Prace planistyczne a konflikty przestrzenne w gminach: = Planning works and spatial conflicts in communes
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| Series: | Studia / Polska Akademia Nauk, Komitet Przestrzennego Zagospodarowania Kraju
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| 245 | 1 | 0 | |a Prace planistyczne a konflikty przestrzenne w gminach |b = Planning works and spatial conflicts in communes |c pod red. Przemysława Śleszyńskiego i Jerzego Solona ; Polska Akademia Nauk, Komitet Przestrzennego Zagospoadarowania Kraju |
| 246 | 1 | 1 | |a Planning works and spatial conflicts in communes |
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ABSTRACT
Planning
Works
and Spatial Conflicts in Communes. This publication is a thoroughly
revised version of the study from autumn
2008
carried out for the Ministry of Infrastructure
within the framework of the annually published editions of the Report on the state and
conditions of planning works in communes.
These analyses are co-ordinated by the Institute of Geography and Spatial Organization
of the Polish Academy of Sciences (which takes care of the factual accuracy), with the main
source materials being the annually presented results of the studies, conducted in the com¬
munes by the Ministry of Infrastructure and the Central Statistical Office, under the official
statistics survey program
.
The data that are being obtained are concerned with the progress in
planning works at the communes' level in terms of a number and structure of the content of key
planning documents: studies concerning the conditions and directions of spatial development,
local development plans as well as location proposals and permissions (as regards the
establishing the location of public investment and development conditions). Thus, the existing
data allow an assessment of the planning coverage and progress of planning works.
In the presented study, the statistical material has been extended to include own
questionnaire surveys (meant to provide additional information related primarily to the
subject matter of spatial conflicts), conducted in
52
purposefully selected commune offices
and in
28
county districts as well as those obtained from the majority of the managerial boards
of the national and landscape parks.
Against this backdrop, the main targets (objectives) of the presented studies have been
formulated as follows:
•
To obtain the structured information on the progress of planning works in the communes
according to the latest available data (end of
2007);
including the comparison of the
changes that have occurred in recent years in the communes as regards the state of
planning works in the areas with distinct characteristics.
•
To analyze the coverage by local plans and the location permissions in terms of the
co-occurring of these documents in the areas with different functional characteristics
(transport corridors, metropolitan areas, etc.). In other words, to examine to what extent
the building development processes take advantage of local development plans, and to
what extent not (they are based on the location administrative decisions). This concerns
also the communes in which the coverage by local development plans is not complete.
•
To thoroughly analyze and explain the important determinants of functional areas
(transportation's corridors, metropolitan areas, etc.) from the point of view of the existence
of protected natural areas, which generate the greatest number of spatial conflicts within
their limits as well as in their close vicinity.
To identify the structure of the building development processes in respect of investing the
resources in the particular areas with varying degree of local planning coverage.
6
The study has shown the complexity of conditions associated both with the causes of
spatial conflicts and, generally, with the shaping of the spatial order in the communes with
varying degree of progress in planning works. First, these analyses allow drawing conclusions
with respect to the studies on conditions and directions of spatial development. As regards
their findings, there remains a whole range of predictions as to the extent of area intended to
be covered with local plans as well as to the order of these works, with an average planning
coverage rate estimated to be at around
30%
of the total country's area, which must be regarded
as an insufficient value. No relationship with the functional characteristics and geographical
location has been found. Therefore it can be concluded that the local governments shape their
spatial policy rather arbitrarily, being uninfluenced by factors associated with the intensity of
use in their attempts to forecast the necessary level of coverage by local plans.
It is still valid to recommend that there should be legal solutions that would assign
the top priority to planning works in the communes marked by a high intensity of use, such
as the major urban centers along with their suburban areas, and the intensively developed
transportation's corridors.
In the case of local development plans, the average percentage of coverage, as of the end
of
2007,
was
24.2%
of the total country's area (as of
2006 - 22.0%
and
2005 - 19.7%).
The fact that the rate value has increased, to a largest extent, in the cities/towns with
municipal county rights can be viewed as a positive development (as of
2007 - 31.7%; 2005
- 21.2%; 2006 - 27.8%).
However, the areas of Poland are still insufficiently covered with
local development
pîans.
So, the situation in this respect continues to be unsatisfactory,
despite reaching or even exceeding, in the certain categories of communes, the planned level
of coverage by local plans, because the target level had been set too low in many cases. A lack
of the properly structured planning situation is directly responsible for the existing chaos in
spatial planning and for the evident investment problems.
Similarly, as regards the case studies for the communes, there is a lack of logical
prioritization in adopting local plans. That liberty also has an effect on the contents of the
plans in terms of area intended for the different types of utilization, such as, for example,
housing construction. Due to the significance of the problem, it would be advisable to carry
out further in-depth studies.
Also, in the case of local plans, there exists a wide variety in the planning coverage
for different regions of Poland. It seems that the best rates of planning coverage tend to be
in the voivodships in which there was a determination to organize the planning situation
properly, because there is no visible regularity in terms of socio-economic characteristics.
The
Lubelskie
Voivodship appears to be a good example: after the Law on Spatial Planning of
1994
came into force, its local governments enacted a large number of local development plans
for the whole areas of its communes.
But the most disturbing fact is that for the second consecutive year, a slowdown occurred
in terms of dynamics of preparing the new local plans. In
2007,
across the whole country a
decrease was noted for the areas covered by local plans to the level of
6.3%
of the communes'
areas (in the previous year a decrease was from
8.8%
to
6.7%).
The conditions and progress in planning works are different according to the
functional type of communes. Clearly, the largest settlement units (i.e. metropolises and
other voivodship capitals) stand out in this respect, since these centers are faced with the
massive investments.
Detailed questionnaire surveys in selected categories of communes have shown that a
Jack of properly organized planning situation is often an important direct cause of many spa¬
tial conflicts. The most serious conflicts occur within the protected areas in association with
the conservation issues, as well as are related to housing and transport development.
In the case of location administrative decisions as well as changes in the land use and in¬
vestment flow, a significant increase in the dynamics of investments can be noted in the fastest
growing areas, especially in the major urban agglomerations, i.e. the so-called Big Five (War¬
saw,
Gdańsk, Poznań,
Wroclaw, Cracow). A considerable number of applications submitted
is clearly not so much the result of lack of local plans as rather of insufficient coverage of the
communes area by local development plans. Thus, it is worth considering how to encourage
the communes that undergo intensive development and dynamic transformations to properly
sort out the planning situation across their whole area.
However, an insignificant but alarming regularity was discovered between the planning
coverage for the areas and the number of submitted applications concerning the establishment
of conditions for building-up and developing the area for an investment. This indicates that the
planning works in the first place do not necessarily relate to the areas facing the largest investment
pressure. All the more so the proposal presented in the previous Reports, regarding the necessity
for putting forward the legislative solution that would solve the problem of prioritization in adopt¬
ing the local plans according to the intensity of use, should be given a serious re-consideration.
Mobilizing the resources from the European Union funds, especially in these com¬
munes that have an agricultural function, had only temporary effect on increasing the invest¬
ment pressure. Since, as regards local plans, there was no significant increase in conversion of
land for non-agricultural purposes.
There continued to be a high investment pressure faced in the regional second-order
centers, usually in cities with a population between
100,000
to
200,000
residents. That fact
also needs attention at the voivodship level of planning. The intensity of changes in land-use
for non-agricultural purposes and the number of applications submitted for location and build¬
ing permissions are generally good indicators of functional transformations and the dynamics
of investments, being a result of the socio-economic development, and as such should be ap¬
plied in the evaluation of process taking place in the country's spatial planning development,
e.g. the development of suburban areas (including the phenomenon of urban sprawl
-
i.e.
sprawling which means a chaotic spreading of a build-up).
The detailed empirical studies indicate that there is no desirable target regularity be¬
tween the intensity of the investment process and planning coverage. Although the changes
that take place help to improve the situation, but they are going on too slow in relation to the
needs and only to a little extent can counteract spatial degradation.
At the local level, there is no coherent and comprehensive system of monitoring the
investment processes, including the conversion of space. Local governments, generally, do not
colled and analyze even such basic information as the number and structure of issued (by the
county districts) building permits. This is a serious obstruction in the assessment of the actual
processes and greatest risks following from spatial development. Quite often the collected data
are disparate from those data being at disposal of the county district offices (including either
their overall number, or year of issuing a decision, or the plot size, etc.).
In terms of spatial conflicts in areas with different functional specificity, the conducted
questionnaire surveys and studies have shown a very wide variety of conflicts, primarily
8
between the functions related to the environmental protection, housing development, tourism
and transport. The co-existence of conflicts between more than two functions seems to be a
typical characteristic. These phenomena are worthy of illustrating with the help of a map, made
for the purpose of the new Policy of Spatial Development of Poland
2008-2033
(Fig.
6.1).
It has been confirmed that there exists a high degree of concentration of spatial conflicts in
the areas surrounding large and medium-sized urban centers as well as in the areas characterized
by rapid growth of tourism function. Particularly problematic are those areas in which the
settlement, transport or tourism functions interfere with the functions relating to natural
environment protection (buffer zones of national parks, landscape parks and protected landscape
areas, the
Natura
2000
areas). In these places, the most serious conflicts frequently occur.
The most important problems, identified through questionnaire surveys and through
analyses of conditions and causes of various types of spatial conflicts, are listed as follows:
•
years of neglect in spatial planning, the consequence of which is the lack of a properly
structured planning situation, in combination with a growing competition for space
between the socio-economic and natural environment protection functions;
•
limited human resources and institutional capabilities for predicting spatial conflicts
at the
locai
government level; often occurring ill-judged and shortsighted permissions
concerning the establishment of conditions for building-up, not rarely incompatible with
the study concerning conditions and directions of spatial development, as well as the
ones granted under the pressure from investors; in the floodplains, an additional negative
consequence of hastily given permissions concerning the establishment of conditions for
building-up can be dramatic effects of potential floods;
•
significant differences between the pressured areas with a high demand on the land
(e.g. suburban areas, transport corridors) and the location envisaged for development in
the prepared local plans (in extreme cases, which, unfortunately, are not uncommon),
deliberate avoidance of planning works in the areas of conflict);
•
frequently occurring inconsistency, lack of precision and cohesion found in the law
regulations relating to spatial planning and natural environment protection, including the
introduction of the new regulations associated with the
Natura
2000
areas, the serious
loopholes in the law that permit substantial latitude in interpretation by different actors;
•
the statutory cancellations of old local development plans (in
2003),
which had a negative
impact on the keeping of reserves of land for transport investments in local transport
(at national and voivedship levels), as well as on restricting the capacity to control
suburbanization and to prevent from the encroachment of tourism into the environmentally
valuable sites;
•
lack of reserves of lands intended for the necessary infrastructure as regards these
communes with a significant share of area covered by local development plans and, at the
same time, being under pressure from urbanization;
•
as regards the communes located in the particularly valuable
naturai
areas, only half of
them are in the satisfactory situation, whereas
6
communes find themselves in a pretty
bad state; this disturbing situation leads to many conflicts, and the outcome of which
may be disturbances in spatial order, irrevocable destruction of landscape assets and
its characteristic features; and, in many cases, it obstructs the capacity for the rational
management of natural resources and negatively affects the ability to protect biodiversity;
as far as the national parks are concerned, almost all the communes related to them have
the worst
situation,
in the main these are parks like:
Wielkopolski, Kampinoski, Wigierski;
a very bad state of affairs is noted in some communes related to parks such as: Biebrzanski,
Świętokrzyski, Roztoczański
and
Słowiński;
cancellation, in
2003,
of "old" spatial development plans had, as mentioned above, the
negative
impaci
on keeping the reserves of lands for transport investments (at the national
and voivodship levels) as well as on restricting the capacity to control suburbanization
and to prevent from the encroachment of tourism into the environmentally valuable sites.
Lack of local development plans in the areas where massive transportation investments are
envisaged constitutes a threat to the efficient use of the European Union funds by Poland,
in the financial period
2007-2013.
Spis treści
Contents
Abstract
. 6
1.
WPROWADZENIE
(P.
Śleszyński,
У.
Solon)
. 11
Introduction
2.
ANALIZA POKRYCIA PLANISTYCZNEGO W KRAJU (P. Śleszyński)
. 17
Analysis of Poland's planning coverage
2.1.
Studia uwarunkowań i kierunków zagospodarowania przestrzennego
(studia gminne)
.,,.,. 17
Studies of conditions and directions of spatial development (communes studies)
2.1.1.
Posiadane dokumenty przez gminy
. 17
Documents at the disposal of communes
2.1.2.
Wskazania studiów gminnych
do
objęcia planami miejscowymi
. 18
Recommendations following
f
rom
communes studies
that
concern
the surface area intended for covering by local plans
2.1.3.
Tereny przewidziane pod funkcje mieszkaniowe
. 19
The lands provided for housing
f
unctions
2.1.4.
Pozostałe tereny o przewidywanych lub możliwych zmianach
w użytkowaniu
. 20
Other lands with expected or possible changes in their use
2.2.
Obowiązujące plany miejscowe
. 21
Local development plans currently in force
2.2.1.
Liczba i powierzchnia planów
. 21
Number and the area of plans
2.2.2.
Tereny przeznaczone pod zabudowę mieszkaniową
. 27
Lands intended for housing junctions
2.2.3.
Zmiany przeznaczenia terenów
. 28
Changes in the use of land
2.3.
Plany miejscowe w trakcie sporządzania
. 30
Local plans currently in the process of drawing up
2.4.
Administracyjne decyzje lokalizacyjne
. 33
Administrativě
location
decisions
2.4.1.
Decyzje o ustaleniu lokalizacji inwestycji celu publicznego
. 33
Decisions to determine the location of a public investment
2.4.2.
Decyzje o ustaleniu warunków zabudowy
. 34
Decisions to establish conditions for development
2.5.
Wnioski
. 36
Conclusions
3.
POKRYCIE PLANISTYCZNE A RUCH INWESTYCYJNY
(T. Komomicki, M. Wiechowski, P. Śleszyński)
. 40
Planning coverage versus investment movement
3.1.
Zaawansowanie prac planistycznych według kategorii funkcjonalnych gmin
. 40
Progress of planning works according to communes' functional categories
3.1.1.
Uwagi metodologiczne.
40
Methodological notes
3.1.2.
Plany obowiązujące i projektowane
. 43
Plans currently in force and in the process of drawing up
3.1.3.
Zakres odrolnień przewidzianych w planach miejscowych
. 48
Scope of lands for non-agricultural purposes provided for in local
development plans
3.1.4.
Decyzje lokalizacyjne.
50
Administrative location decisions
3.2.
Analiza wspólwystępowania pokrycia planistycznego i decyzji lokalizacyjnych
ogółem oraz w podziale na kategorie gmin
. 53
Analysis of co-occurrence of planning coverage and administrative location
decision, in total and according to communes
'
categories
3.3.
Pozwolenia na budowę a zaawansowanie prac planistycznych
. 59
Building permissions and progress of planning works
3.4.
Pokrycie planistyczne a ruch inwestycyjny w wybranych gminach
. 65
Planning coverage and investment activity in selected communes
3.5.
Wnioski
. 70
Conclusions
4.
SYTUACJA PLANISTYCZNA NA OBSZARACH PARKÓW NARODOWYCH
I PARKÓW KRAJOBRAZOWYCH (J.
Sohn). 73
Planning situation in the valuable natural areas
4.1.
Wprowadzenie
. 73
Introduction
4.2.
Stan
i potrzeby planistyczne w gminach związanych z parkami narodowymi
----- 74
Current state and needs as regards planning in the communes related
to national parks
4.2.1.
Uwarunkowania formalnoprawne.
74
Formal and legal conditions
A.I.I. Stan
i konsekwencje sytuacji planistycznej w odniesieniu do obszarów
parków narodowych i ich otulin
. 75
Planning situation and its consequences for national parks and their
buffer zones
4.2.3.
Stan
planowania przestrzennego w gminach związanych z parkami
narodowymi i otulinami parków
. 80
Progress of planning works in communes related to national parks
and their buffer zones
4.2.4.
Ogólna ocena stanu zaawansowania prac planistycznych w gminach
związanych z parkami narodowymi
. 83
General
assessment of progress in planning works in communes related
to national parks
4.3.
Potrzeby planistyczne w parkach krajobrazowych
. 84
Planning needs in landscape parks
4.4.
Wnioski
. 87
Conclusions
5.
KONFLIKTY PRZESTRZENNE W WYBRANYCH GMINACH
(M.
Bednarek-Szczepańska,
M.
Więckowski,
T. Komornickï)
. 90
SPATIAL
CONFLICTS IN SELECTED COMMUNES
5.1.
Wstęp: cele, metoda badania, dane źródłowe
. 90
Introduction: aims, research methods and data sources
5.2.
Konflikty przestrzenne związane z osadnictwem
. 95
Spatial conflicts related to the function of housing and settlement
5.2.1.
Konflikty związane z ochroną przyrody
. 95
Conflicts related to nature conservation
5.2.2.
Konflikty związane z funkcją transportową
. 102
Conflicts related to the transport function
5.2.3.
Pozostałe konflikty .
103
Other conflicts
5.3.
Konflikty przestrzenne związane z transportem
. 105
Spatial conflicts related to transport
5.4.
Konflikty przestrzenne związane z turystyką
. 110
Spatial conflicts related to tourism
5.5.
Podsumowanie
. 118
Summary
6.
DYSKUSJA WYNIKÓW I WNIOSKI
(P.
Śleszyński,
J.
Solon,
M.
Bednarek-Szczepańska,
T.
Komornìckì,
M.
Więckowski)
. . 121
DISCUSSION
OF RESULTS, CONCLUSIONS
Literatura
. 127
References
Załącznik
1 -
Studia przypadków (wybrane gminy)
(M.
Bednarek-Szczepańska,
R.
Wiśniewski,
B. Szejgiec, J.
Niedźwiecki)
. 130
Annex I ~ Case studies (chosen gminas)
Załącznik
2 -
Mapy wskaźnikowe stanu zaawansowania prac planistycznych
w gminach na koniec
2007
r. (P.
Śleszyński)
. 178
Annex
2
~
Indicator maps of planning progress in communes at the end of
2007
Załącznik
3 -
Ankieta.
194
Annex
-
Questionnaire
Informacje o Autorach
. 202
Notes on Authors |
| any_adam_object | 1 |
| author_GND | (DE-588)122091763X |
| building | Verbundindex |
| bvnumber | BV037258406 |
| ctrlnum | (OCoLC)711842409 (DE-599)BVBBV037258406 |
| edition | Wyd. 1. |
| format | Book |
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| geographic | Polen (DE-588)4046496-9 gnd |
| geographic_facet | Polen |
| id | DE-604.BV037258406 |
| illustrated | Illustrated |
| indexdate | 2024-07-20T04:52:35Z |
| institution | BVB |
| language | Polish |
| oai_aleph_id | oai:aleph.bib-bvb.de:BVB01-021171585 |
| oclc_num | 711842409 |
| open_access_boolean | |
| owner | DE-12 |
| owner_facet | DE-12 |
| physical | 202 s. il. (w tym kolor.). - Kt. 25 cm. |
| publishDate | 2010 |
| publishDateSearch | 2010 |
| publishDateSort | 2010 |
| publisher | Komitet Przestrzennego Zagospodarowania Kraju PAN |
| record_format | marc |
| series2 | Studia / Polska Akademia Nauk, Komitet Przestrzennego Zagospodarowania Kraju |
| spelling | Prace planistyczne a konflikty przestrzenne w gminach = Planning works and spatial conflicts in communes pod red. Przemysława Śleszyńskiego i Jerzego Solona ; Polska Akademia Nauk, Komitet Przestrzennego Zagospoadarowania Kraju Planning works and spatial conflicts in communes Wyd. 1. Warszawa Komitet Przestrzennego Zagospodarowania Kraju PAN 2010 202 s. il. (w tym kolor.). - Kt. 25 cm. txt rdacontent n rdamedia nc rdacarrier Studia / Polska Akademia Nauk, Komitet Przestrzennego Zagospodarowania Kraju 130 Zsfassung in engl. Sprache Entwicklungsplanung (DE-588)4070873-1 gnd rswk-swf Gemeinde (DE-588)4019956-3 gnd rswk-swf Polen (DE-588)4046496-9 gnd rswk-swf Polen (DE-588)4046496-9 g Gemeinde (DE-588)4019956-3 s Entwicklungsplanung (DE-588)4070873-1 s DE-604 Śleszyński, Przemysław 1973- Sonstige (DE-588)122091763X oth Polska Akademia Nauk, Komitet Przestrzennego Zagospodarowania Kraju Studia 130 (DE-604)BV000017117 130 Digitalisierung BSB Muenchen 2 application/pdf http://bvbr.bib-bvb.de:8991/F?func=service&doc_library=BVB01&local_base=BVB01&doc_number=021171585&sequence=000003&line_number=0001&func_code=DB_RECORDS&service_type=MEDIA Abstract Digitalisierung BSB Muenchen 2 application/pdf http://bvbr.bib-bvb.de:8991/F?func=service&doc_library=BVB01&local_base=BVB01&doc_number=021171585&sequence=000004&line_number=0002&func_code=DB_RECORDS&service_type=MEDIA Inhaltsverzeichnis |
| spellingShingle | Prace planistyczne a konflikty przestrzenne w gminach = Planning works and spatial conflicts in communes Entwicklungsplanung (DE-588)4070873-1 gnd Gemeinde (DE-588)4019956-3 gnd |
| subject_GND | (DE-588)4070873-1 (DE-588)4019956-3 (DE-588)4046496-9 |
| title | Prace planistyczne a konflikty przestrzenne w gminach = Planning works and spatial conflicts in communes |
| title_alt | Planning works and spatial conflicts in communes |
| title_auth | Prace planistyczne a konflikty przestrzenne w gminach = Planning works and spatial conflicts in communes |
| title_exact_search | Prace planistyczne a konflikty przestrzenne w gminach = Planning works and spatial conflicts in communes |
| title_full | Prace planistyczne a konflikty przestrzenne w gminach = Planning works and spatial conflicts in communes pod red. Przemysława Śleszyńskiego i Jerzego Solona ; Polska Akademia Nauk, Komitet Przestrzennego Zagospoadarowania Kraju |
| title_fullStr | Prace planistyczne a konflikty przestrzenne w gminach = Planning works and spatial conflicts in communes pod red. Przemysława Śleszyńskiego i Jerzego Solona ; Polska Akademia Nauk, Komitet Przestrzennego Zagospoadarowania Kraju |
| title_full_unstemmed | Prace planistyczne a konflikty przestrzenne w gminach = Planning works and spatial conflicts in communes pod red. Przemysława Śleszyńskiego i Jerzego Solona ; Polska Akademia Nauk, Komitet Przestrzennego Zagospoadarowania Kraju |
| title_short | Prace planistyczne a konflikty przestrzenne w gminach |
| title_sort | prace planistyczne a konflikty przestrzenne w gminach planning works and spatial conflicts in communes |
| title_sub | = Planning works and spatial conflicts in communes |
| topic | Entwicklungsplanung (DE-588)4070873-1 gnd Gemeinde (DE-588)4019956-3 gnd |
| topic_facet | Entwicklungsplanung Gemeinde Polen |
| url | http://bvbr.bib-bvb.de:8991/F?func=service&doc_library=BVB01&local_base=BVB01&doc_number=021171585&sequence=000003&line_number=0001&func_code=DB_RECORDS&service_type=MEDIA http://bvbr.bib-bvb.de:8991/F?func=service&doc_library=BVB01&local_base=BVB01&doc_number=021171585&sequence=000004&line_number=0002&func_code=DB_RECORDS&service_type=MEDIA |
| volume_link | (DE-604)BV000017117 |
| work_keys_str_mv | AT sleszynskiprzemysław praceplanistyczneakonfliktyprzestrzennewgminachplanningworksandspatialconflictsincommunes AT sleszynskiprzemysław planningworksandspatialconflictsincommunes |