Learning from Curitiba

Thanks to Krish Sridhar for alerting me to this extraordinary story of Curitiba. Most of you may not have heard of Curitiba. I had not either..but its story is a truly remarkable lesson in urban planning…and well worth re-telling. Excerpts from a 2007 article on this city in southern Brazil, as narrated by Arthur Lubow:

*** CAUTION: Long Post ***

On Saturday mornings, children gather to paint and draw in the main downtown shopping street of Curitiba, in southern Brazil. More than just a charming tradition, the child’s play commemorates a key victory in a hard-fought, ongoing war. Back in 1972, the new mayor of the city, an architect and urban planner named Jaime Lerner, ordered a lightning transformation of six blocks of the street into a pedestrian zone. The change was recommended in a master plan for the city that was approved six years earlier, but fierce objections from the downtown merchants blocked its implementation. Lerner instructed his secretary of public works to institute the change quickly and asked how long it would take. “He said he needed four months,” Lerner recalled recently. “I said, ‘Forty-eight hours.’ He said, ‘You’re crazy.’ I said, ‘Yes, I’m crazy, but do it in 48 hours.’ ” The municipal authorities were able to accomplish it in three days….“Being a very weak mayor, if I start to do it and take too long, everyone could stop it through a juridical demand,” Lerner went on to explain. “If they stop the work, it’s finished. I had to do it very fast, at least in part. Because we had discussed it a great deal. Sometimes they have to have a demonstration effect.”

…“From that point, they said, ‘If he could do this in 72 hours, he can do anything.’ It was a good strategy.”

An opening salvo, the creation of the pedestrian zone inaugurated a series of programs by Lerner and his colleagues that made Curitiba a famous model of late-20th-century urban planning. In the early 1970s, when Brazil was welcoming any industry, no matter how toxic its byproducts, Curitiba decided to admit only nonpolluters; to accommodate them, it constructed an industrial district that reserved so much land for green space that it was derided as a “golf course” until it succeeded in filling up with major businesses while its counterparts in other Latin American cities were flagging.

…Curitiba managed, at a time of explosive population growth, to increase its green areas from 5 square feet per inhabitant to an astounding 560 square feet. The city promoted “green” policies before they were fashionable and called itself “the ecological capital of Brazil” in the 1980s, when there were no rivals for such a title. Today, Curitiba remains a pilgrimage destination for urbanists fascinated by its bus system, garbage-recycling program and network of parks. It is the answer to what might otherwise be a hypothetical question: How would cities look if urban planners, not politicians, took control?

…(In contrast to the usual approach of restricting private transportation) Curitiba adopted an opposite approach, brandishing a carrot instead of a stick. The city planners suspected that public transportation would attract more users if it was more attractive. And that reasonable assumption turned out to be correct.

The efficient buses that zip across the Curitiba metropolitan region are the most conspicuously un-Brazilian feature of the city. Instead of descending into subway stations, Curitibanos file into ribbed glass tubes that are boarding platforms for the rapid-transit buses. ..

In the early 1970s, most cities investing in public transportation were building subways or light-rail networks. Curitiba lacked the resources and the time to install a train system. Lerner says that compared with the Curitiba bus network, a light rail system would have required 20 times the financial investment; a subway would have cost 100 times as much. “We tried to understand, what is a subway?” he recalls. “It has to have speed, comfort, reliability and good frequency. But why does it have to be underground? Underground is very expensive. With dedicated lanes and not stopping on every corner, we could do it with buses.” Because widening the avenues would have required a lengthy and costly expropriation process, the planners came up with a “trinary” system that embraced three parallel thoroughfares: a large central avenue dedicated to two-way rapid-bus traffic (flanked by slow lanes for cars making short local trips) and, a block over on each side, an avenue for fast one-way automobile traffic.

Image Courtesy: Simon Norfolk for The New York Times

When the bus system was inaugurated, it transported 54,000 passengers daily. That number has ballooned to 2.3 million, in large part because of innovations that permit passengers to board and exit rapidly. In 1992, Lerner and his team established the tubular boarding platforms with fare clerks and turnstiles, so that the mechanisms for paying and boarding are separated, as in a subway. To carry more people at a time, the city introduced flexible-hinged articulated buses that open their doors wide for rapid entry and egress; then, when the buses couldn’t cope with the demand, the Lerner team called for bi-articulated buses of 88 feet with two hinges (and a 270-passenger capacity), which Volvo manufactured at Curitiba’s request. Comparing the capacities of bus and subway systems, Lerner reels off numbers with a promoter’s panache. “A normal bus in a normal street conducts x passengers a day,” he told me. “With a dedicated lane, it can transport 2x a day. If you have an articulated bus in a dedicated lane, 2.7x passengers. If you add a boarding tube, you can achieve 3.4x passengers, and if you add double articulated buses, you can have four times as many passengers as a normal bus in a normal street.” He says that with an arrival frequency of 30 seconds, you can transport 36,000 passengers every hour — which is about the same load he would have achieved with a subway.

…When it comes to modifying human behavior, persuading urban dwellers to sort their garbage can be harder than coaxing them to garage their cars. Lerner and his allies have claimed that they have succeeded beyond the dreams of environmentalists in far more eco-friendly countries, including Japan and Sweden. Curitiba was a pioneer in separating recyclable materials, with its “Garbage That Is Not Garbage” program, inaugurated in 1989. (The city leaders have a flair for slogans.)

…A spark plug of ideas, Lerner, the son of Jewish immigrants from Poland, combines salesmanship and pragmatism. Following his mayoral terms, he won election twice as governor of Paraná State, retiring in 2002 at the age of 65 to devote himself to his architecture firm and to worldwide speaking engagements espousing green urban planning…He radiates a highly compressed and infectious energy, with a can-do assertiveness that borders on arrogance. “He never asked if something was good or not,” Rischbieter remarks. “He would say, ‘I’ll go do it.’ I would say, ‘You have to go ask people and get their opinions.’ He would say, ‘No, they won’t agree with me, and it has to be done.’ He is not a political animal, he is a dictator.”

…In two terms (1971-75 and 1979-83) under the military regime, and then in an elected third term (1989-92) after the restoration of democracy, Lerner translated the master plan into concrete and leafy reality. Like an impatient muralist, he worked on a wide scope at high speed. “I know cities that plant 10,000 trees, and they make a whole festival,” he told me. “We planted a million trees. I am obsessed with scale.” He sought to make a livable city; over time that segued smoothly into an ecological city. Parks initially intended as recreational areas would also absorb floodwaters and extract carbon dioxide from the atmosphere. Lerner used tax breaks to wheedle landowners into turning over portions of their property, which typically had little value at the time. In the rocky northern district, he converted one flooded quarry into the Wire Opera House, which has become a city icon, and another into the Free University of the Environment, a non-degree-granting institution that educates people on ecological issues…From blueprint drafts to opening night, the Wire Opera House took about two months to complete. Lerner refers to such projects as “urban acupuncture” that energizes the development process.

…Over the past half-century, the state of Paraná underwent a radical change, from a labor-intensive coffee economy to a mechanized agriculture of soybeans. Hundreds of thousands lost their jobs. Many of the dispossessed have relocated to the Curitiba metropolitan region, which in Brazil is famously livable. Every day, more keep coming.

The “invasions” of homeless people onto unoccupied land spill like ink stains over the neatly outlined development maps of the urban planners, not only in Curitiba but across Brazil. One Saturday morning, I visited the neighborhood of Nossa Senhora da Luz, where a small group of people waited with sacks or improvised carts of garbage. The hardscrabble community dates from an early invasion of the 1970s. Today the streets are paved and the houses are solid cinder block, but unlike downtown Curitiba, here it is immediately apparent from the bleak, scrubby streetscape and the dark skins of the populace that you are in a third-world setting. I was there to observe one of 79 exchange centers that the municipality of Curitiba has established in communities where the streets are too narrow or too bumpy for large garbage trucks to circulate. Instead, people can carry their trash to biweekly collection sites and trade four pounds of garbage for one pound of vegetables. Mostly they bring plastic, paper and cardboard. At another site, run by the community council, more valuable aluminum cans are collected in return for money, and at yet another, organic material is traded for bus tokens. Compared with middle-class people, the residents of this neighborhood do not generate so much recyclable material; much of what they trade they prospect for around the city.

…Recently, invasions have started up again. “There is a feeling that it may be politically motivated,” says Fragomeni, the urban planner, who served until March as president of Ippuc. He reports that in Curitiba today, there are 13,000 households in invasion settlements, 6,000 of them in ecologically fragile areas. Squatters often occupy land by rivers, both to obtain a water source and because, by law, the riverbanks can’t be developed. “The land is forbidden, and it is free at the same time,” says Urban, the environmental activist. Raw sewage from these settlements flows directly into the rivers. Fragomeni says that fewer than 70 percent of Curitiba households have sewer connections.

…Ferrovila and Ecoville: in close proximity, you can see the politicized landless and the profit-minded land developers who threaten Curitiba’s status as an ecological city. A reputation can be as hard to uphold as to establish…

Nor is Curitiba a single town any longer. It’s a conurbation. Planning must be for the metropolitan region, not just for the municipality. Does it matter that Curitiba bans polluting industries if the neighboring town of Araucária has an oil refinery belching smoke on the city line? Similarly, if the new immigrants to the poor surrounding communities don’t recycle, then Curitiba’s landfill, the only such facility in the metropolitan region, will fill up even sooner. Like garbage, water does not respect city limits: Curitiba’s water supply depends on reservoirs controlled by municipalities outside its borders. What was never simple has become even more complex. For a long time, the citizens of Curitiba were so proud of the city’s reputation as an urban showplace that they kept re-electing urban planners — self-styled technical experts who seemed to be above politics and who vaunted their expertise in running the buses, building the parks and recycling the garbage. But a mayor today must be able to negotiate successfully with other mayors if reform is to work. Mayors need to be politicians, even in Curitiba.

For more, hear Jaime Lerner speak at TED …and here’s the Wikipedia page on Curitiba.

If any of you have examples of interesting experiments/ initiatives in urban planning and recycling from Indian cities, please share them below…(which reminds me – I need to write a post about the city bus service in Indore soon).