Direito à cidade, plano diretor e função social da propriedade: perspectivas desde a análise do plano diretor estratégico do município de são Paulo de 2014
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Data
2017-11-08
Autores
Andrade, Leandro Teodoro
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Universidade Estadual Paulista (Unesp)
Resumo
O presente trabalho tem por objeto a análise do instrumento jurídico e político do Plano Diretor naquilo que se refere à indução da aplicação efetiva do princípio constitucional da função social da propriedade urbana, à luz do horizonte do direito à cidade e da ordem jurídica urbanística brasileira. Ao estabelecer o Plano Diretor como o instrumento básico da política urbana, a Constituição Federal de 1988 (art. 182, § 1º), delegou a este modelo de legislação a função de dinamizar, normativamente, a produção social do espaço urbano nos municípios brasileiros. Somando-se a isso, a inserção da direito à Moradia no rol de direitos fundamentais sociais do art. 6º do texto constitucional e a entrada em vigor da Lei 10.257/2001 (Estatuto da Cidade), consolidaram uma nova ordem jurídica urbanística que, encontrou no Plano Diretor, a ferramenta elementar de vinculação dos Poderes Executivo e Judiciário à obrigação positiva da efetivação do Direito à Moradia, estabelecendo critérios objetivos e formais para verificação do cumprimento gradativo da função social da propriedade, tanto no âmbito político, quanto no âmbito judiciário. Dessa forma, a análise se inicia a partir da relação genética entre Direito, Cidade e Urbanismo, tomando por consideração as características singulares e as instituições que permearam a formação dessas três categorias na realidade social, econômica e espacial do Brasil. Adiante, delineia os aspectos e os marcos normativos gerais da ordem jurídica urbanística brasileira, da utopia do direito à cidade à meta da função social da propriedade, apontando os aspectos substanciais da tutela jurídica da propriedade no direito brasileiro para, enfim, adentrar no estudo específico do instrumento do Plano Diretor e sua contribuição para o efetivo cumprimento da função social da propriedade urbana. Para coleta e análise de dados empíricos, o Plano Diretor Estratégico do Município de São Paulo de 2014 (Lei Municipal nº 16.050/2014), por sua abrangência, riqueza de conteúdo e premiada aclamação crítica, foi considerado objeto central de estudo neste trabalho. Desse modo, foi observado o conteúdo geral deste Plano Diretor, tendo recebido maior relevância a observância de seus instrumentos indutores da função social da propriedade, quais sejam: parcelamento, edificação ou utilização compulsórios (PEUC), imposto territorial predial urbano (IPTU) progressivo no tempo e a desapropriação mediante pagamentos em títulos da dívida pública. Nesse diapasão, foram analisados empiricamente os números da aplicação desses institutos pelo Poder Executivo do Município de São Paulo entre 31 de julho de 2014 e 31 de dezembro de 2016. O mesmo recorte temporal foi utilizado para que, comparativamente, fosse examinada a jurisprudência do Tribunal de Justiça do Estado de São Paulo envolvendo o Plano Diretor em análise e o princípio da função social da propriedade urbana. Essas aproximações foram fundamentais para que se pudesse concluir se o Plano Diretor é um instrumento realmente apto à indução da Função Social da Propriedade e o quanto a ordem jurídica brasileira caminha no sentido do horizonte do direito à cidade.
The objective of this study is to analyze the legal and political instrument of the Master Plan in relation to the induction of the effective application of the constitutional principle of the social function of urban property in light of the horizon of the right to the city and the Brazilian urban legal order. In establishing the Master Plan as the basic instrument of urban policy, the Federal Constitution of 1988 (article 182, § 1), delegated to this model of legislation the function of dynamizing, normatively, the social production of urban space in Brazilian municipalities. In addition, the insertion of the right to housing in the list of fundamental social rights of art. 6 of the constitutional text and the validity of Law 10.257 / 2001 (City Statute), consolidated a new urban legal order that, in the Master Plan, found the elementary tool for linking the Executive and Judiciary Powers to the positive obligation to enforce the Right to Housing , establishing objective and formal criteria for verifying the gradual fulfillment of the social function of property, both in the political and judicial spheres. Thus, the analysis starts from the genetic relation between Law, City and Urbanism, taking into consideration the unique characteristics and institutions that permeated the formation of these three categories in the social, economic and spatial reality of Brazil. It outlines the general normative aspects and frameworks of the Brazilian urban legal order, from the utopia of the right to the city to the goal of the social function of property, pointing out the substantial aspects of the legal protection of property in Brazilian law, in order to study the specific study of the Plan of the Master Plan and its contribution to the effective fulfillment of the social function of urban property. In order to collect and analyze empirical data, the Strategic Master Plan of the Municipality of São Paulo, in 2014 (Municipal Law 16,050 / 2014), for its comprehensiveness, content richness and critical acclaim, was considered the primary object of study in this work. In this way, the general content of this Master Plan was observed, having received more relevance the observance of its instruments inducing the social function of the property, such as: installment, building or compulsory use (IBC), urban land tax (ULT) time and expropriation through payments on public debt securities. In this passage, the numbers of the application of these institutes by the Executive Power of the Municipality of São Paulo between July 31, 2014 and December 31, 2016 were analyzed empirically. The same time cut was used to comparatively examine the jurisprudence of the Court of Justice of the State of São Paulo involving the Master Plan under analysis and the principle of the social function of urban property. These approximations were fundamental to the conclusion that the Master Plan is an instrument capable of inducing the Social Function of Property and that the Brazilian legal order is moving towards the horizon of the right to the city.
The objective of this study is to analyze the legal and political instrument of the Master Plan in relation to the induction of the effective application of the constitutional principle of the social function of urban property in light of the horizon of the right to the city and the Brazilian urban legal order. In establishing the Master Plan as the basic instrument of urban policy, the Federal Constitution of 1988 (article 182, § 1), delegated to this model of legislation the function of dynamizing, normatively, the social production of urban space in Brazilian municipalities. In addition, the insertion of the right to housing in the list of fundamental social rights of art. 6 of the constitutional text and the validity of Law 10.257 / 2001 (City Statute), consolidated a new urban legal order that, in the Master Plan, found the elementary tool for linking the Executive and Judiciary Powers to the positive obligation to enforce the Right to Housing , establishing objective and formal criteria for verifying the gradual fulfillment of the social function of property, both in the political and judicial spheres. Thus, the analysis starts from the genetic relation between Law, City and Urbanism, taking into consideration the unique characteristics and institutions that permeated the formation of these three categories in the social, economic and spatial reality of Brazil. It outlines the general normative aspects and frameworks of the Brazilian urban legal order, from the utopia of the right to the city to the goal of the social function of property, pointing out the substantial aspects of the legal protection of property in Brazilian law, in order to study the specific study of the Plan of the Master Plan and its contribution to the effective fulfillment of the social function of urban property. In order to collect and analyze empirical data, the Strategic Master Plan of the Municipality of São Paulo, in 2014 (Municipal Law 16,050 / 2014), for its comprehensiveness, content richness and critical acclaim, was considered the primary object of study in this work. In this way, the general content of this Master Plan was observed, having received more relevance the observance of its instruments inducing the social function of the property, such as: installment, building or compulsory use (IBC), urban land tax (ULT) time and expropriation through payments on public debt securities. In this passage, the numbers of the application of these institutes by the Executive Power of the Municipality of São Paulo between July 31, 2014 and December 31, 2016 were analyzed empirically. The same time cut was used to comparatively examine the jurisprudence of the Court of Justice of the State of São Paulo involving the Master Plan under analysis and the principle of the social function of urban property. These approximations were fundamental to the conclusion that the Master Plan is an instrument capable of inducing the Social Function of Property and that the Brazilian legal order is moving towards the horizon of the right to the city.
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Palavras-chave
Plano diretor, Função social da propriedade, Direito à cidade, Direito urbanístico, São Paulo, Master plan, Social function of property, Right to the city, Urban law