Spatial Planning at the National Level: Comparison of Legal and Strategic Instruments in a Case Study of Belarus, Ukraine, and Poland
Abstract
:1. Introduction
- How do national acts regulate spatial planning issues? What matters do they focus on? What values and objectives are particularly emphasized in the acts?
- Do strategic documents regarding spatial planning occur at the central/national level? If so, what spatial issues do they concern to the greatest extent?
- Specific approaches to the market and above-standard spatial planning conflicts result in the lack of a common response to planning challenges adequate to the needs;
- Special emphasis on the entitlements of property owners in the spatial planning system;
- Incoherent responses to intensive urbanization (including suburbanization).
- The designation of features of spatial planning systems at the national level eligible for thorough comparisons;
- The determination of the differences between countries with similar traditions and approximate geographic locations.
2. Characteristics of the Comparisons of the Studied Countries
- The provision of a broader explanation of the background of the research conducted (as part of the publication cycle);
- Identification of the key issues taken into account when comparing the three countries studied;
- A description of the steps taken to produce comparable results;
- An explanation of key concepts (as a point of reference for further comparisons).
- The statutory specifics regarding spatial planning (determination of the content of the “main” act concerning spatial planning, and the scope of including spatial planning issues in other acts);
- Approach to the objectives and values in acts regarding spatial planning;
- Characteristics of national strategic documents regarding spatial planning (alternatively, other national strategic documents that also concern spatial planning);
- The degree of coherence between the acts and strategic documents;
- The degree of implementation of practical assumptions stipulated in acts and strategic documents.
- The opinion represented by Healey [71] remains an important point of reference. He considered spatial planning as a set of management practices for the development and implementation of strategies, plans, policies, and projects, as well as for the regulation of the location, time, and form of development;
- The role of spatial planning is also to point to the preferred forms of spatial development and the integration of sectoral policies [72];
- Spatial planning constitutes a tool for balancing the needs of society, the economy, and the environment by providing an institutional and technical framework for the management of the territorial dimension of sustainable development [73].
- Strategic documents directly related to spatial planning;
- Strategic documents of a more general nature.
3. Results
- Combining spatial planning law and construction law provides coherence, particularly in the situation of considering spatial plans in a specific investment–construction process;
- Associating spatial planning with specific thematic areas (e.g., urban management) is a step in the right direction. This variant is, however, moderately effective in a situation when legislation does not offer a more comprehensive consequence in the scope of accenting a broader dimension and tasks of spatial planning and in the aspect of institutional inefficiency and doubling competences of various authorities;
- Limiting the “main” spatial planning act only to covering individual levels of planning, with no thorough reference to modern spatial planning challenges, is also insufficient and generates serious spatial problems.
- Individual values, related to the issue of key importance from the perspective of the act;
- Attempts to synthetically present systemic values;
- More detailed characteristics of values subjectively chosen by the legislator, important from the perspective of the spatial planning system.
4. Discussion
- A general evaluation of the laws from the perspective of their relationship and consistency with the “main” planning law be carried out;
- The result of such analyses should be an extended reflection on possible directions for integrated development planning in the respective system;
- A separate request is to refine the way in which key values are included in spatial planning laws and to make them consistent with the content of the strategic document;
- A basic requirement for strategic spatial planning is the introduction of a strategic document dealing with spatial planning at the national level in each system;
- At the same time, it should be ensured that this document does not contain detailed, prescriptive guidelines for selected projects (as is currently the case, for example, in Belarus).
- Detailed verifications of the statutory (national) approach to spatial planning in other European countries (both East-Central and Western Europe);
- Detailed analyses of the roles and contents of strategic documents of spatial planning in other European countries;
- Thorough analyses of the approaches to values of spatial planning in particular acts and strategic documents of selected countries, in addition to the determination of consequences (or lack of consequence) of the approach to the values in the said documents.
5. Conclusions
Author Contributions
Funding
Data Availability Statement
Conflicts of Interest
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Country | Belarus | Ukraine | Poland |
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Synthetic description of the relations between the central government and self-government authorities in the country | The area of the Republic of Belarus is divided into the territory of the capital of the Republic of Belarus and the territories of six regions as administrative–territorial units (oblasts). The territory of each region (oblast) is divided into the territories of districts (rajons) and cities of regional subordination as administrative–territorial units. There are ten cities of regional subordination (of which 5 are regional centers, 3 are centers of districts, as well as Zhodino and Novopolotsk). In the territory of the city, in order to optimally organize the execution of decisions related to the satisfaction of the socio-cultural and everyday needs of citizens, the protection of law and order and the observance of the rule of law, if necessary, is divided into districts in the city, which are territorial units. The territory of the district is divided into the territories of village councils, urban-type settlements and towns of district subordination, which are administrative–territorial units; urban-type settlements are territorial units (if it is the administrative center of the district), and cities of district subordination are territorial units. The territory of the village council includes the territories of urban-type settlements, which are territorial units (if they are not the administrative centers of districts), towns of rural settlements and other territories located within the boundaries of the village council. | The administrative system of Ukraine covers oblasts, regions and hromadas. Additionally, there is the Autonomous Republic of Crimea and 2 cities with a special status—Kyiv and Sevastopol. Practically until the end of the 2010s, the relations between the central government and local authorities were not duly regulated. Particularly at the level of oblasts and regions, partial doubling of functions was observed between elected self-government units and so-called state administrations—specially created territorial authorities reporting to the central authorities or the President of Ukraine. An administrative–territorial system reform of Ukraine commenced in 2014 and was completed in 2020. As a result of that reform, the scope of the authority of hromadas—the smallest administrative units in Ukraine, considerably increased. All these settings contributed to the improvement in the relations between the central and local authorities that gained a structure similar to that in the EU. However, in the period of the current state of war, authority has been centralized for the purpose of improving management of the country for resistance against the armed aggression of Russia. | There are three territorial self-government units in Poland: communes, poviats and voivodeships. The rule is the presumption of the competence of the territorial self-government (particularly communes, the independence of which is regulated in the Constitution of the Republic of Poland). The system in Poland is not undergoing any changes. Nonetheless, individual statutory changes are observed, stipulating the handover of individual competences to the central authorities. This tendency has been particularly noticeable since 2015. |
Country | Belarus | Ukraine | Poland |
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Acts regarding the issue of spatial planning | Act of 5 July 2004 on architectonic, urban planning and construction activity in the Republic of Belarus [74]. Issues concerning spatial planning are addressed in documents regarding environmental protection and nature management, protection of cultural heritage and land management. Numerous documents exist at ministerial levels, focused on individual solutions to territorial issues. | In Ukraine, there are 2 laws regulating the scope of spatial planning. The first one, which has been in existence for a long time (the Law of 16 November 1992 on the foundations of city-building [75]), is at a very general, basic level, and the other, newer, more detailed one (the Law of 17 February 2011 on the regulation of city-building activities [76]) just has a regulating function. Spatial planning is addressed by acts regarding land law, architectonic activity, cultural heritage, protection of the natural environment, nature reserves, landscape protection, protection of architectonic heritage, strategic ecological assessment, spatial data infrastructure and rules of the state regional policy. | Act of 27 March 2003 on spatial planning and spatial management [77]. Spatial planning is addressed in acts regarding environmental and nature protection, environmental impact assessment, protection of historical sites, property management, special categories of investment and energy law. |
Country | Belarus | Ukraine | Poland |
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Chapters of the “main” spatial planning act | Chapters: -general provisions; -general provisions regarding state regulations in the scope of architectonic, urban planning and construction activity; -permit documentation and permits for construction-assembly works; -information and financial support of architectonic, urban planning and construction activity; -state expertise on urban planning, architectonic and construction projects; -control and supervision in the scope of urban planning and construction activity; -urban planning of the development of territories and districts; -territorial division into zones; -pre-project and project documentation; -general provisions regarding construction activity -construction activity; -withholding construction, object conservation; -rights and obligations of building owners and users; -final provisions. | Chapters: -general assumptions; -management in the scope of city building; -territorial planning; -regulation of land development; -final provisions. | Chapters: -general provisions; -spatial planning in a commune; -spatial planning in a voivodeship; -spatial planning at the national level; -location of a public purpose investment and determination of the conditions of development in reference to other investments; -spatial data sets; -transitional and final provisions. |
Key values cited in the “main” spatial planning act | -the rights of natural and legal persons to favorable life environments in the implementation of architectonic, urban planning and construction activities; -maintenance of tangible historical and cultural values and protection of particularly protected environmental areas, environmental areas under special protection and biosphere reserves; -biosphere reserves; -provision of the right of citizens to rest and recreation in suburban areas and green areas of cities with favorable natural therapeutic factors and resources for the organization of disease prevention and treatment, mass recreation and tourism, holiday areas and recreational and tourist areas, the status and boundaries of which are determined in accordance with the legislation; -creating facilities for persons with additional needs: the elderly, persons with musculoskeletal disorders, pregnant women, children of kindergarten age, adults with babies and children in wheelchairs; -creating a complete and aesthetically vivid life environment; -provision of preferential conditions for rural settlements in comparison to cities (per inhabitant) in construction of housing, boarding houses, social and cultural facilities (including educational, cultural and physical culture and sports institutions), organization of health care, commercial objects, gastronomic objects, consumer services for people and transport facilities. | Values included in the act on the basics of building cities: -shaping an environment favorable for human life; -respect for the protection of the natural environment; -rational management of natural areas. | -spatial order; -sustainable development; -architectonic and landscape values; -requirements of environmental protection; -requirements of protection of cultural heritage and historical sites; -requirements of protection of health and safety of people and property; -economic values of space; -property rights; -needs of state defense and national safety; -needs of the public interest; -needs in the scope of development of technical infrastructure. |
Country | Belarus | Ukraine | Poland |
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Characteristics of the strategic document at the national level directly concerning spatial planning | The National Scheme of Complex Territorial Organization of the Republic of Belarus [78] is the main urban planning document. It is a general urban planning project, prepared for the entire territory of the Republic of Belarus, and serves as the basis for preparing regional and local urban projects, sectoral and regional republican programs, engineering development and transport infrastructure schemes and projects, schemes of nature protection and other urban planning documentation. The objective of the National Scheme of Complex Territorial Organization of the Republic of Belarus is to provide territorial planning resources for integrated spatial development of the republic as a whole and as an integral part of the interstate system, as well as to shape a safe and healthy life environment, sustainable development of settlement systems and protection of natural resources and historical and cultural heritage. The national scheme of complex territorial organization of the Republic of Belarus determines the national policy in the scope of resettlements and organization of territories at the republican and regional level in combination with socio-economic objectives of the state and provides coordination of republican and international territorial development and urban planning programs. | National Strategy of Regional Development for the period 2021–2027 [80]. This is a document regarding regional policy, but it is strongly connected to national and regional levels of spatial planning. The document includes the following chapters: “General part”, “Main tendencies and problems of the socio-economic development of regions in the context of state-level factors”, “Regional policy for the period by 2027”, “Mechanism of implementation of the Strategy”, “Monitoring system and assessments of the efficiency of the Strategy implementation”. Moreover, the document includes important supplements such as: “Functional types of areas”, “operational objectives and basic tasks to be achieved for strategic purposes”, “Indices of monitoring of the implementation of the state strategy of regional development for the years 2021–2027”, “Indices of monitoring of achieving objectives of the State Strategy of regional development for the years 2021–2027”. At the national level, the “General Scheme of planning of the territory of Ukraine”, adopted in 2002, also has a function. The document specifies the current state as of 2002, basic parameters of use of the territory of Ukraine and specified stages of implementation of the general scheme. The general scheme concerns the entire territory of Ukraine and includes 27 basic cartograms and text material. All the specified tasks concerned the period up to 2020. | None |
Key values distinguished in the cited document | Shaping a safe and healthy life environment, sustainable development of settlement systems, protection of natural resources and historical and cultural heritage | Coordination of the national policy in different areas, efficiency of use of state resources, constant development of historical municipalities, maintenance of the traditional character of the historical environment, maintenance of the natural environment and sustainable use of natural resources. | None |
Country | Belarus | Ukraine | Poland |
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Other strategic documents at the national level, referring to spatial planning | The project of concept is connected with the State Scheme of the Complex Territorial Organization of the Republic of Belarus [78] and based on a differentiated approach to territories. The project divides the territory of Belarus into six groups: (1) capital city and adjacent areas, regional centers; (2) industrial centers with population over 80,000; (3) industrial regions; (4) agricultural regions; (5) agro-industrial regions; and (6) territories with the highest natural and recreational potential. For each group, incentives for further economic and social development are identified: the lower the level of regional social and economic development, the better the package of privileges it should have. Achievement of the set of goals and objectives laid out by the National Sustainable Development Strategy for the period until 2035 [81] is envisaged by four directions: 1. Comprehensive development and rational placement of productive forces; 2. Development of cities and towns based on “smart” technologies and principles of “green” urban planning with increased efficiency resource use and improved quality of the living environment for the population; 3. Increasing the sustainability of the development of lagging areas and rural areas; 4. Building competencies and self-development of potential territories. | The most important strategic document adopted before the start of the war was “the National economic strategy for the period by 2030” [82]. The document was adopted in 2021. The document includes a separate chapter entitled “Development of spatial planning”, designating the following strategic objectives: -Implementation of a better practice of spatial planning of territories and municipalities based on the objectives of constant development of the UN, with consideration of the rules of participation, inclusiveness, and partnership of all stakeholders; -Securing territorial hromadas with city-building documentation at the local level in the electronic form, prepared based on the concept of integrated development of the territories of hromadas; -Development of the city building system of the cadastre as a geoinformation platform of geospatial data regarding the development of territorial hromadas, in the electronic form and with a visualization service in an accessible form; -Securing the adjustment of sectoral strategies with regional development planning, including spatial planning. Moreover, the strategy emphasizes the urgent need for solving the following problems: obsolescence of spatial planning documentation; incompatibility of its norms; low level of coordination of strategic planning documents at the national, regional, and local level; weak connections between strategic and spatial planning. | The National Strategy of Regional Development 2030 [83] is the basic strategic document of the country’s regional policy in the perspective of 2030. The strategy is a collection of common values and rules of cooperation between the government and self-governments and socio-economic partners for the development of the country and voivodeships. The document specifies a systemic framework of conducting regional policy both by the government towards regions and within regions. The spatial dimension is not directly addressed. This dimension can be found in the objective of increasing the coherence of development of the country in the social, environmental and spatial dimensions. It assumes support with a compensatory character, aimed at overcoming barriers and problems of several types of areas with less favorable development conditions. To shape permanent growth and workplaces, integrated packages of activities will be implemented, focused on the identification and use of resources and potentials of areas threatened with permanent marginalization, medium-sized cities losing socio-economic functions, east Poland, Silesia and degraded areas. Moreover, in functionally related areas, there will be investments filling gaps in infrastructure conditioning the access of their inhabitants have to basic services and goods and providing their inclusion in development processes. |
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Nowak, M.; Pantyley, V.; Blaszke, M.; Fakeyeva, L.; Lozynskyy, R.; Petrisor, A.-I. Spatial Planning at the National Level: Comparison of Legal and Strategic Instruments in a Case Study of Belarus, Ukraine, and Poland. Land 2023, 12, 1364. https://doi.org/10.3390/land12071364
Nowak M, Pantyley V, Blaszke M, Fakeyeva L, Lozynskyy R, Petrisor A-I. Spatial Planning at the National Level: Comparison of Legal and Strategic Instruments in a Case Study of Belarus, Ukraine, and Poland. Land. 2023; 12(7):1364. https://doi.org/10.3390/land12071364
Chicago/Turabian StyleNowak, Maciej, Viktoriya Pantyley, Małgorzata Blaszke, Liudmila Fakeyeva, Roman Lozynskyy, and Alexandru-Ionut Petrisor. 2023. "Spatial Planning at the National Level: Comparison of Legal and Strategic Instruments in a Case Study of Belarus, Ukraine, and Poland" Land 12, no. 7: 1364. https://doi.org/10.3390/land12071364