O ordenamento do território e a revisão dos Planos Diretores Municipais : execução e equidade
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2020
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A problemática da execução de planos municipais e o desfasamento existente entre o planeado e o executado é uma realidade que caracteriza o sistema de planeamento em Portugal. Os planos municipais, designadamente os Planos Diretores Municipais, não se podem limitar a meros instrumentos de natureza normativa nos quais temos inevitavelmente que enquadrar as dinâmicas territoriais em constante mutação. Constituem-se antes como importantes instrumentos de ordenamento e análise prospetiva, no desenvolvimento de um território que se quer capaz de antecipar mudanças de paradigma, equacionar e dar resposta às profundas transformações de natureza económica, social ou tecnológica.
Reconhecendo-se a importância de uma intervenção territorial planeada e processando-se a realidade a um ritmo cada vez mais acelerado, para o sucesso de implementação do plano, evidencia-se premente a necessidade de alinhar os instrumentos de gestão territorial com o ritmo dessas transformações, promovendo simultaneamente uma proposta de ordenamento mais equitativa. Neste âmbito assume particular relevância a salvaguarda de aspetos relativos à estratégia, os critérios de classificação do solo enquanto substrato base, bem como a adoção de soluções que preconizem ajustes do modelo de ordenamento, numa perspetiva menos rígida e mais flexível.
Quase duas décadas passaram após a introdução da perequação no enquadramento legal, com o propósito de promover a justa repartição de benefícios e encargos decorrentes da proposta de planos territoriais. Os Planos Diretores Municipais recentemente publicados têm recorrentemente remetido a execução para Planos de Pormenor, Planos de Urbanização ou Unidades de Execução. Mas serão estes mecanismos de execução ou instrumentos à espera de intervenção? Serão instrumentos capaz garantir a equidade no ordenamento do território à escala municipal? A abordagem é efetuada a partir da análise crítica ao quadro legal, às propostas de PDM recentemente publicados e ao estudo de caso do PDM de Sintra.
A legislação tem vindo reforçar os instrumentos equitativos abrindo a possibilidade de estabelecer mecanismos destinados a compensar a proteção de interesses gerais, como seja o contributo dos ecossistemas, prevendo neste âmbito a transferência de edificabilidade. A análise ao estudo de caso releva os possíveis impactos que tal opção pode representar, num território heterogéneo, considerando-se indispensável o papel regulador do município. Conclui-se que para tornar o ordenamento do território na revisão dos PDM mais exequível e equitativo tem de existir flexibilidade e alargamento da abrangência dos instrumentos equitativos, integrando na equação as questões da remuneração dos ecossistemas.
The problematic of municipal plans execution and the gap between the planned and the executed is a reality that characterizes the planning system in Portugal. Municipal plans, such as the Municipal Master Plans, can´t be limited to mere instruments of a normative nature in which we inevitably have to frame the ever-changing territorial dynamics. Rather, they are important instruments of planning and prospective analysis, in the development of a territory that is capable of anticipating paradigm changes, equating and responding to the profound transformations of an economic, social or technological nature. Recognizing the importance of a planned territorial intervention and the increasingly accelerated pace at which reality is processed, it is urgent for the successful implementation of the plan to align the instruments of territorial management with the pace of these transformations, while promoting a more equitable planning proposal. In this context, it is particularly important to safeguard aspects of the strategy, the soil classification criteria as the base substrate, and the adoption of solutions that recommend adjustments of the planning model, in a less rigid and more flexible perspective. Almost two decades have passed since the introduction of equalization in the legal framework, with the purpose of promoting the fair distribution of benefits and burdens arising from the proposed territorial plans. The recently published Municipal Director Plans have repeatedly resubmitted execution for detailed plans, urbanization plans or execution units. But are these real mechanisms of execution or instruments waiting for intervention? Are these instruments capable of guaranteeing fairness in the planning of the territory at the municipal level? The approach is based on a critical analysis of the legal framework, the recently published PDM proposals and the Sintra PDM case study. Recent legislation also strengthens the focus of equitable instruments, opening up the possibility of establishing mechanisms to compensate the protection of general interests, such as the contribution of ecosystems, providing for the transfer of buildability. The analysis to the case study highlights the possible impacts that such an option may represent in a heterogeneous territory, considering that the regulatory role of the municipality is indispensable. It is concluded that in order to make land-use planning in the PDM review more feasible and equitable, there must be flexibility and widness the equitable instrument’s scope, integrating the issues of ecosystem remuneration into the equation.
The problematic of municipal plans execution and the gap between the planned and the executed is a reality that characterizes the planning system in Portugal. Municipal plans, such as the Municipal Master Plans, can´t be limited to mere instruments of a normative nature in which we inevitably have to frame the ever-changing territorial dynamics. Rather, they are important instruments of planning and prospective analysis, in the development of a territory that is capable of anticipating paradigm changes, equating and responding to the profound transformations of an economic, social or technological nature. Recognizing the importance of a planned territorial intervention and the increasingly accelerated pace at which reality is processed, it is urgent for the successful implementation of the plan to align the instruments of territorial management with the pace of these transformations, while promoting a more equitable planning proposal. In this context, it is particularly important to safeguard aspects of the strategy, the soil classification criteria as the base substrate, and the adoption of solutions that recommend adjustments of the planning model, in a less rigid and more flexible perspective. Almost two decades have passed since the introduction of equalization in the legal framework, with the purpose of promoting the fair distribution of benefits and burdens arising from the proposed territorial plans. The recently published Municipal Director Plans have repeatedly resubmitted execution for detailed plans, urbanization plans or execution units. But are these real mechanisms of execution or instruments waiting for intervention? Are these instruments capable of guaranteeing fairness in the planning of the territory at the municipal level? The approach is based on a critical analysis of the legal framework, the recently published PDM proposals and the Sintra PDM case study. Recent legislation also strengthens the focus of equitable instruments, opening up the possibility of establishing mechanisms to compensate the protection of general interests, such as the contribution of ecosystems, providing for the transfer of buildability. The analysis to the case study highlights the possible impacts that such an option may represent in a heterogeneous territory, considering that the regulatory role of the municipality is indispensable. It is concluded that in order to make land-use planning in the PDM review more feasible and equitable, there must be flexibility and widness the equitable instrument’s scope, integrating the issues of ecosystem remuneration into the equation.
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Orientação: Fernanda Paula Oliveira
Palavras-chave
DOUTORAMENTO EM URBANISMO, URBANISMO, URBANISM, PLANO DIRETOR MUNICIPAL, BOROUGH PLAN, ORDENAMENTO DO TERRITÓRIO, LAND USE PLANNING, CLASSIFICAÇÃO DOS SOLOS, SOIL CLASSIFICATION, POLÍTICA PÚBLICA, PUBLIC POLICY, SOLOS, SOILS, TRANSFERÊNCIA DE EDIFICABILIDADE, PARCEL BUILDABILITY TRANSFER