or renting their
informal homes. This group may have higher expectations, likely seeking a better
environment and housing solution than preliminary settlers. They might be able
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to afford a more complete urban product, such as a basic dwelling unit with the
capacity of expanding/improving it, or a modest formal housing solution.
In February 2013, an Informal Armature experiment was carried out in an
open field at the University of Pennsylvania. It served as a drill to simulate the
occupation of a small Receptor Patch. While certainly removed from the condi-
tions of a developing country, this experiment allowed the facilitators to plan for a
situation similar to those that IA administrators will encounter, as they prepared to
receive “settlers” in Receptor Patches and monitor how the occupation performs.
This experience corroborated the following:
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a. Offering tent shelters with basic services not that different from the emergency
or refugee camps employed to house communities displaced by natural events
or conflicts;
b. Incorporating recycling centers to take advantage of city debris that can be
used to provide very low cost or free construction materials for the settlers,
enabling families to begin to occupy their lots in the Receptor Patches and
move out as soon as possible from the provisional tent shelters;
c. Offering low-cost transportation for construction materials, technical assis-
tance, tools, and machinery;
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Figure 5.8: (Top) Stewards Over Corridors and Patches. Image: D. Gouverneur,
T. Lee, D. Maestres, and A. Visconti. (Bottom) Park and community services in a
defunct quarry, Soacha, Colombia. Image: R. Ahern. Instructors: D. Gouverneur
and A. Tabet
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or recreational services. Some Patches could restrict urban occupation for longer
periods and become more specialized urban agricultural areas than the staple crops
introduced during the initial occupation phase. Others may be used for alternative
forms of energy generation.
In some cases, these tracts originally on public lands may be occupied by
non-public uses, provided this strengthens the urban system and benefits the
community. Public land that is in early phases may serve as construction or
recycling sites or may be sold or leased in the future to private developers to incor-
porate more sophisticated commercial uses, market-driven housing, or mixed-use
developments. These additions may contribute revenue streams to the diversity
of the urban system, and increase social mixing, while at the same time attract
funding and allow the public sector to gain some return on early investment. In
conventional urban planning and urban design schemes in practice in most devel-
oping countries, the private sector usually takes advantage of increased land values
and real-estate operations. In the IA approach both the public and the private
sectors gain.
5.3 Stewards
One of the most important tasks of the IA approach is to ensure that the public
realm endures during the different phases of settlement. The spatial requirements
of the public realm in the IA fostered areas should be defined by estimating the
range of immediate community requirements, as well as the urban and metro-
politan needs it may address in the future. Stewards can be an efficient mechanism
to defend the public realm in informal settlements. Stewards include uses, spatial
and performative conditions that are able to engage the community. Engaging the
community makes these spaces defendable, moving away from practices of legal
protection, static surveillance, and policing. There is a thus a pedagogic intent
behind the notion of Stewards.
Stewards are meant to “look after” the system of open spaces and other public
assets. They can be institutions, community organizations, or even individuals
who are trusted by the community. The task is to establish the connection among
these Stewards, the activities that can best support the initial occupation of the
settlement, and the spatial and morphological conditions associated with them.
Stewards operate at focalized points within the Corridors and Patches, although
they may have influence in a broader urban context.
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representation of the political and social pillars of their culture, which in this case
were imposed on the local culture. These institutional buildings framed the public
spaces, connoting that collective matters were more important than the individual
ones. They also kept an observant eye on the public area where people performed
communal rituals. The notion of Stewards was implicit in this spatial organization.
The takeaway here is that public space may be accompanied by components
that act as Stewards of these public spaces, from the early stages of occupation.
In contrast to the plazas and the grids of the Spanish-American model, the scale,
morphology, symbolism, and function of public spaces in the IA initiative will stem
from local cultural demands.
In Medellín, institutions that provided communal services, such as the park-
libraries and the CEDESOSs (business incubators), accompanied the intensely
used, well-designed, and well-maintained system of open spaces. These spaces also
connect to existing communal assets, like schools, churches, gathering points, or
bus stops.
The system of public spaces included in the IA approach, particularly in the
Corridors and Transformers, is meant to perform more complex operations on
the urban and metropolitan scale, particularly in later phases.These require larger
and more flexible areas than the Spanish-American plazas or those carved out
in the informal settlements in Medellín. The public realm in the IA approach
should be able to surpass neighborhood demands, and, in time, include trans-
portation networks, infrastructure, water management, amenities, and services
capable of serving a greater population and more robust and varied urban
functions.
How then does one secure the spaces to fit future demands? This goal can
be achieved by design solutions, which include transitory uses that are adapted
to the different stages of urban development, identifying appropriate Stewards
and incorporating landscape strategies that will make these areas “defendable.” In
order to dissuade unwanted occupation until community minded levels of public
appropriation are achieved, defendability can be managed physically, functionally,
or symbolically. In some cases, physical barriers, such as gates or walls, may be
required to dissuade public entry. The following section will introduce the notion
of “Garden Keepers” as an option to create defendable sites until unrestricted
public spaces can be secured.
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Garden Keepers are a type of Steward, a particularly useful notion for estab-
lishing custody and use of portions or larger territories. This concept emerged
from a stimulating exchange of ideas during a panel in honor of Professor John
Dixon Hunt’s book, entitled A World of Gardens, which was held at the Design
School of the University of Pennsylvania.6 In the book, Professor Hunt explores
the relation between gardens and thresholds, the tradition of gated gardens with
Garden Keepers, and whether individuals or institutions act as custodians. To enter
these spaces, the public required permission. Physical delimitation and controlled
accessibility were important features to ensure the protection, operation, and
maintenance of the gardens.7
In the IA approach, the permanence of the system of open spaces may be
guaranteed by ensuring its use and defendability throughout time, providing
appropriate uses, spatial definition, and management that match the changing
needs of the community. To do so, the subdivision of larger open spaces into a
series of more manageable interconnected precincts or enclaves is recommended.
As in the case of the gardens, these spaces may have to have well-defined bound-
aries associated with a particular Steward. There may be different degrees of access
and control granted to the different garden-like enclaves based on the dimen-
sions of the precincts and the possibilities of giving them proper use and spatial
definition.
This strategy has several advantages. First, it is possible to secure and protect the
territory and give immediate use to part of the land, while keeping other areas
idle until they are required, or resources are available to develop them. Second, it
is possible to concentrate design efforts in specific locations with acupuncture-
like landscape strategies, using few resources to create emblematic places. The
intensity of use is likely to establish a strong bond between the users and sites,
increasing the chances that they will quickly defend them from encroachment.
Once spaces become self-defendable, the physical boundaries and control points
can be removed.
An area meant to house a large metropolitan sport facility can be first utilized
by including a smaller, informal community sport field/recreational space with
unrestricted access. This pre-selected public space may be located on a site that
has good accessibility and visibility and is strategically located within Corridors or
Patches. The remainder of the area may be fenced off, and kept idle for a number
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of years, securing the land that will be used in the future for the sport complex,
agriculture, construction materials reclamation, or a police or fire station. Over
time, the first formal sport arena may be included, and a training center which may
serve as the Steward of the soccer field. In later phases, a complete sport complex
may be developed at a point in which the area around it has been fully populated,
and the restrictive barriers may come down. When a strong bond is established
between users and sites and they become true public spaces, the Stewards and
Garden Keepers may transform or cease to exist.
Summarizing, each of the IA’s design components, Corridors (Attractors and
Protectors), Patches (Receptors and Transformers), and Stewards take on different
roles that work in concert to enhance the performance of the new predominantly
informal districts. Corridors define the main public realm, although public spaces
may also appear in Receptors and Transformers. Receptors facilitate land for self-
constructed neighborhoods, and the Transformers include a diversity of productive
uses and other services typically present only in the formal city. Finally Stewards
secure land in Corridors and Transformers to perform their roles, keeping them
free from unwanted occupation.The coordinated deployment and management of
this toolkit can have a tremendous impact on the informal city.
This initial occupation within Receptor Patches will most likely occur close to
existing urban areas. New infrastructure, services, open spaces, and efficient forms of
management in the IA territory will benefit the new settlers, as well as residents of
adjacent preexisting settlements. During these early phases of the IA initiatives, the
Attractors will provide basic services, such as potable water, simple forms of trans-
portation and mobility, open spaces, and provisional shelter. Protectors will secure
additional open spaces for future use, safeguarding watercourses and environmental
and cultural assets from unwanted occupation. In addition,Transformers will likely
serve basic communal needs, such as providing construction materials to begin
erecting the dwellings or food produced in community gardens.
In time, the settlement will become denser and eventually consolidate. The
Attractors and Protectors will incorporate new uses, the system of open spaces and
services will diversify, and the Transformers will also accommodate new functions
according to emergent community demands, such as manufacturing areas, schools,
hospitals, and even privately owned real-estate operations. As these transformations
occur, the IA fostered territory is gradually being expanded according to the plans.
The systems of Attractors, Protectors, Transformers, and Stewards will become
larger and increasingly diversified. In this way, new Receptor Patches will be
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From the Introduction through Chapter 4, we have tried to make the case that
IA can be a useful approach to guide the evolution of the self-constructed city.
The previous section of the current chapter introduced the urban design strategies
that will help to organize an IA fostered territory. This section calls attention to
constructive attitudes that the facilitators and beneficiaries of the approach may
assume to accomplish suitable results.
The European colonization of the new world took place in a geography where
the forces of nature occurred at previously unforeseen scales and intensities. This
manifested in earthquakes, volcanic eruptions, hurricanes, or torrential floods.
The lack of interest in the value of scenic landscape and the misunderstanding of
natural forces during colonial times, especially those of longer recurrent periods,
caused, and still results in, destruction of the urban fabric and casualties throughout
numerous towns founded during colonization.8
Not until the nineteenth century, with the advent of the City Beautiful
movement in Europe, was there a renewed appreciation of site conditions and
scenic beauty as urban design tools.9 Many developing countries, influenced by
this movement, expanded their traditional compact and pedestrian-oriented cities
to make them greener and more permeable. Streets and avenues of expansion areas
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became wider with ample and planted sidewalks, continuous street walls were
replaced by “objects in the green,” and large city promenades and parks were built
on promontories and along rivers and ravines.
Developer-driven urban landscapes of the twentieth century up to the 1950s
also seemed to be quite sensitive to local conditions, prioritizing the creation of
open spaces more than those that have been delivered from this period on. The
postwar period was influenced by Modernist ideas of city planning, a movement
uninterested in the creation of public spaces but instead envisioning urban
expansion based on vehicular mobility and architectural efficiency.
Despite today’s global awareness of environmental issues, the generic planning
instruments and zoning codes in many developing countries still draw on these
ideas that are both generic in nature and insensitive to local conditions. These
patterns of thinking allow developers to build large-scale projects, favoring
urban sprawl, even with its severe environmental consequences. Further, massive
earthworks that introduce infrastructure, mobility and transportation systems,
and terracing for developments are common in developing countries, frequently
without any type of environmental assessment.
Although not relying on heavy construction methods such as earthworks,
informal occupation is not usually responsive to local conditions. Without
technical evaluation of site conditions, the piecemeal process of informal
occupation typically precedes any form of urbanization. However, these organic
urban agglomerations are far from being environmentally friendly.The elimination
of topsoil and vegetation, the modification of the hydraulic systems, the loss of
biodiversity, erosion, and land instability are common conditions in informal
settlements.
Often they occupy geologically unstable land or areas with fragile ecosystems.
They take advantage of wooded areas to obtain material for construction of homes
or for cooking. They may dispose of domestic wastewater and trash in streams
and wetlands. Communities struggling to survive in informal settlements, particu-
larly during early phases of occupation, are attending to basic needs. Despite the
fact that their carbon footprint is lower than that of residents and users of most
formal districts in terms of energy consumption, water and waste disposal, and the
efficient use of land, they also produce environmental stress on the territories that
they occupy and beyond. The efforts required to upgrade these areas once they
have consolidated, as was explained in Chapter 1, also translates into administrative
and financial stressors, and the systematic entropy in the city ecology.
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This difficult scenario raises some important questions. How can the IA
approach help to make the informal settlements responsive to local conditions?
How can these challenges become opportunities not only to take action, but also
to learn from and aspire to greater environmental goals from the very beginning
of the urbanization process?
The IA approach prioritizes the selection of appropriate sites for new informal
growth. It takes advantage of territorial and site-specific features as compelling
design assets. Responsiveness to the uniqueness of natural and cultural condi-
tions is crucial in defining the design solutions and the performance of these new
urbanized territories. The IA approach posits that a powerful tool for creating
systems of compelling open spaces, strong morphological and aesthetic value,
reasonable maintenance regimes, local idiosyncrasies, and multiple uses, is to take
advantage of preexisting natural and cultural site conditions. Both serve as design
drivers of future proposals.
The identification of particular site conditions that can enhance design strategies
and increase the resilience of new districts includes: scenic value, microclimatic and
topographical conditions, geological and hydrological features, wetlands, wildlife
areas, vegetation, archeological sites, traces of the agrarian heritage, and places of
religious and cultural significance. Mapping these conditions, and establishing
the correlation with design and managerial strategies, will strengthen the spatial
quality and the performance of the public spaces within the Corridors, Patches,
and Stewards.
As an illustration of these concepts, we might consider that many developing
countries are located in the tropical zones with lush and fast-growing vegetation.
The absence of winters allows trees to continue growing throughout the year,
achieving height and volume that may triple the stature achieved in the same
period in more temperate areas. Thus, the use of existing vegetation and new
planting of high-canopy, fast-growing trees is a powerful tool for place making.
Tall canopy trees have additional cultural value as places for gathering, since
shade is greatly appreciated in hot climates. Furthermore, trees have a particular
cultural load in most countries of the developing world, where the majority
of urbanites lived in rural areas only a few decades ago. In Venezuela, Leandro
Aristiguieta argues that certain trees achieve “monumental value” in urban
landscapes. One example is the samán or Pithecellobium saman in Venezuela, which
has been traditionally used to shade coffee and cocoa plantations, as well as being
planted along roads and in recreational areas.10 In other countries, there are
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monumental trees that have almost religious connotations, such as the Ceiba or
Ceiba pentandra in Cuba, a tree of African origin revered in rural and urban areas.
These huge trees are best suited for ample corridors, due to the extensive, shallow,
and powerful root system, which makes them problematic as street/sidewalk
plantings. They can shape and create amicable conditions in the more generous
civic areas.
An indicator of this cultural appreciation for trees is that, despite the very small
lots in which squatters build their homes, many try to incorporate some type
of planting in the form of shade or fruit trees. For example, aerial photographs
taken over long periods in arid and mountainous settlements demonstrate the
emergence of vegetated masses, which stay green even during the dry seasons.
A closer look reveals that these trees are planted within the individual lots and
that they are green during the drought because they are mainly irrigated with
wastewater, particularly in the settlements where there are no sewers or other
forms of water treatment. However, due to the negligence of public space in the
un-fostered informal settlements, vegetation is rarely present in the public realm.
The absence of trees in the public realm or informal areas is a factor that
differentiates the environmental quality between formal and informal areas. Most
formal areas, even where the urban infill is highly heterogeneous and poorly
designed, present large-canopy trees in the public realm, which provide a satis-
factory environmental quality.
By contrast, the quality of the urban landscape in most informal settlements,
where the edifices constitute a homogeneous building mass, seem significantly
lower than in the formal areas, conveying a message of neglect of the public
realm. The contrast between the comfortable conditions inside the homes of
most consolidated/mature informal settlements and the rough and neglected
appearance of the public spaces is one of the factors that set apart the informal
areas from the formal ones.
Dwellings often represent safe and gratifying oases within a hostile public turf.
Inherited colonial urban patterns can influence how informal settlements treat the
public landscape in relation to the treatment of the private, as well as particular
site conditions. Let’s compare two examples of informal settlements: those in
Caracas,Venezuela and Harare, Zimbabwe. In Caracas, the mountainous lots of the
informal settlements are very small, and certain colonial architecture trends favor
the embellishment of the private realm, with virtually no landscape considerations
in the public areas of the neighborhoods. The colonial home was inward looking.
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Figure 5.11: Informal occupation of steep slopes along the Caracas–Guarenas Highway, Venezuela
In Zimbabwe, the British colonial traditions were very different, emphasizing the
public domain. Communities paid attention to tree planting in streets and in the
setbacks of detached edifices that face the public realm. Informal settlements in the
flatter landscape of Harare tend to be larger, the homes detached, the urban fabric
more porous, with setbacks of individual lots and streets that are highly vegetated.
As mentioned before, a priority of the IA approach is the creation of compelling
systems of open spaces, accompanied by the selection of appropriate planting and
proper water management. Easily executed and maintained with low costs, these
efforts are of great environmental and social consequence.
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barriers, which led to such high maintenance costs that the project still burdens
federal and local authorities 50 years after it was built. In Ciudad Guayana, the
vastness of the scheme made it impossible for the authorities to monitor the
entire city, or to impede informal occupation of already urbanized land.
The IA approach takes a very different stance. It plans ahead for expected urban
demands; it selects sites that offer conditions for sustainable growth and it proceeds
to envision a flexible support system for urban infill that will be in constant
change. The approach uses resources efficiently, gradually responding to pressing
needs, particularly those of the lower-income groups. It steers urban transforma-
tions to attain more balanced cities. The IA approach envisions a public realm
capable of adapting to changing conditions to make the system more resilient.
Under these assumptions, transformations within the public realm, and their
correlation with informal infill, are feasible if the initial design moves and
performative conditions are infused with the notion of change. This is something
that is inherent in the nature of the components and their design purposes. Here is
where landscape-driven urban solutions are relevant. Effective design encompasses
transformative processes as a motive equal to the creation of compelling places.
This is especially important when dealing with the informal, which is malleable
and constantly morphing.
Let’s imagine the trajectory of the initial strands of the Attractors that may give
birth to a new settlement. The most active zones of an IA accompanied territory,
while departing from formal configurations and uses that serve young neighbor-
hoods, will quickly transform into areas of new centrality within the city. This
change will occur because the local population identifies with the zones, and
because the way they are designed, their location, the opportunities to connect
with other areas of the city, and their administration will make these places
competitive and attractive within the broader urban context. This entails agile
design and administration, and a continuous dialogue with the community.
In turn, these new sustainable districts will exert pressure for growth on
adjacent areas, because fostered territories will further attract new residents and
users, becoming denser to accommodate the extended families of the first settlers.
Districts will push outwards, at a much faster pace than might occur in sponta-
neous informal settlements. Thus the facilitators of the IA initiative will have to
carefully monitor how and where expansion should happen, and where it should
not. Another aspect to be considered in relation to the expansion of the first
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standards of living are not a distant goal but a true possibility.To the extent that the
public components of the IA approach are capable of raising the bar, incorporating
cutting edge logic and performance of urban organization, the informal areas will
react accordingly, to boost their internal dynamics.
Another important aspect to be considered is the maintenance and constant
improvement of what has been achieved. This may be one of the greatest limita-
tions in developing countries. It is common to see well-designed projects that
have been carried out at high costs left to decay shortly after inaugurated. Public
officials in many developing countries are good at delivering contracts but are not
great managers or maintainers. Selecting and training the facilitators of the IA
initiatives, and engaging the community in the conception, design, construction,
and operation of the initiatives, are indispensable for spurring and sustaining
healthy living conditions.
The public sector in many developing countries responds to short-term actions
that have quick political payoffs. The facilitators of the IA approach must be able
to respond quickly and create solutions that satisfy the community, and also the
political goals, without losing sight of the broader urban picture and strategic goals.
Gaining the trust of the community may be the best chance for the IA to have
continuity and for future goals to be met. Facilitators and the community alike
should be satisfied if the IA territories attain a degree of autonomy from the rest
of the city, and even position themselves as important components of the greater
urban systems. This was the clear message from Peñalosa’s achievements in Bogotá
and Fajardo’s in Medellín. The difference is that we can expect the IA initiatives
to go many steps further by acting in a preemptive manner, by addressing new
levels of complexity in the urban operations. It will be seen in the benefits that
the informal district will receive, in the scale of the interventions, and in the role
that these new territories will play in the urban systems.
As settlements mature with improved infrastructure and services, and the residents
gradually integrate with urban life, gain access to education and health services,
and generate higher income, their expectations also change. The initial functions
of the Corridors and Transformer Patches will vary, from diverse and stronger
commercial uses, manufacturing, industry, more sophisticated services, parks, and
places of recreation, to even profitable real-estate operations.
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The districts will tend to formalize diversity and even gentrify. However, gentri-
fication understood in this context should not be a displacement of the original
residents, but rather it should be a continuous increment of the socio-economic
conditions and increase in social mixture. In other words, IA programs can address
both market dynamics and social life, favoring urban revitalization while reducing
poverty and social exclusion.12 Attracting higher income residents or the voluntary
relocation of the original settlers within the district to new projects may also be
achieved by developing formal residential and mixed-use areas, as well as by taking
advantage of the Transformer Patches.
There is a significant difference, in terms of gentrification, between urban
improvement plans in poor neighborhoods in developing countries and those
that occur in industrialized nations, particularly in well-established real-estate
markets. In the latter case, urban improvements of site conditions immediately
translate into increased real-estate values, higher property sale prices, increased
rents, and higher taxes, which displace lower-income groups to less desirable
locations. Property values certainly increase in informal settlements as a result
of urban improvements, even in those that have not been either granted legal
status or given property titles. However, since gentrification and displacement is
largely an effect of the rental market, the dynamic is less pronounced in informal
districts.
Although in the un-fostered informal city many residents begin to occupy
the land illegally, over time they usually gain property rights by continuous use.
Even if they do not gain property titles, in most countries they are rarely evicted,
particularly if they reside in already consolidated neighborhoods. Additionally, the
tax brackets for the poorer groups are very low, and sometimes non-existent, in
most developing countries.13 Thus, improvements in the building stock, such as
enlargements that allow for commercial uses, the construction of additional space
for the enlarged families, room rentals, or entire new dwellings, generally result in
direct benefits for the original occupants who frequently are those that built the
dwellings.
In other words, urban improvements that are at the core of the operations
brought about by the Corridors and Transformers would produce direct benefits
for those who constructed and live in the neighborhoods. One can argue that
improved urban conditions will boost the rents, gradually changing the compo-
sition of this segment of the informal population, but the economic gains will
fall primarily into the hands of the original occupants and builders. This gradual
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a. Their locations are risk-free sites, compared with the hazards that settlers are
frequently exposed to in random informal growth, being subject to flooding,
landslides, earthquakes, high voltage lines, and so on;
b. The sites take advantage of the relationships with existing urban areas and also
of the transformative influence of the Corridors and Transformers;
c. They present bounded territories and defined edge conditions, adjacent to
intentionally programmed urban landscapes, even if these are in a primordial
state. This allows for the establishment of a manageable scale for the Receptors,
reinforcing their identity as neighborhoods;
d. The Receptors are able to incorporate additional support systems, not too
different from the advantages of Sites and Services programs, but operating
as part of a multi-scale and multi-performance model, influenced by the
Corridors and Transformers;
e. Residents of the Receptors are able to incorporate within their dwellings
particular design conditions that stem from the IA experiment. For instance,
construction materials that are the product of recycling plants, technical assis-
tance that conveys solutions that have been tested in other contexts as a means
to reduce the vulnerability to earthquakes, family-scale or community cluster
agricultural practices tested in the agricultural programs located in Corridors
or Transformers, and so on.
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be initially occupied and evolve can vary greatly. This evolution includes the
definition of a system of open spaces at a local scale, the design quality of these
public spaces and the communal buildings, urban layout and lot subdivision, basic
housing typologies, and building technologies and materials.
In general, when the areas of informal occupation are smaller in size and
population and have recognizable boundaries, they tend to develop stronger
communal ties and forms of self-governance in contrast to very large informal
territories. The Corridors and Transformers can subdivide the site into identifiable
Receptor Patches to become more manageable neighborhoods.
In order to make the work of the facilitators of the IA initiatives more effective
and accelerate the rate of transformation of the new districts, the newly arrived
settlers should promptly participate in the decision making process and the provision
of community services and public spaces. In a way, this is what happened during
the different phases of the informal settlement improvement projects carried out in
Bogotá and Medellín. Interventions in these cities initially seemed to be top-down
approaches and were received with a high degree of skepticism on the part of the
residents, until the community realized that the programs were materializing and
significantly changing their standard of living. In the following phases, residents
engaged actively in all stages of planning, design, construction, and operation of
the public initiatives. Over time, the improved neighborhoods tended to formalize,
accept taxes and utilities, and even forget the way in which the initial occupation
began, as well as the individual, collective, and public efforts that were involved.
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Notes
1 For a historic perspective on the evolution of Corridors and lineal armatures
in urban history see David Grahame Shane. Urban Design Since 1945: A Global
Perspective. Hoboken: Wiley, 2011, pp. 198–226.
2 Ibid.
3 Some cities present informal edifices that surpass eight stories, which entails
functional and structural complications.
4 See Oscar Grauer. Rehabilitación de El Litoral Central Venezuela, Universidad
Metropolitana, maestría en diseño urbano. Caracas, Venezuela. 2001, p.119.
5 To learn about this initiative visit Arquitetas da Comunidade. March 13, 2012.
http://arquitetasdacomunidade.blogspot.com.es (accessed December 1, 2013).
6 See John Dixon Hunt. A World of Gardens. London: Reaktion Books, 2012.
7 Ibid.
8 See Arturo Almandoz. Urbanismo Europeo en Caracas (1870–1940). Caracas:
Fundación para la Cultura Urbana, 2006; and Francis Violich. Cities of Latin
America. Housing and Planning to the South. New York: Reinhold Publishing
Corporation, 1944.
9 See Leonardo Benevolo. Histoire de la ville. Marseille: Parenthèses, 2004.
10 Leandro Aristiguieta was one of the most influential botanists of the twentieth
century in Venezuela; one of his ideas was to design local laws to allow
the authorities to preserve the local biodiversity, not only from a botanic
perspective but also by understanding the cultural value of the living species in
the urban culture. To learn more about this project see Sergio Antillano. “Un
árbol de espinas.” Presidencia AsoVac. October 18, 2012. http://presidencia.
asovac.org/un-arbol-de-espinas-por-sergio-antillano/#more-1563 (accessed
October 12, 2013).
11 See Leo Robleto Costante and David Gouverneur. “Landscape Strategies for
Informal Settlements: Creating Armatures to Shape Urban Form.” Landscape
Urbanism. July 1, 2013. http://landscapeurbanism.com/landscape-strategies-
for-informal-settlements-creating-armatures-to-shape-urban-form/ (accessed
October 13, 2013).
12 Although related to the North American housing context, for more on the
basic conceptual notions of such an approach see Robert J. Chaskin and Mark
L. Joseph. “‘Positive’ Gentrification, Social Control and the ‘Right to the City’
in Mixed-Income Communities: Uses and Expectations of Space and Place.”
International Journal of Urban and Regional Research 37, no. 2 (2013): 480–502.
13 Ibid.
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Figure 6.1: The IA approach can help bridge the physical and cultural divide. Barrios adjacent to El
Helicoide, Caracas, Venezuela
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The IA’s use of Corridors, Attractors, and Protectors entails the ability to adapt to
changing conditions, as well as novel forms of spatial organization, administration,
operation, governance, community engagement, financing, and maintenance.
Adoption of IA initiatives should have a profound impact on academic studies of
urbanization and professional practices; it can also lead to legal and institutional
reforms.This chapter illustrates how the model is based on rather simple principles
and design strategies that are likely to induce significant changes, provided that
there is commitment from the public sector, NGOs, private organizations, and
settlers to the IA principles. The following sections discuss the most relevant
factors for enacting IA.
To address the challenges of current and projected urban growth in the devel-
oping world, stakeholders must adopt the appropriate tools. The solution to
the urbanization challenges must embrace informality. The primary obstacle
addressing the challenge is the prejudice against investing in informal settlements.
Some say that to invest in informality is to consolidate misery. Others argue that
political payoffs are currently associated with projects that can be delivered in a
short period of time, with the least efforts. The first step in the IA approach is
to gain social and political support, and therefore empower individuals, commu-
nities, and societies. This means that we must neutralize or bypass biases against
the informal, and create the managerial conditions and resources to advance the
IA initiative.
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and sometimes with the support of institutions and local residents. Over time, the
informal settlements formalize in appearance and performance.
This is particularly the case when their genesis has included a basic urban layout.2
In Bogotá, a rather efficient and organized informal means of pre-urbanization
has been taking place, where “pirate developers” first negotiate with the original
landowners. Pirate developers survey the territory and predefine the alignment
of unpaved grids of streets, as well as blocks and lots. Afterwards, they assign lots
under informal sale contracts to a pre-selected list of potential informal occupants
who immediately occupy the land. The occupants demarcate the lots initially with
sticks and cords and begin to build their shelters. Not too long afterwards, the
settlement is initiated with an informal grid and lot subdivisions. Local authorities
assign the lots cadastral numbers, registering the properties. In later phases, utility
meters are installed and the settlers begin to pay for services and even taxes
accordingly.
The urbanization process proposed by IA is one that draws from formal and
informal models to develop a hybrid form of urbanization. From the formal logic,
it borrows the capacity to envision the future, selecting adequate sites, prefiguring
design, and introducing managerial strategies that will enhance the sustainability of
the system. From informality it borrows dynamism, flexibility, and the engagement
of communities invested in shaping their own habitat.
Equally as important as its strategies and technical paradigms, IA relies on trans-
parency and good management. Most citizens in developing countries, whether
formal or informal urbanites, will argue that any attempt to improve living
conditions is hindered by widespread corruption, with limited punitive action
towards those that practice it.3 The weakness of the legal system may be at the
core of corruption. The concept of law has a very different interpretation in many
developing countries to how it is understood in the industrialized world.4 The
weakness of the legal system may be associated with cultural values pertaining to
the common good, or lack thereof. These values can shape how people perceive
appropriate uses of public funds or public assets in general, but also the adequate
use of infrastructure, services, and public spaces.
Law related to planning distinguishes between the formal and informal, and the
ways that both shape and operate in societies. The laws, in effect, enhance social
disparities, making the management of cities less efficient. As has been described,
the most evident consequences are: the spatial segregation of different income
groups, redundant or irrelevant planning processes, and putting informal dwellers
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in even more disadvantaged situations, for instance when trying to access finance
to purchase construction materials or land.
The most significant difference in the IA approach is that managerial actions
and physical interventions in the territory begin before the settlers arrive, and that
the community is expected to work promptly with the facilitators of the system.
Facilitators and the community work as an integrated team. Those responsible for
implementing the IA approach have to master the art of engaging the new settlers
in the endeavor. Treated with respect and empowered to have a proactive role in
the making of their habitat, informal settlers will be the best allies and controllers
of the enterprise. This is true for the IA approach and for any initiative to be
carried out in any field of social practice.
For this reason, it is important for facilitators to win the trust of the people.
That trust comes in the skillful delivery of the IA toolkit. Even the first stages of
an IA initiative should be able to demonstrate that the method makes a difference.
Projects that have been carried out successfully become powerful reference points
for new initiatives. Successful projects are the best tools to convince those who
may get involved in these novel urbanization experiments that sustainable urban
change is not only viable, but also can happen quickly. Even failed projects or
inadequate situations resulting from inaction may be useful for illustrating the
problems that are bound to arise if informality is left unattended. It is much easier
to take the necessary steps in resolving some of the problems involving urbani-
zation when it is possible to see tangible outcomes or benefits of the IA approach.
In the following chapters of the book, it will be explained how the IA approach
addresses the achievements and limitations of previous methods. This raises an
important question: What is the best way to advocate for putting IA initiatives
into practice? A good place to start is in workshops on informal growth which
show the successful results of informal settlement improvement plans and Sites
and Services projects. These workshops can also be useful in demonstrating the
consequences of inaction when informal occupation grows onto inadequate sites
and consolidates into large, incomplete urban territories.
In this context, we may also ask policy makers to analyze the housing shortage
figures in their countries/cities. They will find that the provision of formal social
housing always lags behind the growth of informal areas. We can call on stake-
holders for solutions and advocate for a different response. Asking officials and
professionals to better understand the forces that shape cities, and engaging with
the actors that drive informal occupation and transformation of the settlements,
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are both important steps for advocating for the IA. The first IA pilot projects will
certainly facilitate the task, serving as a concrete reference of why and how the
approach should be implemented.
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Taking these factors into account, it is highly recommended that the IA modeled
areas should be distributed in different locations, adjacent or in close proximity to
existing urban areas.
Estimating land needs for the future growth of informal settlements raises a
number of questions. The first is whether there is a simple method to estimate the
land that will be used for the community to self-construct their dwellings. Then,
how much of the land will remain in the public realm and what will be used in
the broader interest of the public sector?
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remain open.This extra space will help improve the spatial organization and venti-
lation of the dwellings, increasing their future value and positively impacting the
environmental quality of the neighborhoods.
There may be situations in which the analysis of the existing informal lot/
dwelling patterns does not provide appropriate references for defining IA lots.
Some examples include the following: lots where the dwellings take up 100% of
the space, leading to poor ventilation or impeded infiltration of rainwater; lots
without provision for family patios or gardens; or lots with an excessive extruded
vertical growth of dwellings, with severe functional and structural problems.
Although extreme conditions such as those described above may not serve as a
reference for the suggested new patterns of informal occupation, they will help
the facilitators of the IA initiative to take measures in order to avoid detrimental
trends. IA facilitators, in conjunction with the community, can establish a simple
set of norms that settlers can follow and enforce to control building heights in
quake prone areas, encourage ventilation, and prevent discharge wastewaters from
polluting neighboring lots.
The information gained from the samples may also lead to technological
solutions that increase structural stability during the expansion and consolidation
of informal settlements.5
A formula is perhaps the best way to illustrate the process of determining the
area needed for IA fostered informal settlement. The first variable that facili-
tators would have to solve for would be (L), the estimate of the land required to
distribute among the settlers. We can arrive at this figure if we take (Al), which is
the average lot size derived from the aforementioned sampling of existing settle-
ments, and multiply it by the number of dwellings or (D) to be included in a
particular area. The variable (D) is determined by demographic information and
managerial possibilities, as well as social pressure/political demands and capabilities
of funding of an IA program. These factors allow facilitators to assess the number
of dwellings which are expected to be incorporated in the new settlements. This
way, the land required to distribute among the settlers for the construction of their
homes within the Receptor Patches can be estimated as follows:
(L) Land for Lots = (Al) Average Lot Size = (D) Number of Dwellings
The second aspect is to determine the amount of land that will comprise the
totality of the Receptor Patches. Most Sites and Services programs allot a similar
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amount of land for the self-constructed units as the amount of land intended for
the public realm of these neighborhoods. This formula helps Sites and Services
programs establish street patterns and public spaces, and reserve parcels for neigh-
borhood uses.6 We will assume the same relation in an IA fostered development.
Therefore, the allotment of land to accommodate the Receptor Patches (RP)
would be determined by the following:
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Thus, the total amount of land required for accommodating mixed uses, public
spaces, and infrastructure at an urban/metropolitan scale, corresponding to the
Corridors and Transformers (C+T) of the IA approach, could be estimated as
follows:
Consequently, the total amount of land (T) projected to foster an IA district will
be:
(T) = (RP) Land for Receptor Patches + (C+T) Corridors and Transformers
As emphasized, different sites and contexts may slightly change the equation and
increment land estimates. Selected sites that happen to include areas of particular
environmental sensibility, such as wetlands or archeological sites, have to be
protected and remain unoccupied. This may result in an additional increment of
land under the IA administration. Finally, it is important to keep in mind that the
IA administrators should also be able to carefully monitor the relationship between
the IA fostered territories and the adjacent vacant, agricultural, or protected land,
which, when combined, enhance the sustainability of the urban system.
These peripheral areas may include watersheds, environmental systems, fragile
ecosystems, larger tracts of agricultural land, and scenic areas, which do not have
to be part of the publicly owned land or fall under the direct management of the
IA administration. As has been explained, the IA approach seeks to take advantage
of site conditions, suggesting where and how to enhance urban occupation and
where to avoid doing so. If the selected IA site includes preexisting agricultural
practices with their associated infrastructure, such as irrigation systems or archi-
tectural remains of the agricultural past, efforts should be made to keep them and
by creative design incorporate them as productive ecological and/or recreational/
cultural opportunities.
Utilizing better measures for projecting informal occupation, the IA fostered
territories may obtain, over time, conditions that are similar to or better than
those in the formal areas of town. IA can deliver better conditions by providing
uses for land that will satisfy the changing community demands, estimating the
land requirements beyond that of the Receptor Patches and securing areas from
unwanted occupation. Failing to consider this supplementary land in the territorial
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The public sector plays a part in determining the appropriate sites, gaining land
ownership, or at least being able, with the relevant legal and management tools, to
allow for private initiatives to become an active participant of the IA initiatives.
The public sector can facilitate assembling land to implement the IA approach in
one of the following ways:
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It is important to keep in mind that the IA approach operates mostly on the urban
fringe, in the transitions between the urbanized and the rural/natural hinterland.
This section explores the importance of harmonizing the IA territories with
the non-urbanized adjacent areas, such as valuable agricultural land and unique
ecosystems, as well as taking advantage of the “green systems” within the new
settlements.
The city planning models used in most developing countries expand urban
boundaries in order to accommodate demographic growth and diversify urban
functions. The plans are enacted, and, afterwards, the rural land is legally trans-
formed into urban land. Conventional urbanization begins with the provision of
infrastructure, road access, urban layouts, and lot subdivisions. These developer-
driven solutions produce plans that create a radical difference between the rural
and the urban. The area outside the urban boundaries remains rural or protected,
until a future urban plan expands the formal urbanization boundaries under the
same principles. In colloquial terms, urban is interpreted as hard, constructed,
engineered, technically managed, and associated with modernization and progress.
The rural, on the other hand, is viewed as green, unmanaged, poor, traditional, and
backward. This leads to an opposition of the urban and the rural, the serviced and
the un-serviced, and the dry and the green.10
The depletion of local resources is a result of both formal and informal urbani-
zation.The new urban landscapes in most developing countries lead to the erosion
of preexisting ecosystems. Frequently, the loss of environmental assets is so acute
that it threatens the sustainability of the urban system. Protecting and ascribing
value to the rural assets also includes the conservation of archeological or cultural
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sites, agricultural infrastructure and irrigation systems, and preexisting villages and
towns.These elements are rarely given importance in conventional urban planning
as cultural, economic, and environmental or design assets.
Additionally, the green qualities of the sites often erode from multiple locations
because urban territories are occupied in a fragmented and dispersed manner.
Urban plans often do not have mechanisms to orchestrate a gradual, efficient,
and compact occupation of urban land. Thus, the plans deteriorate environmental
conditions and produce poor urban scenarios.
Informal settlements do encompass some sustainable aspects, such as compactness
in the use of land, mixed-use patterns, low energy consumption for transportation
and household activities, low quantities of solid waste, and are predominantly
pedestrian-oriented environments. However, the environmental assets of the
sites are equally impacted by piecemeal spontaneous informal occupation, which
proves to be as destructive as the more robust developer-driven interventions.
In the initial phases of occupation, informal settlers bring their rural cultural
knowledge, which tends to perform in a more balanced way with the natural
systems. However, they frequently settle on sites that are topographically, climati-
cally, and environmentally very different from their places of origin.11 Thus they are
as alien to the new sites as were the Spanish colonizers when they first arrived to
create new urban landscapes. The small-scale initial occupation ends up becoming
part of very large informal urban territories with demands that are radically different
from those of the rural milieu. The IA approach may help the settlers to transition
successfully from the rural milieu to the urban arena. The facilitators of the fostered
territories should be able to engage the community, assessing their skills and cultural
knowledge and helping them better adapt to life in the new urban habitat.
The IA approach posits that both the rural and the urban are part of the same
ecosystem. Instead of the artificial and inconvenient urban/rural divide, IA argues
that there is a need to integrate both components into a unified system. However,
the IA approach does not envision a solution that dissolves both components into
an ambiguous entity. Rather it foresees that the richness of the urban ecosystem
derives from the adjacencies and interconnection of the predominantly urban and
the predominantly rural. They both enhance and protect each other, even when
both conditions appear within the same territory. In this respect, the defendability
of public space is a crucial aspect for the success of the IA method. These ideas
are implicit in the concept of Corridors, Patches, and Stewards, as explained in
Chapter 5.
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Just as the private and communal affect overall welfare, public space should
be part of the basic conditions that improve the quality of life of the informal
dwellers. Public space can be managed by IA’s notion of Stewards, establishing
precise boundaries and forms of management and differentiating the public realm
from the private/communal one.
While selecting appropriate sites, it is important to consider the intercon-
nection and proximity with existing urban areas, as well as the protection of the
adjacent rural and natural areas that are indispensable for the sustainability of the
IA fostered urban territories. The non-urbanized land adjacent to the IA terri-
tories can perform basic functions, such as the protection of the environmental
assets, the balance of the ecosystems, the stability of watersheds and soils, the
production of locally grown food, and the provision of recreational spaces, which
allow the urban system to thrive. Facilitators should also take into account the
components that play an important environmental role within the land that has
been assembled to be under the direct guidance of the IA initiative.
For all these reasons, the IA approach stresses the importance of introducing
urban patterns that are sensitive to the site and to broader territorial conditions.
IA also moves beyond the urban–rural dichotomy, understanding that the survival
of the urban is closely tied to that of the rural.
Facilitators of the IA approach can provide new settlers with a sense of a high
level of commitment to the project through face to face meetings, informational
gatherings, and negotiating processes. Facilitators must work as a team with the
community, helping them visualize the advantages and co-responsibilities of being
part of the IA experiment. In this sense, they give the settlers a sense of responsi-
bility and ownership in the process.
As explained in Chapter 2, the early 1990s initiatives for informal settlement
improvement in Caracas proposed the creation of consortiums, partnerships that
brought together technical staff with community representatives, governmental
agencies, and the private sector. Unlike the unreachable governmental agencies
that usually overlook this type of initiative, the consortiums were flexible admin-
istrative and managerial platforms, with a physical presence located within the
neighborhoods. From the early stages, the community leaders were brought on
board and given important responsibilities, establishing fluid communication
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between the professional team and the residents. This also served to provide
important information on the demographics, social composition, and physical and
performative demands of the neighborhood.
The community leaders promptly engaged in the production of the plans,
understanding and influencing the design process. This was particularly relevant to
beginning the first physical interventions, which required some relocation. Those
to be relocated had to see how they or the community would benefit in order
for the program to be implemented. Community members then got involved in
all aspects of the project, such as the design of the new dwellings, public spaces,
services, facilities, maintenance, cultural and sport programs, and operation of day
care centers. IA initiatives draw on this as a model for how to engage with the
community.
An important aspect to help establish the settlers’ sense of belonging in their
recently occupied territory is through defining precise property boundaries.
Facilitators of the IA settlement assign settlers identification, a simple operation
that can be done in conjunction with community leaders.
Other design and performative decisions can foster stronger communal
relations, making the neighborhood safer and more productive. For example,
in the Metropolitan Caracas Barrio Habilitation Plan, and the Catuche project
described in Chapter 2, the design teams identified the historic and almost intan-
gible subdivisions that were associated with internal social organizations, places of
origin of the settlers, and time frame in which they had established themselves in
the area. They then suggested subdividing the seamless informal settlements into
urban design units based on that information.
Addressing a micro-scale or communal organization, they introduced the
notion of informal “condominiums” in which small groups of dwellings, averaging
from 20 to 40 homes, would have controlled access to their residential precincts.12
This subdivision was managed, reducing the number of labyrinth-like entries and
placing gates that would be closed only at night. The condominiums significantly
improved the security in the neighborhood, allowing the defendability of semi-
public space and the collaborative management of services, recycling, childcare,
and community gardens. They also enhanced pedestrian flows and improved safety
in the main pedestrian paths, which provided access to the condominiums and
more active and public open spaces.
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The IA initiatives may draw from different fields of knowledge that contribute to
the overall performance and morphological definition of the new districts. The
approach has the necessary flexibility to accommodate several initiatives capable of
making a difference to the well-being of the community and the broader urban
scenario.
My short meeting with Professor José Antonio Abreu is an example of how
tapping into expertise can greatly enhance and refine the implementation of IA.
During the last week of November 2012, I had the honor of meeting Professor
Abreu in Caracas to discuss the Informal Armatures and to ask him if he felt that
his world acclaimed El Sistema program could be incorporated in the earliest
phases of occupation of a fostered IA territory. El Sistema is a social transformation
concept, which Professor Abreu envisioned in Venezuela in the 1980s.The concept
has steadily spread, being emulated in different developing countries, as well as in
the USA.The program uses music education as a tool to bring culture, self-esteem,
discipline, peace, and hope to children and youth of challenged communities, most
of whom live in very poor neighborhoods.
My conversation with Professor Abreu was intended to establish connec-
tions between the essence of El Sistema and the IA approach, which share many
commonalities. Both introduce high quality forms of performance and beauty
through education/management, benefiting the poorest communities while
boosting their internal potentials. They both are meant to induce radical changes
to the prevailing conditions of informal settlements.
At the forefront of both programs was acting at an early stage: in El Sistema,
working with very young children and accompanying them through adolescence;
and in the IA concept, from the initial phases of occupation through more mature
stages of development. Early intervention was strategic.
In both cases, the subjects of the initiatives were very malleable; their successes
would be associated with setting forward a vision, working with passion, and
selecting human capital, in order to foster transformations. They both worked
on the individual and collective levels, connecting the informal milieu with the
formal world to make them mutually beneficial.
I then asked how Informal Armatures initiatives could incorporate El Sistema.
He explained that there were two different modes to integrate El Sistema in
IA. One was to begin musical training with the very young in simple modules
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which would be constructed in the heart of the IA settlements during the earliest
stages of occupation; another was to expose the community to performances of
orchestras of children and youth from other consolidated informal settlements.
He explained that El Sistema had accumulated ample experience in the type of
modules that he mentioned and for different sized groups. Likewise, these groups
understand how different instruments build up to complete performances.
Among his suggestions, Professor Abreu recommended the appropriate condi-
tions for open-air concerts in new settled territories. He recommended selecting
the sites that would be part of the foundational emblematic open spaces of the
settlements; those that in the future would have a strong urban presence, which
would coincide with the IA Attractors. He also referred to the environmental
quality of these places, for instance taking advantage of shading provided by
existing trees or other means. He also suggested an adequate scale for the spaces
to accommodate audiences without losing visual control of the performance. He
pointed out the importance of sound amplification powered by solar panels if the
community did not have regular electricity.
The synchrony of ideas that connected music to public space, as those
described here, could be replicated with experts from many disciplines. They
could contribute to the transformative power of the IA model in areas as diverse
as: urban agriculture, green infrastructure, and construction methods with local
materials, community participation, community incubators/micro-entrepreneurs,
community health, and recycling programs.
Relying on the expertise of those who command a particular discipline or field
of knowledge, IA territories will become more robust as different initiatives are
bundled in their performative and spatial components. Professor Abreu’s positive and
supportive response to IA ideas only reinforced my hope that it will be a powerful
option to gear the urbanization process of the developing world. Above all, IA relies
on creative ideas and vision, good management, and commitment to social change.
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urban actors to action. Drawing from the lessons of previous informal settlement
improvement plans and forward thinking IA proposals, stakeholders can begin
to see IA as a viable alternative. They may therefore become willing to test the
initiative through pilot projects, monitor their evolution, and introduce the adjust-
ments that may be required.
a. The allocation of public funding and managerial efforts with resources that
would normally be employed on public-housing programs, infrastructure, road
construction, and other public works;
b. The integration of efficient managerial and technical teams that will carefully
orchestrate the strategies in order to maximize the impact of the available
resources;
c. Managerial efforts to reduce up-front costs through strategic associations with
public agencies, and partnerships with the private sector and with institutional
and community organizations. In other words, they can contribute to the IA
initiative assets, managerial contributions, community, and individual labor.
Targeting international and local sponsors and donors may be equally or more
important than up-front cash;
d. The assemblage of appropriate public land. The importance of this aspect has
been described in previous sections of this chapter. It is important to note that
in some developing countries, such as Venezuela or Zimbabwe, there are large
tracts of public land suitable for the introduction of IA schemes. They are likely
to remain idle, vacant, or underutilized, belonging to the military or depart-
ments of agriculture. Making this land available for the IA programs may be
the most important single move that does not require the allocation of capital.
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The previous section described the role of the public sector and how it is
possible to negotiate and reduce up-front costs, particularly in the early phases
of occupation. This section focuses on how to secure revenues to pay for initial
investments and continue to manage the IA territories.
The financial demands and the degree of fiscal contributions that the urban
poor can afford or are asked to pay vary greatly from one context to another.
It is important to find a balance in which the informality can thrive with
reduced bureaucratic, legal, and financial constraints, in relation to the degree
of participation and contributions that those living in the IA fostered territories
are expected to provide. This is important considering that legal and financial
restraints are the main reasons why the urban poor have no other choice than
informal living.
In developing countries, such as Venezuela, the majority of the urban poor
are not on cadastral records and many do not pay taxes or utilities. In fact, this
situation is common in Latin America and the need to implement more modern
cadastral systems has been largely documented.13 The conditions of the dwellings
in informal settlements in Venezuela are perhaps better than in many other devel-
oping countries; however, urban conditions remain stagnant at best.
It is virtually impossible to collect taxes and charge for utilities in the majority
of the informal settlements located on the steep slopes of Caracas due to the lack
of accessibility, high levels of violence, and the lack of cadastral records and postal
addresses that would allow the installation of utility meters. As a result the tax
collectors and utility companies give up collecting payments in these “off-limit
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informal areas.” Thus, they increase the tax bracket and the utilities payments for
the formal city dwellers.
Neighboring Colombia, in contrast, performs differently, with the private sector
playing a greater role in its economy. The greater percentage of the population is
on official records and pays taxes. As a result, even the poorer neighborhoods have
some degree of urban frameworks, which allow for accessibility. There is also a
clear identification of lots and postal addresses, which allows for the collection of
taxes and payment of utilities.
In Colombia, the urban areas are divided into districts according to income
levels and different taxation strata. At first this may appear to be a formula
that would lead to social segregation and immobility, but in practical terms all
Colombians know in which strata they live and what their taxation contributions
will be: the higher the strata, the higher the percentage of taxes.14 This results
in a culture of fiscal contribution that is broad and solid, and in an efficient
cross-subsidy system that allows for the distribution of public funds in order to
improve living conditions and to reduce disparities in levels of investments, infra-
structure, services, and amenities between the formal and the informal areas. As
the poorer areas consolidate and improve, the socio-economic indicators of their
residents and property values rise, and their strata classification and taxation levels
are adjusted.
Once again, the issue is balance. All city dwellers should be able to contribute to
and receive the benefits of urban life fairly and according to their potential. One
group not contributing creates a vicious cycle because without fiscal responsi-
bilities there is no possibility of urban improvements. Contrarily, if the residents of
the informal areas do not see the benefits of contributing, they will simply not do
so. Contributions do not necessarily entail cash; they could also be in community
work.
Land allocation, derived from the IA operation, may provide for simple and
efficient forms of tax collection. Administrators of the IA territories, representa-
tives of local authorities, and community leaders could facilitate and monitor tax
collection. Property taxes are a viable mechanism to increase fiscal contributions.
Taxes should be associated with the building stock, which can be in relation to the
number of floors, as the dwellings are expanded to accommodate additional family
members, rental rooms, or separate apartments to incorporate commercial uses.
Most commercial activities in the informal areas take place in the lower levels
of the units, taking advantage of street fronts, thus they are easily detectable by
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Figure 6.4: Community meeting with University of Pennsylvania students and David Gouverneur in
the Santa Bárbara settlement, Choroní, Venezuela
it is not one that is insurmountable. As stated earlier, a key issue is tapping into
valuable human capital and local expertise. The synchrony between facilitators and
beneficiaries of the program, and between performative and spatial conditions, can
only increase the possibilities for the success of the IA initiatives.
Notes
1 As was described in Chapters 1 and 2.
2 For more detailed information see Oscar Grauer. Principles, Rules and Urban
Form: The Case of Venezuela. PhD Thesis, University Microfilms International,
1991.
3 For example, based on the Corruption Perceptions Index 2012, in the Americas
66% of the countries score below 50, with Haiti and Venezuela at the bottom.
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Chapter Seven
Design strategies and components can become both points of reference and
sources of inspiration for decision makers, professionals, and the residents of self-
constructed cities alike. Effective strategies and design components developed
in one society can be deployed in contexts and cultures different from those in
which they originated. This chapter illustrates how the generic IA components of
Corridors, Patches, and Stewards, described in earlier chapters, can be adapted to
fit local conditions.
The IA approach has not yet been implemented through pilot programs. What
it has, however, is years of observations from practical experience in initiatives
that have succeeded in improving the living conditions of the urban poor. While
not all have been wholly successful, each of the referenced projects has applied
useful strategies and solutions to better address the challenges of upcoming self-
constructed cities. In addition, the IA approach aims to fill a void by making it
feasible to visualize a better future for new informal occupation. While we do not
have applied examples to refer to, it is possible to illustrate how the IA criteria may
translate into practical results by referring to academic projects that have used the
IA approach as their conceptual framework.
As stated in the previous chapter, IA’s strengths lie in preemptive measures, mainly
planning and designing before informal settlement occurs. How best to illustrate
the ways in which IA can address local conditions than to show proposals that
address real world scenarios? The academic projects featured in this chapter were
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selected because they cover a diversity of urban situations, and vary in scale and
scope. Five case studies help describe how IA components can adapt to different
contexts. Some illustrate regional and metropolitan visions; others focus on urban
layouts and strategy; and still others on tangible and more site-specific spatial
qualities.These projects were interdisciplinary in nature, bringing together students
of city planning, urban design, landscape architecture, architecture, political science,
and agronomy, to develop these schemes that utilize IA criteria.
Local academic, governmental, or community groups supported these projects,
where students spent significant time and resources researching local conditions and
conducting site visits. The examples are intended to help give the reader an overall
idea of how IA design analysis, criteria, and components respond to local conditions.
There are advantages to using academic references to illustrate the IA approach.
First, academic proposals can be flexible and experimental. Second, they are
delivered in very short periods, such that the site analysis and proposal phases
are closely interconnected. Third, different approaches can be quickly tested for
similar sites, and related topics can be quickly explored in different locations. This
enriches the explorations and design proposals as a whole, in addition to gener-
ating a variety of tests. Fourth, a diversity of situations allows for different emphasis
on IA design strategies, facilitating a host of different conclusions and recommen-
dations for real world testing and time frames.
While responsive to site conditions and receiving the input of local partners,
these hypothetical examples have been prepared in academia unbounded by
government bureaucracies, community leaders, and developers, or the necessary
interaction that a regular team of facilitators would need to properly administer
the IA approach. The ideas here contained are conceived prior to any form of
community input. For these reasons, the case studies had to speculate on potential
local strengths and the needs and desires of communities.
It is also important to mention that the IA approach must engage political,
social, and cultural conditions, as the preemptive nature of the approach and its
broader urban goals are often more expansive than the early aspirations of future
informal settlers. Communities’ expectations are, at least in the early phases,
naturally focused on individual or neighborhood needs. Settlers are unlikely to
foresee their future as part of larger urban concentrations of which they are only
planting seeds. Overcoming this hurdle of the IA approach can only happen
through real world application, as IA facilitators work with the community and
advocate for the method.
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The IA approach in different contexts
It is possible to identify common threads within the five case studies, which
speak to the global implications of the IA approach. This chapter includes a set
of graphics that illustrates how the system of Corridors, Patches, and Stewards
in the IA approach can be deployed. This graphic guide is intended to make the
IA approach more accessible, and may be thought of as a more detailed visual
depiction of the set of components introduced in Chapter 5.
The academic design proposals corresponding to the case studies included in
this chapter are illustrated in the colour plate section of this publication.
The context
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The IA approach in different contexts
most polluted lakes in the world. The Lake Chivero aqueduct serves less than 30%
of the city, a figure that includes those areas where distribution is available. The
service is also very irregular. Areas without service, mostly low-income neigh-
borhoods, have to take water directly from the dambos, or drill wells. Due to the
extraction of water from the wells, the groundwater table has dropped over 35
meters over the last 30 years. Poorer areas are also deprived of sewers and septic
systems. Officials periodically check the water quality of the wells and many times
it is deemed unfit for human consumption, but is not always condemned. Cholera
and other waterborne diseases are a major problem.3
Zimbabwe, a country once considered the granary of the continent, alongside
its neighbor South Africa, is now suffering from severe food shortages which
are a result of extensive agrarian reforms that were pushed ahead in 2000. These
reforms took away productive farms from white farmers to distribute them to
local government supporters. Due to food shortages, the low-income population
is now sustenance farming along city roads, on vacant lots, and by encroaching
on the dambos. Domestic wastewaters and fertilizers from these local crops are
polluting both the dambos and Lake Chivero.
Harare is spatially segregated as a consequence of its recent colonial past. The
Central Business District (CBD) was developed over an orthogonal grid. It is
dense, compact, and commercially active, with a combination of low-rise and
mid-rise buildings. Contiguous to the CBD is a very large informal market called
M’Bare, a major local trade center and economic motor for the country as a
whole. After sunset, both areas become inactive. North of the CBD are suburban
residential mid- and high-income communities, comprising homes on large lots
within areas of lush vegetation and high environmental quality. These neighbor-
hoods are dependent on private car mobility.
Separated from the CBD by a green urban void to the south, we find most of
the lower-income areas, including the majority of the informal settlements. The
green void was an inherited product of colonial times when the local population
was set apart from the city center into outlying communities. It is expected that
the growth of the low-income areas, which will constitute a significant component
of the urban expansion during the next three decades, will occur in the southern
part of the city, further increasing spatial segregation.
The National Government has envisioned developing a new government,
administrative, and financial center to the north of the city, to relocate public
offices, financial activities, internationally oriented business, and hotels away from
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The IA approach in different contexts
the traditional older center. This initiative may weaken the role of the CBD, as
occurred in a similar initiative a few years ago in Johannesburg, and will aggravate
social segregation. Although areas of new centrality may emerge in such an
extended city, this relocation should be conceived as part of a carefully planned
strategy to balance all areas of the city.
When we visited some low-income communities we were struck by the lack of
commerce and manufacturing in the neighborhoods, other than occasional small
open-air markets located at the intersection of main roads. Low-income commu-
nities appeared to be strictly residential areas—just the opposite of what normally
occurs in informal settlements throughout the world. As we inquired with our
local colleagues, we discovered the explanation for this anomaly. The government
enforced bylaws that expressly impeded commercial or income-generating
activities within neighborhoods, including the low-income areas. Locals were
imposing post-colonial discriminatory zoning. In practical terms, this meant that
low-income groups could not use their homes as badly needed sources of income,
as occurs in other countries. This also forced many more residents to commute
long distances for work, losing valuable time and spending part of their earnings
to access goods and services in the CBD and M’Bare.
When we spoke about such issues with district representatives, asking them
if they felt this was an inappropriate regulation and whether they were able to
enforce it, they explained that this norm was difficult to implement and that
permitting commercial uses would help the low-income communities. However,
they felt they could not allow low-income neighborhood residents to break the
law as it currently stands. We also discussed, during our visit, these issues with
local planners, providing them with examples from Colombia and Venezuela
that demonstrated how mixed-use districts and flexibility for enlargement of the
dwellings were conditions favorable for low-income communities. While the
district representatives suggested that this could be tested through pilot projects to
calibrate how it would actually work on a larger scale, for the moment they did
not envision that the bylaws would be changed.
It is important to mention that compliance with the law is different in
Zimbabwe than in other developing countries. In Zimbabwe, laws are normally
respected to the letter. This explains the general obedience of the single-family
residential use code, but also the way in which the dambos embedded within
low-income areas have been mostly kept free from urban occupation, other than
sporadic crops and scattered shacks. Whether this came about as a result of strong
239
The IA approach in different contexts
240
The IA approach in different contexts
changes. The site visit to Harare included a workshop organized by the Mayor’s
office with city employees, professionals, community representatives, and local
students working in teams with the PennDesign students. The workshop asked the
teams to answer three questions and to map the results: (a) which aspects would
they consider positive about the city that should be protected and enhanced?; (b)
which were the most relevant problems?; and (c) which programs, projects, and
initiatives would they prioritize to make a difference?
The outcome of the workshop provided valuable insight that influenced
the academic proposals, suggesting significant policy changes involving current
planning criteria. Among these policy changes was to consider that assisted
informal growth would be an important component of the city. This aspect had
particular relevance in a country that has not addressed the improvement of
existing informal settlements with progressive projects such as those described in
previous chapters. Rather, the National Government has gained negative attention
from the international community and the media after large informal settlements
were forcefully razed in 2005, as part of Operation Murambatsvina (Operation
Drive Out Rubbish).
The projects developed by the students after the workshop envisioned how
the metropolitan system could best deal with population growth in the ensuing
decades, where over half the population growth will occur in informal settle-
ments. Considering the existing social segregation and the availability of land,
the proposals recommended which areas should be safeguarded from urban
occupation and where and how densification and urban expansion could occur.
Large-scale urban strategies were designed to protect the vast system of dambos
as valuable ecological and urban assets, keeping in mind that the city currently
ignores them. The dambos could become urban organizers and civic spaces,
improving city connectivity, augmenting the numbers of pedestrian, bicycle, and
road crossings, and engaging the dambos with their adjacent urban areas.
Cost-effective green infrastructure would be included in order to improve the
environmental quality of the dambos, cleanse the waters, and recharge the aquifers.
These ecologically friendly techniques are feasible due to the ample dimensions
of the dambos. The dambos would also be used for productive activities, including
alternative sources of energy, ecotourism, recreational activities, and non-contam-
inating agricultural practices.
The student proposals aimed at balancing urban growth in less affluent areas and
in the vacant zone between the CBD and peripheral communities to the south
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The IA approach in different contexts
to promote a more compact and socially integrated urban system. The different
schemes also envisioned an efficient bus-based transportation system on the main
mobility corridors, similar to the Transmilenio of Bogotá, to help stimulate growth
towards favorable locations, which would help retrofit existing areas, and foster the
emergence of new districts.
These schemes favored multi-use areas and higher density in a city of predomi-
nantly low-density housing. Higher densities could be achieved in the formal city
by offering more urban solutions for the middle class as an alternative to very
large suburban homes, and also by allowing the informal dwellings to occupy
a higher proportion of the lots and expand vertically. The mobility plan also
suggested a network of connections between the different urban areas, reducing
the dependence on the CBD, and creating a system of local centers directly related
to the areas of population growth, strengthening ties among currently peripheral
dormitory areas.
Proactive land policies and design moves projected by the students would help
achieve these goals, and induce greater social integration. The proposals identified
some zones that would operate under formal real-estate markets subject to urban
design and planning, and others that would perform as Receptor Patches where
public land would be made available for very low income people to self-construct
their neighborhoods.
Both the formal and the informal were expected to operate as a system,
benefitting from their proximity, sharing infrastructure, services, amenities, and
public spaces. Revised zoning codes would encourage mixed uses, particularly
in the lower- and middle-income communities. The proposals were centered on
the creation of an articulated system of open spaces meant to enhance street life,
economic activity, and socialization.
The students then tackled a variety of design issues in more detail, which
supported the metropolitan goals previously described. These topics were
conceived as pilot projects that could serve to begin implementing the proposals,
and addressed the following topics:
Two examples have been selected to provide a clear idea of the scope and level of
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The IA approach in different contexts
development that the IA approach can achieve. They correspond to two distinct
peripheral communities in Harare: Hopley Farms and Chitungwiza.
The proposal
The Informal Armatures solutions for Hopley Farms bundle ecological, social,
economic, infrastructural, water management, and agricultural conditions. The
proposals address the current needs of the existing community, as well as those of
future residents. In an area where children have no shoes and there is a significant
lack of amenities and social space, the how-to of design becomes just as important
as the what-to-design. Therefore, the project is about the essential and the human-
itarian, where the landscape systems become social infrastructure.6
The landscape design strategy relies on simplicity. Design strategies stem from
existing site conditions to benefit a growing community. The proposals go beyond
the spatial and into the fulfillment of basic human rights. They seek ways to take
advantage of limited resources to help the existing and future residents.
Simple design moves make a healthier community that provides spaces where
residents can learn and socially interact. Social hubs provide assistance by informing
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The IA approach in different contexts
7.2.2 Chitungwiza: integrating the formal and the informal into a self-sufficient
district
The proposal
244
The IA approach in different contexts
245
The IA approach in different contexts
7.3 Case study: San José de Agua Dulce: urban–rural symbiosis in the
metropolitan area of Valencia, Venezuela
Project Coordinators: María Gabriela Díez and Ana Carolina Arocha Petit,
with the assistance of David Gouverneur.
Participants: Students from the Urban Design Master Program at the Universidad
Metropolitana in Caracas, Venezuela. January–May, 2013.9
The context
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The IA approach in different contexts
The owners of the site had advanced an urban design proposal for a mid-rise,
mixed-use urban project aimed at lower–middle class buyers. National, regional,
and local authorities were concerned with the lack of residential opportunities for
the lower-income population in the area and have only invested in some formal
social housing projects.
Because of the site’s proximity to the large industrial and manufacturing
areas, as well as to a large mixed-use district already under construction, the
plan was developed for the Municipality of Valencia coordinated by Antonio
Fernández and myself. As an area of new centrality, it would take advantage of the
proximity of a terminal station of the recently inaugurated Metro. With the goal
of channeling resources from the adjacent area to the poorer ones of the city, and
the environmental restrictions, the site seemed appropriate as a testing ground for
an IA fostered initiative.
The proposal
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The IA approach in different contexts
The proposal safeguarded a significant portion of open space in the heart of the
site, establishing buffer zones and transitions to existing and proposed urbanized
areas and to the agricultural, water management, and ecological open space in the
center of the project.The scheme envisioned productive and recreational opportu-
nities in this green zone, organized in bands and pods with different performative
goals. These goals included cleansing the waterways, protecting biodiversity,
increasing agricultural output, developing alternative economies, such as agro-
tourism and manufacturing, and creating an integrated system of public spaces,
community services, and amenities.
An important aspect of this IA fostered territory was the provision of the
Receptor Patches on flood-free land with good accessibility, infrastructure, local
or accessible jobs, and an overall suitable environmental quality. These residential
Patches offered a combination of lots for self-constructed dwellings, Sites and
Services programs, and, to a lesser degree, formal housing. The lots for these
dwellings were organized around community gardens with irrigation derived from
the existing sugar-cane canals.The new district would be connected to the adjacent
urban patches, removing walls and barriers. Buffer zones between the urbanized
areas and the green heart, as well as a recreational band that stretched across it, would
incorporate educational and health facilities, communal services, and ecotourism
services to enhance production and diversify economic activities. These facilities
would also act as Site Keepers of these productive and fragile open spaces. Had this
simple approach been included in the plans and zoning codes for the larger area, it
would have allowed for urban occupation, for a diversity of income groups while
preserving the traditional irrigation systems, protecting the most valuable soils of
the region, diversifying production, and catering for disenfranchised populations.
248
The IA approach in different contexts
The context
249
The IA approach in different contexts
components. These plans most notably define: land for formal housing, larger lots
for leisure residences with small farms, parcels for industrial and manufacturing
areas, commercial zones with preference for large regional malls, and educational
facilities such as private universities. They all aspire to attract urban uses, activities
which could yield high revenues, to where land is less expensive and taxes are
lower than in Bogotá. In other words, they are targeting real-estate operations for
middle- and high-income residents, customers, and investors. Notably, not a single
one of these plans addresses the fact that at least 40% of the projected population
growth of Bogotá onto La Sabana will comprise very low income groups, resulting
in the emergence of new informal settlements.The most these plans have achieved
is the recognition and legalization of existing settlements, and identification of
those settlements potentially subject to improvement. The municipalities closer
to Bogotá have larger concentrations of population, and present the highest
percentage of informal areas. It is not difficult to imagine that these municipalities
will be the same areas that will continue to urbanize, attracting new informal
settlers, and consuming agricultural land.
The proposal
The studio’s aim was to shed light on how to balance urban growth, environ-
mental protection, and economic production. As in the case of Harare, the
proposals range from a massive territorial scale to site-specific and more tangible
interventions. During the site visit to Bogotá and La Sabana, I asked our
Colombian counterparts to imagine how complete in terms of urban structure,
services, and productivity Bogotá was when it reached 1 million inhabitants
in the 1950s. They all responded that the main urban components were all in
place. Extrapolating, we could imagine a robust territorial-urban system in La
Sabana holding almost double the population of Bogotá when its system was
established. The task was to envision where and how to manage growth. At a
metropolitan scale, the IA academic studio for La Sabana advanced the following
strategies:
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The IA approach in different contexts
Then the students’ proposals responded to the general criteria of Attractors and
Protectors, reflected in the regional plan with a higher level of specificity. They
were particularly sensitive to the transition zones between urban areas, both
existing and those planned for expansion, and the protected agricultural and richer
ecological areas. Emphasis was placed on the creation of new centers, usually in the
proximity of the intermodal stops of the new mass-transit systems. The schemes
also focused on inclusion of productive areas, including diversified agriculture,
agro-tourism, and institutes of higher and technical education that took advantage
of their proximity to wetlands and agricultural fields. The proposals were also
sensitive to natural and cultural assets. They also emphasized removing domestic
and agricultural water pollutants, articulating a system of open spaces combining
leisure with community services, and concentrated on the developing mixed
income, combined formal–informal districts. Sites for communal services, such as
park-libraries, educational facilities, manufacturing incubators, and agro-industrial
Patches, were carefully located in areas that would have the greatest impact. They
connected underserviced areas with new expansion zones or helped transition
between predominantly formal and informal areas.
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The IA approach in different contexts
The new urban fabric was woven together with a system of interconnected
grids that followed the local urban tradition in Colombia for both the formal and
the informal areas. The grid still seems to be the simplest mechanism to provide
continuity of urban expansion, facilitating mobility between the different areas and
avoiding the spatial and social fragmentation that was emerging in La Sabana. As has
been suggested throughout this book, a healthy mix of predominantly formal and
informal areas could be attained if a progressive land banking policy is implemented.
The context
This site is located in the Medellín district in which Mayor Fajardo spearheaded
major urban transformations, which were described in Chapter 2. Specifically,
this district is immediately adjacent to the celebrated Parque Biblioteca España in
the Barrio Santo Domingo of the Northeastern Commune. The area is a less densely
populated strip within a tight urban fabric, separating two informal neighborhoods
that are served by Metro-cable stations and that have been subject to compre-
hensive informal settlement improvement projects.
The residents of this area were well aware of the risks of occupying this site.
Scattered on the steep slopes, their dwellings are built of light materials on
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The IA approach in different contexts
wooden stilts in order to adapt to the terrain. Because of the risk and uncertain
future of their neighborhood, they have not invested more effort and money into
consolidating their dwellings. The settlement is only accessible by footpaths and
there are no commercial or productive activities. In the holistic improvement
plan for the Northeastern Commune (PUI), the site appeared as a green zone, not
adequate for occupation and requiring the relocation of all dwellings. It did not,
however, specify how to treat this open space in the future once the relocation was
completed.
The proposal
The students’ scheme proposed the relocation of the population currently dispersed
in the band, concentrating residents into two “compact terraced villages.” The sites
selected for this operation possessed the following characteristics: (a) they were
relatively more stable than the remaining area, (b) they were well situated in the
urban context and accessible from adjacent settlements, and (c) they were capable
of housing the population that required relocation, as well as additional inhab-
itants, providing that the public sector intervened by stabilizing the land in order
to accommodate the retrofitted settlement.
In this scenario, the Attractors are represented by the series of terraces that
would allow for safe occupation and the pedestrian-friendly links between the
terraces. In this particular case, the Attractors and the Receptor Patches perform
the same urban functions. The terraces are stabilized by foundations such as those
used to construct the Parque Biblioteca España, as well as cut and fill operations and
the use of gabion walls for slope stabilization. This intervention requires design,
calculation, machinery, and investment that would be impossible for the settlers to
afford on their own.
The Protectors are represented by the open spaces that will remain un-urbanized
but still play an important role in the performance of the new neighborhood and
the broader urban district. At a district scale, they are imagined as urban agricul-
tural fields and recreational areas. They will be treated in order to manage water,
stabilize the current erosive processes, reforest the slopes, irrigate the fields, and
store excess water. The community groups that act as Stewards of these open
spaces would be located at the edges of the urban villages, with schools that
include agricultural practices, community centers, and manufacturing incubators.
The open areas will initially be fenced while the agricultural pods and the forestry
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The IA approach in different contexts
programs take off. As the recreational areas are designed, gradually constructed, and
programmed, the community can establish a sense of ownership and defendability.
In relation to the terraced village proper, the proposed building stock
would comprise basic residential single units that the users are able to expand
horizontally and vertically up to four or five stories, as well as incorporate
some commercial uses. At the time when PennDesign students developed this
proposal, Medellín had not yet tested the open-air escalators as a public mobility
device. These seem to be an appropriate solution for resolving vertical mobility
within the urban villages and also in the green bands, together with ramps and
stairs.
The context
Choroní nestles in a coastal Caribbean valley, against the backdrop of one of Latin
America’s largest and most untouched rain forests: the Henri Pittier National
Park. This mountainous forest separates Choroní from the industrialized belt of
Venezuela, and can be reached by a two-hour drive on a narrow winding road
over the Park. Due to the geographic location of this town, situated on the
alluvial fans of rivers born some 1,900 meters above the town, the site is prone
to periodic flooding. There are signs of major flooding as historic events in the
urban landscape, such as the presence of very large rounded boulders dispersed
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The IA approach in different contexts
among pedestrian alleys, in back yards and courtyards, and even emerging within
the rooms of homes.
Since colonial times, the town has produced some of the most highly valued
cocoa beans in the world due to the condition of the soils and the climate. My
grandfather arrived here from the Dutch island of Curacao in the 1920s to look
into cocoa trade, and remained. Since the early 1980s, the site has become a
hotspot for ecotourism due to its great beaches, rivers, climate, scenic beauty,
and African American traditions. A section of the unique cocoa fields, once
under the shade of large tropical high canopy trees and with a delicate irrigation
system, became urbanized to accommodate vacation homes. As the rundown
colonial homes were converted into lodging for tourists, their occupants became
more affluent and began the construction of new informal housing. This also
encroached on farmland and even within the limits of the National Park.The road
over the mountain was paved and Choroní began to receive a massive influx of
local tourists over the weekends and long holidays.
Development pressures and squatting were taking their toll on the unique
environmental and cultural assets that were attracting visitors to the site. The sand
of the beaches and rivers started to get polluted, as campers compacted the soil
and littered the adjacent grounds. Motor vehicles congested the narrow colonial
streets and parked randomly in open fields.
The new formal and informal constructions were built with materials trans-
ported over the mountain range, being sold in the town at much higher prices
than in the cities. These materials created a new urban landscape alien to the town,
changing the traditional building types, replacing the climatically appropriate
courtyard homes with compact air conditioned buildings, and creating anonymous
constructions.
Furthermore, Venezuela’s administration under the so-called social revolution
took a more lenient attitude towards squatting in the National Park and on
privately owned land. As a result, some former large cocoa plantations, which had
been left idle by the owners, were built into settlements without infrastructure
and public spaces. These settlements destroyed existing vegetation, even occupying
erodible terrain and the flood plains of creeks. Wastewaters from these settlements
would add to the pollution of streams.
The colonial beach paradise was gradually losing its charm. Massive tourism
and uncontrolled informality were reshaping the landscape.The economic benefits
of such change were certainly helping the locals—and not external investors or
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The IA approach in different contexts
corporations—but the process calls for assistance if the town wishes to remain a
tourist-driven destination.
The proposal
The Choroní IA contributions are mainly aimed at the protection and desig-
nation of appropriate use of the unique environmental assets of the town and its
immediate hinterland. The proposals are intended to protect, and at the same time
take better advantage of, waterways. The different goals are as follows:
The Attractors and Protectors are, in this case, particularly intertwined and derived
from the topographic configuration and limitations for urban expansion as a
result of the presence of the National Park, which compresses them both. Hence,
productive, recreational, ecological, risk control, mobility, and marketing strands
are tightly bundled.
The authors of this scheme proposed a new system of public spaces, most of
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The IA approach in different contexts
7.7 Conclusions
These five case studies were produced prior to or while this book was being
written, thus they informed the IA concept and, in particular, helped define the set
of components which are its design framework.The academic examples help illus-
trate the versatility of IA as a working approach. As has been argued throughout
the book, design plays an important role in the process of guiding the growth of
the predominantly informal city.These projects highlight the compelling contribu-
tions of the design professions in city planning. Design proposals, such as the ones
presented, can advocate for the IA approach, because professionals and the general
community tend to easily relate to visual images.These illustrations provide a more
accurate sense of the character of transformation that may be achieved.
However, throughout the book we have also contended that the IA approach
relies on effective management and the capability of the facilitators, as well as
beneficiaries, of the programs to induce and monitor physical and non-physical
transformations. Thus, images such as those represented here provide a glimpse
only, depicting a snapshot of a particular vision in time. On-site explorations will
require novel forms of representation to communicate the formal and perform-
ative conditions of the sites and how they will transform in a way that can easily
be followed by all co-participants of the IA experiment.
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The IA approach in different contexts
Notes
1 The list of students includes: Peter M. Barnard, Taylor S. Burgess, Susanna
B. Burrows, Jonay Casariego, Victor Czulak, Allison R. Dawson, Cynthia M.
Dorta-Quinones, Chenlu Fang, Anneliza Carmalt Kaufer, Mark J. Kieser,
Miseon Kim, Leonard A. Klipper, Anoop V. Patel, Nicholas E. Perrin, Leonardo
E. Robleto Costante, Daniel Saenz, Eduardo Santamaria Ruval, Meghan R.
Talarowski, Autumn Visconti, and Ran Yang.
2 See Deborah Potts. Circular Migration in Zimbabwe and Contemporary Sub-Saharan
Africa. Rochester: Boydell & Brewer, 2010.
3 For a detailed description of the urban growth of Harare see University of
Zimbabwe. Harare: The Growth and Problems of the City. Harare: University of
Zimbabwe Publications, 1993.
4 An official description of the situation in the Avila, for example, can be
found in Ministerio del Ambiente y de los Recursos Naturales Renovables
de Venezuela. Memoria y cuenta del Ministerio del Ambiente y de los Recursos
Naturales Renovables. Official Report, Caracas: Ministerio del Ambiente y de
los Recursos Naturales Renovables de Venezuela, 2007.
5 On Operation Murambatsvina see Maurice Vambe. The Hidden Dimensions of
Operation Murambatsvina. Harare: Weaver Press, 2008.
6 This description was prepared in collaboration with Mr. Leonardo Robleto,
participant in the Harare Studio, whose project received an honorable
mention in the student project general design category of the American
Society of Landscape Architects (ASLA) in 2013.
7 On demographics and urban life in Chitungwiza see Elaine Windrich.
Review of Schlyter, Ann. Multi-Habitation: Urban Housing and Everyday Life in
Chitungwiza, Zimbabwe. Report, H-Africa, H-Net Reviews, 2003.
8 The referenced schemes were produced by Peter Barnard, Meghan Talarowski,
and Daniel Saenz.
9 The list of students includes: María Victoria Chirinos, Deborath Gascon,
Alberto González, Eduardo Izaguirre, Sofía Marichales, Herimar Meneses,
Patricia Ramos, and Valentín Urbina.
10 For additional information on the current demographic dynamics in Caracas
visit Alcaldía del Area Metropolitana de Caracas. Plan Estratégico Metropolitano
Caracas. 2011. http://www.plancaracas2020.com/diagnostico.htm (accessed
November 2, 2013).
11 Ibid.
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Conclusions
In considering how the large cities of the developing world will evolve in the
future, where informality will play a dominant role, it is useful to synthesize our
understanding about the influences that have shaped urban growth. This will
better equip us to understand and anticipate the emerging conditions that shape
the global urbanization trends of the future.
Informal urbanism is not a new phenomenon. Throughout history, unplanned
and informal processes have played an important role in shaping cities. It is when
this informal mode of city making increases in scale that it causes health hazards,
social segregation, social unrest, and ineffective governance. Societies respond to
these conditions with a diversity of planned, designed, and administered solutions.
These responses have ranged from eradication or relocation of the population living
in informal settlements, to the adoption of codes to avoid the growth of new sponta-
neous urban areas, to the construction of new social housing. The construction
of social housing in many European cities during the early years of the Industrial
Revolution and Haussmann’s interventions in Paris set precedents for such urban
operations. These efforts aimed to sanitize, beautify, and streamline the city.
All these initiatives shared a common thread: the desire to establish different
morphological and performative conditions than those embedded in informal
growth.They imposed planned and designed top-down solutions over a piecemeal
and culturally driven mode of city making. This approach reached its epoch in
the mid twentieth century, when the Modernist Movement attempted to resolve
urban problems on a global scale.
Although the origins of the principles of the Modernist Movement can be traced
back to nineteenth-century Europe, it emerged with vigor after WWII, mainly in
261
Conclusions
the Americas. By the end of the second millennia, its principles were adopted as
standard practice around the world. The Modernist ideas challenged the perfor-
mance and morphology of the traditional/unplanned city, which for thousands of
years had shaped urban history. Modernists believed that the traditional city could
not respond to contemporary demands, and was unable to accommodate the latest
technological achievements or address increasing population demands. Modernists
argued that cities had become chaotic and dysfunctional and, in some cases, that
cities were intrinsically sick.
They reenvisioned the contemporary city as a large-scale machine or industrial
production line that could be carefully planned, designed, and monitored. These
universal principles were expected to be applied by substituting existing urban
areas, by replacing them with urban renewal operations, or by introducing new
urban visions through newly urbanized territories. The Modernist prototypes
could be easily adapted worldwide, since the rationales of engineered function-
ality overruled the variances of place and culture. Cultural and local nuance were
conditions that permeated the traditional city.
This new approach aimed to improve the cities’ efficiency by organizing them
in mono-functional areas regulated by zoning. These purported to avoid the
conflicts of incongruent urban uses, for instance between residential and industrial
zones. The precise definition of urban uses and densities allowed, in theory, for
the correlation of new demands with the provision of transportation and mobility
systems, infrastructure, and supporting facilities. The predominantly piecemeal,
mixed-use, and self-constructed urban fabric, which constituted the DNA of the
traditional cities, would be replaced by planned, highly controlled, and highly
speculative real-estate-driven operations.
Modern principles favored the expansion of the cities from older city cores into
the rural landscape, with urban patterns highly dependent on vehicular mobility.
In the industrialized world, modern developments quickly surpassed the tradi-
tional city in area and population. In the developing world, however, the modern
principles shaped only the formal areas where the more affluent classes lived and
worked. These changes affected the performance of the entire city, given that the
informal areas are highly dependent on the formal ones. The application of these
modern concepts resulted in social segregation and placed the urban poor at a
disadvantage in relation to the formal city. The poor constructed their urban terri-
tories with their own methods and through cultural conventions. The informal
city emulated many of the characteristics of the traditional city, but at different
262
Conclusions
scales, and at a much faster pace. In the best-case scenario, both the formal and the
informal cities co-exist, but rarely interact.
Emergent trends
We are now witnessing the emergence of trends that will characterize the urban
future. As the twentieth century came to an end, older cities of the industrialized
and technologically driven world in North America and Europe began showing
signs of their exhaustion with the modern model and, in particular, the suburban
way of life. In cities with a more robust pre-modern past, wealthier groups have
begun moving back into the urban centers. Defunct post-industrial areas, many
of them located on waterfronts and transportation lines, but also in the vicinity
of older urban cores, have begun to repopulate and attract diverse income groups,
incorporating services and amenities, and addressing both community and metro-
politan needs.
These trends result from: (a) increasing energy prices that limit access to
community services in suburbia, or make it more difficult for suburban residents to
commute to the central locations to access jobs and amenities; (b) renewed interest
in the qualities that the traditional city can offer, such as pedestrian mobility and
public transportation, commerce, and leisure; and (c) a generation that is more
aware of the environmental and social issues presented by suburban lifestyles.
In some instances, the return of the wealthier groups to central locations is
resulting in the gradual displacement of the lower-income population to outer
areas, creating richer central areas and poorer suburbs. This form of displacement
has the potential to be particularly disastrous for lower-income groups who do not
have the means to access jobs and amenities from their new peripheral locations.
Cities have started rethinking the role of suburbia. Planners and designers have
begun revising single-use zoning codes, envisioning how these peripheral areas
could be transformed into denser, mixed-use districts, and creating new central-
ities served by public transportation. These trends are explained in detail in Ken
Greenberg’s recent book Walking Home.
However, transformations of this nature are still not common in cities of the
developing world. There are some examples where the wealthy return to older
parts of town, attracted by the intensity and diversity of urban life. However, this
occurs only in countries with strong economies and cities with industrial legacies,
such as Argentina, Brazil, and Mexico.
263
Conclusions
This raises an important question of whether these trends are also influencing
the informal city. The improvement of informal settlements in Río de Janeiro,
Bogotá, and Medellín can also be considered an emerging trend in the retro-
fitting of low-income neighborhoods of organic or traditional character. These
interventions have introduced a variety of services and amenities to elevate
living conditions, increase social mobility, and decrease dependence on formal
areas. From these nascent trends in both formal and informal settlements, we can
envision a future of cities that favor social mixing, a combination of uses, and
public transportation. These cities would offer a rich system of public spaces for
socializing and civic engagement, while demonstrating a commitment to environ-
mental excellence.
If appropriately guided, the informal city can make significant contributions to
sustainable urban life, impacting large cities of the developing world in a positive
way. The informal city is compact, pedestrian friendly, and socially cohesive. It is
capable of incorporating mixed uses at a neighborhood scale. It consumes little
energy and produces relatively low quantities of solid waste when compared
to formal cities. All of these positive attributes facilitate the task of creating a
sustainable future for cities.
264
Conclusions
265
Conclusions
existing informal areas, there seems to be a strong resistance on the part of the public
sector to plan, design, and manage the emergence of self-constructed districts, and
much less for entire cities. Doubts arise about the feasibility of the public sector
proactively engaging in the acquisition of suitable land, a basic condition of the
IA approach, or dedicating managerial and financial efforts to openly support new
self-constructed settlements. Unequal land ownership patterns, as well as cultural,
institutional, professional, and legal factors that disadvantage informal settlement
hamper support for addressing a better future for informal cities. These forces
that impede support for IA, and thereby embracing informality, can be addressed
through political will. The land issue can be tackled with creative mechanisms of
land banking and incorporating landowners in profitable IA operations. Changing
the biases towards the informal city requires action on different fronts: gaining
political support, carrying out pilot projects to test the approach and evaluate
the results, conducting further research on the topic, introducing these ideas in
academia, and marketing them to a general audience in public relations campaigns.
The IA approach was developed through academic research and practical experi-
ences in developing countries. This approach has not yet been put into practice
and has only been tested in design studios and site simulations. Pilot projects,
however, adapted to a diversity of site conditions will prove the effectiveness of this
working method and will allow for the introduction of adjustments, modifications,
and improvements to the concept. Practical applications will provide constructive
feedback to enrich theoretical underpinnings, as well as the pallet of additional
design solutions.
Since IA might be applied in a diversity of contexts that require specific
responses, further research will be necessary. Priority areas of attention may include:
266
Conclusions
While the IA approach defines general criteria, proposes a set of generic design
components, and suggests conditions that will facilitate its implementation, the
approach is far from rigid. It does not predefine the scale or the nature of the
appropriate design conditions for each site.The IA initiative simply asks the imple-
menters and beneficiaries of the method to consider the preemptive actions that
will foster urban conditions that they could not achieve on their own. It asks the
question: What are the interventions that require the least investment to achieve
the greatest impact?
Time is a crucial ingredient. If we don’t act soon, or at least at the pace of
un-fostered informal growth, our efforts will be futile. Without a quick response,
settlers will most likely establish themselves on inadequate sites, whether individ-
ually, through communal organizations, or assisted by pirate developers. They
will secure the lots to build their homes without the framework that will enable
sustainable urban conditions. Consequently they will remain at a disadvantage in
relation to the planned, designed, and managed city.
The Informal Armature approach is based on the power of transformative
processes, and the malleability of societies that do not have the restraints of the
more established, consolidated, and static ideals. It assumes that cutting edge forms
of management and design solutions can merge with the vital character and adapt-
ability of the informal city. As a result, a hybrid form of urbanization will emerge,
perhaps richer, more dynamic, and more resilient than either the formal or the
informal city on their own.
The IA approach suggests courses of action and design criteria that can be
easily implemented, offering tools to transform political will, and technical skills
to transform communal efforts into reality. It is an optimistic vision for a future
where informality is the driving force of the majority of cities of the developing
world, many of which will become the largest urban agglomerations in history.
Unlike the Modernist Movement, which intended to establish homoge-
neous urban solutions worldwide, the IA approach attempts to engage with the
complexities, imperfections, and constant transformations of cities, particularly
those in which a high percentage of their dwellers built the places they inhabit.
267
Conclusions
Figure 8.1: Street sign in Barrio La Cruz. Translation: “I would like my Barrio La Cruz to be clean,
happy, with solidarity and in peace … can you help?” Medellín, Colombia
Note
1 See Oscar Grauer. “Democracy and the City.” Democracy in Latin America,
in ReVista, David Rockefeller Center for Latin American Studies, Harvard
University, Fall 2002, pp. 16–20.
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278
Index
Please note that page references to Figures will be in italics, whereas those for Notes will
contain the letter ‘n’ following the page number
Aburrá River, Medellín, 100, 101 Baldó, Josefina, 48, 51, 52, 53, 57–58, 59,
access difficulties, informal settlements, 60, 61, 111n, 112n, 113n
28 Ballesteros, Frank López, 113n
Aguachina (informal settlement), Caracas Barco, Carolina, 68
(Venezuela), 48, 49, 51 Barco, Virgilio, 68
Alamedas (mobility corridors), pedestrian- Barrio La Cruz, Medellín, 268
friendly (Bogotá), 75, 82, 153, 154, 157; Barrio La Morán, Caracas (Venezuela), 55
Alameda El Porvenir, 169 Barrio Moravia, Medellín, 96
Alejandro, Gabriel, 72, 114n barrios (informal settlements), Caracas
Almandoz, Arturo, 4, 35n, 141n, 201n (Venezuela), 45; adversaries of
AlSayyad, Nezar, 34 improvement plans, 59; homes
Antillano, Sergio, 201n of isolated projects, 59; Plan for
Aravena, Alejandro, 24, 36n the inclusion of the Barrios of the
Aristiguieta, Leandro, 201n Metropolitan Area of Caracas and
Arquitetas da Comunidade (female Architects of the Capital Region (later Caracas
of the Communities), 176 Barrio Plan), 52, 53, 54, 57, 58, 85, 86;
Athens Charter, 1933, 12 pro-housing groups, 58; rehabilitation
Attractors, 164, 169, 171, 186, 251, 253, plan, 49, 51–54, 57, 59; see also Caracas
256; effect on informal settlements, (officially Santiago de León de Caracas),
166–167 Venezuela
Avenida Carabobo, Medellín, 97, 98 Barrios de Petare, Caracas, 142, 154
Averbeke, W. van, 141n Belén, Medellín, 92
Avila National Park, Caracas, 44, 48, 59, Bello region, Medellín, 105–106
169–170 Benevolo, Leonardo, 36n, 201n
279
Index
280
Index
of the Barrios of the Metropolitan Area Cities of Latin America. Housing and Planning
of Caracas and of the Capital Region), to the South (Almandoz), 4, 35n
52, 53, 54, 57, 58, 85, 86 Citizen’s Council for Public Security, 47
Caribbean Cornice of Caracas, 59 City Beautiful movement, Europe, 188
Castro, Fidel, 47 Ciudadela Colsubsidio, Bogotá, 11
Castro, Jaime, 71–72 Ciudad Fajardo, Venezuela, 7
Catuche (informal settlement), Caracas Ciudad Guayana, Venezuela, 18–19, 193,
(Venezuela), 48, 51, 59, 112n; Metro- 194
cable system, 153; reoccupation of civic engagement, 52
Ravine, 56 cocaine, Colombia, 66
CEDESOSs (business incubators), 183 Colombia: Barrio Santo Domingo, Medellín,
Central Business District (CBD), Harare, 252–254; Bogotá (Santafé de Bogotá) see
238, 239, 240, 242, 244 Bogotá (Santafé de Bogotá), Colombia;
Chaskin, Robert J., 201n drug culture, dealing with, 66, 67, 68;
Chávez, Hugo, 46, 47, 57, 60, 61, 62 improved governance, 67–68; insur-
Chile, social housing programs, 14 gency, 65–66; La Sabana de Bogotá
Chimbote, Perú, 18 (wetlands), 70, 71, 82, 177, 248–252;
Chitungwiza, Harare, 242, 244–245 “Ley 388” legislation, 68; libraries,
Choroní, Venezuela, 124, 187, 254–257 77, 79, 92–94; Medellín see Medellín,
CIAM (Congrés International d’Architecture Colombia; social housing programs, 14;
Moderne), 12, 14; CIAM 8 (“Heart of urban vision of Peñalosa, for Bogotá,
the City”), 18 74–84; and USA, 66, 67; Venezuela
Circular Migration in Zimbabwe and compared, 41, 63, 65, 68; violence,
Contemporary Sub-Saharan Africa (Potts), 66–67, 87, 100
258n Colonialism and Underdevelopment in Latin
cities: benefiting from qualities of both America (Valentin and Raduan), 3
formal and informal systems, 130; city colonial societies, 3–4, 131
corridors and plazas, Medellín, 98; “come and squat schemes,” 175
city planning, working against infor- communal and metropolitan services,
mality, 8–10; complexity, 41; creation, inadequacies in informal settlements, 27
need for, 33; future of, in developing community, reaching out to, 223–224
world, 261–268; “garden city” solutions, Comprehensive Urban Plans (PUIs),
13; informal, reconsidering, 24–29; Medellín, 94–95
Modernist Movement, 12; “other CONAVI (National Housing Council),
city,” emergence, 8, 44–47; post-war, Caracas (Venezuela), 52, 57, 58
143–144; preindustrial, 10, 143; conglomerates, informal urban, 130
pre-Modernist, 135; self-constructed see Conjunto Copan (Niemeyer), 14
informal settlements; self-constructed connectivity and infrastructure systems,
cities; socially divided and dysfunctional, Informal Armatures, 151–158; mobility
121 issues, 152; preemptive action, 152
Cities and Economies (Kim and Short), 10, Consorcio Social Las Casitas del Inca
12 settlement, Caracas (Venezuela), 50
281
Index
282
Index
283
Index
Hunt, John Dixon, 188, 201n 192–195, 197; new forms and programs,
Hustwit, Gary, 115n 132–136; Patches, 127, 171–181, 185,
Hybrid Identities (Iyall Smith and Leavy), 5 186–187; preventative nature, 111;
hybridity/hybridization: in Caracas priorities, 126–127, 134; resource
(Venezuela), 45; developing world, 4, efficiency, 143–146; road construction
5; of Informal Armatures, 5, 133; and syndrome, counteracting, 156–157; safe,
informal city, 265, 267; in Medellín amicable and flexible places, 148–151;
(Colombia), 103 Stewards, 180, 181–183, 186, 188,
193, 257; sustainable informal growth,
Iacobelli, Andres, 36n 125–128; as system of components
IAs see Informal Armatures (IAs) guided by implementation principles,
illegal immigrants, 15 163–200; terminology, 30; territorial
Industrial Revolution, 10, 12, 261 features, 149; urban demands, addressing,
Informal Armatures (IAs): academic refer- 137–140; urban design, 188, 205, 224,
ences, 235–237; adapting approach to 242, 245; Zimbabwe, 237–245
different contexts, 235–259; advocating informal city/informality, 24–29, 262;
for IA initiative, 33, 203–209; appli- biases against informality, 1, 2–6, 8,
cation of approach, 130–131, 235–259, 265; challenges, 226–227; changing
266–269; balanced, pedestrian-friendly attitude towards informality, 5; city
districts with efficient mobility, planning and urban design working
157–158; beneficiaries, 139–140; city against informality, 1, 8–10; design
planning and urban design, trans- considerations see design, urban; eradi-
forming, 1–2; concept, 16, 29, 119–140; cation of areas without relocation, 5;
connectivity and infrastructure essence of process as valid urbanization
systems, 129, 151–158; contribu- framework, 110; and hybrid form, 265,
tions of approach, 122–124, 264–266; 267; informal urbanism throughout
versus conventional urban design history, 261; overdependence on formal
and landscape architecture compo- city, 130; predominantly informal cities,
nents, 123; Corridors see Corridors; 126, 137, 144, 146, 154, 157, 158, 226,
decision-making, 134–135; definition of 227, 265; reconsidering informal city,
approach, xxiv, 119–122; design aspects 24–29; sustainable informal growth,
see design, urban; facilitators, 128–132, 125–128; versus traditional cities,
139–140, 194; financial sources, 262–263; variation in, 6; vitality of
226–232; guided adaptation, 146–151; informality as principal driver of
hybridity of, 5, 133; implementation outcomes, 130
principles, 188–200; interconnected informal settlements: acceptance as valid
aspects, 143–160; local site conditions, form of urbanization, 5–6, 15; access
131; management, 150; merging of difficulties, 28; Attractors, effect on,
formal with informal, 29–32; merging 166–167; causes, 3, 31; Colombia see
of informality with intentionality, 120; Colombia; dangers, 27; densification
mobility issues, 155, 157–158; morpho- process, 45, 146; as dominant form
logical and performative conditions, 149, of urbanism in developing countries,
284
Index
285
Index
286
Index
287
Index
288
Index
289
Index
as leading center for research on, 19; Turner, John F.C., 19, 20–21, 35n, 37n
new social housing, 96; projects, 14–15, 23 de Enero (public-housing project),
81–84; substitution housing, 95–96; Venezuela, 14–15, 44–45
urban performance and housing, 13, 14;
zoning, 81–82; see also housing Uncontrolled Urban Settlements: Problems and
Socialist Revolution, Venezuela, 47, 62, 63 Policies (survey), 21
Soto, Hernando de, 30, 36n UNDP (United Nations Development
South Africa, 5, 34, 128 Program), 21
Spanish colonial period, 4, 131, 138 United Nations Conference on
squatting, 5, 15, 70, 144, 169, 170 Environment and Development, Río de
Steffian, John, 19, 21, 37n Janeiro (2012), 127, 141n, 159n
Stewards, 180, 181–183, 186, 193, 195, United Nations Development Program
257; Garden Keepers, 183, 184, 186, 188 (UNDP), 21
street grids, Latin America, 135 United States: and Colombia, 66, 67;
substitution housing, 95–96 Government Accountability Office,
“survival-mode thinking,” 138 114n; see also Latin America
sustainable habits, 129 Universidad Central de Venezuela, 48, 51
sustainable informal growth, 125–128 Universidad de Antioquia Campus,
Medellín, 97
Tabet, Abdallah, 248 Universidad Metropolitana, Caracas, 170,
Talleres de Imaginarios workshops, 150–151 201n; Urban Design Program, 49
Technischen Hochschule of Vienna, 14 UPUs (Urban Planning Units), 53–54, 58
technological changes, urban expansion URBAM (Center of Urban and
facilitated by, 12–13 Environmental Studies), EAFIT
Terry, Fernado Belaúnde, 21 University (Medellín), 102, 104, 105
topographic conditions, 25; Caracas urban design see design, urban
(officially Santiago de León de Caracas), Urban Design Programs, 18, 49, 249
Venezuela, 44, 45; Medellín, Colombia, Urban Design Since 1945: A Global
87 Perspective (Shane), 143–144, 201n
Torres, Edgar, 114n Urban Dwelling Environments (Caminos and
Transformers/Transformer Patches, 171, Steffian), 21
178–179, 198, 199 “urban equalizers,” 121–122
Transmilenio (BRT) system, Bogotá, 73, 75, urban expansion areas: facilitation by
77, 98, 157 technological changes, 12–13; vacant,
transportation issues: Bogotá (Santafé 9–10
de Bogotá), Colombia, 74–75, 77; urban frameworks: housing units, growth,
Metro-cable systems see Metro-cable 21–22; self-constructed dwellings see
systems, Latin America; São Paulo, self-constructed dwellings; Sites and
Brazil, 27–28 Services programs see Sites and Services
trees, 128, 190–191 programs
trends, emergent, 263–264 Urban Improvement Program, Caracas
Turner, Bertha, 21 (1997), 51
290
Index
291
Index
292
Figure 6.5: (Top) Sketch of the Core of an Informal Armature for a Self-Constructed Community, which
guided an installation as part of the Idea Days Festival, School of Design, University of Pennsylvania,
September 2013. (Bottom) Photographs: Spatial definition of public spaces and lots. Facilitators: D.
Gouverneur, D. Maestres, S. Rottenberg, D. O’Neill, and M. A. Villalobos.
Figure 7.1: (Top) Green system along wetlands and public transportation routes in Southern Harare.
Project: S. Burrows, T. Burgess, and A. Carmalt. (Bottom) Corridors and Patches in Chitungwiza.
Project: D. Saenz. Instructors: D. Gouverneur and T. Lenneiye
Figure 7.2: (Top) Protectors along wetland and Receptor Patches. Project: A. Visconti. (Bottom) Well
and community center. Project: L. Robleto. Both in Hopley Farms, Harare. Instructors: D. Gouverneur
and T. Lenneiye
Figure 7.3: (Top) Green heart for water management and agricultural production. Project: Grupo
Simbiosis/UNIMET. (Bottom) Open space and flood protection berm. Project: Grupo Agua/UNIMET.
Both in Valencia, Venezuela. Instructors: M. G. Díez and A. C. Arocha Petit. Advisor: D. Gouverneur
Figure 7.4: (Top) System of open spaces and irrigation canals. (Bottom) Aquaculture and promenade.
Project: Grupo Agua/UNIMET. Both in Valencia, Venezuela. Instructors: M. G. Diéz and A. C. Arocha
Petit. Advisor: D. Gouverneur
Figure 7.5: (Top) Attractors of urban growth along transportation lines and Protectors of wetlands and
agricultural land. Project: Group Initiative. (Bottom) Open spaces and Receptor Patches in Soacha,
Colombia. Project: A. Kelly. Instructors: D. Gouverneur and A. Tabet
Figure 7.6: (Top) Protectors of wetlands and agricultural land in Funza-Mosquera. Project: V.
Rivera-Rosa. (Bottom) Protector of wetlands and agricultural land in Facatativá. Project: A. Vázquez.
Bogotá, Colombia. Instructors: D. Gouverneur and A. Tabet
Figure 7.7: (Top/Bottom) Receptor Patches on stabilized terraces and protection of unstable land for
agricultural and recreational uses. Project: K. Cooper, R. Fuchs and K. Kunte. Barrio Santo Domingo,
Medellín, Colombia. Instructors: D. Gouverneur and T. Lee
Figure 7.8: (Top) Terraces for core housing shelters and self-constructed dwelling expansion. (Bottom)
Land stabilization and water management. Project: K. Cooper, R. Fuchs, and K. Kunte. Barrio Santo
Domingo, Medellín, Colombia. Instructors: D. Gouverneur and T. Lee
Figure 7.9: System of open spaces protecting flood plain of ravines with productive Patches and
recreational uses. Project: M. Bernstein and N. Koff. Choroní, Venezuela. Instructor: D. Gouverneur
Figure 7.10: (Top) Production and recreational Patches. (Center) Section across reforested areas.
(Bottom) Adobe production Patch. Project: M. Bernstein and N. Koff. Choroní, Venezuela. Instructor:
D. Gouverneur
Figure 7.11: (Top) Production and recreational Patches. (Center) Agriculture Patches. (Bottom)
Proposed Botanical Garden as key Cultural Anchor. Project: M. Bernstein, N. Koff, Venezuela.
Instructor: D. Gouverneur