Slum Upgrading - La Esperanza, Mexico.
PART 1 of 4
Note: The following is a shortened version of the graduate report prepared for the Minimum Cost Housing Group (MCHG) of McGill University, Montreal. This report was written by myself, along with Cesar Gonzales, Tong Gan, Yue Li, Annalyn Maribbay and Alejandro Lopez.
Usually one of the most frequently asked questions regarding the adoption of different approaches that deal with the issue of informal settlements is: relocate or consolidate? What are the advantages of upgrading and when should this approach be adopted? What are the lessons from the past that we should bring into consideration? It has been said that the relocation approach increases land use efficiency and improves the physical condition of houses by resettling the community in areas that are "more suitable" to urban living standards. Very often, governmental housing agencies rely on purely orthodox methodologies in order to identify the problems faced by poor communities and select proper strategies. Most plans call for removal or relocation of informal settlements without taking in account important social and cultural aspects. Undoubtedly the social costs of resettling are enormous, often leading to a process of disruption of existing social structures and inter-related economic systems, eventually affecting the natural environment. Geoffrey Payne suggests that despite their somewhat deteriorating physical conditions, informal settlements can provide an acceptable living environment. It is precisely because of their unplanned characteristics and immediate response to cultural aspects that these settlements achieve such an intangible spatial quality, which comes from personal interpretations, resulting in a rich variety of typologies, and also in the choice of building materials.
The 'colonia' La Esperanza, located in the area of Ixtapa-Zihuatanejo, state of Guerrero, west coast of Mexico, is an informal settlement that was recently recognized by local authorities and selected for the upgrading process. This community houses about 170 families in a site that can be described as 'difficult', due to its somewhat deteriorating physical characteristics. Nevertheless, the settlement is already consolidated, with several houses being built with durable, permanent materials. The community has continuously shown its willingness to participate in the process, by organizing themselves in committees and electing representatives to work with the local agencies. The local government, along with the college of architects of Guerrero, has also shown the necessary will to work towards an effective upgrading process, which would eventually benefit other poor communities of the state. The Minimum Cost Housing Group of McGill University is collaborating to this process through the issuing of upgrading proposals, which are meant to be part of a broadened, or holistic, undertaking. The proposals for upgrading contained in this upgrading report are the result of studies carried through two semesters, from September, 1995 to April, 1996. The study is based on a survey conducted during the summer of 1995, which includes socio-economic and physical data regarding the conditions of La Esperanza. With the understanding that these conditions vary from one informal settlement to another, this report will attempt to present alternatives that focus on this particular community, but at the same time keeping some key-elements open to the possibility of replication in other areas. The objectives, therefore, of this report are as follows: to study the potentials of upgrading as it is applied to a "squatter settlement"; to evaluate and discuss the previous approaches and techniques of upgrading; and to assess the viability of upgrading in terms of its replicability and sustainability. The report is organized in four sections, which include: a literature review on the upgrading strategy; a general background on Mexico, Guerrero and La Esperanza; an analysis of the existing situation in La Esperanza; and the resulting physical upgrading proposals.
The Upgrading Approach
Literature Review
Some agents define upgrading as a strategy or an approach to reduce the ever pressing problem of informal settlements. In this report, however, we support the World Bank's definition of upgrading as "a traditional pattern of small-scale-filling-in of, and marginal additions to, existing communities". This definition implies that upgrading is more of a process for achieving a higher degree of community development, rather than simply a singular strategy or approach.
Before the value of upgrading was realised, it was often the desire to start afresh and create a new township to which the whole community could be moved. These attempts brought about inefficiencies and ineffectiveness described by a PFDA research report as follows:
Projects emerging from upgrading policies have had a wide range of impacts from the physical, to the social and the economic, to the organisational. The slum and squatter upgrading schemes, though they have been successful in meeting their design objectives, have not had substantial effects in terms of reducing the magnitude of urban problems at large. There are many instances of existing settlements that were difficult and costly to improve because of their location on hillsides, tidal flats, or in ravines. Improvement after settlement, though often inevitable, is a second-best solution.
To start an incremental process, upgrading has to rely on two elements: governmental support and participation, and the community involvement. Because the process of upgrading can take a number of years, various aspects of upgrading have to be considered fully. The physical aspect, which relies upon the participation of all involved, cannot be separated from the non-physical issues, such as those of a socio-political and socio-economic nature.
It is also important to consider the context of existing shelter and infrastructure conditions in order for upgrading to be effective. Control over the location of settlements and the way in which they are developed can mean lower costs of servicing.
Since upgrading happens on an incremental basis (i.e. staging the level of improvement of each service to suit the affordability potential of the community) it is imperative to consider at each stage the value of replicability of the process for other communities, and the sustainability within each community.
Upgrading Strategy
A comprehensive proposal for the upgrading of an informal settlement, as in the case of La Esperanza, should define components that address both physical and non-physical aspects. Progressive and sustainable development, along with community participation, are key elements in the process.
Therefore the upgrading proposal should:
Understand existing systems: By observing popular patterns of settlement, surveying existing households and recording feedback from the community.
Implement user participation: By promoting community involvement, adopting Self-Help and mutual aid approaches, incorporating training and development of skills and providing incentives for social activities and recreation.
Propose scale of priorities: Based on the observation and analysis of physical structures, such as existing patterns of circulation and transportation, public infrastructure, open spaces and house conditions, as well as non-physical aspects, such as health conditions, levels of education and culturally appropriate activities. The establishment of priorities, though, should be considered a collective task.
Propose strategies for sustainability and replicability: Support existing economic activities, stimulate development of small scale enterprises, provide training and subsidies for the production of building components, etc.
Define framework and management strategies for the project: Define the role of each participant in the process and provide support for the first stages of the project allowing direct input from the community through group discussions. Strategies and timetables should have an 'open' concept, thus allowing participants to determine their basic priorities and set their own pace.
Definition of Terms:
Squatter Settlements
The term 'squatters' is generally used to describe persons who dwell on a piece of land that does not belong to them legally. This term is perhaps too narrow for the purposes of this study, as it excludes legal land owners who may be dwelling on the land along with squatters, but who have failed to meet required housing standards (and therefore live in an illegal structure). Squatting has strict legal connotations, referring either to the illegal occupation of land, or to the illegal erection or occupation of a dwelling. It is considered to be 'uncontrolled' and 'temporary', or 'spontaneous'. The term 'slum', on the other hand, relates to the physical condition and appearance of the structure. The word 'informal' may also be used in place of what are popularly known as squatters and/or slum.Squatter settlements are the most prevalent form of non-conventional housing constructed by the urban poor, largely because they tend to be a very visible element in the urban landscape of the Third World. Squatting has appeared wherever cityward migration has reached unusually high proportions.
Even in deteriorating conditions, poor dwellers of squatter settlements tend to consolidate their homes, either through land invasion or illegal subdivision. Squatter settlements, therefore, serve as a basis from which the poor try to seek work, raise their families and improve their living standards. Throughout this report the term 'squatter settlement' is used specifically in reference to non-regulated housing constructed by urban poor migrants on a piece of illegally occupied land.
To be continued...
Note: The following is a shortened version of the graduate report prepared for the Minimum Cost Housing Group (MCHG) of McGill University, Montreal. This report was written by myself, along with Cesar Gonzales, Tong Gan, Yue Li, Annalyn Maribbay and Alejandro Lopez.
Introduction
Usually one of the most frequently asked questions regarding the adoption of different approaches that deal with the issue of informal settlements is: relocate or consolidate? What are the advantages of upgrading and when should this approach be adopted? What are the lessons from the past that we should bring into consideration? It has been said that the relocation approach increases land use efficiency and improves the physical condition of houses by resettling the community in areas that are "more suitable" to urban living standards. Very often, governmental housing agencies rely on purely orthodox methodologies in order to identify the problems faced by poor communities and select proper strategies. Most plans call for removal or relocation of informal settlements without taking in account important social and cultural aspects. Undoubtedly the social costs of resettling are enormous, often leading to a process of disruption of existing social structures and inter-related economic systems, eventually affecting the natural environment. Geoffrey Payne suggests that despite their somewhat deteriorating physical conditions, informal settlements can provide an acceptable living environment. It is precisely because of their unplanned characteristics and immediate response to cultural aspects that these settlements achieve such an intangible spatial quality, which comes from personal interpretations, resulting in a rich variety of typologies, and also in the choice of building materials.
The 'colonia' La Esperanza, located in the area of Ixtapa-Zihuatanejo, state of Guerrero, west coast of Mexico, is an informal settlement that was recently recognized by local authorities and selected for the upgrading process. This community houses about 170 families in a site that can be described as 'difficult', due to its somewhat deteriorating physical characteristics. Nevertheless, the settlement is already consolidated, with several houses being built with durable, permanent materials. The community has continuously shown its willingness to participate in the process, by organizing themselves in committees and electing representatives to work with the local agencies. The local government, along with the college of architects of Guerrero, has also shown the necessary will to work towards an effective upgrading process, which would eventually benefit other poor communities of the state. The Minimum Cost Housing Group of McGill University is collaborating to this process through the issuing of upgrading proposals, which are meant to be part of a broadened, or holistic, undertaking. The proposals for upgrading contained in this upgrading report are the result of studies carried through two semesters, from September, 1995 to April, 1996. The study is based on a survey conducted during the summer of 1995, which includes socio-economic and physical data regarding the conditions of La Esperanza. With the understanding that these conditions vary from one informal settlement to another, this report will attempt to present alternatives that focus on this particular community, but at the same time keeping some key-elements open to the possibility of replication in other areas. The objectives, therefore, of this report are as follows: to study the potentials of upgrading as it is applied to a "squatter settlement"; to evaluate and discuss the previous approaches and techniques of upgrading; and to assess the viability of upgrading in terms of its replicability and sustainability. The report is organized in four sections, which include: a literature review on the upgrading strategy; a general background on Mexico, Guerrero and La Esperanza; an analysis of the existing situation in La Esperanza; and the resulting physical upgrading proposals.
The Upgrading Approach
Literature Review
Some agents define upgrading as a strategy or an approach to reduce the ever pressing problem of informal settlements. In this report, however, we support the World Bank's definition of upgrading as "a traditional pattern of small-scale-filling-in of, and marginal additions to, existing communities". This definition implies that upgrading is more of a process for achieving a higher degree of community development, rather than simply a singular strategy or approach.
Before the value of upgrading was realised, it was often the desire to start afresh and create a new township to which the whole community could be moved. These attempts brought about inefficiencies and ineffectiveness described by a PFDA research report as follows:
- Loss of investment in the existing structures;
- The invisible community "fabric" is often irreparably damaged;
- Access to community facilities, jobs and public amenities enjoyed from the original settlement is most often not available from the new site.
Therefore the advantages of upgrading, as stated by Martin Rodell, are as follows:
- It preserves existing economic systems and opportunities for those most in need, the urban poor.
- It preserves a low-cost housing system usually at advantageous locations thus, enabling the inhabitants to retain the maximum disposable income.
- It preserves a community which has many internal linkages and safeguards the interests of individual families.
The alternative to upgrading is reallocation, in one form or another, which is socially disruptive since residents are usually moved to less favourable locations, resulting in higher transport costs and less access to informal employment opportunities.
Projects emerging from upgrading policies have had a wide range of impacts from the physical, to the social and the economic, to the organisational. The slum and squatter upgrading schemes, though they have been successful in meeting their design objectives, have not had substantial effects in terms of reducing the magnitude of urban problems at large. There are many instances of existing settlements that were difficult and costly to improve because of their location on hillsides, tidal flats, or in ravines. Improvement after settlement, though often inevitable, is a second-best solution.To start an incremental process, upgrading has to rely on two elements: governmental support and participation, and the community involvement. Because the process of upgrading can take a number of years, various aspects of upgrading have to be considered fully. The physical aspect, which relies upon the participation of all involved, cannot be separated from the non-physical issues, such as those of a socio-political and socio-economic nature.
It is also important to consider the context of existing shelter and infrastructure conditions in order for upgrading to be effective. Control over the location of settlements and the way in which they are developed can mean lower costs of servicing.
Since upgrading happens on an incremental basis (i.e. staging the level of improvement of each service to suit the affordability potential of the community) it is imperative to consider at each stage the value of replicability of the process for other communities, and the sustainability within each community.
Upgrading Strategy
A comprehensive proposal for the upgrading of an informal settlement, as in the case of La Esperanza, should define components that address both physical and non-physical aspects. Progressive and sustainable development, along with community participation, are key elements in the process.
Therefore the upgrading proposal should:
Understand existing systems: By observing popular patterns of settlement, surveying existing households and recording feedback from the community.
Implement user participation: By promoting community involvement, adopting Self-Help and mutual aid approaches, incorporating training and development of skills and providing incentives for social activities and recreation.
Propose scale of priorities: Based on the observation and analysis of physical structures, such as existing patterns of circulation and transportation, public infrastructure, open spaces and house conditions, as well as non-physical aspects, such as health conditions, levels of education and culturally appropriate activities. The establishment of priorities, though, should be considered a collective task.
Propose strategies for sustainability and replicability: Support existing economic activities, stimulate development of small scale enterprises, provide training and subsidies for the production of building components, etc.
Define framework and management strategies for the project: Define the role of each participant in the process and provide support for the first stages of the project allowing direct input from the community through group discussions. Strategies and timetables should have an 'open' concept, thus allowing participants to determine their basic priorities and set their own pace.
Definition of Terms:
Squatter Settlements
The term 'squatters' is generally used to describe persons who dwell on a piece of land that does not belong to them legally. This term is perhaps too narrow for the purposes of this study, as it excludes legal land owners who may be dwelling on the land along with squatters, but who have failed to meet required housing standards (and therefore live in an illegal structure). Squatting has strict legal connotations, referring either to the illegal occupation of land, or to the illegal erection or occupation of a dwelling. It is considered to be 'uncontrolled' and 'temporary', or 'spontaneous'. The term 'slum', on the other hand, relates to the physical condition and appearance of the structure. The word 'informal' may also be used in place of what are popularly known as squatters and/or slum.Squatter settlements are the most prevalent form of non-conventional housing constructed by the urban poor, largely because they tend to be a very visible element in the urban landscape of the Third World. Squatting has appeared wherever cityward migration has reached unusually high proportions.
Even in deteriorating conditions, poor dwellers of squatter settlements tend to consolidate their homes, either through land invasion or illegal subdivision. Squatter settlements, therefore, serve as a basis from which the poor try to seek work, raise their families and improve their living standards. Throughout this report the term 'squatter settlement' is used specifically in reference to non-regulated housing constructed by urban poor migrants on a piece of illegally occupied land.
To be continued...
Comentários
Postar um comentário