Favela-Bairro was a programme concerned mostly with providing basic utilities and public services (sewage systems, sidewalks, etc.) to a number of existing shanty towns, while renovating housing and its surroundings in aesthetical terms, as in Rio-Cidade. Favela-Bairro, however, as much as it was presented as a plan for drastic improvement of actual living conditions, was seen as having failed in one of its chief concerns, that of blurring the boundaries between the "formal" city and the shantytown: in the words of scholar Janice Perlman, "there's still no doubt about where the "asfalto" ends and the "morro" begins". At the same time, by stating that "favela" residents could have access to proper urbanism if they behaved in an "orderly" fashion, Favela-Bairro perpetuated the stigma long associated to shantytown dwellers. Finally, Favela-Bairro was also seem as very limited in scope, as it concerned itself with only 27% of all Rio shanty-towns.