Spatial planning in Krasnoyarsk: opportunities and constraints

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Spatial planning in Krasnoyarsk: opportunities and constraints

description

Case-study performed by the international team of mid-career professionals during the summer school

Transcript of Spatial planning in Krasnoyarsk: opportunities and constraints

Page 1: Spatial planning in Krasnoyarsk: opportunities and constraints

Spatial planning in Krasnoyarsk: opportunities and constraints

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Team:

• Egor Zadereev, SFU (Russia) – supervisor

• Hanna Skryhan, BRU (Belarus)• Irina Shilova, BRU (Belarus)• Shailendra Kumar Mandal, NIT Patna (India)• Viktar Kireyeu, CNIIKIWR (Belarus)• Wanyu Shih, UNU-IAS (Japan)

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Research question

• What are the weaknesses in existing governance of spatial planning in Krasnoyarsk city and how can they be mitigated?

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Objectives

1. To understand existing problems associated with spatial planning.

2. To identify causes of existing problems.– Natural constraints– Infrastructure constraints– Social context– Historical legacies– Institutional constraints

3. To explore potential governance mechanisms to mitigate these problems.

4. To develop governance strategies to improve spatial planning process in the city.

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Methodology

• Case-study approach• Problem analysis (STEEPL and SWOT analysis)• Stakeholder analysis• Institutional analysis• Interviewing• Participation observation• Historical review• Documentary analysis• Field trip

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Data and sources

• Legislative documents (federal, regional, local);• Master plan and supplementary materials;• Scheme of spatial planning of Krasnoyarsk krai;• Web-pages of Krai Government, City

Administration; Union of builders and developers;

• Interviews;• Observations

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List of interviewsPerson Time

1 Anton Shatalov, chief architect “Krasnoyarskgrazhdanproekt” 07-22-2013

2 Igor Veriovkin, deputy head of economical department of the city; Aleksander Tsaplin, deputy head of economical department of the city

07-23-2013

3 Anton Lukin, head of protect environmental office of municipal services department; Nataliya Morosova, deputy head of protect environmental office of municipal services department

07-23-201307-24-2013

4 Olga Kovalenko, head of office of spatial planning documents preparation and landuse rules (urban development department)

07-23-2013

5 Aleksander Gliskov, City Council deputy 07-23-2013

6 Yulia Ivanova, researcher of of Institute of Biophysics (Siberian Department of the Russian Academy of Sciences)

07-23-2013

7 Nikolai Diadechkin, architect, senior lecturer of SFU 07-23-2013

8 Yurii Podoprigora, former Executive Chief of the Builder Union of Krasnoyarsk Krai, member of Public Council of Krasnoyarsk Krai Ministry of construction and architecture

07-24-2013

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Person Function

1 Anton Shatalov Architect: development of architectural image of the city.

2 Igor VeriovkinAleksander Tsaplin

Local officials: social-economical analysis of the city. Definition of socio-economic city policy direction and priority; definition of forms and methods of effective use of city potential and financial resources to purpose of city life activity normal working. Economical planning.

3 Anton LukinNataliya Morosova

Local official: organize and control of street cleaning; Local official: collection, treatment and burial of solid waste. Definition of perfect landfills.

4 Olga Kovalenko Local official: development of architectural image of the city,development of target specification for master plan, land use control by architectural activity

5 Aleksander Gliskov Deputy, legislative authority

6 Yulia Ivanova Researcher: collection and processing of environmental information, mapping of environmental state of the city.

7 Nikolai Diadechkin Teaching, planer / architect.

8 Yurii Podoprigora Developer, member of civil self-organized group

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Introduction:

Historical and physical background

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XVII-XVIII centuriesThe colonization of Siberia by Russians

Major city functions and properties:

• to control the territory• to establish and control

trade with indigenous people and nomads

• to provide the flow of goods to “metropolis”

The quality of life is not an issue

City – The Fortress

Taiga (forest) (hunters, fisherman, indigenous people)

SteppeNomad tribes (Mongolians, Kyrgyz)

Kazaks

2000 inhabitants, 200-300 houses, practically burned out in 1773

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XIX centuryThe Siberian Golden Fever, Trans-Siberian Railway

City – The Capital

30,000 inhabitants, 30 factories, the city was almost

burned out in 1881

Major city functions and properties:

• the railway station (the integrity of the country)

• the capital of the Enisey Guberniya

• to control trade and resource extraction over the huge area

• to provide the flow of goods and money to “metropolis”

- The quality of life was for the first time considered as an issue- City center is established

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XX century (first half)The reallocation of industry during the WorldWar2

City – The Factory

300,000 inhabitants, developed machinery and

other industry

Major city functions and properties:

• to enhance industrial production

• to provide the flow of industrial output to save country

- The quality of life is not an issue- The districts around the factories are established (city is a batch of “villages”)- The quality of environment abruptly

decreased

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XX century (second half)Mega projects to “extract” Siberia

City – The Mega Factory

900,000 inhabitants, A lot of industry

Major city functions and properties:

• to control, operate and support mega projects of natural resource extraction over the huge area

• to provide the flow of resources and industrial output to the country - The quality of life is minor issue

- The city is a batch of districts around factories - The quality of environment continuous to

decrease

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Krasnoyarsk now – is a mixture of

different styles, different ages,

different functions built-up areas

Modern spatial structure of the city

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Cottage housing

“Old” Krasnoyarsk

Modern elite cottage villages

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“Stalin” and “Hruschov” housing

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Modern housing blocks

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Business, public and commercial spaces

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Industrial areas

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Infrastructural areas

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Green areas

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The legacy of the past

Industrial zones along the banks of Enisey. Mixture of industrial and housing zones (legacy of WorldWar2)

Can be used as a historical core

Make the development more difficult and costly

Territories to demolish completely and make a new good city

A lot of old housing, “ghetto”, requires a lot of investments and planning to decrease patchiness

constraints opportunities

Regular planning of city center and historical buildings (legacy of XIX century)

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Separate districts (“villages”) around huge plants which make the city sprawling (legacy of XX century)

Additional costs to support and develop transportation system

and engineering infrastructure, to insure the social equity

Huge areas with low density of built-up territories, a lot of “free” spaces which

could be used for renovation and revitalization of housing and creation

of a green network

constraints opportunities

The Enisey river, geomorphological and relief conditions

Can be used for landscape design and creation of city green network

Limitation of the transportation system development

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Problem analysis:

Spatial planning in Krasnoyarsk: opportunities and constraints

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Problem analysisSTEEPL analysis (I)

Social aspects Technological aspects Political aspects

- positive growth of population (“developing city”);- high employability; - segregation of population based on incomes, social status, nationality and etc.;- “boom” of housing construction;- underdevelopment of social infrastructure;- absence of social equity;- growth of social / public involvement in societal processes, active citizenship in regard to city development;- corruption

- outdated technologies and approaches in construction industry;- low level of energy efficiency in housing sector;- old systems of water supplying, sewerage, heating and other infrastructural elements;- narrow streets and problems with traffic;- mix of industrial and housing built-up areas;- a lot of old housing (baraki, hruschevki, brezhnevki);- geomorphological conditions and relief of the city, the Enisei river

- capital of the region Krasnoayrsk krai;- good interrelations between krai and municipal political powers;- political stability;- city self-governmental bodies are not a part of state government;- city officials are accountable to local people, they are elected on the five years;- results of decision-making process and some legislative documents are accessible on the official web-page;- lobby of transnational companies and oligarchs in Krai government and parliament

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Problem analysisSTEEPL analysis (II)

Economic aspects Environmental aspects Legislative aspects

- investment attractiveness;- economic growth as the main goal of city development;- huge industrial potential;- natural resources including energy resources;- low costs of energy resources;- sale and lease of municipal lands, local taxes are main financial source for city budget;- outflow of finance (profit of industrial enterprises) to the transnational companies located in European part of Russia

- high level of air pollution;- soil contamination with oil and point river pollution;- municipal solid waste;- location of industrial enterprises in the center of the city, lack of buffer zones between industries and housing in the center of Krasnoyarsk;- poor greenery in the center of Krasnoyarsk

- sale and lease of municipal lands regulate by Land Code of RF, Rules of land use and urban development of Krasnoyarsk city;- urban development regulates by Urban development Code of RF, Rules of land use and urban development of Krasnoyarsk city, Norms for urban development of Krasnoyarsk city, Master plan;- building construction and infrastructure construction regulate by construction standards;- environmental protection in the city regulate by environmental legislation of RF

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Problem analysisSWOT-analysis (I)

STRENTH WEAKNESS

Krasnoyarsk is a large industrial center in Siberia with huge industrial potential, high investment attractiveness and different opportunities for employability. City has huge potential for development, increasing of livability and competitiveness. “Boom” of housing construction attracts new residents and gives more opportunities for further development.Local officials are accountable to citizens, results of decision-making process and some legislative documents are accessible on the official web-page. During last years could be observed growth of social / public involvement in societal processes, active citizenship in regard to city development. These factors could insure openness and transparency decision-making process in regard to city planning process.

As a soviet industrial city Krasnoyarsk is characterized by underdevelopment of social infrastructure which could limit city development in future. In spite of “boom” of housing construction usually in construction industry is used outdated technologies and approaches. There is a low level of energy efficiency in housing sector. These are decrease adaptiveness and livability of the housing sector in future.Main infrastructural elements (systems of water supplying, sewerage, heating system, roads and streets) were built about 30-40 years ago. At present time these factors impact negatively on urban planning and development.There are forest parks and city parks in Krasnoyarsk, but the center of the city is characterized by poor greenery.

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Problem analysisSWOT-analysis (II)

Opportunities Threats

- growing population (“developing city”);- geomorphological conditions and relief of the city, the Enisey river;- capital of the region Krasnoayrsk krai;- good interrelations between krai and municipal political powers;- political stability;- city self-government bodies are not a part of state government;- Industrial growth as the main goal of city development;- natural resources (including energy resources);- low costs of energy resources

- segregation of population based on incomes, social status, nationality and etc.;- absence of social equity;- mixture of industrial and housing built-up areas;- a lot of old housing (baraki, hruschevki, brezhnevki);- geomorphological conditions and relief of the city, the Enisey river;- lobby of transnational companies and oligarchs in Krai government and parliament;- corruption;- sale and rent of municipal lands, local taxes are main financial source for city budget;- outflow of finance (profit of industrial enterprises) to the transnational companies located in European part of Russia- high level of air pollution;- soil contamination with oil and point river pollution;- municipal solid waste;- location of industrial enterprises in the center of the city, lack of buffer zones between industries and housing in the center of Krasnoyarsk

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Stakeholder analysis:

Actors in a spatial planning play

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Levels of actors

1. Federal: Parliament, Ministries, Agencies2. Federal district (Okrug): Presidential

representative, departments of federal agencies3. Regional level: legislative assembly, ministries,

regional units of federal agencies4. City level: council, administration, department s5. District level: administrations of 7 districts

6. Actors operating across the levels: business, NGOS

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Functions of actors: Federal and Okrug levelsFederal – legislature, executive bodies:1. Ministry of Natural Resources and the Environment (Minprirody)

Development of state policy in the field of environmental protection and safety, water resources, geology and mineral resources, hydrometeorology and environmental monitoring, forest resources, hunting and wildlife• Federal Agency for the Control of Natural Resources (Rosprirodnadzor)• Federal Forestry Agency• Federal Service for Hydrometeorology and Environmental Monitoring

2. Ministry of Regional Development (MinRegion)Strategic planning and development of state policies in spatial planning, evaluation of regions and local self-government, constructions, architecture, and housing

3. Ministry of Economic Development Regulates property relations, land-related transactions (except for agricultural lands), the State Register of Real Estate, state cadastral record-keeping and cadastral activity, state cadastral valuation of land, state monitoring of land (except for agricultural lands which is under the Russian Ministry of Agriculture), state registration of rights to real estate, geodesy and cartography• Federal Agency for State Property Management (Rosimushchestvo)

Okrug (District)4. Presidential representative for Siberian Federal Okrug (SFO)5. Rosprirodnadzor Department for SFO

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Actor analysis: Regional level1. Legislative assembly

Rule-making

2. Executive bodies• Ministry of Energy and HousingOverall maintenance of communal infrastructure, implementation of state policies• Ministry of Construction and ArchitectureImplementation of state policies in the field of constructions and architecture• Ministry of Natural Resources and ForestsImplementation of state policies in the field of natural resources and forests• Agency for Control in Construction and HousingImplementation and enforcement of legislation on urban planning, fire safety, sanitary and epidemiological welfare, environmental protection, participation in the joint construction of apartment buildings and (or) other real estate and housing laws• Agency for Control of Natural ResourcesImplementation and enforcement of legislation on environmental protection, air protection, radiation protection, forest law, water law, legislation on environmental reviews, subsoil legislation

3. Regional units of federal agencies1. Rosprirodnadzor agency for Krasnoyarsk Krai

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Actor analysis: City and District levels

City (Municipal)1. City Council

Rule-making2. City administration

• Department Communal ServicesRule implementation and development and maintenance of infrastructure• Department of ArchitectureMaking of assignments for planning documentation, drafting proposals, issuing permits• Department of Urban PlanningImplementation of policies, drafting proposals, issuing permits

District3. Administrations of 7 districts

Implementation and enforcement of regulations and norms

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Actor analysis: Across the levels

1. Business• Industrial companies• Construction companies• Investing companies

2. NGOs• Union of ArchitectsExpertise, monitoring in the field of architecture and planning• Union of Construction workersExpertise, monitoring in the field of quality of constructions• Environmental NGOsExpertise, monitoring in the field of environmental quality

3. Educational and Research organizations• Siberian Federal universityEducating architects and designers, providing expertise in ecology, landscape and urban planning• Academy of SciencesProviding expertise in forest ecology and landscapes

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Area of administrative

units (km2):

• Federation – 17,098,246

• Okrug – 5,114,800• Krai – 2,366,797• City – 380• Districts ≈ 60• Microdistricts ≈ 6

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City districts

DistrictArea (km2) Population

Zhelezno-dorozhnyj 18 95 000Kirov 46 115 000

Lenin 58 150 000

October 86 160 000

Sverdlovsk 72 131 000

Soviet 94 300 000Central 36 59 000

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Scales of Planning Interests

Federal authorities

Federal district authorities

Krai authorities

City authorities

District authorities

Business

NGOs

Day

sW

eeks

Year

sD

ecad

es

Metes Kilometers 100 kilometers 10000 kilometers

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Power gridLegitimacy is acceptance of group’s authority by other groups, power is an ability to influence the actions of other stakeholders, urgency is the ability to impress the critical and pressing character of one's claims or interests.

Stakeholder group Power Legitimacy Urgency

Local officials +++ +++ ++

Planners,architects +++ ++ +

Investors,developers +++ + +++

Vulnerable andmarginal groupsof citizens

+ + +

Civil self-organized groups + ++ ++

State env.agencies + +++ +

Municipalservices int. ++ ++ +

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Local officials Planners,architects

Investors,developers

Vulnerable andmarginal groups

of citizens

Civil self-organized

groupsState env.agencies

Municipalservices int.

Local officials L

Planners,architects

A M

Investors,developers

B C N

Vulnerable andmarginal groupsof citizens

D E

Civil self-organized groups

F G H

State env.agencies

I O

Municipalservices int.

J K

Conflicts between stakeholder’s groups

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Description

A conflicts caused by contradicting visions on spatial urban planning and city architecture

B conflicts based on land property rights, construction and land use permissions, lobbying of interests, and implementation of Master plan

C selection of simple architectural projects by investors and developers based on cost of constructionD conflicts between the people living in a tumbledown housing and city administration about

replacement to new apartmentsE conflicts between people living in a tumbledown housing and investors/developers interested in the

landF conflicts between civil self-organized groups and local officials caused by different views on urban

development, city planning, and economic growthG conflicts between civil self-organized groups and planners / architects caused by lack of agreement

about urban development and city planning strategiesH conflicts between civil self-organized groups and investors / developers resulting from discussions

on urban development, city architecture , and location of industrial enterprisesI conflicts about locations of "dirty industries"J conflicts between investors / developers and municipal services stemming from underdeveloped

engineering infrastructureK conflicts based on proper compliance with legislative requirements

Conflicts between different stakeholder’s group

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Description

L conflicts between legislative and executive agencies, lobby groups, etc.M conflicts within the community of planners / architects based on different vision of

urban developmentN conflicts among investors / developers based on competitionO misfits and gaps in collection, storage and transfer of data

Conflicts inside stakeholder group

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Actors: opportunities and constraints (I)

opportunitiesconstraints

Participation strongly depends on the leadership within the

city administration

City administration and Mayor are accountable to public and

mechanisms for close collaboration are in place

Lack of expertise in integrated planning and management

Establishing of new educational programs at SFU

Interplays between monitoring agencies

Revising the structure and responsibilities of actors

Actor groups do not trust each other

Establish and maintain public-private partnership

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Actors: opportunities and constraints (II)

opportunitiesconstraints

Large number of governance levels with actors of higher rank with their stated and

unstated goals

Overlapping jurisdictions in policy-making

More space for lobbying of interests for industrial and

business groups

Conflicts can be solved by engaging actors from one of

the higher levels

More thorough monitoring

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Institutional analysis:

Spatial planning: decision making process and public participation

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Level / scale

Legislation (Codes, laws) Regulation (rules, norms)

Programs, Instructions

Federal - Urban development Code;- Land Code;- General principles of organization of local self-government; - Other federal laws

- Construction standards;- Norms of env. quality;- Standards for social services

- Development strategies for different sectors of national economy;- Long-term strategies and programs of social-economic development of Russia;- National projects

Regional Laws:- Regulation of land relations in Krasnoyarsk krai;- About 4th auto-bridge over the river of Enisey in Krasnoyarsk;- Laws about cities borders in the Krai;- About combating corruption- etc.

- Scheme of spatial planning of Krasnoyarsk krai;- Statute of Krasnoyarsk krai;- Investment standard for Krasnoyarsk krai;- Statute of Agency for control in constructions and housing

- Regional program of social-economic development;- Regional programs and strategies for different sectors of economy;- Regional economic, social, env. and etc. projects

Formal institutions for urban planning (I)

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Level / scale

Legislation (Codes, laws)

Regulation (rules, norms) Programs, Instructions

Local (city & district)

- Statute of Krasnoyarsk city;- Master plan;- Rules for land use and urban development;- Urban development norms;- Rules for improvement, arrangement of green spaces, maintenance of territory and buildings of Krasnoyarsk city;- Decrees on- Changing Master plan;- Changing urban development

norms;- Permissions for constructions,

principal renewal, reconstruction and renovation;

- Permissions for the use, sale, and rent of land

- Strategy for city development;- Investment programs;- City programs;- City investment projects;- Instructions about collection, removal, utilization and treatment of domestic and industrial wastes in Krasnoyarsk city;

Formal institutions for urban planning (II)

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Informal institutions for spatial planning process

Lobbying of interests by business groups in City Council, City Administration

Fake participation in public hearings of residents/experts supporting the decisions in favor of developers / investors / administrators

Shadow schemes for sale and rent of land for constructions

Bribes (in different forms)

Information companies in mass-media

Social networking (tweeter, facebook and etc.)

Establishing civil self-organized groups

Integration of business and governmental bodies

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Institutions: opportunities and constraints (I)

opportunitiesconstraints

Absence of regional urban development norms

Approval of regional norms can reduce constant change in city urban

development norms and stop unjustified increase in housing

density

There are no mechanisms for submitting, approving / rejecting proposals from stakeholders to spatial planning documents in

Federal Code These mechanisms can be codified in regional and local regulations

Federal Code does not provide a procedure for public hearings and inform local residents about the

projects of federal and regional levels in neighboring areas

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Institutions: opportunities and constraints (II)

opportunitiesconstraints

Lack of information about public hearings

Information campaign for increasing public awareness and involving public

in decision-making process

Public is hardly involved in public hearings and decision-making

process on spatial planning

There are a lot of different forms of public participation which can be

combined for better results

City administration may collaborate more closely with

regional agency for constructions and housing control

City administration lacks power to control / to punish inadequate

development activities

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Institutions: opportunities and constraints (III)

opportunitiesconstraints

There is no specialized department responsible for the development of

green network

City administration may appoint a department responsible for

development of green space system

A lack of procedure for periodical revision of Master plan

City administration may establish such a procedure

Complex pattern of land ownership undermining

comprehensive land management schemes

Using functional and urban zoning to reduce unnecessary

complexity

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How far from good governance? (I)

Indicator Definition Score Explanations Participation Participation by both men and women

is a key cornerstone of good governance. Participation needs to be informed and organized.

3 Legislation supports different forms of participation, but awareness about participation is low. There is no tradition of participation

Rule of law Fair legal frameworks that are enforced impartially, full protection of human rights, independent judiciary and an impartial and incorruptible police force

3 Corruption is a “Russian way of life”, sometimes human rights are not fully protected.

Transparency Decisions are taken and their enforcement is done in a manner that follows rules and regulations. Information is freely available and directly accessible

3 Some information is accessible directly, but is not enough information, and sometimes it is not understandable for general public

Responsiveness Institutions and processes try to serve all stakeholders within a reasonable timeframe

3 Spatial planning process doesn’t meet interests of all stakeholder groups

http://www.unescap.org/pdd/prs/ProjectActivities/Ongoing/gg/governance.asp

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How far from good governance? (II)

Indicator Definition Score ExplanationsConsensus oriented

Mediation of the different interests in society to reach a broad consensus in society

4 Different forms to reach a broad consensus in society are in place

Equity and inclusiveness

All members of community feel that they have a stake in it and do not feel excluded from the mainstream of society

3 Vulnerable and marginal groups can improve their well-being in theory, but in practice their participation in societal processes is limited

Effectiveness and efficiency

Processes and institutions produce results that meet the needs of society while making the best use of resources at their disposal (including sustainable use of natural resources and the protection of the environment)

2 Krasnoyarsk is one of the most dirty cities in Russia. However, environmental protection is not a main goal for city development now

Accountability Not only governmental institutions but also the private sector and civil society organizations must be accountable to the public and to their institutional stakeholders

3 Local officials are accountable to local people, but private sector and civil society are not sufficiently accountable to stakeholders

http://www.unescap.org/pdd/prs/ProjectActivities/Ongoing/gg/governance.asp

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Conclusions: Focal issues

• Making people believe in use of deliberation / cooperation with other groups

• Nurturing leadership in local authorities• Increasing the efficiency of communication• Changing “Vremenschik” mindset• Brining landscape into picture

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Conclusions: Solutions / suggestions (I)

Solving the trust issue: • Better coverage by media of governmental

initiatives, pilot projects encouraging social learning

Solving the leadership issue:• Information campaigns to increase

involvement of local people, development of non-governmental centres of governance

Solving the mindset issue:• Information campaigns to increase city

attractiveness online, hosting international events, pilot projects on state-of-the-art housing and landscaping

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Conclusions: Solutions / suggestions (II)Solving communication problem: • Creating ‘communication loop’ of planning,

design, management and maintenance to ensure that each part of the process informs the others

Pilot projects for the landscape issue:• Integrated Planning and Management:

Design with nature• Planning multifunctional green spaces at

multiple scale levels• Urban Micro-climate Management (Stuttgart,

Germany)

• Bus Rapid Transportation (BRT)• Revitalization / gentrification of brownfields

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