The Bureaucratic Urban Management Tools Used in the Implementation of the Onerous Right to Build in the Municipality of São Paulo

Abstract The current Strategic Master Plan of the Municipality of São Paulo (MP-MSP) (Municipal Law 16,050/2014) redefined the legal bases of the Onerous Right to Build (ORB). This text tries to understand how the implementation of this instrument, as part of the "urban policies" discussed by Eduardo Marques (2018), impacts the institutional operations of São Paulo city government. This question expresses the problem which guides the studies about: (i) the insertion of the collection of financial revenues related to the ORB as part of the urban licensing processes of the real estate developments; (ii) the monitoring of these processes and the performance of the financial resources collections obtained from the implementation of the ORB for public accountability and (iii) the Management Board of FUNDURB in whose bank account the funds of those financial resources are deposited. The hypothesis asserts that the implementation of ORB requests the inclusion of routinized proceedings and instruments into the public administration. In order to verify that hypothesis, we address analyses about those proceedings and instruments following the neoinstitutional methodologies mentioned by Pierre Lascoumes and Patrick Le Galé (2012). The data and information used in this work come from the interviews with civil servants, internet sites kept by the São Paulo city government institutions and municipal legislations. The descriptions and examinations presented in the article show the ORB as part of the routinized processes and relationships of urban management whose instruments and bureaucratic practices, operated within institutional structures and administrative procedures, mediate the interactions between governmental and non-governmental actors.

摘要 圣保罗市现行战略总体规划（MP-MSP）（第16050/2014号市法）重新界定了有偿建设权（Onerous Right to Build，ORB）的法律基础。本文旨在探析作为爱德华多·马克斯（2018）所讨论的“城市政策”组成部分的该工具的实施，对圣保罗市政府机构运作产生的影响。该研究问题指向三大研究方向：（i）将与有偿建设权相关的财政收入征收纳入房地产开发项目的城市许可流程；（ii）对上述流程以及通过有偿建设权实施所获财政收入的收缴执行情况进行监管，以满足公共问责要求；（iii）对FUNDURB管理委员会的监管，该委员会的银行账户为上述财政资金的存放账户。本文提出的假说认为，有偿建设权的实施要求将常态化程序与工具纳入公共行政体系。为验证该假说，本文遵循皮埃尔·拉斯库姆与帕特里克·勒·加勒（2012）提出的新制度主义方法论，对相关程序与工具展开分析。本研究使用的数据与信息来自对公职人员的访谈、圣保罗市政府机构维护的官方网站以及市级立法文件。本文所述的描述与分析表明，有偿建设权是城市管理常态化流程与关系的组成部分，其依托制度架构与行政流程运行的工具与官僚实践，调节着政府与非政府行为体之间的互动。