Integrando educação com as políticas urbanas / Integrating education with urban policies

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International Workshop Architecture, Education and Society: Creative chronotopes, cultural landscapes and dialogical imagination (Homage to Mikhail Bakhtin) May 29‐30‐31, 2013 Barcelona, Spain ISBN 978-84-695-9424-7

INTEGRATING EDUCATION WITH URBAN POLICIES1 Lilian Fessler Vaz. D. Sc. Architect and Urbanist. Professor in Post-Graduation Program in Urbanism, Faculty of Architecture e Urbanism, Federal University of Rio de Janeiro, Brazil. Tel. 0055 21 99127 6174 E-mail: [email protected] Carlos Rodrigo Avilez A. B. da Silva. M. Sc. Architect and Urbanist. Doctoral candidate in Post-Graduation Program in Urbanism, Faculty of Architecture e Urbanism, Federal University of Rio de Janeiro, Brazil. Tel. 0055 21 99617 2228 E-mail: [email protected] Correspondence address: Grupo de Pesquisa Cultura, História e Urbanismo (GPCHU) Universidade Federal do Rio de Janeiro Av. Reitor Pedro Calmon, 550 Prédio da Reitoria - 5° andar - Sala 521 - Cidade Universitária 21941-901 Rio de Janeiro, RJ Brasil (This present work was sponsored by Brazilian Council for the Development of Science and Technology, CNPq)

SUMMARY This paper aims to show that there is a new horizon to urban polices through establishing education-city relation as a strategy in public policies to stimulate a territory focused, shared and integrated city management approach. The ideas developed are based on the work of Paulo Carrano (2003), whose discussion goes through educational universe present in social practices in the city, considering education as cultural practice. And on the work of Paulo Freire (1967), who develops the theme of education as affirmation of freedom. We also follow orientations from the work of Moacir Gadotti (2010). As he stated: it is crucial to think about education as a social practice and to consider the social

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function of knowledge, because, even more, nowadays, knowledge means power (GADOTTI, 2010). Universal coverage of education and democratisation process have been important topics in Brazil for a long time, however, over the last decades, politicians and municipal administrators began to pay more attention to these themes. Since 2001, the City Statute (Federal Law No. 10.257/2001) established a new institutional brand to Brazilian public policies. Since then, new priorities in favour of legitimizing public policy through social involvement and participation have given an undeniable spatial dimension to municipal government planning and decision making, and an increasing importance to state urban policies in the inhabitant’s daily life. Despite these institutional improvement, the resident’s alienation from decisions that affect their lives is concerning as is. These facts lead us to consider that extensive processes of citizen politicization and the democratization of knowledge essential to the application of objectiveoriented approaches to urban theme that address citizenship practices, and the challenges posed by the urban condition, in relation to the practice of the right to the city. The “Neighbourhood-School” Program case is an experience that deserves deeper analysis. Implemented in Nova Iguaçu City (situated in the Metropolitan Region of Rio de Janeiro), its main objective is to promote improvements in the educational system, the urban ambience and the quality of life of poor dwellers of this city. Articulating education, culture and urban spheres the municipality proposes to infer in the need for participation of different actors and sectors of local government and civil society to form networks in which urban space becomes a key part of a strategy of strong social bias (VAZ, SELDIN, AVILEZ, 2012). We consider that is a possibility to citizen participation in the city management, in a territory focused approach. A way for a "territorialised" and integrated management of the city. The theoretical contributions of the authors mentioned, among others, will be of great importance in the development of the conclusion of this work. We try to demonstrate how new “knowledge spaces” were created with the “Neighbourhood-School” Program's activities in the neighbourhoods of Nova Iguaçu. We indicate the potential of the projects and actions of this programme, its advances and challenges faced. By the analysis of this case study, we'll demonstrate how the non-observance of the structural role of participatory methodologies, since the development of the actions of the Program in the neighbourhoods, may have contributed to its difficulties in the city. To this debate, we will bring the contributions of Angélica Alvim e Luiz Guilherme Rivera de Castro (2010). We believe, with GADOTTI (2010), increasingly full participation in society, especially for the disadvantaged people, demands the development of educational, communication and organizational skills, enabling citizen to be recognized as subjects of knowledge construction, always open to new learning, aware to the importance of practices and citizen knowledge. Keywords: education; urban policy; participation, citizenship.

CITIZENSHIP AND THE RIGHT TO THE CITY Marshall’s social citizenship idea favours the quest for city welfare condition in a political environment marked by a neoliberal capitalist economic view (TRINDADE, 2012:154). On this point, Brazil, with the 1988’s Constitution and, later, with the City Statute (Federal Law no. 10.257/2001), reached important achievements. Urban social movements victories against a predatory urbanization process created a strong legal-urban device to restrict the actions of an elite with authoritarian characteristics in an unequal and strongly stratified society, as describes Darcy Ribeiro ([1995] 2006). The City Statute established a new institutional brand to Brazilian public policies. Its regulating standards are: democratic management, fair redistribution of the charges and the bonuses from the urbanization process, and to support the public-sector investments recover. In this case, those resulting from increase in property value. This law is also about promoting the right to sustainable cities, to housing, to urban infrastructure and also to public services (OLIVEIRA, 2001:1). However, in order to take full advantage of this device, we believe knowledge about what living in the city is, necessary. Furthermore, it’s necessary to understand the urban phenomenon as essential knowledge to Brazilian citizenship maturation in the midst of the global urbanization process. Brazil, with more than a hundred and ninety million inhabitants (IBGE, 2010), have 84.35% of its population living in the cities. Most of them lives in cities with clear signs of uprooting of the poor people. Moreover, many dwellers are in bad or very bad conditions. The urbanization goods distribution was historically unfair, predatory, unequal and, above all, iniquitous. Resulting from the slavery period inheritance, the neglecting, the prejudice and the privilege of the rich elite. For the most of population, remains only the areas with lack of infrastructure and distant from the city centres. Those dwellers suffers with urban mobility problems, lack of urban services and equipment, speculative retention of land, urban high density and verticalization. And also pollution and degradation of extensive constructed and natural sites (OLIVEIRA, 2001:1). In an urbanized world, the citizens depends on their urban conscience to claim for their rights, as well as they need a socially responsible positioning with the fulfilment of their social duties. After all, one of the challenges urban poses to us is to respond effectively to its complexity, which involves: politics, economy, culture, environment, society and territory (Ibid. p.18). We see in the City Statute, as a legal basis for city quality life struggle, an important tool for citizenship ongoing formation. That is the context we state the importance of supporting universal rights, fostering solidarity, fraternity, and collective, communitarian and social projects, for a jointly built better life for all. Combined with urban policies we see it is also necessary a broad politicisation and knowledge democratization process. Incorporating various educative actions oriented to urban themes, citizenship practice and the right to the city posed challenges. Considering Isabel de Oliveira’s observations: Without a deeper comprehension of the processes and conflicts in dispute on urban issue, it’ll be hard to meet the constitutional principles of everyone’s right to the city, the social function of property and the fair distribution of the urbanization process benefits and burdens (OLIVEIRA, 2001:16).

EDUCATION AND THE LIFE IN THE CITY To understand the relations between Education and life in the city, we rely on the presented premise that there is no city life dignity without a joint effort to deal with it. We follow Paulo Freire (2011[1957]:51) to state there is no education out of human societies, as well as, there is no man in emptiness. And also as Henri Lefebvre (1991[1968]:46), we see the city amongst social relations, sometimes submitted to then, sometimes submitting then to its forms. Urban morphology is the material dimension of city life in Ana Fani Carlos’ (2001) vision. In her research of the socio-spatial crashes produced by radical urban interventions, the author explains how city forms are bounded to the defined uses in social space-time. The city forms are, at the same time, the most external and internalised space and temporal element of each inhabitant. Understanding that the meaning urban form acquires by use, could create identity, “sustaining memory, making life, filling it with substance” (CARLOS, 2001:54). In this context, the inhabitant recognizes himself experiencing space with his body, by his senses, building his identity along time by modes of appropriation and use, and through the durability and continuity of forms, where objective memory (impressions) turns to subjective memory (lasting ones) (Ibid. p.55). That is the way how inhabitants apprehend and learns the city, self-building themselves with it. We see great proximity of those ideas with Paulo Carrano’s analyses, by whom we bring the concept of corporicidade. By this, the author explain the possibility of comprehending the movements that the body-subjects do into the “historical complexification of the cities social organization”. By this concept, the notion of Body is not separated of Subject, as it happens in Western Thought, what enables us to see the city at the human relations level and the different social practices as urban contexts of human formation. From this understanding, Carrano demonstrates how educative practices materializes in cities and affirms: the result of the subject’s social formation is the education that configures into their bodies (Ibid. p.12). It orients us to experience “the heterogeneity and fluxes in the different spaces of the city” as a possible way to recognize the structuring hiddens that escapes to institutionalization and the pedagogical intentionality. Not to include, however, those “informal” educative processes as an educational field differenced matter, but to provide reflections over the field of educational possibilities at the multiple contexts, real and virtual ones, of the city (Ibid. p.20). Correspondingly, Marcelo Zárate (2012), whose work is about alternative projetual knowledge strategies, in a socio-physic character, give us an important tool to develop this proposed analysis. His Urban Place concept is a strategic reference to this research, it enables a better interpretation of the socio-spatial interaction processes. His fundamental hypothesis states that by the socio-physic-symbolic articulation scheme configuration of the place’s essential dimensions – the place’s genetic scheme –, it will arise the keys to develop environmental urban planning participatory processes. An approach preceded by Josep Muntañola Thornberg’s (2000) work. His Socio-physic Theory of Place and Topogenesys endows a potent argument in favour of a holistic, dialogic and hermeneutic vision of the relation between the subject’s inner world, society, as well as, the natural and built environment – mind-territory-society (ZÁRATE 2012). The place’s approach acquires significant relevance in the context that proactive economic strategies dominates cities local politics and where contextualized education can arise as a resistance instrument against those processes.

Understanding this intimate relation between life in society and the city form, we can see that it is impossible for the urban citizen, free and emancipate, as states Freire (2011[1967]:58), to be only a spectator of the city daily events. For this reason we alert to the society’s need for emancipation. It can be reached by knowledge linked to life, in this case, urban life, to ensure each one the right to take on the role in the joint building of the society, as democracy aims. We continue with Paulo Carrano’s (2003) analysis, because in his city educative social practices watch, more specifically, in the youngsters’ identity formation extended process that happens out of the school, at free time and in leisure social spaces, the author appropriates an expanded notion of the educative process, approaching the notions of education and culture. The author considers Nestor Garcia Canclini’s (1983) notion of culture that “relates to all practices and institutions dedicated to administration, renewal and restructuration of sense”. He considers the expanded notion of education, that involves it into the “larger politic and ideological game that crosses the total social life in its symbolic and economic aspects”, integrating education to the “social relations of subjectivity production and [to the] processes that conforms certain configuration of forces and hegemonic relations”, making impossible to isolate it form those social relations and processes. That is how he designs education as a cultural practice (CARRANO, 2003:9-11). In what follows, we present the case of the “Neighbourhood-School” Program, implemented in Nova Iguaçu City, as relevant to this debate. Its principles orientates to new ways of acting in the city for the Government, predominantly in regard to increase social rights and new participatory arrangements in public administration, reinforcing the social function of the city and the urban property (ALVIM & CASTRO, 2010). Our contribution is to suggest a special attention to a possible horizon on urban policies, considering an educational paradigm of a pedagogy of the city. This is a pedagogy aimed at strengthening popular participation and integrating the various social groups to deal with the urban phenomenon, through a dialog about a full urban life. We point in a way of a territory management, targeted to it and shared with it, a “territorialized” and integrated way of management as a principle of a new citizen act. This is particularly relevant theme in debate nowadays and Brazil can provide important contributions. Its social achievements in adverse political conditions in the past, provided legal instruments that legitimate the social struggle to the radicalization of democracy and to the constant improvement of the city life conditions according the interests and desires of its dwellers, as we shall see later.

THE CASE OF THE “NEIGHBOURHOOD-SCHOOL” PROGRAM IN NOVA IGUAÇU CITY, RIO DE JANEIRO, BRAZIL Idealised from a previous experience, placed in São Paulo, the “Neighbourhood-School” Program2 reflects a genuine proposal of an integrated social policy, which main objective is to promote improvements in the urban ambience and quality of life of poor dwellers of this city.

2

Idealised by the journalist Gilberto Dimenstein in 1997

Articulating the spheres of education, culture and urban, the Government proposes to infer in the need for participation of different actors and sectors of local government and civil society to form networks in which urban space becomes a key part of a strategy of strong social bias (VAZ, SELDIN, AVILEZ, 2012). That is an important matter as the meaning of citizenship is being contested worldwide, from a perspective critical of the neoliberal political economy. Nova Iguaçu’s case become more relevant when we consider its main characteristics. Although the city is part of the second greatest Brazilian Metropolitan Region, the Latin America’s third, and have almost a million inhabitants, the municipality is mainly characterized for its urban and socioeconomic inequalities. The research revealed that besides Nova Iguaçu were an important economic centrality, it is lower in income and life expectance indicators average compared to Rio de Janeiro State. More than half of the population is on poverty situation. Analysing those data in the urban context reveals city’s ills. The poorest dwellers, forced to live in the most distant areas of the city, deal with accessibility and urban mobility problems, pollution and degradation of extensive constructed and natural sites, lack of education, health, culture, sports and several others urban services and equipment. They suffer with low life quality. Children are who most suffer the consequences of the lack of urban resources, because are on the streets and squares they have their first contact with the world and build their first impression of it. And on those ineffective urban spaces, their urban experience is poor. Also worthy of note the need to invest in activities that complements regular education nowadays, that increasingly highlights the importance of developing children skills and creativity to raise their opportunities in adult life. As 30% of Nova Iguaçu’s population older than 15 years haven’t completed primary education, what means 239.5 thousand people, we can say then the educational situation of these areas are much worst, considering that even the enrolled children spend only half of the day at the school, spending the other half on the neighbourhood streets or in front of the TV. In 2005, the incoming public administration sited these factors as the major issue for the city, which was when urban matters and education became the focus of the municipal administration with the Neighbourhood-School Program.

THE NEIGHBOURHOOD-SCHOOL PROGRAM It was a program of integrated and complementary public policies, implemented in 2006, that aims to provide full-time education as part of the city’s educational system. Its main objective was to guarantee the necessary space to provide a full-time education without building any new schools. The “Neighbourhood-School” concept was created by the journalist Gilberto Dimenstein, based on the experience of an NGO in São Paulo, as it is written at the webpage of the Cidade Escola Aprendiz Association that develops this concept since 1997. Since it was adopted by Nova Iguaçu, the city’s educational policy could be planned beyond the school system, integrating it

with others municipal public policies, in their principles and actions, making this an educational policy proposal to the role city. The “Neighbourhood-School” concept employs notions from the European Educating Cities scheme and the Brazilian concept of an Integral Education. It was based in two main principles: first, education is, by definition, integral, and must cover all dimensions of human development as a process for the role life. Integral education is not an education modality, but its own definition. Second, the combination school-community is the city-as-a-educative-territory synthesis of the idea. Spaces, dynamics and subjects are learning objects as well as its purposes, the meaning where knowledge building converges. The school, in this context, was seen as values, knowledge, experiences and available resources articulator in the neighbourhood (NOVA IGUAÇU, 2006). Those resources also could come from universities, informal learning institutions, professional courses, companies, NGOs, social movements and from the city’s inhabitants. Nova Iguaçu’s main program’s conception was integral education as the key for social transformation. Through relations improvement and the creative ties with the territory, it would be possible to enable the humanization and the qualification of the urban spaces, the building of stronger identity values, of belonging and citizenship (Ibid.). In 2005, there were 99 schools, with about 90,000 children in the city at that time: half studying in the morning, half in the afternoon. There were no additional activities. As there weren’t any full-time schools in the city, its spaces were used as informal classrooms. Therefore, educational activities should promote communitarian involvement through interested people participation. However, to make this possible it was necessary to adequate urban spaces to serve the Neighbourhood-School Program demands. Also to invest in staff costs, in municipal agents – responsible in traffic control, sidewalks occupation, garbage collection and the agents to organize children circulation. That was how school and its surroundings became priorities in urban interventions in the city. All the neighbourhood spaces were considered potentially pedagogical, and then, prepared to receive the children, offering comfort and safety. A major urban plan made to prepare each school surroundings to educational activities. On the program’s inauguration, the mayor declared if he had to build more educational facilities in order to implement full-time education, he would have funds for only 4 schools. Through Neighbourhood-School Program, Nova Iguaçu showed the possibility of create “new knowledge spaces” in the city from its initiative of guarantee the necessary space to provide full-time education without build any new school.

And how the program works? The full-time education program (Integral Education Program) complemented the existing curricular planning for the morning and the afternoon students with educative activities. Those happened outside the school, on the streets and squares, and in other spaces of the neighbourhood: in church’s rooms, in a club, or even in the porch of a house. As a principle, the program was adaptable to local lacks and prepared to take advantage of Neighbourhood’s potential. Anyone could offer a space that’s not in use to the school for cultural, sporting or teaching activities, which complemented the school’s educational curriculum.

Those partnerships involved various society subjects who would build with the school the Neighbourhood-School’s Integral Educational Program, and would create the Neighbourhood’s Urban-Educational Network, articulated in the city by the children’s movement through the sidewalks, from the school to those spaces and back to the school. That was a new traffic in the city, in which paths needed to be improved to support it. Brazilian laws makes the school responsible for the children when they are with then, so it was imperative to the city to ensure all safety and well-being conditions to student’s circulation and activities outside the school. That was how the program became an important tool to enhance city’s neighbourhood conditions. To ensure children safety, it was necessary to improve sidewalks conditions, to enhance vertical and horizontal signalization, illumination, traffic control nearby the schools, to qualify squares, putting new and better equipment, and also, to establish a public orientation campaign about the program. It was a major policy of maintenance and urban conditions control implemented in the city, which especially includes a campaign to raise awareness in city’s inhabitants about good use of those spaces for the children’s sake.

Picture 1 – Nova Era Neighbourhood-School Urban Qualification Plan. Source: Nova Iguaçu City Hall.

The Neighbourhood-School Program was proposed as a communitarian pedagogy laboratory, dedicated to improve simultaneously educative services and communication. But that wasn’t an easy task, neither to the schools nor to the city. Since the beginning, it became necessary an internal restructuration to develop this proposal into a policy. During the program’s first year, various City Hall departments gathered to create integrated and complementary actions, which

demanded also new manners of joint planning, processes monitoring and results evaluation. By the research, it became obvious that the pedagogical approach and the attention to the children in the city were the main program’s contributions to the city. That made the NeighbourhoodSchool an integrated and complementary public policy program addressed to the city as a whole, as an educational policy with a possibility to involve the civil society in its production.

Picture 2 – Examples of urban qualification and uses with Neighbourhood-School Program. Source: Nova Iguaçu City Hall.

Nonetheless, it is important to highlight this was a proposal that demanded investments in participatory methodologies to allow the Neighbourhood’s Politic-pedagogical Program development and the Urban-educational Network creation. And, in this regard, the Nova Iguaçu City Hall failed. It became clear from the research that the City Hall was not prepared to depart from technocratic practices in order to support democratic processes. The actions planned to improve civil society involvement with the program was abandoned in so far as difficulties in reconciling the City Hall plans with popular interests appeared. There was extreme urgency in universalise the program in the municipality to raise its results through the mayor’s mandate period, and then, achieve re-election. That is a usual concern into the Brazilian politics. Its culture is “patronage-based” and it has a historical lack of continuity of the public administrations politic programs as a consequence of executive’s posts changes. As a result, devoted work and solid progresses are not enough. Public policies with potentials to increase quality of life, such as the Neighbourhood-School Program, requires time for develop it fully and for consolidate it in the city. The research reveals most the difficulties of the program in Nova Iguaçu were most related with the abandon of the participatory methodologies, with the Brazilian politics culture, and also with its dimension, innovation and its little developing time.

CONCLUSIONS The Neighbourhood-School Program presents an attempt to expand educative process concept in Nova Iguaçu City, considering the educational time and space duplication, the students had the possibility of establishing greater relations with the city. With Carrano (2003) and Carlos

(2001), we could see that was not only the opportunity to develop various new pedagogic practices in the city, by expanding those relations in a wider educative sphere. We saw a great potential of fostering open-air experiences and citizenship focused activities, were students had the opportunity to create corporal relations with the urban spaces, and also, to recognize themselves in those spaces through their senses. We conclude the Neighbourhood-School Program consists in a genuine proposal of integrated social policy, which brought a real possibility of increasing the educative potential of school activities and of building and intensifying creative ties among neighbourhood dwellers. It could enable city’s humanization and qualification, fostering better identity values, belonging feelings and citizenship. Nonetheless, during the research we observe this outcome required a strong investment in participatory methodologies for each neighbourhood’s Politic-pedagogic Program creation, since the Neighbourhood-School actions planning, as well as, for each Urban-educative Network formation. Despite program’s uniqueness and achievements, the City Hall, couldn’t reach Nova Iguaçu’s dwellers to the necessary degree of involvement with actions. The planned participatory methodology could not resist all paradoxes and contradictions it had to deal with. When those participatory processes were abandoned, began an indiscriminate model use imposed to the schools and neighbourhoods. That could have been the main compromising factor of the program in the city. For urban policies as the Neighbourhood-School Program to reach urban complexity and diversity in its amplitude it is necessary establishing a dialog with the real, dealing with this “real” that sometimes simply resists. We consider this understanding, brought from Edgar Morin (2010), important in democratic contexts. In this sense, Maria Antônia Goulart (2008), the program’s ex-coordinator in Nova Iguaçu, presents hers considerations about this experience: Territorializing management demands public policies articulation with local social actors of a territory itself. This enables their knowledge illuminates local potentials and difficulties, allowing the answer, in each territory, of other local social actors (GOULART, 2008).

We acknowledge that establishing education-city relation as a strategy in public policies can foster politicisation and knowledge democratization and also its objective applications in urbanoriented approaches. Urban-pedagogic strategies can bring instruments for the population to face the challenges imposed by urban phenomenon towards citizenship practice and the right to the city. In this way we hypothesize that pedagogic approaches with solidary character in urban policies can stimulate social participation and integrate the various actors and sectors of local government and civil society. This action opens a possible horizon to social involvement and citizen responsive participation in urban policies through a territory focused and shared management approach, a territorialized and integrated way of managing the city. We affirm, in accordance with Gadotti (2010), the importance of investing in all learning, communication, working and organization abilities for a full-life in this society. Improving people's capabilities to lead the kind of live they value. Especially to disadvantage population,

we set off the importance of an urban pedagogy that encourage their self-discover as subjects in condition of equality in the city. Likewise, articulating knowledge with urban life and other expertise is important to the author. Reminding his words: it’s necessary to think education as social practice and consider knowledge’s social function, because we can admit knowledge is power.

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