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The article presents the results of empirical studies, in which 63 minutes of public discussions over drafts of local plans and studies of pre-conditioning and directions of spatial development of communes in the Mazovian Province in the period 2004-2008 were examined. The research hypothesis assuming that carrying out a public discussion over a draft of the plan in a commune has an impact on, among others, the level of organizational culture of the commune office and authorities, that is, motivations and attitudes of members of those bodies, expressed in relation to the inhabitants of a commune and finding their reflection in the objectives of the organization being actually executed, has been verified.
Counteracting the phenomenon of chaotic urbanisation in the suburban areas relies on protection of open terrains, formation of greenery areas and intensification of development in the areas assigned for construction. The communes of Lesznowola and Michałowice that border with Warsaw in the south-western part of the outer zone of the Metropolis Area of Warsaw undergo particularly strong urban pressure. The analysis of the planning documents in both of the communes shows that there are significant differences in the ways the local self-governments handle the issues of spatial planning and management. The commune of Lesznowola (area of 6917 ha, population of 21 469 in 2011) adopted the policy of expansive urbanisation of agricultural areas. It is to be emphasized that the strategy of development and the study of conditions and directions do not sufficiently recognize the phenomena and processes that have impact on spatial management. The problems that require solution with reference to public interest were not identified. The diagnostic section of the study of conditions and directions does not contain any demographic forecast in options (estimated population of 33.9 thousand in 2020). There is no reference to the state and changes in the way areas are used and developed (virtually and according to the plans). No area needs were specified with regard to the financing of infrastructure and balancing the real estate market. Defects of the concept section of the study of conditions and directions include the non-existent vision of the commune management, lack of division into structural units, excessive flexibility of decisions, no public areas designated, no balance of areas and staging of development. 90 per cent of the commune area is covered with local plans. 3033.65 ha were assigned for build-up [A. Olbrysz, 2011]. Most of the plans were prepared in order to change the function of the covered areas from agricultural to construction plots. In general, these plans do not sufficiently regulate the way of managing and developing the areas giving the investors too much freedom. Most of the areas were assigned for residential detached houses. There are no areas for public services, arranged greenery, public squares. The commune of Michałowice (area of 3488 ha, population of 11934 in 2011) runs a more rational spatial policy. Its study of conditions and directions contains requirements of spatial management resulting from demographic development (in 2020 population of 18.3 thousand in the first option and 22.0 thousand in the second option), up-to-date function, development of infrastructure, state of spatial organization and the requirements connected with its protection, needs and opportunities of commune development. The concept of spatial management contains the idea of complementary development of the areas that are already designated as construction areas, necessity of limiting build-up and development of new areas because of the cost of infrastructure construction (especially purchase of land for roads and the necessity of creating land reserves for further development. There is a balance of areas according to the adopted policy and demographic absorption of areas. In the study of conditions and directions 2017 ha was assigned for construction including 1427 ha for residential purposes. Local land management plans cover 50 per cent of the commune. Just like in Lesznowola, most of the areas are assigned for detached houses with services. Areas for public services were assigned and the kinds of these services were specified. Areas for arranged and non-arranged greenery were designated, and in 2 villages (Reguły and Komorów) public squares were planned. The excessive and uncontrolled urbanisation of the commune of Lesznowola has caused its financial problems. The cost of land purchase for roads, as specified in the local land management plans, is estimated for ca. 597.5 million PLN [A. Olbrysz, 2011]. Lesznowola is one of the fifty most indebted communes in Poland [K. Kluza, 2013].
As a result of the research performed in 2013-2014 the following conclusions were defined: 1) Taking into consideration the situation in Poland – escalating phenomenon of uncontrolled suburbanisation, there are necessary changes of legal basis for the preparation of planning documents. It is important to introduce provisions relating to the study and a local spatial deve lopment plan included in the draft of the Urban and Building Code, and first of all: – dividing the community into three area categories (developed, with limited development, real estate development) and areas of use, – taking into account the development conditions resulting from the development needs of the community (determined on the basis of demographic, social and economic forecasts and the ability to complete the development in a built-up area, equipped with technical infrastructure), – development of the financial implications forecasts of the study findings, – obligation to prepare local plans for development lands, designated in the study, – determining in the local spatial development plan green areas, squares, the scope of basic services, and the availability within the residential areas. 2) The new Regulation to the Act on planning and spatial development should define not only the scope of the study project, but also the ways and methods for developing its essential elements, including: criteria and principles of the division of the community, types of indicators of land development and way of their determination, way of preparing the balance of areas, estimation method for investment absorbency of lands for various purposes, method of forecasting the financial consequences of the adoption of the study. 3) It is necessary to conduct a professional analysis and evaluation of changes in the spatial development of communities, especially in suburban areas under the pressures of urbanisation. The adjustment of the spatial policy determined in the study of conditions and directions of spatial development requires: – preparing of urban development programmes, taking into account many factors, resulting from demographic, social and economic forecasts, – balance of areas intended for urbanisation in terms of investment and demographic capacity and infrastructure needs, – preparing of the financial implications forecasts of the study findings, – creating of a strategy of spatial development of the community. 4) It is necessary to control the studies of conditions and directions of spatial development of communities and local spatial development plans not only from the point of view of the law, but also in terms of the content. 5) There is a need to prepare a new handbook for local governments and planners, indicating the approach to develop the study of conditions and directions of spatial development and the local plan. During the implementation of the research task at the former Ministry of Infrastructure and Development there were works ongoing not only on the draft of the Urban and Building Code, but also on the amendment of the Act of 27 March 2003 on planning and spatial development and on the draft of Act on revitalisation. In October 2015 the Parliament passed the Act of 9 October 2015 on revitalisation. Chapter 6 of the Act on revitalisation include changes in the regulations in force, including the Act on planning and spatial development. The communities are obliged to determine – in the study of conditions and directions of spatial development – the needs and possibilities of their development taking into account in particular: analysis of economic, environmental and social situation, demographic projections, funding possibilities for communication network, technical and social infrastructure, and balance sheet of lands earmarked for development. The procedure for making a balance of areas was established. In addition, principles of locating new buildings were determined. For planners of local spatial development plans an obligation to justify the adopted solutions in the areas of new buildings was imposed. At the end of 2015 the Parliament passed as Act of 9 October 2015 on metropolitan relationships. In accordance with the provisions of this Act, the metropolitan union draws up a framework study of conditions and directions of spatial development for the metropolitan area, which specifies, among others, “maximum areas earmarked for development, along with the division into types of building and the communities”. In determining the arrangements the needs and possibilities for development of the metropolitan area are taken into account in the same way as in the study of conditions and directions of spatial development of the community.
Koncepcja prawa do miasta ma na celu stworzenie podstaw do aktywnej partycypacji mieszkańców miast w planowaniu przestrzennym. Udział społeczeństwa w kształtowaniu przestrzeni miejskiej powinien mieć charakter rzeczywisty, a nie tylko formalny. Zadaniem autorów jest przedstawienie koncepcji prawa do miasta i jej postulatów dotyczących kształtowania przestrzeni. W artykule poddano analizie obowiązujące normy prawne dotyczące planowania przestrzennego. Podjęto również próbę ustalenia, czy przepisy ustawy o planowaniu i zagospodarowaniu przestrzennym z 2003 roku zapewniają możliwość aktywnej partycypacji mieszkańców w podejmowaniu decyzji. W ocenie autorów obecnie obowiązujące przepisy przewidują możliwość partycypacji mieszkańców w procesie planowania przestrzennego, nie gwarantując jednocześnie, że rzeczywista wola mieszkańców w procesie planowania zostanie zrealizowana. Nic nie stoi jednak na przeszkodzie, aby władze miejskie zwiększyły realny wpływ lokalnej społeczności na uchwalane plany miejscowe, studium uwarunkowań i kierunków zagospodarowania przestrzennego oraz decyzje o warunkach zabudowy.
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