Strategy for gross national happiness (sgnh) Annexures to the Main Document
Part II. National Spatial Policy (NSP 2008)
Download 2.46 Mb.
|
| Part II. National Spatial Policy (NSP 2008)
Introduction The National Spatial Policy 2008 is a twenty year strategy that aims at achieving holistic economic development for Bhutan through high-quality planning, development and use of the spatial resources and values of Bhutan. It recognizes that every region and place has its own potential and roles and seeks to develop these potential to their highest levels to contribute to the optimal overall development of the country. It ensures that regions are developed in a competitive manner that works to complement other areas and not work against each other. The main objectives are a better quality of life for the people of Bhutan, a strong, competitive economic position and an environment of the highest quality. Present spatial structure in Bhutan The table below presents a quick summary overview of the current spatial land use in Bhutan66:
Bhutan is spatially divided into twenty Dzongkhags and two urban Municipalities which are currently being developed with development aims that are basically the same and contained within each Dzongkhag. Spatial development is thus fragmented. The diverse context and distinctive potential of one area as opposed to another area is not really taken into account to contribute to the optimal development of the country as a whole. No comprehensive spatial frameworks, plans or polices exist in the Government that looks at the spatial development and land resource utilization of the country as a whole. Each Agency has is own proposals, follows its own regulations and has its own sector legislations which often contradicts the legislation and policies of other sectors. There is thus a lack of coordination and cohesion for the spatial development, use and planning in Bhutan. Present spatial practices demarcate zones but do not actually comprehensively study and clear them for the activities they have been zoned for. This means that an agency or individual that wants to implement a task or project within these areas has to travel from office to office and wait long durations- often several months and at times even years - to get clearances from various agencies such as environment, forest, mining, industrial, municipal, and Dzongkhag to name a few. Thus, although an area is zoned for an activity, to actually initiate and implement the activity requires exhaustive effort and time for clearances leading to waste of funds and time. This does not create a conducive and attractive environment for investments nor ensures robust economic growth at an optimal pace. The Department of Survey and Land Records (DSLR) has thus far only been able to update the 1:50,000 topographic maps originally produced by Survey of India. Recently it has initiated the production of 1:25,000 series topographic maps, and established a permanent GPS reference station to facilitate efficient ground survey. Shortage of funds and lack of primary data have hindered the full potential to embark on the 1:25,000 and larger scale mapping that is necessary for zoning. To ensure that the spatial values of the country are harnessed to stimulate and support a high-quality socio-economic growth in Bhutan at an optimal pace, it is necessary to plan ahead for the allocation and management of the spatial values of Bhutan (land, water and other natural resources) as a whole and for the appropriate distribution of population, commerce and public facilities within this spatial framework. This consequently will ensure a better quality of life for the people of Bhutan, a strong, competitive economic position and an environment of the highest standard in the world. National Population Settlement Objectives The current Government objective is to try to stem and slow the fast migration of population from rural to urban areas. This creates a weak urban development system. However, the NSP 2008 acknowledges that there is a strong relationship between the settlement size to create critical masses and the levels of services that can be supported. The support of a balanced distribution of population growth in Bhutan thus requires the economic strength that urban structures provide. Strong economic conditions in turn sustain and expand employment and population levels. Therefore rather than trying to stem the inevitable flow of population from the rural areas to the urban centres, spatial allocations and management should be put in place to not only allow this urban growth but also to enhance these urban areas to ensure that the potential and levels of services rise within a reasonable and cost efficient spatial development framework. The creation of dynamic and competitive economic conditions in regional urban centres other than Thimphu or Phuentsholing will support the ability of places to retain their existing population within the regions and cater for increasing population. With the establishment of selective urban hubs and centres in different regions of Bhutan, the population could be regionally balanced as opposed to the present trend where the rural urban migration is mainly from east to west. Recommendations for spatial use to enhance holistic economic development To ensure that the spatial values of the country are harnessed to stimulate and support high-quality socio-economic growth in Bhutan at an optimal pace, it is necessary to plan ahead for the allocation, and management of the spatial values of Bhutan. The recommendations are given below: The Spatial Values of the Environment The rich and beautiful natural environment in Bhutan and its values and resources are among the greatest assets of the country. The environment is an integral part of the good quality of life that the Bhutanese enjoy and it is also greatly appreciated by visitors from around the world. The values and resources of the environment are already proving to be a great stimulus for economic growth through industries such as tourism and power. The protection and enhancement of the rich natural environment that Bhutan presently enjoys is thus an important objective. However, to ensure optimal socio-economic growth for the Bhutanese, it is important to not only maintain and enhance the quality and diversity of the natural environment and its resources but also to tap and integrate these values in a sustainable manner to accommodate and enhance economic development strategies and activities that will consequently create a dynamic and unique economic position for Bhutan. Maintaining and enhancing the natural environment in Bhutan Protected Areas: national parks, wild life sanctuaries, nature reserves Prior to 1993, the Protected Area system comprised only of areas in the Northern and Southern parts of the country. Since this did not represent all the ecosystems in the country, the protected area network was revised to rationalize the ecological representative-ness of the country. In 1993 except for Royal Manas National Park, all other protected areas were “Paper Parks” with little or no management. Since then six more protected areas – Jigme Dorji National Park, Thrumshingla National Park, Jigme Singye National Park, Bumdeling Wildlife Sanctuary, Sakteng Wildlife Sanctuary and Phibsoo Wildlife Sanctuary have been fully operationalized. Khaling (Shingkhar-Lauri) Wildlife Sanctuary and Toorsa Strict Nature Reserve will be operationalized during the 10th Five Year Plan. In order to enhance the protection and development of the Protected Areas in Bhutan within the NSP 2008, the following are recommended:
Biological Corridors With a total area of 3800 km2, Biological Corridors (BCs) form 9% of the country. BCs are expected to provide space for movement of mammals from one protected area to another. BCs also ensure that there is no fragmentation of habitat and that mammals can move around within their natural range. Therefore, for protected areas to function, biological corridors are essential. However, BCs do not have the same legal status as that of National Park, Wildlife Sanctuaries and Strict Nature Reserves. BCs are equivalent to a “multi-purpose use zone” where sustainable use of resources that do not disturb the movement of mammals that cross them is allowed. Some of the BCs pass through human habitations while others are dissected by large rivers. The following are recommended for biological corridors:
Forests According to the Land Use Survey (1995) the total forest cover is 64.35% (2.6 million hectares) with an additional 8.13% (0.32 million hectares) of scrub forest. The draft Constitution of Bhutan requires that a minimum of 60% of the country must be maintained under forest cover for all times to come. Till date the DoF has planted 20,000 ha of forest land. The Master plan has indicated that the DoF must plant 2500 ha annually, which amounts to 50,000 ha over a period of 20 years. Some of the constraints for successful plantation are grazing, shortage of water and forest fire. Assuming that 26,979 ha of forest land will be lost in the next 20 years for various developmental activities, and that plantations will be carried out as planned, it will be possible to maintain the 60% forest cover. It might be important to note that factors such as forest loss to forest fire, disease, natural disasters, etc. has not been taken into account while making the above projection. It is recommended that to ensure 60% forest cover while allowing the rest to be utilized, it is important to put in place the following:
Definition of Forest: The present definition of “FOREST” in Chapter 1, 3e, in the Forest and Nature Conservation Act 1995 creates an impression that irrespective of whether there is tree cover or not, any land that is not registered under an individual is forest. This registration is not accurate and creates confusion. The current definition of Forest Cover should be replaced by the following suggested definition: “Land spanning more than 0.5 ha with trees higher than 5m, and canopy cover of more than 10%”. All other areas should be registered as Government Land. Watersheds Watersheds are one of the most important natural resources of Bhutan. It is imperative to protect and enhance these resources. Currently there are 64 water sampling sites spread across the country. Although superficial studies exist, a comprehensive study of watersheds is yet to be conducted or made available. Further, presently there is no coordination in the management or protection of watersheds as there is no single agency focused on the protection of watersheds in spite of its importance as a natural economic resource and an important ecological feature. The following are the recommendations for watersheds:
Integrating environment values to accommodate and enhance development strategies There are nine protected areas in the form of national parks, wildlife sanctuaries and strict nature reserves. Each of these protected areas represents the unique ecosystems of the country. Presently these protected areas are primarily managed for conservation of biodiversity. The management of protected areas could be diversified to derive economic benefits through non-consumptive programs and activities such as trekking, river-rafting, fishing, wildlife safari, bird-watching, etc. The table below presents the present situation and the future potential of each Protected Area in Bhutan for integrated development goals:
Recommendations to enhance the non-consumptive use of Protected Areas are:
Urbanization in Bhutan The Population and Housing Census of Bhutan, 2005, indicates the total population of Bhutan at 634,982, with an urban population of 196,111. This establishes the present urban population of Bhutan at 30.8% of the total population. While the annual population growth rate of the nation is established at 1.28%, the urban population is estimated to be growing at a rate of 7.3% owing particularly to high levels of rural-urban migration. At the current urban population growth rate, the implied urbanization level by 2020 will be 73%. The two key urban sector issues in Bhutan are the very high rates of urbanization inspite of the Government’s objectives to try to stem rural-urban migration and the limited availability of serviced land. This rapid urban growth has already created severe pressures on services as well as the environment such as water shortages, lack of sanitation and waste disposal facilities. This has been largely due to lack of well laid plans and projections to create proper liveable urban areas. Urbanization, however, if managed and planned well allows for the concentration of population markets which foster faster, cheaper and diverse economic development. Presently, each Dzongkhag has separate development proposals and policies to create a central urban area within each Dzongkhag regardless of the context and potential of the area. There is no linkage between urban proposals for the country as a whole. In general, urbanization presently consumes prime agricultural lands in the valleys. Urbanization is inevitable and as urbanization has many economic benefits if planned appropriately, the development strategy of the nation thus needs to change from inhibition policies of rural-urban migration to the more focused concentration on planning of high quality liveable urban areas. The recommendations for Urban Growth are:
Encouraging National Urban growth to stimulate development Currently, although there are plans by the Government to develop the present urban areas, the Government’s objectives have always been to try to stem and slow rural-urban migration. However, through the NSP 2008, urbanization in Bhutan seeks to enhance the performance of strategically placed engines of growth or "gateways" to attract ‘critical masses’ and thus draw together people, business activities, services, infrastructure and amenities that are necessary to drive economic growth and contribute to more balanced patterns of development within the country. Dzongkhag Head Quarter towns, other towns, villages and rural areas around these main hubs and centres will draw strength from, contribute to and complement them. Through urbanization, bringing together the location of buildings, amenities, shops, employment and transport in a given area and in the appropriate way can dramatically enhance people’s access to the services they need while enhancing the attractiveness of the area for investment, business activity and progress. The key element of the preferred development scenario is the recognition of the spatial diversity of the region and the role of various regionally centered urban hubs and centres, determined by population, function and location, within the development areas. This is addressed by way of: • Accelerated population and economic growth to gateway and principle towns • Targeted population and economic growth to key service towns • Consolidation of service towns • Appropriate service provision to local service towns to serve wider rural regions • Physical, social and recreational infrastructure to support settlement strategy
Traditionally, urban centres in Bhutan are categorized into three classes A, B and C based on about 26 criteria ranging from population estimates to number and types of schools, shops, other commercial facilities, public bus service, and level of urban infrastructure provision. The classification is mainly used for taxation and assessment of compensation when government acquires land pursuant to the Land Act. As per the NSP 2008, ten regional urban centres are envisioned. Of these, six Growth Centers are located in the hinterland and four Economic Hubs are proposed in the South. These regional urban centres and hubs include Paro, Thimphu, Punakha/Wangdue, Bumthang, Mongar, Kanglung, Samdrup Jongkhar/Nganglam, Gelephu, Phuentsholing, and Samtse. Urban boundaries, design and planning of the Urban Hubs and Centers The draft Bhutan National Urbanization Policy 2006 (BNUS) similarly envisions the development of all these regional urban centers except for Kanglung. Extensive studies have been carried out by large consulting firms for all the regional urban areas identified in the NSP (except for Kanglung) and their respective structure/master plans are already in place. This study includes population projections and potentials of each urban centre. However, these have limited to the present municipal boundaries and do not take into account the extended boundaries as proposed in the NSP 2008. They have also not looked at urbanization within the country as a whole. The recommendations for Urban Hubs and Centres are:
Role of rural areas A high quality rural environment is an economic, social and environmental asset to both urban and rural areas. A high proportion of Bhutan is rural and provides tranquility, leisure and recreation opportunities for urban and rural inhabitants. There are many attractive villages in Bhutan and the quality of the rural environment is vital to the quality of life. Therefore, the protection, management and enhancement of the natural and cultural assets of the rural areas of Bhutan should be integral considerations in decisions on development. While the quality of the landscape in rural areas is fragile, the environmental quality of the rural regions is an important characteristic in attracting investment especially tourism related industries. Therefore, damaging the quality and aesthetics of landscape should be avoided. The promotion of the quality of life for local people and visitors by ensuring that the rural landscape remains unspoilt, the rivers remain unpolluted and the towns and villages retain their character is important. The futures of both urban and rural areas are increasingly intertwined. The sustainable development, conservation and marketing of rural attractions are increasingly important in defining a positive and unique identity and setting for the establishment of competitive urban hubs and centres in the region. Conversely, the development and enhancement of the vitality of the urban centres is vital to the economic development of rural areas as increasingly, the traditional reliance on agricultural based employment in rural communities is being replaced by a dependence on jobs in urban areas in the manufacturing and services sector. Many rural areas in Bhutan especially those next to present urban centres like Thimphu and Phuentsholing are undergoing profound changes due to the economic restructuring of agriculture or to the influence of nearby urban areas. Recommendations for rural areas are:
Harnessing architectural design and forms The imprint of architecture is a powerful visible physical aspect of our image as a country in the international scene. However, presently there are no concrete efforts to develop, upgrade or use this physical imprint for benefits to the country as a whole or to look at creating unique and regional physical environments for each region based on their potentials. This has huge bearing on sectors such as tourism which brings the second highest revenue to our country and the quality of life for our citizens. There are current negative practices undertaken both by the Government and the private sector where areas of huge aesthetic potential are often ruined by the construction of architecture or other physical infrastructure that aesthetically degrades the beautiful environment it imposes on. Thus rather than increasing the aesthetics of an area, the current practice of infrastructure and architecture almost always leads to the decreasing of the environmental aesthetics of the country. The overall concepts and regulations for architecture are presently the same for all Dzongkhags within Bhutan. They do not take into account the diverse potentials of different areas within the country. For example, every school or health building is the same. Even in areas with no roads, one often finds RCC structures of the same design and type found in urban areas. This creates monotony throughout the country and does not provide the incentive for visitors to travel from place to place as each place looks the same. The present strict regulations for the urban centres and the free regulations with material incentives within rural areas act to inhibit development and creative growth within the urban centres while the rural areas are encouraged to grow haphazardly and often with RCC high rise buildings of low standards and designs that actually create negative benefits to the overall aesthetics for the rural environment. Bhutan has a very recent history of urbanization which can be dated perhaps to the early 60s with the growth of two urban centers namely Phuentsholing and Thimphu. The need to establish a Bhutanese identity based on existing rules in the built form today has led to a degree of monotony in the urban facades today. This is due to factors like:
To facilitate easy and cost effective infrastructure, regular plot sizes are encouraged but compounded with rules regarding set backs and no. of floors that are similar; the urban landscape today constitutes of similar looking buildings. Norzin Lam is good example of a streetscape that is characterized by buildings, each similar to the other without making any attempt to create any urban and social spaces. The built forms all tend to maximize the allowable area in terms of coverage and no. of floors. Recommendation: The above problem could be addressed by introducing the Floor Area Ratio along with the plot coverage and no. of floors. This was initially proposed in the draft Development Control Rules (DCR) for the Thimphu Structure Plan and was presented as follows: “Floor Area Ratio: Floor Area Ratio (FAR) and Floor Space Index (FSI) are basically the same concepts. They mean the amount of built-up area that will be allowed on a given amount of land. If in a residential area the FAR is 75; it means that on a 1000 sqm plot one can build 750 sqm. If we restrict the “plot coverage” to 40 percent it means one can build ground floor (400sqm) plus an additional floor restricted to 350 sqm. By payment of a premium the owner can choose to build upto FAR 350 sqm, which means he can build a total of 1500 sqm on his plot (three floors of 400sqm plus another partial floor of 300 sqm.) Floor Area Ratio (calculation) = Total floor area including walls of all floors x 100 ---------------------------------------------------------------- Total Plot Area Building features that shall be excluded from the calculation of built up area and hence from FAR calculations are
There shall be two stages for permissible FAR: a Basic FAR without payment of premium, an optional higher Maximum FAR allowable on payment of premium”. The FAR concept would therefore give the freedom to builders to go high rise and free the ground for recreational, parking, etc. purposes. It must be noted that the FAR will not make sense if the rule for the number of permissible floors are still applied. The rule regarding maximum number of permissible floors shall have to be updated. The other concept which was proposed in the draft DCR was the concept of Transfer of Development Rights. “In the Thimphu Structure Plan certain areas are designated as Reserved Land. Such Reserved land is to be used in the public interest for a public purpose. Transfer of Development Rights or TDR is a mechanism to protect the development rights of the owners of Reserved Land, while facilitating the Municipal Authorities in acquiring lands needed to implement a Structure Plan. In cases where the government has to acquire land for the public good, the owners may choose to be compensated, or their land traded for an equal size of FAR or Development Rights which can be used elsewhere. The compensation is in the form of FAR which can be transferred and used elsewhere.” The concept of TDR should however be used only as a source of fair compensation regarding a particular plot for the greater good of the city or town area. It should not be a tool for real estate developers to maximize FAR and therefore gain commercially from it. The concept of TDR could have saved the Luger Theatre Square, which was perhaps the only urban public space in Thimphu (besides the Clock Tower square) from being developed. The owner or intending developer could have been given a substitute plot with additional FAR rights in another location.
One may agree to the need to have a Bhutanese identity in terms of architectural form and therefore a sense of place. However the contemporary building language that has emerged in the urban towns has to address other factors besides mere superficial ornamentation. Though decoration and ornamentation is an integral part of Bhutanese architecture, other aspects like materials, forms, textures and colours are not explored enough. The Aman projects have to a large extent managed to capture the essence of Bhutanese architecture without relying on the profuse use of decoration. The new Druk hotel building is a good example of the use of textures and colours that are vernacular. The “Guidelines to Traditional Architecture” which was introduced to merely guide architects has become a steadfast rule/byelaw which has regulated the facades of buildings to the elements/features that are propounded by “the book”. Traditional architecture has a lot more to offer which is manifested in various buildings (Dzongs, farmhouses, temples, etc.) throughout the country. Recommendation: Mere imitation and superficial use of elements on the facades is not the only way of creating a Bhutanese contemporary identity. There is the need to explore and encourage the use of local materials, forms (sloping walls, roofs), textures and colours. Other features and elements that are existent in traditional architecture should be accepted beyond what is labeled as permissible and not permissible in the guidelines.
Traditional architectural form and language is in many ways a resultant of the method of construction. The massive sloping walls, rabseys, lintels, cornices are features that were integral to a load bearing system of construction. However today in multistoried buildings, RCC and brick or Concrete blocks are the order of the day. The urban centers are prime examples of this kind of buildings. Commercial buildings may often demand this kind of approach but institutional and residences certainly have a better alternative. Use of traditional materials makes it easier to capture the essence of Bhutanese architecture. This makes it easier for the designer to conceive and realize a building which is more appropriate and in harmony with the environment. It also helps sustain a host of traditional disciplines that are associated with buildings like zows (master builders), traditional painters, wood carvers, sculptors, etc. However the general misconception amongst people is that a RCC building is more permanent and therefore better. These buildings are also valued much more by financial institutions, which encourage business people when they want to use it as a mortgage. People who try to use local materials which are more eco-friendly and climatically appropriate find many obstacles while trying to implement them. Availability and costs of materials and workers make it difficult compounded by the fact that a lot of traditional buildings fail to meet the structural standards that are enforced by the authorities. This is due to the fact that a lot of architects and engineers are primarily trained in the design of such RCC structures. Recommendations: Need to encourage use of local building materials which can be achieved by:
The other recommendations for harnessing architectural and other built forms to stimulate and enhance socio-economic growth are:
Legislation and policies for spatial use There is no integrated utilization of land resources in the country. As a result, land related issues are evident in the field. These issues often lead to conflict among the involved institutions that are working for good cause - working independently while the basic resource in question is land. The table below summarizes these current and anticipated problems and issues.
The current legal environment is very strong where environmental protection is concerned but not very conducive to developmental processes. Many Acts exist with blocks and approval requirements for development activities. The present laws governing some of the land uses are a serious concern to creating a conducive environment for a fast growing economy. The recommendations are:
Part III. Strategic Infrastructure (SI 2008) Surface Transport Being landlocked, Bhutan faces unique challenges and opportunities as it pursues the development of its road transport network. In the absence of other modes of transport, movement of goods and services within the country takes place by land transport through a system of roads and mule tracks while connectivity to the outside world takes place both by land and air. Road Sector Master Plan 2007-2027 (RSMP) In order to make road transport fast, reliable and efficient, an aggressive policy of national highway expansion, improvement and shortening needs to be adopted while ensuring connectivity to the far flung villages and rural communities to reduce regional disparity and ultimately to fulfill the vision of GNH. The RSMP envisions construction of over 2,600 km of new feeder roads, 537 km of National Highways for inter–Dzongkhag connectivity, construction and improvement of 794 km of the Southern East – West Highway (SEWH), and realignment and construction of tunnels on the existing national highways. Among the roads included in the RSMP, the construction of the SEWH is vital to catalyze economic activities in the economic hubs. Directory: wp-content -> uploads -> 2011 2011 -> Voices of the Old Sea Norman Lewis 2011 -> Malevil Robert Merle 2011 -> The Elephant Keeper’s Children Peter Hoeg 2011 -> Jv packet •Mars Colonization Affirmative •Mars Colonization Negative 2011 -> Registration Form (Rev. 8-86) omb no. 1024-0018 2011 -> All America Looks Up to Virginia;” Virginia and the Declaration of Independence 2011 -> Rao bulletin 2011 -> Christopher Columbus was born between 25 August and 31 October 1451 in 2011 -> The Battle of Frenchtown (1855), Washington Territory: the Political and Demographic Context rev 9/4/11 2011 -> Seti aff •seti neg •Asteroids Aff Download 2.46 Mb. Share with your friends:
|