Growth Management or Growth Control? The Urban and Rural Growth Management Strategies under the new Spatial Planning Act 2016 in Taiwan
Ming-Jen Tsai*, Tzuyuan Stessa Chao**
*Postgraduate Student, Dept. of Urban Planning, National Cheng Kung University ** Associate Professor, Dept. of Urban Planning, National Cheng Kung University
The Spatial Planning Act of Taiwan has enacted in 2015. In order to solve the urban sprawl, the concept of growth management first appear in this law. Countries around the world generally use growth management to curb urban sprawl. In recent years, countries have begun to examine the effect of growth management. Some studies suggest that regions with growth management have better urban sprawl containing than other regions, such as Arthur C. Nelson in 1999. And John I. Carruthers in 2002, found regions with strong consistency requirements and enforcement mechanisms can reduce urban sprawl through growth management. Growth management is a plan to ensure the quality of life and preserving the natural environment. Countries use growth control to achieve mandated objectives. According to the Spatial Planning Act of Taiwan, government limits the total amount of agricultural development zones and Urban-rural development zones, and local governments need to establish their own growth management plan. Without supervision of growth management plan and the consistent goal of growth management, only use control to achieve growth management. Can the new Spatial Planning Act of Taiwan solve the urban sprawl? Therefore, this paper decide to examine the growth management of the Spatial Planning Act, comparing with the previous law and the reason of urban sprawl. Reference to foreign experience, and carry out the domestic experts and scholars questionnaire, in order to proposed supporting measures and implementation direction.
Keyword
Growth Management、Growth Control、Spatial Planning Act、Taiwan
1. Introduction
In the past, the United States used growth management to curb the spread of the city and ensure its quality of life. In the course of urban development, Taiwan has also faced the problem of urban sprawl. In the past, it was believed that the urban bulwarks of the city in Taiwan are related to the development of provincial highways and highways. The spread of the city is mostly a linear extension of the road and its expansion along the urban periphery. It is different from the frog leap expansion in American cities (Li, 2002). In view of the imbalance between urban and rural areas caused by rapid development. Reviewing the history of urban planning laws and regulations in Taiwan. The past urban planning law and the regional planning law
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separate the control of urban and urban areas, trying to solve urban sprawl and non-urban growth. The problem of the loss of non-urban land, but the problem has not improved, the abuse of non-urban land still exists.
In 2015, Taiwan passed the Spatial Planning Act, attempting to incorporate both unconsolidated cities and non-urban lands in the past. It is the first time incorporate growth management into urban and rural planning laws. In the past, there have been many studies in Taiwan that have explored the application of growth management in Taiwan. However, in the past, the concept of growth management has not been explicitly included in Taiwan’s past urban planning decrees. This study hopes to analyze the development of Taiwan's urban planning and regional plans in the past and compare and analyze the growth management cases in the United States, sum up the necessary elements for successful growth management, and examine the new generation of national land planning and The National Land Project proposes possible doubts and amendments in the future.
2. Taiwan's urban planning history and urban sprawl
After the war, population increase in Taiwan in the 1930s. Due to rising population and the need for urban construction, the urban planning decree of the time was unable to meet the needs of the time. Therefore, in 1964, planning ideas in Europe and the United States were introduced to modify the urban planning method. In response to the rapid economic development, Taiwan originally managed to manage only the areas where the city plans were issued. There are no special guidelines for non-urban lands. As a result, the agricultural land on the outskirts of the city has begun to be heavily abused. The government has solved the problem of land outside the city in 1974. The regional plan law was enacted in the year.
Unlike the Urban Planning Law, there are active planning goals for the urban planning area such as planned objectives, land use control, and provision of public facilities. Non-urban land is only standardized for land use projects and does not include non-urban land. Draw the goals and cooperate with the development licensing system so that non-urban land can be developed through deliberation. Domestic research has also found that non-urban land, economic growth in the past, coupled with industrial transformation policies, has made non-urban land useless because it is cheaper to obtain land than urban land (Lai et al., 2004). In order to change the problems of rural land use destruction and urban sprawl brought about by the negative control of non-urban land in the past, the emergence of the new Spatial Planning Act hopes to solve the problem of the separate control and land use inefficiency of Taiwan's urban and non-urban land. In the future, we will use the functional zoning classification to divide Taiwan’s land into four major sub-regions: urban and rural development areas, agricultural development areas, national conservation areas, and marine resource areas. The four
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major sub-regions will incorporate ocean management that was not included in the past, hoping to bring Taiwan to the national territory. Completely integrated into the new generation of planning regulations.
3. Evolution of Growth Management
In the past, the United States used land-use zoning control to divide between cities and rural areas. However, as the economy developed, the urban middle class gradually moved to suburban life in pursuit of a better living environment and housing quality, resulting in urban sprawl in American cities. To solve the problem of urban sprawl, the concept of growth management was proposed in the 1960s and 1970s. The first generation of growth management mainly addressed urban sprawl in a controlled manner, hoping to control urban development within the metropolis, but did not assess the externalities and oneness of regulations, resulting in an increase in urban population and house prices. , bring traffic congestion. Therefore, the second generation of growth management began to emphasize the integration of different regions and cities, and the state government established a growth management system to increase the growth management class to the legal level of the state government (John I. Carruthers, 2002). This stage of growth management emphasizes the cooperation among regional governments, the planned nature of the project, and the guiding nature of project goals (Arthur C. Nelson, 1999, John I. Carruthers, 2002), providing specific needs for growth management programs. Contains elements such as the provision of housing, environmental protection and the provision of public facilities. The third-generation growth management has grown into a smart one, focusing on mixed land use, hoping to create accessible urban life, providing housing options and housing opportunities in the community, and promoting the diversity of communities within the community and the use of developed communities. Reuse space and provide employment opportunities in the city. At this stage, it is hoped that the city can develop compactly, develop diverse transportation options, provide public transportation such as buses and bicycles, maintain basic road construction, provide pedestrians, cultivate unique and attractive communities with strong sense of place, and increase cohesion among community residents. The protection of open space can also make the community more flexible. At this stage, growth management attaches great importance to the development of the city.
4. Effective growth management
In the past, there were no clear answers to the effects of growth management. In the past, scholars compared the effects of growth management among different cities, and used indicators and econometric modeling to assess the effectiveness of growth management and explore the boundaries of growth management. Housing, forest and
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farmland development, population density, etc., to examine the effects of growth management (Hannah Gosnella, Jeffrey D. Klineb, Garrett Chrostekc, James Duncana,2010). By assessing the effectiveness of growth management, it further analyzes the growth management structure in different cities, including inter-governmental cooperation, legislation, guidance for growth management objectives, tool management for growth management, follow-up assessments, and public participation, and does not meet the goals of growth management of Dazhou. And the failure to comply with growth management plans such as penalties, will affect the effectiveness of growth management (Arthur C. Nelson, 1999, John I. Carruthers, 2002, Hannah Gosnella et al., 2010, Lu, 2008). Through the above growth management development and follow-up assessment of the effectiveness of growth management, this study summarizes effective growth management as four factors: government guidance and assistance, regulatory mechanisms, implementation tools, and public participation. Described.
4.1 Government Guidance and Assistance
In the guidance and assistance section of the government, the main focus is on growth management legislation, and emphasizes the establishment of planned goals for growth management, such as housing provision, housing provision, environmental protection, and provision of public facilities, so that local governments that implement growth management formulate The policy of the state government aims to make the overall growth management consistent. The government’s guidance also emphasizes the coordination of Uzbekistan’s government with neighboring or neighboring regions, emphasizing that through intergovernmental coordination, urban sprawl will not spread due to different government growth regulations.
For the local growth management plan, if the state government can provide assistance, it will help the local growth management plan to meet the overall development vision. The state government can assist the local governments in the establishment of growth management guidelines and provide funds for Technical assistance.
4.2 Supervision mechanism
In the growth management laws enacted in the U.S. states, relevant supervision and management mechanisms will be set up for each local government through the submission of conformance reports, penalties, reviews of growth management plans, and follow-up assessments of growth management plans. The growth management plan supervises and manages. For example, the Growth Management Act (GMA) of the State of Washington state will fail to achieve long-term management penalties through the reduction of local taxes and the detention of related tax liabilities. In submitting a
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conformity report, local governments need to submit to the state government or the land use department a growth management report that is consistent with the state's goals, in order to review the integration of local government and state government goals, and submit a review to the state government. The management bill must be approved by the upper government before it can be implemented.
In addition to the pre-implementation review, follow-up assessment of growth management is also required. Implementation of growth management tools, achievement of growth management objectives, control of urban sprawl, and improvement of urban quality should all be evaluated in a follow-up manner. Improve the plans of growth management.
4.3 Implementation Tools
The management tools for growth management are used to control urban and rural areas in the United States, divide protected areas from agricultural land, and designate protected areas so that urban development can be controlled in the urban space. The growth management tools that control urban sprawl have also established urban development areas by specifying growth management boundaries. In addition to setting rigid urban development boundaries, there are also the use of transfer of development rights, the provision of affordable housing, and the development and payment of impact fees. Feedback on payment, provision of public facilities, improving public facilities by development costs and urban quality in the metropolis, and internalize external costs.
4.4 Public participation
The growth management plan, apart from attaching importance to bottom-up government guidance and government goals, the bottom-up public participation is also seen as part of the success of growth management. In the part of the people involved, it is procedurally emphasized that the public can participate in the formulation of the plan before the development management plan is drafted. The implementation of the plan and the achievement of goals can also be expressed in the middle and later stages. The public hearing will be used. To coordinate the parties and bring the opinions of the public into consideration. For the government's planned goals, the most influential is the citizens in the city. Therefore, it is very important to give them the right to participate.
In addition to the affected landowners, the people involved are considered by developers, environmental groups, elected and local representatives, relevant interest groups and residents.
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Effective growth management requires attention to follow-up assessments. Although growth management strategies can curb urban sprawl, growth management, if only focusing on achieving the goals of the project, will use control as a tool, which may lead to urban housing price increases and traffic congestion. Growth management must pay attention to the complete program content and tool selection, as well as the external treatment and public participation.
5. The Growth Management of the Spatial Planning Act in Taiwan
The emergence of the Spatial Planning Act hopes to set the objectives of growth management. The use of functional zoning control, the total control of agricultural land and urban-rural development, and the provision of related development impact fees, etc., as an implementation tool for future growth management. The national land planning method achieves the goal of growth management by standardizing the development of the national and county-city growth management plans and submitting it to the central authority for deliberation. The following is a description of the connotations of the Spatial Planning Act and the National Spatial Plan and Country Planning Growth Management.
5.1 Legislation of the Spatial Planning Act
According to Article 3 of the State Land Planning Law, “To ensure the quality of living environment and take into account the sustainable development of the country’s land and social equity, consider the balance of public service standards and financial costs, development rights and obligations, and the fairness of profit and loss, and guide the development of urban and rural areas. The state-planning program will serve as a proper location, timeline, aggregate, and environmental quality for future development areas to promote the effective use of land use management policies and practices."
In the history of planning in Taiwan, the concept of growth management was added to the new land planning law for the first time. According to the connotation of the new Spatial Planning Act, it is hoped that the country’s sustainable development will be achieved through the development management plan. Solve the current state of land issues, and standardize the country, metropolitan areas, municipalities and counties (cities) to put forward growth management plans, and development permits in the land use control also emphasize the need to consider growth management, you can find the government's expectations of this strategy With emphasis, we hope to solve the imbalance between urban and rural development in the past by forcing growth management into the law.
The objectives of growth management are stipulated in Article 3 of the National Land Planning Act, and are stipulated in Article 8, Article 9, and Article 10 respectively
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in the future national land plans, metropolitan area plans, and land projects of municipalities, counties, and cities. Growth Management Plan.
5.2 Growth Management of the National Spatial Plan Draft
In national spatial plan, the relevant urban and rural management strategies are mainly proposed for the protection of agricultural land and urban and rural areas. With regard to growth management strategies and goals, total volume control has become a means of growth management for the country’s land and territory plans, and it covers existing rural and urban development areas and agricultural land management. For the future needs of industrial land and urban and rural development land also need to assess the total amount. In the future, control will also be given for the new and expanded urban projects. Advice on the selection of other growth management tools includes the development of impact fees, public provision, and growth boundaries.
5.3 Effective of Growth Management in the Spatial Planning Act and the National Spatial Plan
Based on the foregoing, we will review the status quo of Taiwan’s national land planning law and the draft of the national land plan. It can be found that in terms of guidance and assistance from the government, although there are plans to set targets for legislation and planning, there is no assistance to the practice of growth management in each county or municipal government. In the future, the county and city governments will determine the growth management strategies in the county-city land plans, which may not be consistent with the planned objectives. To make guidelines for growth management programs will also make the county and city governments at a loss.
In respect of the regulatory mechanism, it did not punish those who did not achieve the goal of national growth management. At present, there is a review of the county-city land plans, but there is no consistent test of growth management strategies in the county-city land plans. At present, the follow-up assessment method for the growth management plan is only a comprehensive plan for the review of the national land plan. There is no relevant connotation for the evaluation of the growth management strategy. For the growth management implementation tool, the current land use plan only uses land use control and total control as the control method, and collects development impact fees. For other public facilities, etc., only provide advice.
6. Conclusion
In the past, American cities used growth management as a method to curb urban sprawl. Growth management experienced three periods of change. First period of it island use controls, and the second of it began to consider the improvement of the real environment in urban and rural areas. Now, smart growth emphasizes the wisdom of adapting to the environment and economy.It is hoped that smart growth will make urban
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development more balanced and sustainable, and also emphasize the balance between urban and rural areas. We will adapt the challenge of the future through the improvement of traffic, quality of living, and planning of resilience. Examine growth management of the new Spatial Planning Act, adjust only for land use control, and conduct total control of urban and rural development. If it does not focus on coordination and balance among local governments.
There may be problems such as the first period of growth management in American cities, and it cannot achieve its benefits. The effective growth management is not only the application of growth management tools, but also the application of subsequent assessments and related supporting measures. The growth management tools that Taiwan used in the past. For example, the transfer of development rights, the development of impact fees, and the provision of public facilities within the urban planning law should all be considered and integrated in the new Spatial Planning Act. The concept of smart growth must also be incorporated into the consideration of growth management strategies. Taiwan will face the problem of population reduction in the future. How to effectively respond to the future of population reduction is also a question that we should consider. How to use the existing urban space smartly and effectively and protect the natural environment is a problem that we should revisit our new Spatial Planning Act.
In the Spatial Planning Act, a number of relevant sub-methods have been established for the protection of non-urban lands and future urban development as an implementation tool for the future national land planning method, such as development impact fees, national land use funds, national land planning review mechanism, and Licensing, land use control, etc. These future implementation mechanisms are not yet strictly linked to the current growth management strategies regulated by the National Spatial Plan. Growth management should be the strategic goal of urban and rural development in Taiwan as a whole, and it should not become a chapter that exists independently in the national land plan. It is necessary to take growth management as a goal, and to use the implementation tools of the Spatial Planning Act as a supporting measure for achieving growth management so that the national planning method can achieve the goal of growth management.
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