Pappa, A., & Paio, A. (2023, March). Local partnerships and urban governance: The case of Lisbon. In Diaconu, A. (Ed.) Proceedings of the RE-DWELL Grenoble Conference (pp. 58-61). Pacte Social Sciences Research Centre, University Grenoble Alpes, Grenoble, France.
https://www.re-dwell.eu/activities/conferences/grenoble
Posted on 08-12-2022
Collaborative forms of governance in urban regeneration are increasingly gaining ground in cities around the world, contributing to the active engagement of citizens in decision-making processes that affect their neighbourhoods and lives. In some cases, municipalities even attempt to embrace local grassroot initiatives led by active citizens, who creatively invent ways to regain and co-manage the urban commons. Extrapolated In the urban scale, such initiatives create networks of social practices of commoning that foster platforms of individual and collective rights (Stavrides, 2016) and help citizens reclaim the urban value (Borch & Kornberger, 2015).
In a similar vision, the Department of Housing and Local Development of the Municipality of Lisbon launched in 2011 a participatory budget program, namely BIP/ZIP, that serves as an instrument of public policy. The aim of BIP/ZIP is to annually fund bottom-up initiatives led by local partnerships in 67 priority neighbourhoods that enable responses to social and territorial emergencies. As of its 2021 edition, the program has funded 426 projects, involving 1403 different partner entities.
The aim of this research is to investigate the matrix of local partnerships that have been formulated throughout the eleven years of BIP/ZIP and understand their dynamic role for the city of Lisbon. The methodology employs data analysis and qualitative coding methods (Saldana, 2021) to (i) a map the complex networks of partners, and (ii) explore the transformation of the urban governance through the emerging roles of different types of partners – organisations.
References
Borch, C., & Kornberger, M. (2015). Urban commons: Rethinking the city. Routledge.
Saldana, J. (2021). The Coding Manual for Qualitative Researchers (4th ed.). SAGE Publications.
Stavrides, S. (2016). Common Space: The City as Commons. Zed Books London.
Related vocabulary
Public-civic Partnership
Area: Community participation
Public-civic partnerships (PCPs) or public-community collaborations, as discussed by Hopman et al., (2021), are forms of cooperation between the state and civil society. They involve transferring the ownership and control of urban resources to the hands of citizens. In this context, they can be viewed as commons-led institutional models, offering a ground of commoning the city. Consequently, they are also referred to as public commons partnerships (Milburn & Russell, 2019).
Public-civic partnerships offer alternatives to the traditional binary state and market dynamic seen in the public-private partnership (PPP) model, which gained prominence after 2000 as a new form of cooperation between the state and the private sector. PPPs are characterized by long-term arrangements in which private sector contractors take on design, construction, operational, and sometimes financial responsibilities, becoming providers of traditionally public services (European Commision, 2003). However, PPP models have faced criticism for privatizing public goods, services and spaces, often prioritising private investment over public interests (Horvat, 2019).
On the contrary, PCPs propose an alternative approach. Instead of relying on private investors for the development of crucial urban infrastructure, public bodies collaborate with communities to design, produce and govern this infrastructure as commons. By doing so, PCPs drive systemic change, offering innovative methods to democratize urban governance. They empower communities to transparently work with the public sector, determining the future of public assets such as food, care, water, energy, housing, and urban development (Heron, Milburn & Russell, 2021; Hopman et al., 2021).
In recent years, cities such as Barcelona, Bologna, Naples, Ghent and Amsterdam, among others, have been developing commons-oriented strategies and municipal networks that enable and promote PCPs. These initiatives are often facilitated through contracts or ‘collaboration pacts’ (Foster & Iaione, 2016) among different stakeholders, notably from the civic and social sectors.
The regulatory frameworks and operationalisation details, such as the legal form of the partnering entities, the duration of ownership transfers, and approved interventions in public spaces, vary from case to case (Bianchi, 2022). Experiences from the implementation of these policies show that several influential factors affect the development of PCPs. These are ideological, legal, political and economic in nature and include political will, existing laws, development strategies. material and funding sources, access to information, cooperation opportunities between the public and civic sectors, and further education of both realms on cooperation models (Cultural Creative Spaces & Cities, 2018).
Among the several types of resources shared through PCPs, many municipal strategies facilitate the sharing of public spaces, which has significant implications from a sustainable local development point of view. These strategies involve the temporary or long-term transfer of ownership of municipal spaces, including empty buildings and building parts, streets and open spaces, and industrial heritage sites, to citizens or various associations formed between them and other sectors. Through these partnerships, sites are regenerated, transformed, and used for the benefit of the neighbourhood, while the public sector retains a supportive role. Throughout this process, several places and services, such as communal gardens, neighbourhood parks, solidary kitchens, caregiving and solidarity services, as well as community, educational and cultural centres, are created locally, by and for the residents.
Created on 08-11-2023
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Participatory budgets and Sustainable Development Goals
Posted on 29-10-2022
Nowadays, it feels almost impossible to speak about sustainability and not refer to the 17 Sustainable Development Goals (SDGs), developed under the United Nations 2030 Agenda for Sustainable Development. The Agenda brings together economic, environmental and social stands of solutions to holistically address global challenges, based on the principle of “leaving no one behind”. The goals are set out in 169 targets and are formulated within five pillars: people, planet, prosperity, peace and partnership.
Committed to the Agenda, the UN member states adapt their national and local strategies not only for the implementation of measures that contribute to the achievement of the developed goals and targets, but equally significantly for the monitoring of their progress in this direction. In this regard, countries and municipalities develop mechanisms to recontextualise the global targets and report their annual progress.
Placing people as a key pillar for sustainable development denotes that the measures and monitoring should exceed the macroeconomic indicators and look into mechanisms that care for how individuals’ life change for the better. Measuring the effects of such mechanisms at a local level can be a challenging matter, as they entail parameters that are in general consensus difficult to quantify. In this context, in my 4-month secondment at the Department of Housing and Local Development at the Municipality of Lisbon I explored the contribution of the ongoing BIP/ZIP participatory budget in achieving the Sustainable Development Goals in Lisbon.
Participatory Budgets
Participatory budgets are mechanisms for democratising public funds in the sense that they enable the active participation of citizens in the decision-making of how national or municipal resources are spent. Among the main effects of participatory budgeting discussed in the research community are the modernisation of public administrations through transparency and accountability, the efficiency in tackling cross-disciplinary challenges, such as inclusivity and inequalities through the collaborative ways of urban governance they introduce, as well as the reorientation of public expenditures towards least advantaged populations. Doing so, the structures and processes they provide are particularly relevant for the discussion on sustainable development and according to the UN Habitat’s Report (2020) they are considered as accelerators for achieving the SDGs.
BIP/ZIP
Portugal is seen as a paradigmatic case in disseminating participatory budgets issued by municipal agendas (Falanga & Lüchmann, 2019), counting more than 270 active programs in its mainland[1]. The BIP/ZIP Program in Lisbon that I am also researching as a case study beyond the limits of my secondment, was launched in 2011 as the first participatory budget implemented in a European capital city. The project annually funds bottom-up initiatives developed by local partnerships with the objective to promote social and territorial cohesion in priority areas.
During the four months that I was hosted at the Municipality of Lisbon, I was lucky enough to have access to the secondary data of the program and enrich my dataset with qualitative and quantitative information. Looking at the program’s data in correlation to the SDGs, I was able to draw direct and indirect links to specific goals and targets and deliver a preliminary data-driven methodology to measure the impact of the program for the city of Lisbon. Even at this early stage of the methodology, I could safely assume that after ten years of implementation, BIP/ZIP has a significant contribution on achieving the SDGs in Lisbon, so the emerging question is if it is taken into consideration when measuring the city’s progress towards achieving the SDGs.
To make a long answer short, my research showed that the program both at a strategic level and at the micro-scale of each project, is not really accounted in Lisbon’s SDG progress monitoring[2], which indicates that further effort should be made in integrating social indicators into the measuring processes.
Acknowledgements
The end of my secondment was celebrated with a presentation of the results and a very engaging discussion with members of the Department of Housing and Local Development and the BIP/ZIP Division. For this as well as for all the support and hospitality during my stay at the Municipality, I would like to thank Filipa Roseta, Vasco Moreira Rato, Gonçalo Armindo and Isabela Teixeira da Mota, as well as members of the BIP/ZIP Division Maria Antónia Victória, Teresa Tome and Monica Alfredo.
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Notes
[1] More information on http://portugalparticipa.pt/Monitoring/?tipo=816f6188-3bac-4dac-92af-3c0892b3018a&keyword=&district=&estado=
[2] For more information on Portugal’s SDG monitoring process with information at municipal level, please visit ODS Local at https://odslocal.pt/
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References
Falanga, R., & Lüchmann, L. H. H. (2019). Participatory budgets in Brazil and Portugal: comparing patterns of dissemination. Policy Studies, 41(6), 603–622.
UN-Habitat. (2020). Exploring the Role of Participatory Budgeting in Accelerating the SDGs: A Multidimensional Approach in Escobedo, Mexico.
Secondments
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