Download Improving Spatial Planning Systems and Development Control

Improving Spatial Planning Systems
and Development Control Mechanisms
Towards Sustainable Urban
Development in Asian Cities
Tetsuo Kidokoro, Associate Professor
Nguyen Truc Anh
Tran Mai Anh
Department of Urban Engineering
University of Tokyo
1
Background
Need of workable spatial planning
• Rapid urbanization in Asian
countries
• Weak planning control
• Formal developmets vs. Informal
developments
• Environmental/cultural/social
sustainability
Formal but unoccupied (Manila)
Informal but densely populated (Manila)
2
Types of Spatial Planning Systems and
Their Inconsistency
• Inconsistency among planning approaches, local government
systems and urban development policy (plan-led or marketled)
– Detailed plan approach
• Urban growth is to be managed by detailed plans under the local
governments, but in reality, they cover only a part of urbanizing areas.
• Most of Asian countries have had development-oriented centralized
government systems and the management capablity of local governments
is weak. Thus those planning approach have not functioned as designed.
– Zoning plan approach
• Urban growth is to be ragulated by zoning code formulated by local
governments; exclusive regulation in nature of zoning code often caueses
phasing out of the urban poor. Lack of capacity of local governments
causes critical problems, too.
– Master plan approach
• Uniformly standardized regulation under centralized power can often
regulate only weak minimun standards (negative control) in the country
where the right of development belong to the individuals.
3
Decentralization is needed to strengthen
the planning capability in Asian Countries
Plan-led
Germany
Nordic Countries
Government
Decentralized
UK
China
Vietnam
France Korea
Government
Indonesia
Centralized
Japan
Detail Plan Approach
North
America
Thailand
Philippines
Market-led
Master Plan Approach
Zoning Plan Approach
Negative
Control
Positive
Control
4
Different Approaches
Detailed plan approach
Regional Plan
City-wide Plan
Development
Control
Detailed plan
China
Urban system
Plan (conceptual)
City master plan (binding)
Vietnam
Regional plan (not
implemented)
City master plan
(non-binding)
Detailed plan
Indonesia
Provincial spatial
plan
City master plan
(non-binding)
Detailed plan
(Germany)
Regional Plan
(State)
F-plan (land use plan;
non-binding)
B-plan
(detailed plan)
Regional Plan
City-wide Plan
Development
Control
Zoning ordinance
State Growth
Management Plan
(some states)
Comprehensive plan
(non-binding)
Zoning ordinance
Zoning plan approach
Philippines
(USA)
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Different Approaches
Master plan approach
Regional Plan
Japan
Korea
Metropolitan area
Plan(*)
*: recently
introduced
Thailand
(France)
SCOT (metropolitan
area)
City-wide Plan
Development
Control
Municipal master plan
Zoning plan (do not cover
whole community
District Plan for specific
areas
City master plan
Zoning plan (covers whole
community)
District plan for specific areas
(binding)
Permission based
on zoning
General Plan (do not
necessarily cover whole
areas: binding)
Permission based
on zoning
Zoning Plan (PLU: covers
whole Community, Detailed
regulation in specific areas
(binding)
Permission based
on zoning
Permission based
on zoning
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Case Study in Vietnam
• The change to a multi-sector economy
since the Economic Renovation (Doi
Moi) 1986.
• The Land Law in 1993 (Revised in
1998): a legal basis for land allocation
and lease and secured land use rights
promoted urban development
significantly.
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Limitation of Development Control
• Sectoral planning based on planned-economy style
production elements (investment, land, infrastructure).
– Investment: Comprehensive Economic and Social Development Plan
– Land: Land Use Plan
– Infrastructure: Urban Construction Plan
• Unclear relation and coordination of sectoral plans
– It undermines the efficacy of plans because arbitrary decisions by
different Departments could be made at the project-by-project basis.
– 50 % of developers answered that the costs for obtaining the certificates
amounted even 30 % of total costs. (our interview survey to the 40
developers : 25 in Hanoi and 15 in Ho Chi Minh City in 2005)
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Response to the Market
Development Control for Formal Development
Planning
and
architectural control
Investment and financial
control
Land use control
Dept. of Architecture and
Planning (HAPA)
Dept. of Planning
Investment (HAPI)
Dept. of Natural Resources
and Env. (DoNRE)
Certificate
Planning Certificate
Investment Certificate
Land use Certificate
Objectives
Architectural plan
Land use
Building code
Development plan
Investment plan
Budget review
Land use
Housing
Environment
Check
Items
Site recommendation
Building line
Planned population
Maximum height
FAR, BCR
Other building standards
Development policies
Investment
incentive
policies
Basic categories
-FDI projects
-State budget projects
-Private projects
5 types o land processing
Agency
charge
in
and
-Free allocation
(Decision 68-100/QD-UB)
-Biding (Decision 91/QD-UB)
-Land lease (Decision 68-100)
-Buying in the market
-Rezoning (from agriculture to
urban) (Decision115/QD-UB)
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Response to the Market
Case of Ho Chi Minh City
• Ho Chi Minh City is introducing more marketoriented approach.
– One-stop service management board is created, which provides a
simplified procedure for the project application.
– Sites for projects are recommended by the Ministry of Construction,
in Hanoi, while this process is abolished and the private developers
can select the project sites on their own in Ho Chi Minh City.
– The result is clear: most of housing development projects have been
conducted by state owned developers in Hanoi, while small-scale
private developers are promoted in Ho Chi Minh City.
10
Housing Development Projects
in Hanoi and Ho Chi Minh City, 2006
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Source:DAP
Informal Development
Population growth of Hanoi city
– Development control based on
building permission is effective
only when detailed plan is available.
– Yet, detailed plan (scale 1:500) is
not available for most of urban
areas.
– Thus, there is no clear basement for
guiding and controlling
development in those areas.
3500
3000
Population (000)
• Planning certificate: formal
sector
• Building permission: individual
building construction.
New land law
2500
Urban pop.
2000
1500
1000
Rural pop.
500
0
1990
199 1995
3
2000
2005
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Picture: Tran Mai Anh
Informal Development
Case Study: Phu Thuong ward in Hanoi
• Case study was conducted in one of districts (Phu Thuong
ward) in Hanoi.
Phu Thung ward
– located at the north-western
edge of Hanoi
– suddenly became a booming
area after foreign-invested
Ciputra project was
approved and allocated on
400ha of rice fields of Phu
Thuong ward in 1996.
Ciputra Project
Hanoi Master Plan 1998
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Informal Development
Case Study: Phu Thuong ward in Hanoi
• 42% sold a potion of their lands.
Land is also subdivided for
children
• 68% of households have had
construction activities since 1996.
• More than 50% without building
permission
18
16
14
12
10
8
6
4
2
0
Housing construction activities
No- Building
Permission
Building Permission
Before
Before 1996
1995
1996-2000
From
1995-2000
After
After 2000
2000
Financial source for housing construction
– considered it not necessary,
Financial for housing construction
complicated and time consuming
(60%)
Saving
Loan
– refused by authority when applying
inheritance
for permission (40%).
selling land
– People are ready to pay penalty,
Land compensation
which is so small compared to
construction cost.
18
16
14
Saving
12
Loan
10
inheritance
8
selling land
Land compensation
6
4
2
0
Before 1995
Before
1995
From 1995-2000
1995-2000
After 2000
After
2000
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Result of the interview survey to 50 households in Phu Thong ward (2004)
Informal Development
Case Study: Phu Thuong ward in Hanoi
• Land brokers
– Some people collect land
information and become.
• Speculators
– typically, 50% left their plots
idling for years
• Formal land ownership
– 90% of households have Red
Books (land title registration):
the Land Use Right (LUR) grant
program applied in 1993.
• Informal land transaction
– 60% of land buyers still keep
their household registrations at
inner cities of Hanoi and the
previous land owners are, on the
paper, still the Red Book holders.
Original land owner
(1)
Household
Speculator
Informal sub-divider
(2)
Broker
Informal sub-divider
(3)
Household
Household
Household
Broker
Household
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Informal Development
Case Study: Phu Thuong ward in Hanoi
• Lack of infrastructure and
environmental degradation
– Land conversion from plant
gardens or pond
• Small plot in difficult-toaccess places surrounded by
other plots
– the average plot size from 70 to
100m2.
– Large plots (larger than 500m2)
are often bought by speculators.
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Typical Informal Land Development Process
in Urban Fringe Areas in Hanoi
Original plot with
a pond and three
houses (BCR =
15%)
Picture: Tran Mai Anh
(1) Pond filling, first
land subdivision
and cal-de-sac
creation
(2) Second land
subdivision
(3) Third land
subdivision,
transaction, cal-desac creation
Increased building
density (BCR > 50%),
number of cal-de-sacs,
involved actors and land
price.
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Conclusion
• Need of decentralization
– There is a significant inconsistency among planning appraoaches, local
government systems andurban development policy in most of Asian
countries. Decentralization is a key to enhance the efficacy of spatial
planning in all of three approaches.
• Need of streamlining development control process
– Facilitating small-scale and affordable housing developments with
proper planning consideration is an urgent agenda in rapidly urbanizing
countries. Complicated, overlapped and sector-based development
control process is an apparent obstacle.
– One-stop and flexible transparent consultation system should be
introduced.
• Need of introduction of regional coordination process
– In response to the formation of city-region under globalization and
environmental conservation, regional coordination process in planning
is becoming an important agenda, yet, few of Asian countries are not
yet prepared to respond to this issue.
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