InterMETREX Workshop /

Transcription

1 InterMETREX Workshop / Metropolitan Study Area The Helsinki metropolitan area for the purposes of this project is defined as part of the new Uusimaa County together with the western perimeter of the adjoining County of East-Uusimaa, which approximately forms a 50 kilometre circumference around the city of Helsinki. Map of the Area "Journey to work" commuting catchment area (percentages) 1 (9)

2 1 National Spatial Plan availability A National Spatial Plan or higher tier plan B Long term sectoral programmes C Topic policy guidelines Legislative body The new Land-use Planning and Building Act was introduced at the beginning of 2000 in Finland. The previous legislation dated from The Act enables Finland to establish at the national level a set of broad-brush objectives that creates the setting for regional planning. Regional land-use plans contain a general plan for land-use for the entire region. National land-use objectives are decided upon by the Council of State and may concern matters which have international or more extensive than a regional bearing on the regional structure, land-use, or the transport or power network. Additionally, these national objectives also impact on national cultural or major natural heritage issues, ecological matters, sustainability, the economy of the region, and avoidance of environmental hazards. The issuing of national objectives must support and be taken into account for the purposes of regional landuse planning. The competent Ministry and authorities must ensure that the objectives are promoted in the implementation of such objectives and assess the impact of their actions on the local structure and land-use planning as well as ensuring that the stated objectives are reflected within their own areas. These national objectives define regional plans and in doing so, are adapted to take into account the regional and local land-use objectives. They influence the guiding principles of land-use and community structure, and also designate planning of the region's municipalities. The implementation of the goals supports amongst others, regional plans, regional programmes and municipal economic guidelines. The year 2000 saw the Council of State's first list of national objectives being similar in vein to the content and weighting placed on the ESDP criteria. In respect of the Helsinki Metropolitan area, regional issues as a reflection of national policy are naturally, the exception rather than the rule because of the significance of the whole area to the country's development as a whole. The resolutions impact particularly on ecological sustainability and the regional structure but also define the entire country's international competitiveness. Hence, the national objectives singularly take account of the particular needs of the Helsinki region and recognise the region's significance by establishing additional policies relating to the main region of Finland. It should also be noted that one of the key aspects of the new legislation refers to greater powers being given to the municipalities in terms of planning in general, especially in the preparation of detailed plans, as well as placing a clear emphasis on greater importance attached to public participation at all levels of the planning process. In addition, the formal objection process for plans transfers to the Administrative Courts. Regional plans provide clear guidelines for land-use planning and whilst they are used in the drawing up and amending of master plans and detailed plans, neither of them are made at the regional level. It is the responsibility of the municipality to determine such plans, although some national sector plans are made at the State level, such as infrastructural development, or traffic and transport initiatives. 2 Integrated Regional Strategies A Integrated Regional Strategy agreed by all stakeholders B Formally agreed mutually supportive action by key stakeholders C Co-ordinated mutually agreed action by key stakeholders Although regionally any separate development strategy takes account of the social and economic issues affecting the region, within land-use planning they tend to be dealt with in a more functional analysis rather than a totally integrated approach. It is more appropriate for these issues to be dealt with the development plan (master plan) level in the municipalities. The latter public authorities prepare detailed public participation forums to impact on the decision-making process. Strategic decision-making at the regional level is harmonised with the land-use details contained in the plan and of areas adjacent to the land it covers. 2 (9)

3 The regional plan is approved by the Regional Council, and ratified by the Minister for the Environment, in that it becomes a legally binding, statutory plan, with the exception that it is not valid in areas where a legally binding master plan or detailed plan is in force. This translated into practice that each of the higher level plans need to govern the next stage, as well as the lower plan having to be in agreement with the higher plan. The Regional Council ensures that the regional plan steers other land use planning and oversees the implementation of the regional development programme. The regional plan also takes account of building restrictions in force. The regional plan is not integrated with the overall detailed strategies of the municipalities, as the latter are very autonomous by nature. Where a building restriction is in force, a building permit may not be granted if it hinders the implementation of the regional plan. The regional plan guides the spatial land-use planning for the entire area, and is statutory. When preparing the plan, the following issues are considered highly relevant:- 1) appropriate regional and community structure of the region 2) ecological sustainability of land-use 3) environmentally and economically sustainable arrangement of transport and technical services 4) sustainable use of water and extractable land resources 5) operating conditions for the region's businesses 6) protection of landscape, natural values and cultural heritage, and 7) sufficient availability of areas suitable for recreation 3 The status of the metropolitan planning body A Single legal authority B Joint formal planning mechanism C Advisory body In strict terms of administrative control, the area under the authority of the Helsinki Regional Council's does not actually correspond in practice to the idea of a metropolitan core-area. The YTV (Helsinki Metropolitan Area Council) is an informal partnership of the key surrounding authorities immediately adjacent to the capital Helsinki, namely, Espoo, Vantaa, and Kauniainen, but the area concerned is too narrow. On the other hand, the new Uusimaa Regional Council covers far too great an area, extending to the far south-west of Finland to be considered an appropriate for the Metropolitan region. This also undermines the Uusimaa's TE Centre information gathering, as they handle business opportunities and development in the region. The wider Metropolitan area is also divided between two regional authorities, the major one being Uusimaa, which covers the main Helsinki area and all the municipalities to the west and north of Helsinki, and East- Uusimmaa, which extends close to the east of the capital city. Both Regional Councils administer their own regional plan and strategy. The Regional Councils have the responsibility of drawing up the regional plans and it is the Council, composed of the elected politicians from each of the region's municipalities, that have the decision-making powers. 4 The formal scope of the planning authority(ies) A Spatial planning covering social, economic, transportation and environmental functions B Land use and transportation C Land use only Regional plans are long-term statutory plans. The regional plan guides land-use planning and the regional development plan programme. The content of the development plan must include the implications on policy matters for social, economic, traffic, environmental and sustainability issues. These core issues are respectfully re-assessed once every four years, during the period of the Council's elected period. The regional development programme is evaluated on a yearly basis. YTV (the Metropolitan Area Council) has formal powers for overseeing the traffic plan programme for the areas pertinent to its authority in the immediate core region. 5 Strategic planning responsibilities (social, economic, transportation and environmental functions) 3 (9)

4 Social functions A Fully integrated with land use B Linked through a mechanism C Separate Economic functions D Fully integrated with land use E Linked through a mechanism F Separate Transportation functions G Fully integrated with land use H Linked through a mechanism I Separate Environmental functions J Fully integrated with land use K Linked through a mechanism L Separate The land-use planning is divided between the two Regional Councils, east and west. Each sectoral division (social, economic, traffic and the environment) is planned and programmed by these Regional Councils, but they do not have formal jurisdiction at the municipal level. The key major cities/municipalities of the Helsinki region have direct responsibility for overseeing their own development projects, but they have to be coordinated in respect of the regions' overall objectives and take account of the regional plan. The key Metropolitan authorities handle social functions through the mechanism of the area development project, in association with the regional development programme objectives. Economic and action plan strategies, together with an authority's three year budget plan is of the direct responsibility of the municipal authority. The budget forecasts are calculated on an annual basis and approved by the requisite authority appropriately. YTV is the key metropolitan core authority managing the coordination at an informal level the four main city authorities in the region. The respective four cities appoint elected members to the YTV decision-making Council, who in turn oversee, in particular, long-term plans for traffic planning and its development, together with waste management. These long-term plans for traffic are assessed into the budgetary programming for the four cities and form part of the future forecasts for the respective budgets. The State participates to this budgetary scheme as it enables a greater solidness when coordinating future traffic plans for the coreregion. New traffic projects can be integrated into the Capital traffic budget in a more accountable method. In practice, therefore, it can be said that the core traffic regional planning is directed and coordinated by YTV. Environmental and recreational planning as well as conservation issues form an important set of elements for the regional development programme. YTV, in this respect, has a strong role in air pollution control and collection and handling of waste. 6 Level of coherence of the area of the planning authority "Journey to work" commuting catchment area A >95 % B 66-95% C >66% Public transport system area D >95 % E 66-95% F >66% The Helsinki metropolitan area covers almost the entire capital region core (self-contained) area in terms of workplaces and business location. The Helsinki metropolitan area covers almost the entire capital region core (self-contained) area in terms of the public transport system. 4 (9)

5 Housing market area G >95 % H 66-95% I >66% Housing markets are integrated within the core metropolitan area, but part of it remains on the region's fringes. Retail catchment area of the main metropolitan centre J >95 % K 66-95% L >66% Hydrological catchment area M >95 % N 66-95% O >66% Metropolitan region's prime retail catchment area falls within the immediate capital core vicinity. Development of the retail sector, however, is strongly in the hands of the private sector. The hydrologicial catchment covers the entire region. 7 Power to implement and safeguard a planning strategy A Full legal power including "call in" powers B Plan consideration amongst other factors C Comments and advice The regional plan is prepared independently by the Regional authorities. Interpretation of the policies and proposals, together with the handling of any major contradictions are resolved through the Administrative Courts. 8 Level of influence on implementation resources A Plan primacy directing investment B Formal commitment from implementation partners C Separation of plan making and implementation (advice and recommendations) Municipalities' annual budget forecasts and three year economic plans are implemented in part through the realisation of their master plan, which in turn, is guided by the regional plan. The regional programme and its implementation schedule are carried out in turn to meet the regional plan's objectives. In this respect, it can be said that the significant aims of the regional plan are implemented. The regional plan is approved at the Regional Council, in which each of the region's municipalities are represented. 9 Professional Resources A Dedicated permanent professional team B Temporary dedicated resources C Ad hoc allocation of staff The regional plan is prepared entirely by the planning team within the Regional authorities. 10 Survey and data collection A To agreed standards and capable of spatial analysis B To agreed standards C Reconciliation of existing data The Regional Councils planning division consist of planning and other professionals who collect and analyse research data. In addition, the State's Statistical Centre and the Municipalities' information services are used in the preparation and arrangement of data that can be used for the regional plan. 5 (9)

6 11 Preparation of forecasts and projections Demographic and household A Area specific, internally consistent and reconciled with wider contexts B Area specific C Pro rated from wider contexts Both at the national level and the municipal level, information collection and analyses have a long and successful history. Finland is considered one of the best for source material and publications in general. The standard is exceptionally high, dependable and well developed organisationally. Economic A Area specific, internally consistent and reconciled with wider contexts B Area specific C Pro rated from wider contexts as above for section 11 Transportation A Area specific, internally consistent and reconciled with wider contexts B Area specific C Pro rated from wider contexts It should be noted that the Helsinki Metropolitan Area Authority (YTV), together with many of the larger municipalities, have their own comprehensive research and forecasting facilities which are used for their own purposes as well as being incorporated at the research level within the Regional Councils. Retailing A Area specific, internally consistent and reconciled with wider contexts B Area specific C Pro rated from wider contexts as above for section Urban development capacity A Full capacity assessment including the potential for sites to arise (windfall sites) and the scope for intensification B Capacity assessment of existing allocations and known sites C Capacity assessment of exiting formal allocations The Regional Councils have significant powers and responsibilities in overseeing the development of their area programmes. 13 Urban form and polycentricity A Polycentric strategy for urban restructuring and/or extension B Compact, mixed use, public transport orientated approach to urban form C Compact, mixed use approach to urban form The model of the city structure for the Helsinki region is a multi-centred approach to urban planning, which has been adopted widely amongst the municipalities. The core metropolitan area is planned through this method of urban form. The periphery of the region is more dependent upon a simple, single centre model, but overall, it can be stated unequivocally that the multi-centred approach dominates. 14 Centres A City and town centres as focal points for a polycentric approach B City and town centres the preferred locations for core metropolitan functions C City and town centres sustained and rejuvenated The importance and significance of the region's key city centre, namely, Helsinki, surrounded by supporting centres on a radial basis within the region is well established. 6 (9)

7 15 Preparation of strategic scenarios A Fully integrated scenarios B Linked scenarios C Separate scenarios The Regional Council for Uusimaa and the core area's coordinating agency, YTV, work together in preparing a strategy for the region. The East-Uusimaa Regional Council key strategy deviates from this singular position and is more independent in its workings. 16 Social issues A Assessment of implications of urban and rural exclusion B Identification of areas of multiple deprivation C Assessment of client group changes Issues associated with social problems such as segregation, empowerment and exclusion, form a key starting point in the development process. 17 Economic issues A Development of an economic futures statement B Spatial implications of economic forecasts C Assessment of implications of existing trends Economic forecasting and monitoring equally form a part of the regional plan. 18 Housing issues A Market area analysis B Disaggregated analysis C Broad analysis of housing demand and supply Housing forecasts and monitoring form a part of the key point's of the regional plan. 19 Retail issues A Retail model B Catchment area approach C Whole area approach Retailing as a whole forms an integral aspect of the plan, and monitoring is normally carried out employing catchment parameters. 20 Transportation issues A Interactive policy option modeling B Requirements arising from land use based forecasts C requirements from the extrapolation of existing flows Traffic forecasting, evaluation and monitoring are a strong feature of the plan and has been developed to a high degree of sophistication. 21 Environmental issues A Modeling of impact on carrying capacities of the eco system B Impact assessment of major proposals C Assessment of impact of expected changes of conditions Environmental issues, especially sustainable development, form an integral part of the regional plan's analysis and is one of the mainstays of the plan. 22 Legal rights of involvement 7 (9)

8 A Third party rights B Statutory consultees C Legal notification of plan The new Act of 2000 guarantees the right of individuals and organisations to participate and influence the planning process in that it is now compulsory for the authorities to take residents and all stakeholders into account and be involved in the decision-making process. 23 A pro active inclusive approach A Equal opportunity to shape the strategy promoted for all members of the public B Participation focused on significant "stakeholders" C Limited formal consultation Public consultation and impact assessment strategy form a compulsory aspect of the regional plan at all levels in order that third parties have a say in the plan making process. 24 Stakeholder involvement A Formal partnership and participation B Working groups C Reactive ad hoc liaison Public consultation and impact assessment strategy form a compulsory aspect of the regional plan at all levels in order that third parties have a say in the plan making process. 25 Transparency A Decisions justified, documented and open to the public B Explanations for major stakeholders C The plan is the response Decision-making and public committee minutes are available to the public, and therefore the level of transparency is considered at a high level of development. However, it should be noted that most committee meetings are held 'in-camera', and the public are excluded, although the main Council meetings are open to the public. 26 Implementation A Formal partnership programmes B Agreement in principle C Aspirational projects The Regional programme and the implementation schedule guide regional development. The State and the municipalities contribute their proficiency to the implementation programmes through a series of 'agreements of intent', or agreements in principle, that set out agreed strategies and objectives to be directed and implemented in the foreseeing years, usually incorporating the percentage rights of resource allocation by each of the signatories to the agreements. 27 Monitoring A A public annual monitoring report based on explicit policy targets B An annual report to the authority based on core indicators supplemented by soft indicators C A report to the authority on the general progress of the strategy The regional plan's implementation schedule is monitored through a report at least once during the four year period of the Regional Council's political life. The plan's influence and verification of whether or not its aims are being met are defined in principle by this 'review', though in practice, the engineering of a constructive and accurate monitoring system is still to be found. 28A Review A A legal commitment to a regular 5 year review B A commitment to regular review C Review when required 8 (9)

9 There is no legal requirement under the present legislation that defines the time-period for the regional plan to be updated. The primary task of deciding this initiative falls within the political parameters of the Regional Councils to make such a decision. The plan's implementation programme normally forms part of the overall monitoring process as stated above, ie, normally held once during the four year life of the Council 28B Review A Less than 2 years since review B Review started C More than 5 years since review The new regional plan is currently being prepared. 9 (9)