Spatial environmental planning

Spatial Environmental Planning
S P A T I A L E N V I R O N M E N T A L P L A N N I N G
P.S. UTTARWAR
Presentation

• In 1970’s public awareness in Germany developed that
“The Environment is an asset worth protecting”
• The damage to: Historic Buildings, Health and, Nature
And growing concern about high level of Energy
consumption raised doubts as to whether current
production methods and lifestyle could be maintained.
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Most people are aware that the limits of growth have
been reached and are convinced that we should not
carry on as before if we wish to prevent an
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“Environmental disaster”
(German public opinion)

• How can Economic growth and prosperity be compatible
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with sustainable use of Natural resources
• UN conference on “Environment and Development in
“Rio de Janeiro” in 1992
Growth and consumption is coming up against limits.
What the richest 10% of the world population consumes
in Energy, Land, Water, Air and other natural assets –
directly or indirectly, can not be extended to the 90%
without the Earth collapsing ecologically.

The days of the century of economic
development are numbered, whether we like it
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or not, we are entering the
Century of the environment

The German administration availed with their elaborated
planning system a tool not only for project individual (like
EIA) but also for spatial co-ordination and integration of
environmental considerations.
To use the SPATIAL PLANNING SYSTEM for
comprehensive environmental management was
considered the most promising approach and
consequently pursued by the German environmental
administration.
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Therefore from the beginning the German environmental
administration was well aware of the structural
unsuitability of EIA within the German system. The
shortcomings of EIA such as being an reactive
instrument, coming only after the project idea is already
very far advanced (and cannot be changed or sited
elsewhere) or the lack of co-ordination in all existing EIA
systems were only too obvious.
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Consequently the German environmental administration
opted for further developing and using the existing
(spatial) planning system as instrument to protect the
environment in a comprehensive, holistic manner. As a
consequence of this, ENVIRONMENTAL OBJECTIVES
play a predominant role in SPATIAL PLANNING.
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Environmental Impact Study in the Context of a Spatial
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Impact Assessment (Freeway crossing).

Major German Contributions in the Field of Environmental
Protection
• Effective Forest protection Protected in the high mountains (Alps) for
protection against floods, avalanches, erosion and landslides
introduced and effective since medieval times;
• Establishment of river co-operatives, independent from the
environmental administration, with the task to manage river flow and
water quality, and an organisational model still relevant after
hundred years;
• Development of the "classic" treatment technology spearheaded by
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the River Co-operatives;
• Development of the most dense but extremely cheap water quality
monitoring system (mainly based on bio-monitoring; 5.000
monitoring stations are controlled by one single person);

• Development of modern planning tools for spatial environmental
planning for urban as well as rural planning: successfully
incorporating environment into spatial planning, using spatial
planning to protect environment as well as to use environment to
strengthen spatial planning;
• Development of Landscape Planning as the ecological spatial
planning system to restore and maintain the ecological balance of all
rural lands which are predominantly under agricultural use;
• Development of a comprehensive system of regionalised air quality
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management focussing on "hot spots";
• Effective rehabilitation or restoration of water quality of large lakes
(Bavarian lakes);
• A "feudal" based hunting legislation with the effect that even in
densely populated Germany large game (deer, boar etc.) is still
abound.

SPATIAL ENVIRONMENTAL PLANNING IN GERMANY
• The main feature of spatial planning in Germany consists
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of its perception primarily as
CONFLICT COORDINATION THEATRE.
• Consequently, spatial planning is also called
coordinative planning (in contrast to sector planning).
The role of planning is not to ensure coordinated
implementation of plans. Implementation –as far as
spatial plans are concerned – is neither the purpose
not the end of a plan.

• The plan itself is a platform wherein the demands for
land from different social groups has been coordinated ,
balanced and finally agreed in a form of a sound
integrated concept which is accepted within the society.
• In other words, the spatial plan represents the social
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consensus how the land should be used.

• Evolving of (spatial) planning at higher planning levels
started from the municipal level in a BOTTOM-UP
PROCESS. Industrialisation with its mushrooming
urbanisation clearly showed the need for coordinated
and integrated spatial planning beyond and above the
local level.
• Consequently, in 1919 the first Regional Planning
Association was established in the Ruhr District, then the
largest industrial region in Europe. Important to note that
the organisational form chosen was that of an
association – members are mainly the municipalities and
talukas – and not a centralised governmental authority.
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• This Regional Planning Association (SVR) has been very
successful in guiding settlements development in
Germany's largest industrial area since its inception.
• This organisational form of planning associations –
basically a bottom-up approach – has been repeated
throughout the country (it was for the first time
inaugurated for water management). Regional planning
at district level was introduced some 30 years back.
Regional plans are prepared for several themes and are
guiding the further detailing of plans at the municipal
level.
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Environmental objectives In Spatial Planning

• Environmental objectives play a dominant role even in the federal
spatial planning framework law. Often half of all spatial development
objectives are expresses as explicit environmental objectives or
related to them. The general objectives of incorporating
environmental considerations into spatial plans include:
– use of the land according to its natural (environmental) suitability in a
way that the use is not adversely affecting its natural conditions and/or
its natural functions on a sustainable basis;
– restoration, rehabilitation or sanitation of lands and land based natural
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resources already degraded by human activities;
– preservation of ecologically sensitive and important lands respectively
ecosystems with the effect that their functions for nature as well as
society are sustainable preserved;
– preservation and/or management of land based natural resources such as water
(e.g. groundwater).
• This is carried out within the German spatial planning system which
consists of mainly three levels:

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• State level planning (in State level Plans or
Programmes),
• Regional (District) Planning (in Regional Plans),
• Municipal Planning (in Master Plans and Lay-Out Plans).
• All plans at all levels have in common:
• They provide development potential and direct its
development in an environmentally compatible manner.
• Implementation is not a direct part of the plans; their
main function is development guidance.

• All plans are thoroughly co-ordinated vertically (within
the spatial planning hierarchy) as well as horizontally
(with all concerned sector plans and programmes)
following the counter-current principle (simultaneous co-ordination
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bottom-up and top-down).
• The upper planning level guides development at lower
planning level while the lower planning levels provide
input into the plans development at higher planning
levels.
• All plans summarise the socially accepted future demand
for land and resources identified in a democratically
organised process involving all social groups and the
general public.

All plans are co-ordinated with sector plans in an elaborated procedure. Sector planning in
environmental protection and natural resource management is likewise far developed.
Here also the spatial dimension is appropriately considered. The approach of river co-operatives
managing water resources in one watershed is one example. Another example
is the spatial planning tool of the Water Protection Zones which exists over 40 years.
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Water Protection Zones

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This planning tool regulates the use of lands with important functions mainly
for water supply. Protected are groundwater resources near wells serving
potable water supply systems but also surface waters. Within a Water
Protection Zone all activities that eventually may lead to contamination of
waters are regulated, eventually prohibited. The zones are classified
according to the protection need expressed in percolation distance from the
source to be protected. In the strictest protection Zone even access is
prohibited (only allowed to the workers of the waterworks). Another example
are sites for industrial development (large scale industrial development)
offered by the State in form of a State Development Plan.
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Levels of Planning
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• In principle the technical plan
preparation usually involves the
following principle steps:
• Description of the existing situation
(existing land use, planning restrictions
etc.),
• Identification of demand and its
translation into required sites (for
residential, industrial etc. development
need (development projection based
on socio-economic demands, trends,
development potential etc.),
• Assessment of site development
potential and constraints for different
uses based on site potential
assessment (this is the main step
where environmental considerations
are incorporated),
• Preparation of a first plan concept for
first discussions.
Process of Balancing between
different Planning Levels and Sectors

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Impact caused by road construction

• Some of the factors explaining the effectiveness of the German
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system include:
• The spatial environmental approach opted for by Germany over
the last decades. The German decision to develop spatial planning
as a major tool for preventive environmental protection is clearly
showing results and seems more effective than EIA. This was
effectively supported by declaring environmental protection goals as
guiding spatial development.
• Decentralised execution power: In Germany execution is normally
delegated to the lowest possible level. Licensing of industries is
granted at the taluka (county) level. This not only results in short
lines of command and technical as well as local conversance of the
executing authority but frees the higher levels from technical tasks
leaving them to their main job: guiding development.

Planning in Germany is not ruled by standards but by
procedures. Standards have their place in execution
of measures; in planning they are considered as too
static. Planning is considered an art, the planner has
to have the freedom to propose an individual solution
best adapted to the specific local conditions.
Procedures do not prescribe uniform results, they
ensure that for each individual situation the best
possible result identified. This "softness" of planning
is in fact its strong point.
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PROCEDURE BASED PLANNING

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• Planning by associations.
In many fields planning is
not executed by
governmental authorities
but by associations or co-operatives.
Leaving
planning to the primarily
concerned but under
governmentally controlled
procedures results in
sound and in particular
accepted plans

• The effectiveness of vertical and horizontal co-ordination. Most
important are procedures in guiding the plan co-ordination. Even if
these procedures are cumbersome and lengthy, they ensure optimal
consideration of all sectors and results in sound integrated concepts.
• Employment of “soft” planning tools. Germany has developed a
toolbox of “soft” planning tools, mostly resource evaluation
inventories to be used for planning purposes. Their use is not
compulsory but every planning authority is aware of them and uses
them during plan preparation. Example is the so called
“BIOTOP MAPPING”, an inventory of all ecologically significant
habitats available in a scale of 1: 5.000 for the whole country.
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• The pragmatism of approaches and tools. Most planning
approaches and solutions are pragmatic and directed towards
solving problems. Behind all spatial plans stand the simple policy:
provide more development potential (sites) than possibly demanded.
This will ensure that the plan controls development in the desired
way provided that the selection of offered development sites is
based on environmental considerations.
• The German experience of connecting environmental management
with spatial planning is an interesting approach towards a preventive
environmental policy. To study this approach might be also
illustrative for environmental experts from other countries.
• Leaving the Management of the Wholesomeness of a River to a
Co-operative - A Bold, Innovative Approach to Manage Water
Resources Introduced 100 Years Ago still Working Effectively
Today.
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• Defining and detailing of water quality management
objectives Managing river flow in such a manner that all
uses remain possible throughout the year, even in dry
spells, Managing river quality so that hygienic safety and
drinking water production could be maintained in a
sustainable mannerDirect siting of water polluting
activities (industries etc.)Identifying fees to be paid by
the members of the co-operative for all necessary
operational expenses to do the job Manage its own
affairs without interference from the bureaucracy to
achieve the objectives promulgated by the law.
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Landscape Management development concept
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Survey map of compensation areas based on the development concept
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Integration of recommendations into the draft land use plan
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• Whether to have one
central treatment facility
or many decentralised
ones, whether to rule and
control by standards or
procedures or only by
mutual consent among
the members was left to
the co-operative to decide
without external
(governmental)
interference. This concept
turned out a path towards
success.

The Emscher “Park”, an area recovered from a heavily polluted zone into
a network of recreational areas (more than 300 square km).
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THE RENATURATION OF A WATERWAY IN AN URBAN SETTING
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Before After

The implementation imperatives
at various levels in India
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Introduction and Context
For planning and implementation of industrial estates, total
evaluation criteria are adopted on the following basis:
– Sensitivity to environment planning
– Sensitivity to resources
All the environmental criteria are included in EIA. Existing eco
system like marshy land, the system of rivulets and floodplains,
forest with special importance is studied .In German context the river
network is the backbone of the development of the new industrial
estates, in addition to connectivity by road, rail and air. Special
features, on the basis of environmental factors, are:
– Rain water harvesting
– Area for compensatory measures
– Creation of phases of construction
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Planning, Implementation, Operation

• For planning purposes terrain, contours and open spaces with special
function are studied and superimposed on each other. Then constructible
area is defined State level industrial planning is further followed and
adopted at district and local level. In addition to usual procedure and policy
consent procedure is innovative where consent of public and stake holders
is taken before plan is finalised. Due to this involvement of all concerned,
plan is respected and followed by all.
• One of the important aspects of Industrial Planning Estates is Regional
context and ecological factors. Due to this reason not only industrial plots
are generated but community is also benefited in terms of water bodies,
forests and nature.
• Appreciable feature is ‘conflicts between various sectors’ are mentioned
with instrument to solve conflicts through discussion with stakeholders.
Recycling of abandoned industrial sites for ecological enhancement and
urban development has helped to create needed infrastructure and
employment opportunities for communities. Creation of buffer zones helps
to delineate and maintain environment zones.
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Planning, Implementation, Operation

Observation and Application in Indian Context:
• In case of Munch burg Industrial Estate in Germany, two
neighbouring municipalities have formed co operative to invest
money and share revenues. This concept can be considered in
Indian context as towns are merging and administrative boundaries
are vanishing.
• Concept of ‘Mitigation Planning’ and ‘Valuation of the state before
impact’ is a good idea for adoption in Indian context to avoid
litigation in future. In this method not only quantification of flora and
fauna is done but protected species are also considered. In return
communities get parks, waterbodies and improved environment.
• Integration of all traffic modes and creation of parking facilities at
Airport or any activity node is an example of planning with focus on
people. Rain water harvesting has helped nearby farmers to irrigate
their land. Due to such benefits resistance from neighbours is
minimal to such projects.
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• Creation of buffer zones, conflict management and instruments for
solving conflicts through public participation are ideas for Indian
Planning as it will help to avoid litigations and delays. Moreover it
will create a sense of belongingness to a Plan.
• Regional Plan defines connectivity of highways, railways, air link
and regional eco system including River System etc. Thus areas for
local planning are left to local bodies.
• For locating industries and environmental protection in India:
• Mechanism of Regional Planning needs to be strengthened.
• Approach of ‘Bottom up’ planning instead of Top Down planning at
local level may be appropriate, as it will lessen conflict between
regional plan and local plan.
• Environmental information database and identification of zones
suitable for industrial sitting with spatial consideration of
development of an area shall prove useful in enhancing success
ratio of developmental plans various sectors
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Urban Renewal: Introduction and Context
Urban Renewal Programmes are sine quinine with any urban development, in
order to stop decay of the core city or old areas. Core city or old areas have
following problems:
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– Old buildings in dilapidated conditions.
– Narrow roads
– Lack of parking spaces
– Lack of open spaces, parks and children’s play areas
– Community places
– Physical and Social infrastructure
– Traffic problems
– Social and Cultural spaces
Any urban renewal programme has to address above concerns. In addition to
above these areas have historical buildings, buildings of cultural heritage which
need to be conserved. In general total environment needs improvement.

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In German context urban renewals is at three levels:
–City development and rehabilitation programme
–Village level renewal plans for generation of economic activity for dying villages
–Integration of natural features like rivers, flood plains and water bodies
Following special features of urban renewal are:
–Increase in land consumption (Space occupation, increase in standards of living)
–Increase in resource consumption
In urban renewal most important aspect is `public participation`. Plans based
on public participation are welcome by residents and public. Municipality as
well as the State is playing important role not only in formulation of plans, but
also playing active role by financing development. Most unique feature is
financial incentives and investment to create open spaces and infrastructure by
buying old houses and removing them to create parks, parking areas and roads
etc. Urban renewal also offers an opportunity for up- gradation of old
infrastructure like water supply lines, sewer lines, fire fighting measures etc.

• The partnership approach to urban renewal between local body and
public is a very good concept. Governments at three levels are
contributing catalyst investments acting as a facilitator for urban
renewal which is to be taken up by the owners tenants jointly.
Instead of going by the procedures, the approach is found flexible
enough to suit to the individual situations, thus focusing on the end
result.
• Urban renewal programmes are not only restricted to cities but also
prepared for villages to rejuvenate them by creating economic
development in recreational sectors e.g. Franconia Lake District, an
artificial lake created for bird sanctuary and recreation resource.
Thus it has created economy for villages, balance in regional
development and sustainable ecological system.
• Public participation and bottoms up approach at local level has
created high degree of awareness among the people and the
residents.
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Location of Industries and Environmental Protection
Location of new Industrial Estates: State / District level spatial
planning procedures needs to be documented consisting of
the following:
–Sectors / departments to be included in the planning process
–Database creation of natural resources of ecological significance
of an area (preferably district level)
–Preparation of sector specific long term development plans.
–Preferential grading for use available resources (Natural,
Economic and Infrastructure)
–Analysis Procedures for valuation of natural resources and
compensatory measures.
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– Sector specific guidelines for industrial development at identified
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industrial locations.
– Pollution prevention and monitoring procedures to be adopted in given
type of industrial clusters.
– Guidelines for restriction and promotion of adjoining land use around the
industrial estates.
– Format for developing Information Systems and evaluation.
• Environmental protection at existing industrial estates: State level guidelines
should be evolved for the following:
– Assessment of the existing scenario of pollution status and identification
of major sources.
– Inter-sectoral involvement in pollution abatement programmes and
preparation of future sectoral development plans.
– Assessment and evaluation of pollution control and abatement
programmes
– Creation of data base on environmental status and publication of data
through various media.

Urban Development
Spatial Impact Assessment as a planning tool to be adopted in the
planning process
• After 74th Constitutional Amendment Act. The local bodies have
responsibilities to prepare development plan for their respective
areas.
• Guidelines on ecology, environment and planning standards need to
be formulated for adoption of these aspects into local plans. Since
municipalities do not have capacity and resources, these guidelines
may be developed at state level/ regional level depending upon local
conditions.
• Mapping of natural resources should be made mandatory part of
primary survey to be conducted for preparation of any spatial
development plan.
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• Work of regional plans for resources mapping and elaborating
regional ecology etc. needs to be taken on priority basis.
• Creation of data base in GIS, dissipation of information to other
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departments and municipalities.
• Inter – departmental coordination and data sharing between all
stake holders dealing with ecology, natural resources and urban
development.
• At present preparation of land use plan for assigning land uses to
various land parcels is based on availability of physical
infrastructure. Before assigning land uses, the detailed analysis for
identifying sensitive areas from eco system point of view should be
identified for conservation. In case of loss of such areas in essential
circumstances, measures for ecological compensation to be taken
up.

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Municipal Level
• The development of urban environmental Information System.
• Segregation of domestic waste at source – awareness amongst the
people.
• Garbage Collection and Disposal – Involvement of private sector
and the supervision of local residents.
• Capacity building at micro level – to deal with sensitive issues of
ecology and environment.
• Integrate river front planning and development at municipal level and
to consider natural features like water bodies, green areas etc. in the
city development.
• City forest concept to be promoted as a compensatory measure for
loss of green areas due to urbanisation.

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NAJAFGARH NALLAH

(NAJAFGARH NALLAH NEAR DHUL SIRAS VILLAGE, DWARKA,PH-II)
EXISTING VEGETATION, PREDOMINANTLY KIKAR, MIXED SPECIES
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NEED TO BE INTRODUCED

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P.S. UTTARWAR
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