1. Spatial planning in Krasnoyarsk: opportunities and constraints

2. 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) 3. Research question What are the weaknesses in existing governance of spatial planning in Krasnoyarsk city and how can they be mitigated? 4. 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. 5. Methodology Case-study approach Problem analysis (STEEPL and SWOT analysis) Stakeholder analysis Institutional analysis Interviewing Participation observation Historical review Documentary analysis Field trip 6. 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 7. List of interviews Person 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 07-23-2013 07-24-2013 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 8. Person Function 1 Anton Shatalov Architect: development of architectural image of the city. 2 Igor Veriovkin Aleksander 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 Lukin Nataliya 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 9. Introduction: Historical and physical background 10. XVII-XVIII centuries The 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, in digenous people) Steppe Nomad tribes (Mongolians, Kyrgyz) Kazaks 2000 inhabitants, 200-300 houses, practically burned out in 1773 11. XIX century The 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 12. 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 13. 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 14. Krasnoyarsk now is a mixture of different styles, different ages, different functions built-up areas Modern spatial structure of the city 15. Cottage housing Old Krasnoyarsk Modern elite cottage villages 16. Stalin and Hruschov housing 17. Modern housing blocks 18. Business, public and commercial spaces 19. Industrial areas 20. Infrastructural areas 21. Green areas 22. 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 constraintsopportunities Regular planning of city center and historical buildings (legacy of XIX century) 23. 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 constraintsopportunities 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 24. Problem analysis: Spatial planning in Krasnoyarsk: opportunities and constraints 25. Problem analysis STEEPL 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 26. Problem analysis STEEPL 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 27. Problem analysis SWOT-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. 28. Problem analysis SWOT-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 29. Stakeholder analysis: Actors in a spatial planning play 30. Levels of actors 1. Federal: Parliament, Ministries, Agencies 2. Federal district (Okrug): Presidential representative, departments of federal agencies 3. Regional level: legislative assembly, ministries, regional units of federal agencies 4. City level: council, administration, department s 5. District level: administrations of 7 districts 6. Actors operating across the levels: business, NGOS 31. Functions of actors: Federal and Okrug levels Federal 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) 1. Presidential representative for Siberian Federal Okrug (SFO) 2. Rosprirodnadzor Department for SFO 32. Actor analysis: Regional level 1. Legislative assembly Rule-making 2. Executive bodies Ministry of Energy and Housing Overall maintenance of communal infrastructure, implementation of state policies Ministry of Construction and Architecture Implementation of state policies in the field of constructions and architecture Ministry of Natural Resources and Forests Implementation of state policies in the field of natural resources and forests Agency for Control in Construction and Housing Implementation 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 Resources Implementation 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 agencies 1. Rosprirodnadzor agency for Krasnoyarsk Krai 33. Actor analysis: City and District levels City (Municipal) 1. City Council Rule-making 2. City administration Department Communal Services Rule implementation and development and maintenance of infrastructure Department of Architecture Making of assignments for planning documentation, drafting proposals, issuing permits Department of Urban Planning Implementation of policies, drafting proposals, issuing permits District 1. Administrations of 7 districts Implementation and enforcement of regulations and norms 34. Actor analysis: Across the levels 1. Business Industrial companies Construction companies Investing companies 2. NGOs Union of Architects Expertise, monitoring in the field of architecture and planning Union of Construction workers Expertise, monitoring in the field of quality of constructions Environmental NGOs Expertise, monitoring in the field of environmental quality 3. Educational and Research organizations Siberian Federal university Educating architects and designers, providing expertise in ecology, landscape and urban planning Academy of Sciences Providing expertise in forest ecology and landscapes 35. Area of administrative units (km2): Federation 17,098,246 Okrug 5,114,800 Krai 2,366,797 City 380 Districts 60 Microdistricts 6 36. City districts District Area (km2) Population Zhelezno- dorozhnyj 18 95 000 Kirov 46 115 000 Lenin 58 150 000 October 86 160 000 Sverdlovsk 72 131 000 Soviet 94 300 000 Central 36 59 000 37. Scales of Planning Interests Federal authorities Federal district authorities Krai authorities City authorities District authorities Business NGOs DaysWeeksYearsDecades Metes Kilometers 100 kilometers 10000 kilometers 38. Power grid Legitimacy is acceptance of groups 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 and marginal groups of citizens + + + Civil self-organized groups + ++ ++ State env. agencies + +++ + Municipal services int. ++ ++ + 39. Local officials Planners, architects Investors, developers Vulnerable and marginal groups of citizens Civil self- organized groups State env. agencies Municipal services int. Local officials L Planners, architects A M Investors, developers B C N Vulnerable and marginal groups of citizens D E Civil self- organized groups F G H State env. agencies I O Municipal services int. J K Conflicts between stakeholders groups 40. 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 construction D conflicts between the people living in a tumbledown housing and city administration about replacement to new apartments E conflicts between people living in a tumbledown housing and investors/developers interested in the land F conflicts between civil self-organized groups and local officials caused by different views on urban development, city planning, and economic growth G conflicts between civil self-organized groups and planners / architects caused by lack of agreement about urban development and city planning strategies H conflicts between civil self-organized groups and investors / developers resulting from discussions on urban development, city architecture , and location of industrial enterprises I conflicts about locations of "dirty industries" J conflicts between investors / developers and municipal services stemming from underdeveloped engineering infrastructure K conflicts based on proper compliance with legislative requirements Conflicts between different stakeholders group 41. 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 development N conflicts among investors / developers based on competition O misfits and gaps in collection, storage and transfer of data Conflicts inside stakeholder group 42. 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 43. 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 44. Institutional analysis: Spatial planning: decision making process and public participation 45. 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) 46. 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 - 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) 47. 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 48. 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 49. 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 50. 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 51. 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 doesnt meet interests of all stakeholder groups http://www.unescap.org/pdd/prs/ProjectActivities/Ongoing/gg/governance.asp 52. How far from good governance? (II) Indicator Definition Score Explanations Consensus 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 53. 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 54. 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 55. 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 56. 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