REVIEW10 Digi PDF

ISOCARP WATER
REVIEW 10
AND CITIES
MANAGING A VITAL
RELATIONSHIP
© Copyright 2014
© International Society of City
and Regional Planners.
All rights reserved.
No part of this publication may be

reproduced, stored in a retrieval
system or transmitted in any form or
by any means electronic, mechanical,
photocopying, recording or otherwise,
without the prior written permission of
the Publisher. Authorship Responsibil-
ity: the original author is responsible
for the content of the manuscript.
Editors
Editor-in-Chief: Shi Nan, ISOCARP VP, China
Editor: Jim Reilly, United States
Editor: Fran Klass, United States
Coordinator
Lucian Perici, Romania
Graphic Designer
Ricardo Moura, Portugal
www.ricardomoura.pt
ISBN 978‐94‐90354-29-9
Cover Photo
© Image courtesy of Tadeusz
Urbaniak/ZMPG-a S.A, Poland
Printed and bound in Poland

by Drukarnia Ksiezy Werbistów
Printing financed by
Gdynia Municipality
Order online at:

www.isocarp.org
2 ISOCARP
REVIEW 10
3
© Image courtesy of Gdynia Municipality. Photo by: Kacper Kowalski
CONTENTS
6 ISOCARP President’s Foreword

7 Local Organizing Committee’s Foreword
8 From the Editors
RESTORING DISTURBED WATERWAYS

TO CREATE A FOCUS FOR RENEWAL
12 DESIGNED ECOLOGIES FOR AN URBAN RIVER SYSTEM
ACROSS SCALES IN KUNMING AND LIUPANSHUI
Kongjian Yu
32 PRAGMATIC APPROACHES TO CHINESE URBAN
TRANSFORMATION: DONGGUAN ECO-INDUSTRIAL PARK
Bin He
48 RECONNECTING THE CITY WITH ITS RIVER: SAMBARMATI
RIVERFRONT DEVELOPMENT PROJECT IN AHMEDABAD
Aparna Joshi
62 RIVER AS NATURAL ENGINE FOR THE CITY DEVELOPMENT
STRATEGY FOR RIVER WARTA IN POZNAŃ, POLAND
Edyta Wisniewska and Mark Niesten
WATER AS AN AMENITY AND SETTING

FOR NEW DEVELOPMENT
76 EAST HARBOR · THE WATER REFLECTION
OF A CITY: THE PLANNING PROCESS AND
CONSTRUCTION OF EAST HARBOR IN DALIAN, CHINA
Xianli Hu, Kang Wangxuan and Lin Lin
92 HAMMARBY SJÖSTAD – A UNIQUE SUSTAINABILITY
PROJECT IN STOCKHOLM
Ronald Wennersten and Hongling Liu
112 PLANNING AND PRACTICE OF WUXI TAIHU NEW TOWN
Feng Xiaoxing
124 THREE CONTRASTING APPROACHES TO URBAN
REDEVELOPMENT AND WATERFRONT TRANSFORMATIONS
IN HAMBURG: “STRING OF PEARLS”, HAFENCITY AND IBA
(INTERNATIONAL BUILDING EXHIBITION)
Dirk Schubert
ISOCARP
138 URBAN TRANSFORMATION IN WATER-RELATED SETTINGS
A PROCESS OF SMART URBAN TRANSFORMATION
DYNAMIC PLANNING OF “ENERGIZING KOWLOON EAST”
FROM MASTER PLAN TO ACTION CATALYSTS
Raymond Lee
156 A PARTICIPATORY PLAN FOR THE HISTORIC

DISTRICT OF MAPUTO
Pablo Vaggione and Sara Candiracci
HISTORIC RESTORATION AND RE-USE RELATED

TO WATER RESOURCES
172 BUILDING A NEW RELATIONSHIP BETWEEN THE OLD TOWN
OF SENIGALLIA AND THE ADRIATIC SEA
Giovanni Sergi
190 THE WILLAMETTE FALLS LEGACY PROJECT:

REDISCOVERING THE FALLS
Carlotta Collette and Kelly Moosbrugger
RESTORATION OF WATER RESOURCES TO SUPPORT

CITIES AND REGIONS
202 THE HISTORY OF THE INTERNATIONAL COMMISSION
FOR THE PROTECTION OF THE RHINE (ICRP)
Ben van de Wetering and Anne Schulte-Wülwer-Leidig
212 INVENTORY OF ENVIRONMENTAL FEATURES IN MUMBAI, INDIA

Shirley Ballaney and Bindu Nair
PRESERVATION OF WATER-RELATED RESOURCES

228 THE VISTULA DELTA DEVELOPMENT
PLANNING AND IMPLEMENTATION
Anna Golędzinowska
242 WATER AND CITIES: THE SINGAPORE STORY

Lau Ying Shan and Mercy Wong
PLANNING FOR WATER-RELATED DISASTERS

260 PLANNING TO MITIGATE HURRICANE DAMAGE
AND TO INSURE THE CONTINUED GROWTH
OF CANCUN AND ITS REGION
ISOCARP Cancun Urban Task Force Team
280 ABOUT THE AUTHORS

286 ABOUT THE EDITORS
REVIEW 10
FOREWORD ONE
ISOCARP President’s Foreword

Milica Bajić-Brković The 50th ISOCARP Congress coincides with the launch of ISOCARP’s 50th An-
ISOCARP President niversary celebration, marking 50 years of our continuous efforts toward
2012-2015 strengthening urban and spatial planning, and raising our profession’s global
recognition. Five decades of knowledge creation and sharing have made us
better prepared to recognize how our cities and regions develop, how we
can make them sustainable and better places for all, and ways to identify the
responsibilities of planning in coping with the growing challenges of today’s
ever-changing world.
This year’s Congress and the Review which is before you are focused spe-
cifically on the relationship between man-made and natural environs, be-
tween physical and social planning, and between historical planning and the
emerging planning paradigms we are currently mastering. The contributions
assembled here call for better understanding of these relationships for their
more reflective exploration, for the exchange of experiences and ideas, and
above all, for making places more responsive to people and more livable.
Review 10 marks the 10th Anniversary of the ISOCARP Review series. Over
the past 10 years, this series has grown into a publication with increased
academic recognition among international planners, colleagues from aca-
demia, practicing planners, and among all those who are involved in the art
of place-making. Each year, the content of the Review is closely related to
the theme of the ISOCARP Annual Congress, featuring a approximately one
dozen papers commissioned from colleagues around the world. Their con-
tributions complement the research reports and planning practice submis-
sions that are presented at the ISOCARP Annual Congresses.
As you look through Review 10, you will note the participation of authors
presenting cases from all over the world, which greatly enhances our trad-
itional views of using, planning, and designing waterfronts for our rivers and
ports. Planning appears as comprehensive, multifaceted, and inclusive, just
like the relationship between water and cities the authors argue for. The per-
ception of the importance, role, and meaning of water in planning is grad-
ually changing, as can be seen, for example, in contributions on the Rhine
River, the Adriatic Sea in Italy, and the River Warta in Poland. In places such as
Kowloon, Hammarby Sjöstad and Oregon City, a unique venture was under-
taken to restore the fluid life and integrate it into the fabrics of the region as a
whole and into its urban areas. In other places like Mumbai, Singapore, Wuxi,
and Dalian, water has become a vital resource in restoring and maintaining
the ecological balance and quality of urban life. The cases of Hamburg,
Dongguan, Cancun, Ahmedabad, Maputo, Kunming, Liupanshui, and the
Vistula Delta provide exciting examples of visionary thinking, yet also chal-
lenge us with questions about future results and directions. I have identified
only a few of the examples discussed in Review 10. As you read the articles, I
am certain you will discover more such illustrations.
Preparing this publication has taken a significant investment of time and
effort from all the participants. It is my great pleasure to thank, personally
and on behalf of ISOCARP, all the authors and colleagues who made this
issue possible. I acknowledge the outstanding expertise of the authors, and
their cooperation and commitment in making this inspiring and valuable
contribution on the relationship between land and water. We all are very
6 ISOCARP
FOREWORD TWO
grateful to the Editorial Group: James Reilly and Frances M. Klass, who served
as editors and patiently and devotedly worked with the authors; Vice Presi-
dent of Publications SHI Nan, and to the technical coordinator Lucian Perici.
Many thanks also to Ricardo Moura, who provided a design for the book, and
made it visually attractive and eye-catching.
Last, but not least, I would like to extend my gratitude to the host of this
year’s Congress, the Municipality of Gdynia. Many thanks for hosting the
50th ISOCARP Congress, and for giving us a great opportunity to learn more
about your city, a vibrant seaport on the Baltic Sea, which so impressively
exemplifies the theme of this Review and the Congress.
Local Organizing Committee’s Foreword
We are very proud of our city and have a vision for its future development. Marek Stępa
However, with the 50th ISOCARP Congress taking place in Gdynia in Septem- Deputy Mayor of Gdynia,
ber 2014, we have an opportunity to view our vision in light of the opinions Chairman of the Local
presented by ISOCARP experts. The theme of the Congress – Urban Trans- Organizing Committee
formations: Cities and Water – corresponds perfectly with our belief that it is
necessary to bring the city centre to the sea, so we feel honoured by the fact
that ISOCARP has accepted our invitation to hold the Congress in Gdynia.
Gdynia is relatively large, compared to other Polish cities, with a population
of about one quarter million. It belongs to the so-called Tri-City, a metropol-
itan area with a population of over one million, comprising Gdańsk, Gdynia,
Sopot and some smaller communes. Gdynia is the largest Polish city founded
in the 20th century and the youngest among the nation’s 20 most populous
cities. It is also the only one of these cities to date from the 20th century.
Within this group, Gdynia has the most protected historic sites and the most
square feet under conservation, including almost the entire city centre.
The initiative to designate Gdynia’s city centre as a listed area was taken
by the city authorities. As the pre-application discussion evolved, there were
concerns about whether such a move could hamper the city’s development
policy. There was only one answer: the city must develop with due regard
for its heritage. After all, it serves as a monument to the heroic efforts of the
then-Polish state, which continued to build commercial and military sea-
ports as well as a city, despite difficulties, as Poland regained its independ-
ence after World War I.
Gdynia’s city centre is a joint effort of private investors who came to the
city from different parts of Poland with the strong belief that Polish trade
does not have to be dependent on the port of Gdańsk (which at that time
was called the Free City of Danzig and was a semi-autonomous city-state,
strongly influenced by Germany) and with great confidence that Poland
would successfully meet the challenge. This belief can be clearly seen in the
photographs from the first phase of the city centre development, showing
lush fields of rye and potatoes becoming home to townhouses designed to
form a dense city centre development.
It took a great deal of optimism to believe that the first random structures
sticking out of the fields would one day form a consistent urban tissue, giv-
ing the residents all the comforts of big-city living. Success was achieved by
those who were not afraid to dream and firmly believed that the sea would
REVIEW 10 7
FROM THE EDITORS
have enough food to feed and offer a decent living to the crowds of penni-
less settlers.
The dreams of three groups of individuals and the inspiration they took
from the sea helped build the City. Brave investors who were not afraid to
invest their money met equally brave architects and builders who loved a
challenge. Gdynia’s architecture is anything but typically Polish, because
the city drew inspiration from foreign architectural journals featuring ex-
amples as yet unseen in Poland. The architects and builders transformed
these examples by adding marine features, a perfect fit for the style, and
Kashubian motifs. These early innovations provided a base for the entirely
modern city centre, port, and industrial and military facilities. At that time,
Gdynia’s building style followed in the footsteps of the European and world
vanguard and boldly introduced what were then the most modern func-
tional and technical designs.
We do not want this forward progress to stop. We want all of Gdynia to
be at the forefront of the search for new forms, technologies, and functional
solutions, rather than just a style of decoration.
While Gdynia is a young city, it has a very distinct identity. There is a
strong sense of attachment among the residents, which is both an advan-
tage and a growth factor. Although they are brief, the history and tradition
are rich and varied. This includes Gdynia’s characteristic architecture, which
distinguishes it from other Polish cities. It is therefore no surprise to see lo-
cal investors drawing on the rich heritage in their new designs. This can be
seen in the ways the architecture uses elements of ships design, with the
porthole as the most popular motif. While professional critics of architec-
ture may say that it is not overly ambitious or perhaps a bit naive, at least it
proves the point of how strongly the residents feel attached to the city, its
tradition and history. Using its investment policy, specialist publications, sci-
entific conferences and campaigns, the local government aims to promote
and strengthen how the people of Gdynia feel about their heritage and by
doing so offer new and creative solutions in town planning, architecture,
and many other spheres of city life.
From the Editors

Shi Nan Our publication’s theme of “Water and Cities: Managing a Vital Relationship”
Jim Reilly covers many topics. Water is a symbol of creation, both of the universe (hy-
Fran Klass drogen) and of life (oxygen). Life evolved from the oceans, and even today
our bodies are filled with fluids strikingly similar to seawater. Water is a force
of nature which can be friend or foe – neither too much nor too little is good
for us. Water is so critical that much of our civilization and population is lo-
cated near major bodies of water. Man has developed ways to make use of
water. For example, we use ships to transport goods, and we use water to
bind building materials together. Water enables us to be healthy and clean.
It powers our industries and lights our homes. We have even developed an
esthetic appreciation of water’s beauty. Without water, we, and our civiliza-
tion, cannot exist. Water is vital, it sustains life itself.
REVIEW 10 presents 17 articles that describe real-world planning projects
related to our theme, and what an astonishing variety of articles!
8 ISOCARP
SHI NAN · JIM REILLY · FRAN KLASS
The subject matter and focus of these articles ranges from planning efforts
to preserve and restore the Rhine River to projects to recover waste water for
drinking purposes in Singapore; and from preservation efforts to restore the
Vistula River Delta to a project focused on producing the first inventory of
water-related and other environmental resources in Mumbai. As you might
expect, there are several articles about cities transforming themselves by re-
establishing their association with the bodies of water in their setting, but
each approach is remarkably different from the others. REVIEW 10 offers arti-
cles about restoring badly polluted waterways and making them the focus
and centerpieces of renewal efforts in Liupanshui, Kunming, and Dongguan,
as well as examples of cities undertaking renewal by accentuating their loca-
tional relationship with water as an amenity and setting in Hamburg, Stock-
holm, Wuxi, Poznan, Dalian, Maputo, and Hong Kong. We present two adapt-
ive historic reuse projects that are water related. Government agencies in
Oregon are working to restore public access to the scenic Willamette River as
part of an effort to revitalize Oregon City – they tell their story in this edition.
Senigallia, Italy, has begun to implement a plan to restore the Old Town and
link it to the Adriatic Sea. Different yet, Ahmedabad is reclaiming public ac-
cess along the Sabarmati River and developing it into a public parkway. This
REVIEW even contains an article about developing master plan concepts and
regulations to mitigate hurricane damage in Cancun.
As you can see, our articles report on projects from around the world.
Within these articles you can see examples of how the development of plans
is changing. A few describe planning as the vision of a few gifted profes-
sionals. Others approach planning through consensus building, while some
articles document a process where core ideas are developed to guide private
investment in changing economic and social environments. Implementation
of these projects increasingly shows the need for cost recovery and reliance
on private sector investment instead of massive government subsidies. We
live and work in a very interesting, dynamic world, and our goal for REVIEW
10 is to publish articles that demonstrate the diversity of visions, technical
approaches, and financial mechanisms that are part of it.
We are deeply indebted to all of the authors and agencies for generously
contributing their time and talent to prepare these articles. Ultimately, the
authors and their agencies are the stars of this publication.
In conclusion, we would like to sum up our hopes for this REVIEW in three
comments. First, we hope that readers find these articles to be interesting
and filled with ideas. Reading these articles reminds us of the importance
of the work of planners and how truly interesting our profession is. Second,
the various planning and design professionals who produced this document
aimed to provide informative, visually rewarding, and pleasant reading for
the members of the Society and others. We hope we succeeded.
Lastly, we are open to your suggestions and comments. The Editorial Board
received vital assistance, from both readers and ISOCARP members, with the
task of identifying candidate articles for REVIEW 10. We look forward to an
even higher level of support for this publication next year. Feel free to write
to us at isocarp-review@isocarp.org.
We hope to hear from you.
REVIEW 10 9
© Image courtesy of Gdynia Municipality. Photo by: Maciej Bejm
DESIGNED ECOLOGIES FOR AN URBAN RIVER SYSTEM ACROSS SCALES IN KUNMING AND LIUPANSHUI
DESIGNED ECOLOGIES FOR AN URBAN

RIVER SYSTEM ACROSS SCALES
IN KUNMING AND LIUPANSHUI
KONGJIAN YU
12 ISOCARP
KONGJIAN YU
Figure 1: In this summer enhancement. The working

scene, the carefully graded, wetland attracts thousands of
interlocking bio-swales and visitors every day from the city
pond system along the valley and the far-reaching region.
acts as a “green sponge”. Tourists and locals alike enjoy
Storm-water is detained the richly textured and colored
and retained to capture or tapestry. Self-seeding flowers
transform the agricultural were sown along the paths and
and urban non-point source between bio-swales, to create
pollutants. The designed a low maintenance ground
landscape creates diverse cover. They create a vibrant and
native habitats for biodiversity pleasant walking experience.
REVIEW 10 13
THE CONCEPT sink of energy and services, rather than a source.

OF ECOLOGICAL Landscape as a natural ecosystem in and around
INFRASTRUCTURE cities is largely neglected; natural processes dis-
integrate and become contaminated; and natural
For most of civilization, those who were suc- patterns are fragmented. The landscape therefore
cessful in exploiting natural resources and trans- completely loses its capacity to provide what
forming natural patterns through technological would have been free goods and services for
advancements were considered to be highly civil- urban communities. Over time, we have drifted
ized, while those who adapted to natural forces away from nature and become disconnected
were considered primitive and uncivilized. Cities from our roots.
are by far the largest and most complicated artifi- Looking at the history of city planning and
cial devises that human beings have constructed, building, we find traditional designs treating
and they are considered by many to be the very landscape as one physical and organizational
testament of human civilization. From the origin entity, rather than as isolated ornamental pieces.
of the city to its “modernized” form today, nat- Most cultures have a pre-scientific tradition of
ural forces and patterns have become increas- using geomancy to organize settlements based
ingly controlled and dependent on artificial pro- on the framework that a sacred landscape in-
cesses. The quality of urbanization thus becomes cludes both spiritual and physical infrastructures.
measured by how quickly rain water drains off Since the late 19th century, some cities in Amer-
our streets, how stable temperature and humid- ica used parks and green spaces as fundamental
ity are maintained in our rooms (or even in open infrastructures to resolve urban problems such
spaces), and how garden trees and shrubs are as congestion and sanitation. More recently, this
grown for ornamental purposes rather than for concept of greenways was further developed
their productivity. into a more comprehensive and inter-connected
This standard of civilization is built upon heav- framework called the Green Infrastructure (GI),
ily engineered gray infrastructure. It comprises which is considered as the basis for “urban form”
complicated transportation systems designed for within urbanizing and metropolitan regions. For
vehicles to deliver goods and services, huge pipe example in early 20th century Europe, greenbelt,
networks laid underground to drain excess storm green heart and green wedge were used by urban
water, rivers reinforced with concrete walls to designers in urbanizing cities as stoppers, separ-
control floods, large sewage plants built to treat ators, and connecters of urban development and
waste water, power lines to convey energy neces- to create a good urban form. Today, ecological
sary to run all the machines and devices, et cet- networks are planned in metropolitan areas
era. Built upon this gray infrastructure are showy across Europe.
buildings with deformed heads and twisted bod- What would an alternative city look like if its
ies that deviate from what natural forces allow. natural forces were respectfully used and not
Such a model of urbanization, used by Western controlled? Vegetables and food would be pro-
cities during their early stages of development, duced on the streets or in parks; floods would
has unfortunately been adopted by developing come and go to the benefit of the city; waste
countries in general. In the past decade, hundreds would be absorbed and cleansed by the natural
of new towns have been designed and built in processes; birds and native species would cohabit
China. Many have been called Eco-cities, but most the city with human beings; and the beauty of
are wasteful and poorly planned and designed, nature would be appreciated in its authenticity,
with little consideration for their environmental not tamed nor heavily maintained. The key here
and ecological impacts. is that these alternative solutions do not rely on
Here, landscape is largely limited to tamed gar- gray infrastructure, but instead, use green or eco-
dens and parks where lawns and flowers are irrig- logical infrastructure to deliver the goods and ser-
ated with tap water, and storm water is drained vices the city and its urban residents need.
by underground pipes. Landscape becomes just Ecological Infrastructure (EI) therefore can be
like other components of an artificial city; it is a understood as the necessary structure of a sus-
14 ISOCARP
KONGJIAN YU
tainable landscape (or ecosystems) in which the plateau”) - China’s sixth largest fresh water lake.
output of the goods and services is maintained, The city and region make up a huge horticultural
and the capacity of those systems to deliver the center, the largest flower export base in Asia, and
same goods and services for future generations a growing tourist destination. Its scenic landscape
is not undermined. What makes the concept of EI is an aspect of the region that requires safeguard-
a powerful tool for the alternative ecological ur- ing and land stewardship.
banism is its marriage with the understanding of Kunming’s Pan Long River stretches 23km
Ecosystems Services. Four categories of services through the city’s central business district be-
are commonly identified: provisioning, related to tween the Song Hua Ba Reservoir in the north and
the production of food and clean water; regulat- the Dianchi Lake in the south. The river is quite
ing, related to the control of climate and disease, narrow (between 10-20m wide) and over the
and mediation of flood and draught; supporting, years has become channelized and embanked
related to nutrient cycles and providing habitat with 100-year-flood concrete steep slopes; it
(suitable living space) for wild plant and animal barely resembles a river anymore. Recently, urban
species; and cultural, related to spiritual and rec- development has proceeded at breakneck-speed
reational benefits. and, as the permeable surface areas of the city
It is important to recognize that the conven- decrease, the general risks of flooding in Kun-
tional approach to urban development planning, ming increases (especially during the summer,
which is based on population projection, built- as the city has a subtropical highland climate). In
infrastructure, and architectural objects, is unable addition, pollution in the river is increasing, due
to meet the challenges and needs of the ecologic- to, on the one hand, the fact that the city has an
al and sustainable urban form and development. incomplete sewer network, meaning that a great
Conventionally, landscape and green elements deal of raw sewage discharges directly into the re-
are usually negatively defined by architectural gion’s waterways and, on the other hand, the fact
and built infrastructure. By positively defining the that there are a number of inappropriate land-
EI for the sake of Ecosystems Services and cultural uses along the riverfront (including industries
integrity of the land, the urban growth pattern and warehouses). Once the river was the cultural
and urban form are negatively defined. Eco- and social center of the city, and although there
logical Infrastructure builds a bridge between the are number of important relics remaining, they
alternative ecological urbanism, the disciplines of are mostly neglected and need re-linking to the
ecology, especially landscape ecology, the notion ‘mother river.’ Today, there is no convenient access
of ecosystems services, and sustainable develop- to the riverfront and no natural buffers between
ment. It is the bridge between smart develop- the cityscape and the water.
ment and smart conservation.
Strategy and Approach
TWO EXAMPLES The Pan Long River Rejuvenation project plan was
OF ECOLOGICAL developed between 2008-2009 and works across
INFRASTRUCTURE multiple scales (region, city, and district) as well
as in a realized stretch of the riverfront. In a most
Kunming general sense, it has four major objectives:
Kunming (population 5.7 million) is the capital 1. To reconfigure the Pan Long River as a water-
and the largest city in the Yunnan Province in way to mitigate the city’s floods (100-year flood)
southwest China. It is surrounded by lakes and and (purified) storm water, while, at the same
limestone hills and lies in the fertile lake basin time, giving public access to the riverfront in a
of the Yungui Plateau 1900m above sea level. friendly and landscape/ soft-engineered man-
It is near the borders of several Southeast Asian ner (requiring demolition of the hard concrete
countries and has always had a special link to that embankments).
region, as well as to India and Tibet. Kunming is 2. To upgrade the Pan Long River and thereby
known for having one of the mildest climates in rejuvenate the economy of the inner city and
China and for its Dianchi Lake (“the pearl of the to more specifically increase the land values
REVIEW 10 15
of the properties immediately adjacent to the izing on the assets of the natural landscape and
riverfront itself. low-, medium-, and high-security patterns were
3. To pay particular attention to the upper and low- developed for 20-, 50-, and 100-year floods, re-
er reaches of the river, where the farmland and spectively. Landscape security patterns were set
rural land-use is dominant. It is evident that the up to provide maximum natural water-retaining
territory is one in transformation, but the project capacity. Storm water management and flood
seeks to build upon the inherent qualities of the protection depend on these interconnected net-
particular landscape features adjacent to the works of wetlands, low-lying grounds, waterways,
northern reservoir and the southern lake. and lakes-providing a sound substitute for con-
4. To initiate ecological restoration along the Pan crete dams and riverbanks.
River and the region as a larger system to in- The strategy for biodiversity conservation was
crease biodiversity (including to collect water built on analytical maps of land use and vegeta-
in the wet season and to release it in the dry tion, combined with an analysis of habitat suitabil-
season), to strengthen the link between the ity (based on the spatial relationships between
natural and cultural heritage and to create new habitats and landscape ecological principles).
systems for recreational and public space uses Strategic points and critical areas were identified
for Kunming and the Yunnan Province. as the primary concerns for the management and
design of interconnected ecological corridors.
On a regional scale, “security patterns” and “eco- At the intersections of roads and natural corri-
logical infrastructure” were developed following dors, the proposed design interventions include
analysis of existing conditions. An ecological se- underpasses for certain wildlife species and for
curity pattern is intended to secure the integrity water flows, plus bridges for animals.
and identity of the landscape in a specific area Security patterns for cultural heritage protec-
by identifying and working with the essential tion and recreation are also included, and these
natural, biological, and cultural processes within are based on careful analysis of the existing herit-
that area. Ecological security patterns include age site and potential links to it.
both “defensive measures” (protecting threat- At the scale of the river itself, the 23km trajec-
ened ecological networks) and “opportunistic” tory was analyzed very carefully and recognized
interventions to restore, complete, and integrate to have a number of different inherent qualities.
the damaged water network into the urban fab- The north and south are presently rural, agricul-
ric. “Security patterns” identify the natural capital tural areas, and this was considered a quality that
of ecology and stress its non-renewable, process- could be respected in the new densification and
embedded value. Ecological infrastructure is de- development that would inevitably take place as
signed based on integrated ecological security urbanization continues. In a development plan for
patterns that safeguard individual natural and the area adjacent to the Song Hua Ba Reservoir,
cultural processes. The ecological infrastructure new housing clusters are developed, together
for Kunming works as a powerful tool for open with constructed wetlands and swales (in addi-
public space conservation and reconstruction, tion to protecting as many existing rural fish
focused on the integration of three categories of ponds and villages as possible) to create a new
processes: abiotic (mainly water management), urban/rural morphology and housing typologies.
biotic (native species/biodiversity conservation), In the area just north of the Dianchi Lake, exist-
and cultural (heritage protection and recreation). ing villages are also maintained; the rice fields are
The strong analytical base for the project was converted into a wetland park to (re)purify water
provided by natural, cultural, and socio-economic that is cleaned in a mechanical sewage treatment
data from GIS. The resulting interpretative maps plant before releasing it into the Pan Long River.
led to projective design cartographies that were New urban development would complement
used to safeguard the three different processes the existing settlement structure, again creating
in the landscape. The flood-security patterns at a marriage of tradition and modernity and a host
the regional scale sought alternative solutions to of new mixed-use morphologies and typologies.
the usual engineered flood mitigation by capital- In the central stretch of the river — particularly
16 ISOCARP
KONGJIAN YU
Figure 2: Design of New Flood

Security Pattern.
The rivers, canals, ponds and
wetlands are enlarged and new
water bodies created to form
a self-sustaining water system.
Other landscape urbanism
strategies include the design
seasonal flood pockets and new
river/canal embankments.
REVIEW 10 17
Figure 3: Regeneration of the river is designed hand-in-hand

Pan Long River as the Spine of with new economic urban
Kunming and a demonstration. development. The qualities of
As a demonstrative project the 23km riverfront are diverse
for the rest of the ecological and the proposal seeks to en-
infrastructure that include 35 hance differences, dividing the
river greenways, the 23km trajectory into 4 zones: north
trajectory of the Pan Long River as rural farmlands; mid-upper
is designed as a new center for as riverfront CBD; mid-lower
Kunming and the region. The as living riverfront; south as
ecological restoration of the agricultural landscape.
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Figure 4: North Development

Plan (near Song Hua Ba Res-
ervoir). New housing cluster
is developed as warp-and-
woof with forests, swales and
wetlands. The existing sunken
ponds and villages are main-
tained and reprogrammed as
cleaning machines, recrea-
tional spaces and new rural/
urban hybrids.
REVIEW 10 19
Figure 5: Typical Development of

Kunming Center Riverfront.
In the center of Kunming, the
hard edges of the riverfront are
reconfigured with ecological-
engineering methods, shallow
slopes that allow increased access
to the water and with planting
that mitigates flood risks.
20 ISOCARP
KONGJIAN YU
Year 1
Year 2
Year 3
Figure 6: Pilot Project

Implementation.
Reconfiguration of 8.3km in the
downstream river section created
a vibrant new public realm, while
solving problems of pollution and
riverbank stabilization (with live-
staking and riprap). Native hydrology-
based planting created a new nature
for Kunming.
REVIEW 10 21
through the CBD of Kunming— the river is up- Basin into which surface water is discharged. As
graded and developed as a system of parks and the ‘mother river’ of Liupanshui City, the river has
gardens that links cultural amenities and creates witnessed how the city has been transformed
public promenades and a low-speed traffic system during the past few decades and carried a collect-
for Kunming. A modification and adjustment of ive memory of the inhabitants.
the existing morphologies and typologies along The city was historically surrounded by the river
the greatest length of the river’s trajectory would and named Shuicheng (Water City), or Lotus Leaf
significantly change the quality of life in the city, City. The city looked like a floating lotus leaf in
and shallow slopes along the banks would give the rainy season because the river rose and sur-
citizens accessibility to the riverfront again and rounded it. Since the agrarian age, Shuicheng
bring Kunming back to the Pan Long River. River naturally meandered across the city. Then in
1966, together with the establishment of Indus-
Implementation of a Pilot Project trial Construction Headquarters in Liupanshui,
Phase 1 of the project was constructed between large-scale industrialization, urbanization, and
September 2009 and March 2010, and realized mobilization began in the region. The Shuicheng
8.3 km of the riverfront restoration of the down- River Reconstruction project, started in 1975 and
stream section of the river, from the Guannan completed in 1980, completely changed the river
Bridge to the mouth of the Dianchi Lake. The into a straightened and channelized one with a
project includes riverbank stabilization using eco- concrete embankment. As a result of the region’s
logical engineering (live-staking and riprap) to continuous industrial development and urban
strengthen the structure of the soil and provide population growth, the channelized river no
added resistance to the erosive force water flows; longer has the capacity for flood control or self-
newly placed porous-paving bicycle and pedes- purification through ecological processes, which
trian trails along the river; native hydrology-based leads to its continuing degradation. Badly pol-
planting to restore the riparian system; and the in- luted by sewage and waste, the mother river lost
clusion of wooden platforms and urban furniture its charm.
to create new social spaces along the riverfront. As an element of a major campaign of environ-
The dilapidated riverside has been transformed mental improvement, the city government com-
into a highly used public green space and the missioned the landscape architect to develop a
river has once again been returned to the city as holistic strategy to address multiple serious prob-
its central spine. lems including:
Finally, the Pan Long River (as the mother river 1. Water pollution: As one of the major heavy in-
of Kunming) project is an important step, and a dustrial cities built during the Cold War period,
replicable demonstration, for the recovery of the Liupanshui has been dominated by coal, steel,
region’s 35 rivers (which are the source of pollu- and cement industries. Consequently, the cit-
tion of the Dianchi Lake’s pollution). The mayor of izens have suffered from air and water pollution
Kunming has himself taken personal responsibil- for a long time. From the industrial chimneys,
ity and supervised projects on the river and as- decades of air pollution deposits fell onto the
signed each of his deputy mayor’s responsibility surrounding slopes and washed into the river
for the other rivers. The political will of the local along with the storm water that also carries
government is recorded in the city’s July 18, 2008, chemical fertilizer runoff from the farmland
Communist Party record. on the slopes and sewage from the scattered
settlements on the slope.
Liupanshui 2. Flood and storm-water inundation: Situated
Liupanshui is located in the west part of Guizhou in the valley, the city is subject to floods and
Province, on the Yungui Plateau. The Shuicheng storm water inundation during the monsoon
River begins in the mountainous Zhongshan Dis- season, but also to severe drought in the dry
trict and flows towards the Sancha River. The 13 season due to the porous limestone geology.
kilometers of the river, which flows through the 3. Recovery of the ‘mother river’: Channelization
city, make up the only channel in the Shuicheng of the River Shuichenghe was carried out in the
22 ISOCARP
KONGJIAN YU
1970s as a solution to inundation and flooding. system services for the residents. Integration and
The channel transmitted the storm water from connectivity of natural, biological, and cultural
upstream but caused even more severe flood- processes are central to the project. Water pro-
ing problems downstream. Hence, the former cess and pattern are the bases. Here are the urban
meandering ‘mother river’ became an ugly con- planning and design strategies for the city:
crete, lifeless ditch, and its capacity for flood ∙ A water-based ecological infrastructure (EI) will
retention and environmental remediation was reactivate the city. The EI is designed around
totally lost. the existing water systems and land forms.
4. Creation of public space: Recreation and green The key functions are to retain and clean
spaces are inadequate due to the population storm water. ‘Slow down’ is the main strategy.
explosion in the city. The water system that was Different rainfall amounts are simulated to
once a blessing to the city has become a desert- determine the area and pattern of the pond/
ed backyard, garbage dump, and the danger- wetland system so that all storm water will be
ous backside of the city. Pedestrian access to a retained on site and will have little impact on
restored green space system is badly needed in the regional water system. This will reduce the
such a densely populated community. construction costs of underground drainage
pipes and preserve or create habitat for native
Strategy and Approach wildlife and wetland vegetation.
The strategy is to slow the flow of water from the ∙ Public spaces are integrated with the EI.
hillside slopes and create a water-based ecologic- Three levels of green and water corridors are
al infrastructure that will retain and remediate the designed to accommodate various functions.
storm water, and make water the active agent The main corridors will catch runoff from
in regenerating a healthy ecosystem to provide the whole area during the severest storms.
natural and cultural services that transform the Secondary corridors will catch runoff from the
industrial city into a livable human habitat. subdivisions of the watershed during medium
At the macro scale, the plan focuses on both rainstorms. The third level corridors and ponds
the Shuicheng River drainage basin and the city. will catch the water from small storms.
First, existing streams, fishponds, and low-lying ∙ A network of pedestrian trails and bicycle
land are all integrated into the flood control and paths will make the town completely walkable
ecological purification system along the river, and allow residents to commute and have rec-
forming a series of purification wetlands with dif- reational experiences in the green space. While
ferent capacities. This approach not only helps to the regional mobility of the city is still serviced
regulate urban flooding but also river water re- by a transit system and roads, and the city will
charging. Second, the concrete embankment of use the EI to help people move around. The
the channelized river was removed. Natural river- maximum walking distance from any corner of
bank was brought back to revitalize the riparian the city to a bus station will be 600 meters, and
ecology and maximize its self-purification cap- all residents will be able to reach the green
acity. Third, the creation of the continuous ped- network within five minutes.
estrian and bicycle paths helps to integrate the ∙ Urban land is valued according to its relation-
urban recreational and ecological space, increas- ship with EI. The land overlooking the eco-
ing the accessibility of the riverfront. Last, the pro- logical infrastructure will be given priority for
ject combines waterfront development and river residential development. The overall city form
restoration. Ecological infrastructure catalyzes the is defined by the EI.
urban renewal of Liupanshui City, significantly in-
creasing the land value and enhances the urban The eco-friendly, environmentally sensitive,
vitality. and low carbon landscape and architecture cre-
The main urban planning concept for the city ate a new aesthetic environment and a new life-
is to use landscape as ecological infrastructure to style. Native biodiversity, low maintenance, and
integrate various natural and cultural processes productivity are the main traits of the vegetation
to re-activate the city and to provide diverse eco- in the green space around the EI. Buildings have
REVIEW 10 23
LOW SECURE
MODERATELY SECURE
HIGHLY SECURE
LOW SECURE
MODERATELY SECURE
HIGHLY SECURE
WATER FEATURE
Figure 7 (top): Liupanhsi: The Figure 8 (bottom): Liupanhsi:

water security pattern as the The landscape security pat-
major component of the eco- tern of recreational resources,
logical infrastructure one of the major component
of the ecological infrastructure
24 ISOCARP
KONGJIAN YU
LOW SECURE
MODERATELY SECURE
HIGHLY SECURE
WATER FEATURE
WATER FRONT GREEN

COMMUNITY RAIN GARDENS
RIVER
BIOISWALES
WETLAND
FOCUS AREA
Figure 9 (top): Liupanhsi: The Figure 10 (bottom): Master

ecological infrastructure of plan of open space system
Liupanshui, an integration of along the Shuichenghe River
various landscape security
patterns including security
pattern for water management,
security pattern of recreational
resources, security pattern for
native habitat protection, and
security pattern for cultural
heritages.
REVIEW 10 25
Figure 11 (top): Figure 12 (bottom):

The conceptual diagram of The detailed diagram of ecological
ecological infrastructure for the infrastructure integrated with the
city of Liupanshui urban land use
26 ISOCARP
KONGJIAN YU
roof gardens and living green facades. Retired conditions. These terraced habitats slow the
people can spend their time fishing in the ponds flow of water and speed nutrient removal from
in front of their apartments or in the streets; the water by microorganism and plant species
workers go along the EI to their workplaces; and that use excess nutrients as resources for rapid
children play in the productive agricultural fields growth.
where parents are growing vegetables in com- 3. Pedestrian paths and bicycle routes are over-
munity gardens. laid on the green spaces along the waterways
and form a circuit around and between the
Implementation of the project wetland terraces. Resting platforms with abun-
The Liupanshui Minghu Wetland Park project, 90 dant seats, pavilions, and a viewing tower are
hectares (222 acres) in size, is the first phase and integrated into the designed natural system for
a major part of the comprehensive ecological universal access. This fosters learning and rec-
infrastructure project planned for the city. As reational and aesthetic landscape experiences.
one of the major projects included in the eco- An environmental interpretation system was
logical infrastructure of Liupanshui, the Minghu designed to help visitors understand the nat-
Wetland Park features ecological restoration of ural and cultural meaning of the places. Clearly,
the upper stream section of the channelized the most iconic built artifact is a warm-colored
river. Minghu Wetland Park was created on a rainbow bridge, in contrast with the frequently
site composed of deteriorated wetland patches, cool and damp climate. This causeway con-
abandoned fishponds and strips of misman- nects three sides of the central wetland (lake),
aged cornfields. Its pre-development condition creating unforgettable walking and gathering
was dominated by garbage dumps and pollut- places. These have quickly become favored
ed water. As a demonstration of the ecological social and recreational environments of the cit-
infrastructure project, this first phase project izens and attract visitors from near and far.
was designed using all of the tactics for rebuild-
ing ecological health leading to the recovery of Through these landscape techniques, the de-
biodiversity and native habitat, retention and teriorated water system and peri-urban waste-
water quality improvement of storm water, and land has been successfully transformed into a
public access to high-quality open space, and high-performance and low maintenance munici-
finally a catalyst for urban development. The pal front yard. It beautifully regulates storm water,
specific park elements that achieve these object- cleans contaminated water, restores native habi-
ives are listed below: tats for biodiversity, and attracts residents and
1. The concrete river embankment was removed tourists. It was officially designated as a National
to create two ecological zones. One encour- Wetland Park in China in 2013, and won an ASLA
ages native vegetation to grow within the flood (American Society of Landscape Architects) Hon-
zone, and the other establishes conditions for or Award of General Design in 2014.
emergent vegetation in the riverbed. Aerat-
ing cascades were created along the river to
add oxygen that fosters bio-remediation of the
nutrient-rich water.
2. Terraced wetlands and retention ponds were
created to reduce peak water flow and regulate
the seasonal rainwater. The terraces are inspired
by the local farming techniques that catch and ACKNOWLEDGEMENT
retain water and transform steep slopes into The Editor would like to thank and acknowledge the invaluable
productive fields. Their positions, forms, and assistance of the University of Pennsylvania, Chinese Language
depths were based on geographic information Department, Department of East Asian Languages and Civiliza-
and a water flow analysis. Native vegetation tions. In particular the excellent assistance of Mien-hwa Chiang
was planted (mostly sown) to establish asso- and Zhou Yi who expertly translated a lengthy PowerPoint
ciations adapted to the various water and soil presentation supplied by Dr. Yu.
REVIEW 10 27
The site plan of Minghu Wetland
Figure 13: Site scale: design pedestrian connectivity. The

concept and site map: The planning and design studies
Minghu Wetland Park, a part above demonstrate both
of the regional ecological regional and parcel scale ef-
infrastructure that is planned forts to create an integrated
to remove the nutrients and system. The two key tactics
other pollutants by slowing to slow down water flow
down water flow, restore are namely bio-swales and
native habitats, as well as terraced wetlands designed
create public green space for to better conform to the
both recreation and better existing topography.
28 ISOCARP
KONGJIAN YU
Figure 14: This scene, looking

towards north, shows the sinu-
ous design of the built project.
REVIEW 10 29
Figure 15: A rainbow bridge city, the beauty of which has

flies above the wetland park. been forgotten and misused
It serves as access into the over the past decades. It is an
designed wetland and as iconic cultural landscape ele-
a linkage that invites the ment that focuses views toward
ever busy residents to “slow the extensive karst landscape
down” their pace just as the surrounding the city. The bridge
bio-swales slows down the provides a cultural route for
water. The relaxed pace allows ordering and experiencing
people to enjoy the everyday and interpreting the otherwise
landscape surrounding the ordinary natural landscape.
30 ISOCARP
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REVIEW 10 31
PRAGMATIC APPROACHES TO CHINESE URBAN TRANSFORMATION:DONGGUAN ECO-INDUSTRIAL PARK
PRAGMATIC APPROACHES
TO CHINESE URBAN TRANSFORMATION:
DONGGUAN ECO-INDUSTRIAL PARK
BIN HE
32 ISOCARP
BIN HE
Central Area of DEIP: with “lake islands” were shaped, and

innovative approaches, the site has been turned into
radical changes took place in an environmentally friendly
Dongguan Eco-Industrial Park employment center.
during past seven years. The Source: Management
polluted water was cleared out, Committee of DEIP
REVIEW 10 33
China’s urban land increased rapidly and enor- Figure 1: Current land use
map of Dongguan (2004).
mously from 1981 to 2008, with an annual aver-
Source: CAUPD, Urban
age growth of more than 1200 square kilometers Hierarchical Planning of
(MOHURD, 2010). While cities achieved economic Dongguan (2005-2020)
growth, this fast urbanization led to severe en-

vironment destruction. Air pollution, water scarcity
and pollution, food safety caused by heavy metal
pollution, traffic congestion, and waste disposal
difficulties became unbearable issues for Chinese
cities. In 2013, 8.9% of Chinese river water was
found to be Grade V or worse. (In Chinese water
pollution classifications, Grade I is the highest
quality and Grade V, the most polluted, is even un-
suitable for agriculture). Of the remaining water,
71.7% showed light pollution at Grade I to Grade
III, while more than a quarter of coastal water
monitor stations collected higher pollution data
than Grade IV (NBS, 2014). Many cities faced great
challenges overcoming the unwise patterns of
development that occurred under periods of rapid
and uninformed growth. Development transform-
ation became the primary task for china’s cities.
Dongguan is a representative of those suffering
cities. After experiencing fast and dispersed urban-
ization, it had to confront a series of issues, such
as fragmented and inefficient land use, environ-
mental pollution, and then, eventually, anemic
growth. From its beginning in 2007, the Dongguan PROBLEMATIC AND SLOWING
Eco-Industrial Park (DEIP) has been committed to DOWN GROWTH OF DONGGUAN
solving these problems, with continuous consulta-
tion from the China Academy of Urban Planning Disperse Development and Town Segregation
and Design (CAUPD). Thanks to China’s Reform and Opening in the late
This paper shares the story of DEIP and its innov- 1970s, Dongguan took advantage of its location,
ative approaches. The DEIP, located in a marginal lying in the middle of the Guangzhou-Hong Kong
area surrounded by six towns in eastern Donggu- economic corridor, to attract large numbers of
an, adopted a strategy: “environmental restoration Hong Kong and Taiwan manufacturing investors.
— regional integration — sustainable develop- It became one of the fastest economic growth
ment” and struck a balance between treating the areas, with an average annual growth at around
pollution and seeking development opportunities. 20% during the past three decades.
After a seven-year effort, DEIP has succeeded in A distinctive government system was formed in
environmental restoration and urban spatial inte- Dongguan after its promotion from a county to a
gration: the polluted water was cleared out, “lake municipality directly subordinate to the provincial
islands” were shaped, and the site was been turned government in the 1980s. It has no intermedi-
into an environmentally friendly employment ate county level but instead was divided into 32
center. It sets up a practical exemplar and provides towns, which allowed the towns to have more
approaches towards sustainable development for authority for decision-making and makes towns
fast developing cities facing environmental issues. the units of development and urbanization. This
With examples of DEIP’s success documented, this advantage aroused investment enthusiasm and
paper also points out deficiencies which still need greatly promoted economic growth. Previous
to be resolved. agricultural towns soon transitioned to manufac-
34 ISOCARP
BIN HE
turing nodes, which cumulatively contributed to out over 839.6 square kilometers (Figure 1), in
making Dongguan one of today’s leading global which the industrial land consisted of 45.07% in
manufacturing centers. 2004 (CAUPD, 2006), the urban spatial structure
However, cheap labor and cheap land-based, remained a collection of villages and towns. It was
lower-cost-seeking industrialization shaped the difficult to connect infrastructure, plan public ser-
city into an undesirable regional landscape, which vices as a whole, and coordinate industry develop-
was described as “village like town, town village ment between two towns. To some extent the lack
like” and “Semi-urbanization” (Zheng Yanting, of coordination among towns brought about
Liu Shenghe, Chen Tian, 2003). Uncontrolled de- town segregation and rivalry
velopment of towns and villages resulted in a
pattern of scattered and fragmented urban land Pollution and High Energy Costs
uses (Figure 1). The urbanization of Dongguan in The Dongguan economy depended on labor-
that time was recognized as bottom-up and for- intensive manufacturing industries, such as furni-
eign economy-based pattern (Zhou Yixing, Cao ture, footwear, and clothing, which usually are low
Guangzhong, 1999). efficiency and low added-value, and impose high
This development pattern also led to inefficient levels of environmental pollution. The economic
land use, environmental pollution, and other transformation of Dongguan had not kept pace
negative conditions. After the late 1990s, this with first-tier cities like Shenzhen and Guangzhou,
situation eventually evolved into an obstacle to because of the weakness of innovation, which was
continued growth. Though the urban land spread caused by its external force-impelled industry.
REVIEW 10 35
Energy Consumption/GDP Electricity consumption/GDP Energy Consumption

(Tce/10 000 yuan) (kwh/10 000 yuan) per added-value of industry
(Tce/10 000 yuan)
National average 1.102 1375.29 2.189
Provincial average 0.715 1085.49 0.869
Shenzhen 0.544 785.5 0.530
Dongguan 0.738 1465.71 0.819
Table 1: 2008 Dongguan GDP per unit of energy use. Source: see1
Along with economic growth, pollution in tion, building a prosperous and harmonious new
Dongguan was increasing. Per capita waste water Dongguan”, and then put forward the DEIP initia-
discharges increased from 1982 to 2009 and tives: banking marginal lands, bridging and inte-
showed no sign of declining (Circular Economy grating urban systems, and restoring the environ-
Promotion Center of DEIP, 2012,). Dongguan suf- ment of six towns. This plan aimed to tackle the
fers severe acid rain, and the average pH of rainfall negative problems of rapid and decentralized ur-
in Dongguan was 4.83 in 2008 (normal rainfall is banization, high carbon emissions, and environ-
pH 5.3). The water of the 103-kilometre-long can- mental pollution. It was the city’s new attempt
al was found to be Grade V in 2008 according to at urban transformation and sustainable growth.
official figures (Chinadialogue, 2011). Different from former new development districts,
Soon after Beijing announced a great reduction the park did not merely concentrate on seeking
in energy consumption and waste discharge, the a new driving force for the city, but focused on
Dongguan municipal government confronted regional integration of dispersed growth, and ex-
heavy pressure from the central government ploring pilot approaches toward environmental
to increase energy conservation and pollution sustainability.
abatement (Table 1). It was assigned a goal of A “low-carbon development” trend has been
19.5% improvement on economic energy effi- sweeping the country against the severe environ-
ciency from 2010 to 2015. mental pollution in recent years. A large number
of cities including Shanghai, Tianjin, Tangshan,
CONDITIONS and Shenzhen have launched a variety of “low-
OF DEIP IN 2007 carbon city” practices (Zhang Jingxiang, 2010).
DEIP is one of, but different from, many of these
Original condition projects. It is neither a Sino-foreign cooperative
DEIP was located in a marginal area, about 31 program nor a central government-funded pro-
square kilometers (12 square miles), surrounded ject, but an authentic local practice for urban
by six towns in eastern Dongguan (Figure 2). It was sustainability.
a problematic area consisting of garbage dumps,
cesspools of polluted water, high tension corridors, PLANNING EFFORTS
and frequently flooded vegetable plots. It was also
undeveloped with low-lying terrain, in which pol- With continuous consultation from CAUPD, DEIP
luted water area comprised 55% of the Park as a has been committed to urban transformation
whole, and vegetable plots made up 38%. from its inception, adopting an innovative ap-
proach: “environment restoration — regional in-
Government Intentions tegration — sustainable development”, striking a
In 2007, Dongguan implemented a policy called balance between treating pollution and making
“promoting economic and social dual transforma- economic sense.
36 ISOCARP
BIN HE
Figure 2: The location of DEIP.

Source: CAUPD, Comprehensive Planning of DEIP (2007-2020)
Figure 3: Photos of original condition. Source: author
Figure 4: Regional Structure Proposal
REVIEW 10 37
Pragmatic Eco-values program reorganized the regional drainage sys-

Since DEIP was a municipal endeavor with no tem and improved water safety and ecology;
funds from the central or provincial government, the infrastructure program bridged roads and
CAUPD managed to persuade the city council to connected civic pipes among DEIP and towns;
accept pragmatic eco-values, which include three the land use program designated coordination
aspects: effectiveness, affordability and duplic- areas, integrating land use of six towns; the pub-
ability. Other than an ideal concept, the values are lic service program put forward an industrial ser-
relative, limited ecological concept based on real- vice center and a workforce training base for the
ity (e.g., some Chinese eco-districts were claimed region, backing up the industrial collaboration
to be zero-carbon-emission parks but turned out and transformation.
to be failures). Then, the city council of Dongguan
turned this ecological idea into action, adopting Environmental Restoration
proven approaches, which may not be ideal but Regional pollution treatment and flood control
are practical, have better cost performance, can For a safer and cleaner environment, water re-
effectively reclaim the former pollution and can mediation was an overarching step for DEIP re-
be long term-operated. Once those techniques vitalization. Two water treatment procedures
and methods are proven, they will be applied to were developed with the support of the city,
other places in the city. though it was a convoluted task requiring region-
al cooperation (Figure 5). The first stage was sew-
Integration age interception and treatment, which elimin-
It was expected that the overall social and en- ated contamination sources. Four management
vironmental benefits of the regional integration districts, every one of which consists of a sewage
would far exceed the direct outcomes of DEIP. The treatment plant and sewage interception pipes,
Integration of regional spatial resources was deter- were developed for sewage collection and treat-
mined to be the first priority for energy saving and ment through collaboration between DEIP and
pollution reduction, and DEIP was the key point. the surrounding six towns.
Before the proposal of CAUPD, there was an The second stage was further treatment using
earlier plan, which minimally considered the constructed wetlands. Three wetlands were
integration, called for the creation of “a seventh planned for water purification and quality sus-
town”, and would have reinforced dispersed tainment. As an adoption of biological waste-
development. The current comprehensive plan water treatment technology, Yanling, a vertical
adopted an unbalanced investment strategy, al- flow-constructed treatment wetland with 56.7
lowing the allocation of more resources to foster hectares, was developed to more thoroughly de-
DEIP’s becoming a regional center (Figure 4). A contaminate the water from the treatment plant.
new regional structure was proposed with two After this biological process, water can be used
small towns and a larger center bonding four for irrigation and landscape water features. The
surrounding towns. This larger center was de- other two wetlands, Xiasha and Dazhenpu, ap-
fined by the industry and its service site, which proximately 68 hectares and 59 hectares respect-
would be the center of a larger development ively, were designated to clean the water within
core coordinating six towns. It was expected DEIP, facilitated by the water flow control of the
that the bonding effect of DEIP would reorgan- drainage operating system. Through these two
ize the regional spatial resources and then form processing stages, regional sewage reclamation
a more efficient spatial structure avoiding “sib- and reuse became a possibility.
ling rivalry”. Three strategies were adopted by DEIP for
This integration strategy aimed to promote flood control with great concern for safety. The
the fusion of DEIP and six towns. It was made first was the improvement of the drainage system.
up of multiple coordination programs, such as Two original canals were identified to be dredged
in the aspects of regional watershed, roads and and widened; one new canal and two new drain-
civic infrastructure, land use and public service. age stations were planned to be added; three old
The comprehensive watershed improvement drainage stations were identified for renovation
38 ISOCARP
BIN HE
Figure 5: Drainage and water quality improvement schemes.

Source: CAUPD, Comprehensive Watershed Renovation Planning
of DEIP
Figure 6: Ecological regulation areas of DEIP.

Source: CAUPD, Comprehensive Planning of DEIP (2007-2020)
REVIEW 10 39
and improvement. A new drainage operational human intervention. According to preliminary

plan was also developed for water flow and water estimation, future carbon emissions in the park
quality benefits at ordinary times, and to man- basically can be balanced by the green carbon
age flood in case of a storm. The second strat- sink capacity (CAUPD, 2013).
egy was the construction of the central lake for
enlarging the capacity of flood storage and de- Wetland restoration
tention. Along with the land reclamation, a four- After flushes by treated water, some hazardous
square-kilometer central water body was planned contaminants may remain in the water and soil.
within the low-lying areas, which were primarily This residual pollution was planned to be re-
fish ponds and cesspools. The third strategy was mediated biologically by creating various water
storm water management. DEIP decided to be a habitats. DEIP tried to shape a wetland feature
pilot project for storm water management, set- and produce as much wetland area as possible,
ting up an exemplar for surrounding towns. Low- which bears the advantages of purifying water,
impact development techniques, such as green remediating soil, and increasing biodiversity. The
streets, permeable ground surfaces, bioswales, water body was reshaped into shallows, marshes,
and rain gardens were integrated in the construc- ponds, lakes, ditches, and canals, forming region-
tion. These innovative landscape planters and al water “meridian and collateral system” for both
grounds will manage street runoff while beautify- environmental decontamination and landscape
ing the landscape. features (CAUPD, 2012).
In addition to three constructed wetlands, all
Land use control the shorelines in DEIP, about 130 kilometers (80
DEIP set up a principle to reserve more space for miles) in total, were designed to be natural gentle
the ecological environment in the beginning. As a slope shallows for more wetland growing area
result, the development land only accounted for (Figure 7). Targeting the residual pollution, some
51% of the Park as a whole (CAUPD, 2008). That specific local wetland plants were selected as rec-
was a rare decision with strong determination; ommended plants for landscape design.
less land means less municipal revenue, especially
in the context of China where many local govern- Branding Lake-Islands Image
ments have come to rely on booming revenues Adjusting measures to local low-lying terrain con-
from developers, not to mention the cost of pol- ditions, the urban design shaped the characteris-
lution treatment and environment restoration. tics of lake-islands for DEIP. A variety of islands
Further, three types of spatial ecological regula- were bedded up with the dirt from digging for
tion areas were designated on DEIP’s land for en- lake. A special image of “Islands with lakes, city
vironmental benefits (Figure 6). The central area with water” was created by combining the city
of DEIP was set up as a demonstration district for closely with water and wetlands (Figure 8).
environmental restoration and sustainable de- The Central Area Urban Design used a contrast
velopment employing ecological technology. The spatial pattern with high density and low density
Birds Island serves as a protected area without for shaping a sharper city image. According to
Figure 7: Typical design of the

shoreline.
Source: CAUPD, 2009, The
Central Area Urban Design
of DEIP.
40 ISOCARP
BIN HE
the plan, the middle area was the ecological area entire Park as a whole or target certain blocks,
with central water and wetland islands group; the but emphasize process inspection rather than
northeast was the residential and industrial area outcomes monitoring. Because social behavior
with highest building density; the southwest area transformation was also an important objective
emphasized a friendly environment with lower of these regulatory indicators, DEIP tried to ad-
density and lower building height. vocate a green lifestyle with public education
programs and budgets. For effective implementa-
Institutional Arrangement tion, the indicators were divided and designated
DEIP has passed a low-carbon and ecological de- to respective departments in the management
velopment indicators system and corresponding committee. It was expected that these indicators
government regulations that allowed more cer- and regulations could lead the DEIP onto a sus-
tainty for development transformation from high- tainable path.
carbon-emission growth. Referencing domestic
precedents and meeting DEIP’s actual needs, 47
indicators of eight categories were synthetically
constructed with the consideration of three as-
pects: space regulatory stringency, timeframe,
and levels of implementation. With pragmatic Figure 8: Rendering of central
area - bird’s eye view.
eco-values of effectiveness, affordability, and du- Source: CAUPD, 2009, the Central
plicability, the regulations may set limits on the Area Urban Design of DEIP.
REVIEW 10 41
IMPLEMENTATION
AND RESULTS
During past seven years, DEIP has been getting

close to achieving goals by persistently imple-
menting the planning. Polluted water was cleared
out, “lake islands” were shaped, and the site has
been turned into an environmentally friendly em-
ployment center.
The management committee office, a national
three-star certified green building, has been built
and occupied. The DEIP managed to weather
the financial crisis, which impacted the city sig-
nificantly, and to keep the sustainable direction
in 2008. Its work has been honored with many
awards, including National Eco-Industrial Park,
National Urban Wetland Park, and Provincial Cir-
cular economy Industrial Park.
Environment
Under the guidance of planning, the spatial
framework of diverse water habitats with all the
shorelines in natural gentle slope shallow have
been built, and the water reuse system con-
necting DEIP and six towns has been established.
Twenty-eight landfills with 1.75 million cube me-
ters garbage were cleared out; six major greening
projects have been completed, including three
wetlands (Figure 10), a central water area land-
scape, and Yuehu lake Park.
Water
As of July 2013, 2 billion RMB had been invested in
18 pollution treatment and flood control projects
completed successfully. The drainage system has
been shifted from agricultural criteria to Chinese
urban criteria at 20-year level. The water quality
has been improved to Grade IV from Grade V (Fig-
ure 11). Constructed wetlands Treated water has
been used for industry and irrigation of landscape
planting. A DEIP centered sewage reuse system,
covering larger than 150 square kilometers area,
has been formed among six towns.
Figure 9 (top):
The MC Building – a 3-star
Infrastructure Construction certified green building.
A so-called “Five verticals and three horizontals” Source: Management
Committee of DEIP
civic road network with 43 kilometers was built,
bridging the surrounding towns. Twenty-five kilo- Figure 10 (bottom):
Xiasha wetland.
meters greenways of three types with rest struc- Source: Management
tures, pedestrian paths, and cycle tracks, were Committee of DEIP
42 ISOCARP
BIN HE
REVIEW 10 43
BEFORE
& AFTER
Figure 11: The Water Scape

Before and After Renovation.
Source: Management
Committee of DEIP
44 ISOCARP
BIN HE
REVIEW 10 45
constructed for a multivariable green transporta- later migrants, and natives. Community segre-
tion infrastructure. High-tension corridors were gation has emerged. The contradiction among
rechanneled, saving one square kilometer of land. groups eventually may erupt into conflict if the
Along with ecological landscaping, these green- underlying social problems remain unsolved for a
oriented infrastructures have made up a proto- long time. Social sustainability, one of the three
type of the low impact development platform. overlapping and mutually dependent goals of
sustainable development (Jesse Dillard, 2009),
Workforce Development and Employment should be the future direction of eco-districts in
The workforce development center, 80 hectares Dongguan, and all over China. This development
in size, 25,000 students in capacity, is under innovation needs to be reconsidered in light of
construction now. It has brought in three local the difference between economic growth and the
vocational colleges and Guangdong Provincial improvement of human well-being, calling for na-
Vocational College of Cultural Industry. With the tional policy amendments, as well as changes in
merit of better trained workforce provision, it is local practices.
expected that these colleges will facilitate the de-
velopment and upgrading of the region’s indus-
try. Benefiting from the improved environment
and better employee perspective, DEIP is becom-
ing a regional employment center. DEIP has at-
tracted a significant number of investments, even
though it has employed stricter pollution regula-
tions and investment density requirement.
CONCLUSION
With the adoption of ecological methods and

techniques, the planning and construction
practice of DEIP is a quest for transformation of
economic growth and urban development in
southern China. Its “environmental restoration —
regional integration— sustainable development”
model and pragmatic eco-values has demon-
strated effects in the Pearl Delta, in which many
cities have encountered environmental issues af-
ter rapid industrialization. The radical changes of
DEIP have not only benefited it environmentally
and economically, but also improved the regional
interactivity and connectivity, and speeded-up
industry upgrading through the industrial service
center.
However, DEIP is not perfect. There were many
omissions and flaws due to fast construction.
More importantly, the planning mainly con-
cerned the spatial and environmental issues, and
the connotation of the eco-district was mostly
concentrated in the areas of environmental res-
Endnote
toration and economic development. The social 1 Data Source 1: National Bureau of Statistics etc., 2009,
http://www.stats.gov.cn/tjsj/tjgb/qttjgb/qgqttjgb/200906/
issues, the other important aspect, have yet to t20090630_30640.html
resolve. The community in Dongguan has been Data Source 2: Statistics Bureau of Guangdong Province, 2009,
http://www.gdei.gov.cn/zwgk/tzgg/2009/200907/
divided in to three social groups: earlier migrants, t20090713_77549.htm
46 ISOCARP
BIN HE
References
CAUPD, 2006, Urban Hierarchical Planning of Dongguan (2005-

2020): 83.
CAUPD, 2008, Comprehensive Plan of Dongguan Eco-Industrial

Park (2007-2020):21.
CAUPD, 2012, The Central Area Urban Design of Dongguan

Eco-Industrial Park: 123-125.
CAUPD, 2013, Research on Low-Carbon and Ecological

Indicator System of Dongguan Eco-Industrial Park: 41.
Chinadialogue, 2011, Report on Environmental Health in the

Pearl River Delta: 7-8.
Circular Economy Promotion Center of DEIP, 2012, The Policy

Making and Platform Building for Circular Economy in a
Transforming Context – Taking DEIP as An Example: 17-19.
Jesse Dillard, 2009, Understanding the Social Dimension of

Sustainability, Chapter 1: 1-4, New York: Routledge.
Ministry of housing and Urban Rural Development, 2010, China

Urban-Rural Construction Statistical Yearbook (2009), Beijing:
China Planning Press.
National Bureau of Statistics, 2014, National Economic and

Social Development Statistics Bulletin (2013), http://www.stats.
gov.cn/tjsj/zxfb/201402/t20140224_514970.html.
Zhang Jingxiang, 2010, Reconsideration on the Trend of Low-

carbon City Development in China, Planners 2010 (5): 5-8
Zheng Yanting, Liu Shenghe, Chen Tian, 2003, Discussion on

the Phenomenon and Characteristics of Semi-Urbanization
-- Taking Dongguan as An Example, Geographical Research
2003(11), VOL22(6):760-769.
Zhou Yixing, Cao Guangzhong, 1999, China’s 20-year

Urbanization Process after Opening and Reform, City Planning
Review,1999 (12):8-14.
Zhu Rongyuan, Mo Xinquan, Wu Jingjun, 2010, Dongguan

Eco-Industrial Park Is Moving -- Low-Carbon and Ecological
Urbanization Practice with Water System Management as First
Priority, Annual Report on Urban Development of China (2009):
327-334, China City Press.
REVIEW 10 47
RECONNECTING THE CITY WITH ITS RIVER · SABARMATI RIVERFRONT DEVELOPMENT PROJECT IN AHMEDABAD
RECONNECTING THE CITY WITH ITS RIVER

SABARMATI RIVERFRONT DEVELOPMENT
PROJECT IN AHMEDABAD
APARNA JOSHI
48 ISOCARP
APARNA JOSHI
Ahmedabad, located in western India on the banks of

the Sabarmati River, is the largest city in the State of
Gujarat. The river has served as Ahmedabad’s lifeline
for ages and has been an integral part of the rich his-
tory of the city. It has been a major source for drinking
water and informal recreational activities for the city.
However, with rapid and haphazard urban growth by
the end of twentieth century, the river became neg-
lected, inaccessible and polluted. The city had turned
its back towards the river.
Riverfront development was a subject of interest
to various city professionals since 1960s, but it was in
1997 that comprehensive planning was undertaken
to transform Ahmedabad’s riverfront. Sabarmati
Riverfront Development Project is a multi-dimensional
project with several objectives. It aims to reclaim
the private river-edge and turn it into a public asset
thereby redefine the city’s relationship with its river by
creating a thriving, people-centric network of parks,
waterside promenades and civic facilities in the heart
of the city. The project’s political objective is to provide
a highly visible and robust urban renewal project
around which the entire city can constructively rally.
It is a first project of its kind in India. It is ongoing but
already demonstrates that such projects can positively
transform the city and be implemented in a fractious
democracy like India, which is also why it has been
much-talked about during the recent national elec-
tions. This paper describes the project’s background,
objectives and its unique features.
Figure 1: Night view of the

completed lower promenade.
Source: Dinesh Mehta for
HCP Design, Planning &
Management Pvt. Ltd.
REVIEW 10 49
BACKGROUND ents from the city polluted the river through storm-
water outfalls and natural drains at many locations.
Ahmedabad, the former capital of Gujarat, has In addition to the declining ecological health,
traditionally been a major centre for industries as the river itself became inaccessible to the majority
well as trade and commerce and was also called of the city’s residents. Many property owners along
the ‘Manchester of India’ on account of its textile the banks built their own retaining walls to protect
industry. It is the fifth largest city in India, the lar- their properties from flood erosion. As a result of
gest city of Gujarat and also its commercial capital. both-private ownership of most riverside land and
The history of Ahmedabad stretches as far back as the informal settlements, few public access points
in the 11th century and is linked with old towns of remained. By the 1970s, the only places where
Ashaval and Karnavati. In the year 1411 AD, Sultan most citizens could enjoy the expanse of the river
Ahmed Shah built the citadel on the eastern bank running through the heart of the city was from the
of the Sabarmati and encouraged development of view provided by the several bridges spanning the
trade and commerce. In 1456 AD, an enclosing wall river.
was constructed defining the city-limits. With the On account of the aforementioned develop-
coming of the railway around 1860, development ments, the river no longer played a significant role
began to spill over to the north-east and south-east in the life of the city residents. The urban center
beyond the walled city. It was with the construction lacked focus and new developments were moving
of the first bridge, that Ahmedabad began to ex- outwards from the river reinforcing the existing
pand across the western bank. With the Sabarmati divide between the Western and the Eastern parts
River flowing north-south, the river now bisects the of the city. The untreated sewage that flowed from
city into its western and eastern halves. stormwater outfalls, natural drains and slum pock-
The river has always been significant for the ets on both banks of the river posed a public health
city. First and foremost as the city’s prime source threat because Ahmedabad continued to depend
of water. Mahatma Gandhi founded his ashram on French wells dug into the riverbed for a signifi-
on the riverbank which came to be known as the cant portion of its municipal water supply.
Sabarmati Ashram. Gandhi began his Salt March
from here in 1930, thus making the river a historic THE FIRST STEPS
backdrop to India’s freedom struggle. Since the
river is seasonal, during the drier months, the river- Responding to the plight of Sabarmati River and
bed offered space for farming and a place for oc- seeing an opportunity to create usable, attract-
casional gathering and recreation. ive public space for Ahmedabad’s residents, the
The city began to industrialise and grow during French architect Bernard Kohn, who was then
the early twentieth century, and by mid-century it residing in Ahmedabad, (in collaboration with Ka-
was considered the hub of the textile industry in mal Mangaldas, a city-based architect, Anil Bakeri,
the East. With the rapid growth and as land in the an engineer, and a few others) was the first to pro-
city came under more intense uses, the city’s trad- pose the development of a portion of the Sabar-
itional Sunday flea market was moved to the river- mati riverbank in the 1960s.
bank. The wide, oft-dry riverbed and riverbanks In addition, the Sabarmati River underwent a
were used to launder clothes and to dye textiles. number of post-independence projects to improve
Many of the city’s poor and migrant population, the irrigation network, power generation and flood
unable to afford formal housing elsewhere, began control within the state. First, a flood control dam
to live in informal hutments along the riverbanks. was built in 1976 at Dharoi (approximately 200km
However, these settlements had no tenure and upstream of Ahmedabad) so that the ‘floods’ that
lacked even the basic municipal services, thus re- Ahmedabad sees now are discharges from Dharoi
sulting in unhygienic living conditions and pollu- Dam- announced twelve hours in advance of the
tion of the river. During the monsoon period, these released water arriving in Ahmedabad. Second was
settlements were vulnerable and disastrously flood the construction of a barrage, also built in 1976 at
prone. All these uses and abuses took their toll on Vasna which is just downstream of Ahmedabad,
the river. Untreated domestic and industrial efflu- which serves to retain water in the Sabarmati. This
50 ISOCARP
APARNA JOSHI
Figure 2 (top): Untreated sewage

flowed into the river from informal
settlements and adjoining areas
through stormwater outfalls.
Source: HCPDPM
Figure 3 (bottom) : The river

had become inaccessible.
Source: HCPDPM
REVIEW 10 51
retained water is diverted by the Fatehwadi Canal there was a major shift in the state’s policy as it
for irrigation in areas south-west of Ahmedabad. redirected its traditional focus on rural areas to-
Finally, the Narmada canal just upstream of Ah- wards urban centres.
medabad was completed.
Together these independent projects had a PROJECT INCEPTION
profound effect on Ahmedabad. The risk of major
floods was greatly reduced. The Vasna Barrage en- In May 1997, the Ahmedabad Municipal Corpora-
abled water retention in the entire length of the tion (AMC) established a wholly owned Special
river within the city. The Narmada Canal, which Purpose Vehicle - the Sabarmati River Front De-
crosses the river a few kilometres upstream from velopment Corporation Ltd (SRFDCL)3 to explore
the city, makes it possible to replenish the barrage- the project. AMC commissioned The Environ-
retained water that is used up for irrigation or is mental Planning Collaborative (EPC) to prepare
lost to evaporation and seepage. These projects, al- a comprehensive feasibility study to develop a
though unrelated, make it possible for Ahmedabad 9-km stretch of the city’s riverfront. EPC provided
to have a perennial lake in the middle of the city. a schematic proposal incorporating all different
In 1976, a group of local professionals1 came aspects of the project and development manage-
together as the River Front Development Group ment services to SRFDCL until 2002. During this
(RFDG) to propose an incremental approach to period, its mandate was to direct and monitor all
creating a public riverfront along the riverbanks the preparatory work until the project took off in
(RFDG 1976). However, these proposals never February 2004. In 2004, the land comprising of the
moved past the conceptual stage2. riverbed (162.80 ha) was transferred by the State
The city then went through a period of sig- government to AMC for implementation of the
nificant decline from the mid-1970s until the project. SRFDCL’s role was on a “Build, Maintain,
mid-1990s, due to the collapse of its once-robust Operate and Transfer” (BMOT) basis. SRFDCL then
textile industry. With the beginnings of India’s appointed HCP Design Planning and Manage-
economic liberalization during the 1990s, the city ment Pvt. Ltd. (HCPDPM) to lead the urban design,
significantly improved its financial situation by re- architectural and structural aspects of the project.
vamping the taxation and collection system. Also, Sabarmati Riverfront Development Project
52 ISOCARP
APARNA JOSHI
showcases how an effective partnership among ate 11.25 kilometers of public riverfront on both
politicians, bureaucrats and private-sector rep- the banks. The total land reclamation is around
resentatives can achieve results. The project was 200 hectare.
launched and successfully progressed due to the In the master plan for the project, the main
political support of Surendra Patel, a local polit- considerations in allocating land uses for the re-
ical leader, the support from Keshav Varma, the claimed portions were: existing land uses along
Municipal Commissioner at the time and the sub- the river; extent, location and configuration of
sequent Commissioners, and the proactive ap- reclaimed land available; potential for develop-
proach of Dr. Bimal Patel, the architect and urban ment; the structural road network and form of
planner who led the team of consultants which the city; bridges proposed in the Ahmedabad De-
conceptualised the Riverfront Project. velopment Plan, and the possibility of providing
adequate infrastructure for new development.
DEVELOPING THE RIVERFRONT The following are the main objectives of
AND ITS OBJECTIVES the project:
∙ Make the riverfront accessible to the public;
The Sabarmati Riverfront Development Project is ∙ Stop the flow of sewage, and keep the river
a multi-dimensional project aiming towards en- clean and pollution free;
vironmental improvement, social upliftment and ∙ Reduce the risk of erosion and flooding in
urban rejuvenation of Ahmedabad. By reclaiming flood-prone neighbourhoods;
the private river edge as a public asset, it focuses ∙ Provide permanent housing for riverbed slum
to improve the city’s spatial structure, restore its dwellers;
relationship with the river and provide benefits to ∙ Provide public spaces and socio-cultural
all strata of the society. amenities;
The Riverfront Project presents a great op- ∙ Rejuvenate riverfront neighbourhoods;
portunity to create a public edge to the river on ∙ Generate resources to self-finance the project.
the eastern and western sides of Ahmedabad. By
channeling the river to a constant width of 275 Figure 4: Master Plan.
meters, riverbed land has been reclaimed to cre- Source: HCPDPM
REVIEW 10 53
Figure 5: Aerial view of the Riverfront interceptor sewer lines and land filling
in April 2012. The major infrastructural had been completed. Source: Dinesh
framework such as retaining walls, Mehta for HCP DPM
Accessible riverfront Together, these promenades provide Ahmeda-

The project aims at socialising Ahmedabad’s bad with a nearly 23 kilometer long pedestrian
riverfront. By reclaiming a total of 200 hectares of walkway in the heart of the city. Ghats punctuate
riverbed land on both sides of the river, along a the lower level promenade at planned intervals to
11.5 kilometers, the project replaces a largely pri- provide access to the water. Boating Stations at the
vate riverfront with a public realm and with an ex- lower level enable water recreation and will offer
pansive network of parks, waterside promenades, another mode of public transport in the future.
markets, cultural institutions, recreational facili- Stretches of these lower level promenades are now
ties and commercial developments for the city’s open to the public. For the first time, it has been
5 million residents to enjoy. The reclaimed land possible for the people of Ahmedabad to stroll un-
makes Ahmedabad’s riverfront a public asset. interrupted, along the length of the river.
The key feature of this project is a two-level, The provision of north-south linkages also
continuous promenade at the water’s edge along strengthens the existing transportation network
each bank of the river. The lower promenade has of the city. To improve access to the riverfront
an average width of 10 meters. It is built just above and facilities built along it, a number of streets
the water level to serve pedestrians and cyclists leading up to the river are being improved and
only and to provide access to the water. The upper some new streets are being developed. Most of
promenade is being built to host a variety of public the proposed streets are under construction. The
features including new areas for commercial and new streets are designed with wide footpaths and
retail development, leisure activities, large parks designated cycle tracks to improve and encour-
and plazas, public washrooms and retail kiosks. age pedestrian access to the river.
54 ISOCARP
APARNA JOSHI
Figure 6: Existing view – Shopping plaza at Vallabhsadan (top);

Shopping plaza envisioned at Vallabhsadan on the western bank
between Nehru bridge and Gandhi bridge (bottom). Source: HCP DPM
Pollution-free river to the lack of real-time data based flood control

The second objective is to effectively manage the system. To minimize damage, both banks of the
river as critical infrastructure. The project aims at river have diaphragm walls built into the river-
stopping the flow of untreated sewage into the bed at a depth of more than 10 meters to prevent
river and, preventing future pollution. To prevent scouring. The retaining walls have been designed,
untreated sewage from flowing into the river, based on hydraulic studies, to provide protection
the riverfront development includes two major from periodic flooding and prevent erosion of the
interceptor sewer lines on both banks of the river, river banks. The river has been channelized to a
capturing 38 sewage discharge points and rout- constant width without altering the flood carry-
ing sewage with new pumping stations in the re- ing capacity and it can now sustain flood levels of
claimed banks. These lines carry untreated sewage 4.75 lac cusecs without spillage into the city.
to the two recently augmented sewage treatment
plants at Pirana and Vasna. The treated water from Permanent housing for riverbed dwellers
these plants will be used in the future to replenish The project aims at resettling over 10,000 house-
the river, thus making it a more sustainable option holds and improving the lives of their residents
in the long run than using Narmada water. currently living in slums along the banks of the
river. All those affected are in the process of be-
Reduce the risk of erosion and flooding ing relocated and provided with ‘pucca’ housing
in low-lying areas with secured tenure. This process provides each
Even with the dam at Dharoi there remains a risk claimant a permanent, titled housing in one of
of flooding in the low-lying areas of the city, due the many relocation sites interspersed within the
REVIEW 10 55
Figure 7: Existing view – Eastern Bank (top); River promenade,

on the east bank, is envisioned here as seen from Gandhi Bridge
on Uttarayan, the kite flying festival (bottom). Source: HCP DPM
city’s boundaries and is being carried out under Apart from parks and plazas, many new public
the supervision of the Gujarat High Court. As of facilities are being built on the reclaimed land –
now, approximately 4,300 households from the to include sections with particular needs. The
riverfront slums have been resettled in pucca historic ‘Ravivari’ market, an outdoor flea market
housing, where they now enjoy secure tenure and hosted on Sundays on the Sabarmati riverbanks,
basic services while another 1,700 households has been refurbished as Riverfront Market at a
have been allotted housing and their resettle- permanent site adjacent to its previous location.
ment is imminent. Another 4,300 households will The market has been enhanced with specially de-
be allotted new houses in due process. signed stalls and vending areas. Though work is
ongoing, major portions that have been complet-
Network of Public Spaces and Amenities ed at the Riverfront Market have been opened for
The project will provide many new parks and public use in January 2014 with improved facili-
gardens on the reclaimed land, some of which ties such as well-lit seating areas, paved walkways,
are already completed and recently opened for food courts, vehicular access, parking and public
public use. These parks shall enhance liveability in washrooms. SRFDCL plans to make this open-air
the area that they are located and provide the city market usable throughout the week which will of-
with the much needed green space and respite fer opportunities for the vendors of the city.
from the built environment. One recently com- A laundry campus has been created to pro-
pleted Riverfront Park near the Subhash Bridge vide facilities for the washing community that
(January 2014) is already a local attraction, get- used the river banks for laundering. The recently
ting around fifteen thousand visitors every week. constructed facility on the eastern bank is spread
56 ISOCARP
APARNA JOSHI
Figure 8: Existing view – Gardens at Khanpur (top);

gardens at Khanpur between Gandhi bridge and Nehru
bridge on eastern bank (bottom). Source: HCP DPM
over an approximately 9,400 square meters area transportation, and safe and liveable conditions
and is provided with vehicular access, parking in communities across socio-economic levels.
and lighting within the site. Seven blocks have For example, the Central Business District of
metered water supply, drainage system and elec- Ahmedabad is one such precinct which is pres-
trical supply. ently characterised by low-density development
The Riverfront will also host trade-fair facilities with poor utilisation of land. However, the recent
to serve the business community. Integrated out- Development Plan for the city has acknowledged
door vending areas, situated all along the length the need for redevelopment and is presently con-
of the project to accommodate informal vendors sulting for a comprehensive plan for densification
will ensure that street vendors also benefit from in order to encourage compact mixed-use, tran-
the project. sit-oriented development with a more walkable,
accessible, vibrant and viable built environment.
Urban Rejuvenation
Another goal of the project is to bring new life Self-Financed
to the centre of the city and spur broad-based The project is designed to be self-financing – to
urban reinvestment and revitalization in the sur- achieve its objectives without relying on any
rounding neighbourhoods. Eighteen precincts funding from the government4. A small portion
have been identified which will undergo gradual of the reclaimed land will be sold for commercial
‘upgradation’ to benefit residents and workers development to generate adequate resources to
in central Ahmedabad by promoting integrated pay for developing the riverfront and managing
and high-density growth, walkability and public it. While the major infrastructural components of
REVIEW 10 57
Figure 9: Riverfront Park: Subhash

Bridge is the first park that has been
completed in the project. Source:
Dinesh Mehta for HCP DPM
Figure 10: A view of the Riverfront

Market from Ellis Bridge .
Source: Dinesh Mehta for HCP DPM
58 ISOCARP
APARNA JOSHI
Figure 11: Laundry Campus for the washing community.

the project are almost complete, it has already long waterside pedestrian realm, is complete. A
led to increased land values, thus reducing the few stretches of the promenade have been made
percentage of land for sale from that originally open to the public. Two of the many proposed
thought necessary. The private developments parks have been completed and are now open
that will be built on the riverfront will be carefully to the public. Though implementation has taken
controlled by volumetric regulations to ensure longer than anticipated, the pace of work has not
that the built environment along the riverfront is suffered on account of lack of funds. The project’s
harmonious and has a memorable skyline. financial viability has never been in question and
is still well assured.
PROGRESS TO DATE One of the many challenges that had to be en-
countered in bringing forward the vision for the
The Sabarmati Riverfront Development Project is project was addressing people’s apprehensions
far from complete. Its grand ambitions have yet and dispelling their misconceptions, due to lack
to be realized. However, the project is well under- of clear understanding of the serious dimensions
way. So far (as of June 2014), most of its heavy of the project. ‘Focus group’ discussions, presen-
engineering and land reclamation works are tations and a proactive communications strategy
complete. Almost all of the interceptor sewage has been employed5, to meaningfully engage and
lines and sewage pumping stations are in place. involve the various stakeholders. Such meetings
Much of the work on the lower level river prom- appraise them of the project’s many facets and
enades, which will provide a twenty‐kilometre‐ enable stakeholders to ask their many questions
REVIEW 10 59
and to address their many apprehensions. Forging ment; socialization of its riverfront; nurture an
a very effective working partnership between inclusive developmental process; and self-finance
politicians, bureaucrats, and private-sector pro- public improvements by making growth pay for
fessional and business leaders; vesting decision- development.
making authority in the Board of SRFDCL; using a
collaborative and consensual approach; and, por- IMPACT OF THE PROJECT
traying the project as a bipartisan civic project– all
of these mechanisms were crucial to the success- Indian towns and cities are rapidly expanding
ful launch and early progress of the project. but their natural assets have been neglected
The project has won many awards and accol- and abused over the years. The progress of this
ades such as the Prime Minister’s National Award project has emboldened other Indian cities to
for Excellence in Urban Planning and Design for steer the growth and upgrade their urban core
its innovative approach to urban development. and assets to improve the lives of its citizens.
Many see SRFD as a pioneering urban develop- Smaller towns in Gujarat such as Himatnagar
ment project, which is already showing Indian cit- and Shyamlaji have sought the professional ex-
ies the way forward. There are regular visitors and pertise of the team from HCP DPM and positive
delegations from cities all across India wanting transformation of their respective waterfronts
to know more about the project. From this per- are underway while other larger Gujarati cities
spective, it can be seen as a remarkable attempt -Vadodara and Rajkot are also looking into the
to transform the city and clean up its environ- feasibility of undertaking similar projects.
Figure 12: River Promenade during

the Kite Festival in January 2012.
60 ISOCARP
APARNA JOSHI
Long seen as a landmark project in Gujarat, it and the reclaimed space is home to several events
has become much-talked about even at the na- such as the Kite festival. Over the years, the pro-
tional level since the recent parliamentary elec- ject has become a part of the public realm and
tions. Amidst the increasing angst against the in- gradually transformed into the new centre of Ah-
efficiency and the general lack of improvement in medabad, creating a new identity for it.
the state of things, this project demonstrates in a
very tangible way that positive transformation is
possible within a democratic set-up such as India.
It is the first project of its kind in the nation that
holistically addresses the issues for urban renewal.
The Sabarmati riverfront development project
Endnotes
is a unique urban project being built in the heart 1 Prominent amongst whom were Hasmukh Patel, a practising
of an existing city, stitching together the East and architect, also head of the School of Architecture; Rasu Vakil,
a structural engineer and GN Tambe, a progressive civil
West banks of the river. The project has brought engineer contractor
2 See Shah (1981) for details about the proposals by Bernard
the river back to the city and the people back Kohn and RFDG
to the river. The simple joy of being able to walk 3 Under Section 149(3) of the Companies Act 1956
4 (EPC 1998, SRFDCL 2011)
along the river bank, to sit in a garden and enjoy 5 Often by HCPDPM, the lead consultant. An exhibition was
independently envisioned and produced in 2011 by HCPDPM
the serene beauty of the river is now a reality. with large scale renderings to communicate the project’s
Even while development is ongoing, completed vision and explain its benefits to the general public. Each of
the twelve renderings showed the transformation of places
new facilities are already being used by the public along the riverfront.
Figure 13: Lower-level River Promenade.

Source: Dinesh Mehta for HCPDPM
REVIEW 10 61
RIVER AS NATURAL ENGINE FOR THE CITY

DEVELOPMENT STRATEGY FOR RIVER WARTA
IN POZNAŃ, POLAND
EDYTA WISNIEWSKA MARK NIESTEN
62 ISOCARP
EDYTA WISNIEWSKA · MARK NIESTEN
Europe is one of the most urbanized continents Among the charismatic features of Poland are
on the globe with a unique urban quality and its unique landscape and beautiful rivers. The
standard of life that attracts people from all over Vistula, Oder, and Warta are the main ‘blue veins’
the world. Given the universal availability of of Poland, and almost every major city, such as
Internet services and transportation, increasingly Warszawa, Szczecin, Wroclaw, Poznań, Gdansk
it is the quality of life offered by a city that affects or Krakow, is located on a river. The identities and
its competitiveness. The location of a city, the importance of cities are strongly tied to the pres-
availability and quality of infrastructure, services, ence of the rivers. Fascinating and amazing rivers
and labor possibilities, the quality of the education have always been an integral part of the spatial
and/or public space, the character and identity, the layout and urban fabric of the cities and their life.
historical values, the natural and environmental The potential of the rivers was recognized centur-
resources, the diversity of housing estates, the so- ies ago. They were cleverly integrated as part of
cial tolerance, etc., all determine a city’s attractive- city protections, transportation ways, as well as
ness. The most dynamic and attractive cities draw a beautiful aspect of human living – high-end
a large number of inhabitants from the region, locations for residential, service, work, and recrea-
country, and abroad. National borders or contin- tional functions.
ental divisions are no longer obstacles to human The “Development Strategy for River Warta in
migration. These cities offer social, ecological, and Poznań” is a pioneering project in which Dutch
economical balance. In times of global migration expertise and experience in river management
of people, goods, knowledge and talents, as well as and urban planning is combined with Polish local
demographic differences and economic changes, know-how. International experts worked together
cities all around the world need to invest in their with local authorities, representatives of the society,
future. As a result, Polish cities are facing the chal- and private stakeholders to develop Poznań as a
lenge of intense change. livable and lovable city on the River Warta.
Figure 1: Aerial image

of River Warta in Poznań
REVIEW 10 63
DUTCH EXPERIENCE ing dikes, lowering floodplains, and creating river

by-passes were often combined with revitalizing
The Netherlands is in the delta of the rivers Meuse urban areas. In these situations, the river was
and Rhine. Half of the country lies below sea level. used as a natural engine for the socio-economic
Long ago, the first inhabitants of the low-lying development of the cities. This 2.2 billion Euro
areas created artificial hills where they would program (Room for the River) will be completed
build the church and be able to flee to in case in 2015.
of flooding. From the year 1000, people began The saying “God created earth, and the Dutch
building dikes along the coast and the rivers. Over created the Netherlands”, reflects their attitude
time, the dikes were raised and reinforced. Be- towards controlling land and water. Learning
cause of the dikes, the river could no longer flow from the struggle against the water, the Dutch en-
freely over the plains. At the same time, peat land gineers nowadays have a huge expertise, which
was converted into agricultural areas. When a is implemented all around the world. Historically,
dike broke, there was extensive damage, but cen- the Dutch are world famous for tulips, cheese, and
tury after century dikes where repaired, raised, the dikes. Today, water management expertise is
and reinforced. Around the year 1500, the system one of the most important export products of the
of dikes along the rivers was more or less closed. country.
In the 19th and 20th centuries, the rivers were These lessons in water management are in-
increasingly channeled. The discharge of water creasingly pertinent to other parts of the world as
was improved, and technical interventions the effects of global climate change, such as more
guaranteed that the water level would be high intensive storms, higher sea levels, and higher
enough for shipping. The system seemed to be peak flows in rivers become more obvious.
completed and finished, and the Netherlands was
safe behind high, sturdy dikes. But in 1993 and POZNAŃ SITUATION
1995 a disaster almost happened.
The City of Poznań originated in the 9th century
1993 and 1995 on the borders of the River Warta, which offered
The Netherlands was safely protected from high the possibilities for trade, military defense, food
water at sea. But in 1993 and 1995, the water production, and water. Poznań is one of the old-
came from the other side. The water in the riv- est cities in Poland. It is the historical capital of the
ers rose to dangerous levels due to the increased Wielkopolska Region, where the Polish state was
river discharges caused by large volumes of melt founded 1000 years ago.
and rainwater from the upstream regions. Polders Strategically located between Berlin and War-
in the Netherlands were evacuated. In all, about saw, the city is now the fifth largest in Poland with
250,000 people, their goods and farm animals 550,000 inhabitants and many historical and cul-
had to temporarily leave their homes. These pol- tural assets.
ders are located in the less populated parts of Since the beginning of the previous century, a
the country. Had the flooding affected the more civil engineering approach towards river develop-
densely developed parts of the country, the ment has been adopted in Poznań. Within this ap-
disaster would have been much larger and the proach, solutions to manage the rivers were con-
stakes much higher. The near-floodings of 1993 sidered from a more technical, instead of natural,
and 1995 made the Dutch aware that action was perspective. During this period many rivers were
needed to prevent future disaster. canalized with the main goal to discharge river
As a response to the near-floodings of 1993 water as fast as possible towards the sea. Water
and 1995, the Dutch created and implemented was seen as an enemy, rather than as a friend
a methodology that combines interventions to to people. However, in the year 2010 the water
improve river safety with actions to improve the level of the river Warta rose dangerously high in
nature and spatial quality of the river areas. The Poznań. Some areas flooded, but a large flooding,
Netherlands has worked on increasing their river as occurred in several other Polish cities, did not
flood protection during the last 20 years. Relocat- take place. It was a narrow escape.
64 ISOCARP
The Warta River had been canalized, became an tractiveness of the waterfront areas;
isolated area within the city, and lost the historical ∙ Giving an economic incentive to the city by
relationship with the city. The often-canalized riv- coherent coordination of the land use and
ers cannot cope with the increasing peak flows of development projects of the areas situated on
water. With global climate change in mind, this is the Warta River.
expected to continue. The recent floods had large
human, environmental, and economic conse- STRATEGY DEVELOPMENT
quences. The often-appearing dangerous floods
also created a more negative perception of the In the past, a large variety of plans for the Warta
river by people in urbanized areas. in Poznań were prepared. This indicates that there
The observation of these two river aspects (the is a strong desire to give the river a more promin-
decreased water safety and the lost relationship ent place in the city. All plans add new elements
with the city) produced an awareness that a De- to the thinking about the river area. Some focus
velopment Strategy for the River Warta in Poznań on architecture, some on nature, and some on the
was needed. The City of Poznań acknowledged river itself.
the need for a strategy for the river by taking up Analyzing the broad spectrum of existing
this task in the Strategy Poznań 2030. plans, it could be concluded that the vast major-
ity focusses on a limited number of aspects, which
JOINT POLISH-DUTCH were planned and designed in detail. Many plans
PARTNERSHIP offer excellent solutions and ideas, but for single
problems that are not linked with other issues
The similarity in urban and river challenges in the that are of importance to the river.
recent Dutch past and in current Poland was the
reason to start a Polish-Dutch partnership to ex-
change knowledge and expertise on integrated
urban planning and water management.
In 2012 the Dutch consultancy office Kuiper-
Compagnons, together with the City of Poznań,
took the initiative for the Partnership “Na rzecz
Warty”. This is a joint project between the City of
Poznań, Dutch consultancies KuiperCompagnons
(Urban Planning & Design) and RoyalHaskoning-
DHV (Water Management) and real estate de-
veloper SwedeCenter.
The partnership formulated a long-term strat-
egy for the section of the river flowing through
the city (Development Strategy of the Warta River
2012-2030), drawing main directions of urban de-
velopment of Warta-adjacent areas in Poznań. Figure 2: Aspects of integrated
The key objectives were: Spatial and Water Strategy
∙ Improving the flood safety system of the City of
Poznań. Currently, the risk of flood is assessed The Dutch experience revealed that a long-
at 1 per 100 years. The strategy aims at improv- term successful river zone strategy to integrate
ing this indicator to 1 flood per 1,250 years; water and spatial planning and design requires
∙ Defining the role of the Warta River in Poznań a sustainable integrated Spatial and Water Strat-
and the directions of its development as the egy that addresses the aspects Environment,
starting point for recovery of the Warta River Economy, Identity, Society and Connectivity. A
by the City of Poznań and its inhabitants; strategy that neglects one of these aspects is
∙ Improving the land use by facilitating the doomed to fail, since in a complex process like
planning of investments and boosting the at- this an overall consensus is needed from a broad
REVIEW 10 65
variety of involved stakeholders (represented by have created a transparent process for all who are
these aspects). interested.
It was also acknowledged that key success fac- In addition, during the project period (and af-
tors for this specific project were: ter), there have been various events organised in
∙ Safety (especially for river floods); the river zone to bring the River Warta back into
∙ Quality (especially urban and natural quality the hearts and minds of the citizens of Poznań. Ex-
of the river area); amples of these events are the Warta Jazz Festival,
∙ Feasibility (especially financial, economic, City Beach, and Container Art Exhibition.
and social).
Key Aspirations
Transparent approach Based on the ambitions of all stakeholders during
To arrive at the set of key success factors, an in- the interactive process, a number of Key Aspira-
tense and interactive process was initiated with tions for the strategy were identified as follows:
experts, stakeholders, public, and politics. During ∙ Improve flood management using more
the process there were several occasions during natural processes;
which the strategy had been presented to a group ∙ Reduce the likely negative impacts of
of local experts (Advisory Group), and to the pub- climate change;
lic. At these meetings the preliminary ideas and ∙ Reconnect people to the natural environment
suggestions were tested, and constructive feed- through urban regeneration;
back had been received. The public presenta- ∙ Gain better access for recreation and
tions and the project website (www.dorzeczni.pl) improved well-being;
Figure 3: Process of Development Strategy
66 ISOCARP
∙ Enhance habitats for wildlife; STRATEGY AND DEVELOPMENT

∙ Linking people to nature through urban OF THE PHYSICAL PLAN
regeneration.
The intention of the strategy is to enable
Water Safety Poznań to make better use and take maximum
Although the present flood protection level in advantage of the extraordinary potential of the
the City of Poznań is estimated as 1 in 100 years, Warta in the city. The river Warta can become
some weak spots in the flood defences were iden- a driving natural engine for the socio-econom-
tified during the 2010 floods. High water caused ic, ecological, spatial, and touristic develop-
problems at certain streets (Starołęcka, Droga ment of the city as whole and the river zone in
Dębińska, Nadwarciańska, and Zagórze on Os- particular.
trów Tumski), and some areas adjacent to the During the year-long project, an inventory
river on Warta’s west bank were flooded. and analysis were conducted on the most rel-
When planning spatial development along the evant issues concerning the river and the city.
Warta River, it is of vital importance to consider The conclusions of the analysis resulted in three
the long-term natural developments. Earth’s cli- different alternatives for the strategy. An as-
mate is changing at an increasing rate. Global sessment of these three alternatives resulted in
warming, as signalled in several publications of a preferred model that is the basis for the de-
the Intergovernmental Panel on Climate Change velopment strategy.
(IPCC), is expected to be followed by changes in
the yearly precipitation patterns, giving rise to ex- Spatial Framework of Land and Water
treme situations. The City of Poznań has a unique, distinctive and
According to one of the prominent members recognizable spatial layout. The urban area is
of IPCC, Professor Kundziewicz (Poznań University divided in four quadrants that are separated
of Life Sciences), the temperature rise in Poland by a cross-like green structure with the rivers
will cause an increase of winter precipitation, with Warta, Cybina and Bogdanka at the heart of the
less snow and more rain, and hydrological projec- ‘green cross’. The historical city is located n the
tions show that there is a likelihood of increased center of the ‘green cross’. The ‘green cross’ is
drought during the summer months. Because less not only a unique spatial element, it is also very
snow and more rain in the winter reduce the win- valuable for the city. This spatial structure offers
ter retention (water contained in the snow cover), possibilities for many citizens of Poznań to have
the winter river flows are expected to increase. an urban green area within walking distance of
This may lead to potentially dangerous floods. A their homes and work.
trend of increasing winter river flows in Poland Based on the inventory, analysis and iden-
has already been observed. Therefore, although tified challenges for Poznań, a broad spatial
statistically the probability of flooding of Poznań structure for the global development of the
has decreased in the last 30 years compared with river zone was prepared. In this spatial frame-
preceding period, flood risks and the influence of work the most important decisions on develop-
climate change in the future could not be ignored. ments from land (nature, urban, infrastructure)
In this case, we should take the future as refer- and water (river, streams, lakes) were reflected.
ence, and not the past. The spatial framework for land and water
can be regarded as a guide for the future. Even
Challenges though the spatial framework gives the most
Besides the important issue of river flood pro- important direction for development, there are
tection, the projects inventory and analysis has different ways of implementing the framework.
identified 18 main challenges for the city. These Within the framework there is flexibility for a
challenges (such as reconnecting urban areas, variety of alternatives.
improving natural systems, and exploiting tour- The framework contains the most import-
ism potential of river) are categorized under the ant elements on city level for a sustainable de-
earlier mentioned six guiding themes. velopment of the river zone in Poznań.
REVIEW 10 67
Figure 4: Spatial Framework of Land and Water
Three Alternatives Alternative 1:

Based on the identified spatial framework of land minimal integration between city and river
water, three fundamentally different alternatives In the past, the city has turned its back to the riv-
were investigated: one in which the existing ap- er. In this alternative, Poznań faces the river again
proach to the river in the city is continued, and and focuses on the river zone. The urban areas
two alternatives in which a minimal and maximal alongside the Warta re-orientate towards the riv-
integration between the city and the river are er and connections are made between the urban
explored. A comparison reveals the preferred al- areas behind and the river zone.
ternative for the development of the river Warta The city and the open river zone will remain
in Poznań. clearly separated. Only the urbanized edge of the
city will need revitalization and repositioning.
Alternative 0: The increased interaction between Poznań and
continuing autonomous approach Warta will be mainly based on a strong visual re-
In this alternative, the existing approach to the lationship. However, people will be attracted to
river and the urban river zone in the city are con- the green river zone by introducing small-scale
tinued. The alternative will mainly function as a interventions such as new pedestrian and bicycle
benchmark with which the other two alternatives paths and creating socially safe environments.
can be compared. The river zone will be of mainly natural char-
acter where people are considered to be recrea-
tional visitors.
68 ISOCARP
Figure 5: Alternative 1: minimal integration Figure 6: Alternative 2: maximal integration

between city and river between city and river
Alternative 2: arms will only be flooded in times of high water

maximal integration between city and river levels when extra retention capacity of the river is
Alternative 2 aims for a maximal integration of needed to increase flood safety.
the City of Poznań with the Warta River. The city The new water connections result in new
will not only re-orientate itself towards the river islands. Some of them can be used for urban
(like in alternative one), but a true spatial and developments (and gain financial profits) and
functional integration of the city and the river is some of them can be allocated to ecological
proposed in this alternative. Elements of the city development.
(like residential areas) will be introduced in the In this alternative, the Warta zone is intensively
river zone, and elements of the river (like old river used by the citizens of Poznań. The qualities of the
branches) will be introduced in the urban areas of river zone are exploited in the highest level.
the city. This will create a strong relationship be-
tween the city and the river. Preferred Alternative
The natural morphology of the river is used as The different alternatives were assessed on the
an inspiration and guide for re-introducing a true earlier identified crucial elements for a success-
rue riverscape in Poznań and improving the flood ful development strategy (water safety, environ-
safety by creating more ‘room for the river’. New ment, identity, society, connectivity, and econ-
river arms are created (e.g., Chwaliszewo, Por- omy). Based on the comparison of the alternatives
towo, Lecha bridge, Ostrow Tumski) which also on these crucial elements, a sound assessment
increase urban qualities. Some of these new river revealed that the maximal integration between
REVIEW 10 69
70 ISOCARP
river and city alternative was preferred for the de- Each of the guiding themes addresses several
velopment strategy for the river Warta in Poznań. of the 70 projects of the Development Strategy.
This preferred alternative has been further de- By selecting several projects for each guiding
tailed (on a strategy level) to indicate what kind theme, an integrated broad sustainable develop-
of functions should be located on which specific ment of the river area is ensured.
places in the river zone to create the desired max- For all the 70 projects, a financial and economic
imum integration between the river and the city. analysis has been made to assess the level of feas-
The proposed function and their location are ibility. An evaluation study of the European Com-
based on the objectives of the preferred alterna- mission and European Investment Bank rated the
tive and offer solutions for the earlier identified quality of the financial analysis conducted in the
challenges for Poznań. Development Strategy very highly.
The preferred alternative has been further de-
tailed towards some 70 individual projects, an Three Pilot Projects
Implementation Plan and three Pilot Projects. Three pilot projects have been assigned in the
river zone to give insight and create understand-
70 Projects ing of how the Development Strategy can be
To address the 18 challenges for the River Warta implemented on a specific location. Each of the
in Poznań, some 70 projects have been identi- pilot projects consists of a set of subprojects from
fied and described in the Development Strategy. the implementation plan, from various guiding
Similar to the 18 challenges, also these 70 pro- themes. An integral approach (from different
jects each refer to one (or more) of the six guiding guiding themes) to the location is advocated to
themes for the development of the river zone. result in a broad integrated and sustainable de-
velopment of the pilot project location.
Implementation Plan The three pilot projects have been selected
The Development Strategy is underpinned by six on their potential for development and impact
guiding themes. These principles will form the basis on Warta in Poznań. For each pilot project inter-
for the Implementation plan. The principles are conventions to improve river flood safety, urban
nectivity (divided in car traffic and slow traffic), river planning, and design proposals, and finan-
safety, living and working (divided in build-up areas cial-economic analysis are defined. The three
and open spaces), tourism and recreation, historical projects are excellent examples of how the
heritage, and landscape and nature. Development Strategy can be of tremendous
value for the city of Poznań. The three pilot pro-
jects are:
Portowo
Creation of new river arm to increase river safe-
ty, in combination with transition of neglected
old industrial estate into an attractive living,
working, and leisure environment.
Chwaliszewo
Creation of new river arm to increase river safe-
ty, in combination with urban redevelopment
of the historical part of Poznań s city centre.
Northern Island
Creation of several urban islands in the River
Warta to increase river safety and to create a
variety of new and additional urban environ-
Figure 7 (left): Development Strategy 2030 ments for Poznań.
REVIEW 10 71
72 ISOCARP
Financial and Economic Feasibility

According to the financial analysis, the project is
not profitable (as is the case in almost every type
of large infrastructure development projects). The
revenues are less than the investment and oper-
ating costs. External financial sourcing (e.g., EU
Funding) would be required for implementation
of the strategy.
According to the economic analysis, the project
is feasible. The investment should be realised be-
cause it is in the interest of the society, and the
project will bring a lot of benefits.
There are many quantifiable types of revenues
which are included in the financial and economic
analysis. However, the investments also have both
qualitative and intangible impacts. For example,
increase of prestige/branding, job creation (direct
and indirect), increase of tourism, new capital in-
Figure 8 (top left):
Pilot project Portowo flow and increased accessibility of the city.
All of the three pilot projects are economically
Figure 9 (bottom left):
Pilot project Chwaliszewo feasible and could be implemented (even separ-
Figure 10 (top): ately), because of the high value of the benefits
Pilot project Northern Island that they bring to society.
REVIEW 10 73
NEXT STEPS TOWARDS

IMPLEMENTATION
OF THE STRATEGY
The strategy has been acknowledged by the City

of Poznań as their long-term vision for the restor-
ation of the River Warta in Poznań. The strategy is
currently being adopted into the city’s plans and
policies. The works on implementation will be
executed in the period leading up to 2030.
The main goal of the strategy is to provide a
long-term vision with a framework and toolbox for
the regeneration of the river zone in Poznań. Some
of these bottom-up developments are already
underway, such as city public beach by the river,
the city public port by Warta River, and the Missis-
sippi Blues Warta Festival. The River Warta area in
Poznań offers possibilities for many bottom- up de-
velopments that are strongly present in the Polish
tradition, where the city inhabitants can happily
live and successfully realize their dreams.
Figure 11: Mississippi Blues Warta

Festival on River Warta
74 ISOCARP
REVIEW 10 75
EAST HARBOR – THE WATER REFLECTION OF A CITY
EAST HARBOR · THE WATER

REFLECTION OF A CITY:
THE PLANNING PROCESS
AND CONSTRUCTION OF EAST
HARBOR IN DALIAN, CHINA
HU XIANLI KANG WANGQUAN LIN LIN
76 ISOCARP
HU XIANLI · KANG WANGXUAN · LIN LIN
The coastal cities are lucky, for the blue sea

endows them the unique style, culture and
charm. Dalian is such a peninsula city given
birth by the sea. It stands on the west coast of
the Pacific Ocean and the eastern end of Eurasia,
surrounded by sea on three sides with the most
special geographical location in China.
Figure 1: The future

view of Dalian Bay
REVIEW 10 77
THE BIRTH OF DALIAN PORT,

STARTING POINT FOR THE CITY
Before Dalian Port was built, Dalian was only a small fishing village with only
a few hundred families. At the end of the 19th century, the Russians came
across Eurasia to Victoria Bay (southwest of Dalian Bay), building Darini Port
(now known as Dalian Port) along the southern coast. The city also began at
that time. From 1902 to 1930s financial trade and harbor industry flourished,
as the port opened to the outside world. Dalian became one of the Far East
finance trade center city. Development gradually intensified at the center of
the port, forming today’s landscape. The prosperity and change of Dalian
have been closely related with the rise and fall of Dalian Port.
Figure 2 (left): Dalian Port

and urban plan in 1899
The problem of Dalian Port, dissevering urban links with the sea
Since the colonial period, the port’s lifeblood was principally driven by Rus-
sian or Japanese economic plunder and military aggression. During this time
a large coastal area was developed as port facilities, warehouses and factor-
ies. Later with the founding of new China and the promotion of industrial-
ization, industrial development continued to spread along the coastal bay
to the north, surrounding Dalian Bay. As a result of this development the
original inner bay coast was built up, completely cutting the links between
urban land and sea. With this development the vast majority of people in this
famous coastal city surrounding Dalian Bay no longer felt the existence of
the sea, a condition termed “close to the sea but without relationship”.
78 ISOCARP
Figure 3 (right): Harbor

Plaza in 1935
EAST HARBOR PLANNING original CBD extend to this area. The traditional
PROCESS, MULTIPLE ARGUMENTS goods transportation focus of the City would be
AND CAREFUL PLANNING changed into the transportation of economic in-
formation for the new century in Dalian Port.
“East Harbor” is short for the eastern region of Urban planning also hopes to take this oppor-
Dalian Port which extends west to the Harbor tunity to break the barrier of Dalian Bay which has
Plaza, east to Hai Zhiyun Square, north to the always been closed so far. It will be a beautiful bay
coast, and south to Long River Road, with an area with stretches of coastline owned by the citizens.
of 2.4 square kilometers. Dalian Bay will become the core of city life within
At the beginning of the 21st century, as in- business, financial, office, commercial, residential,
dustries needed to upgrade their facilities, large tourism and other functions.
industrial enterprises, originally occupying down- As a pilot upgrading of Dalian Bay coast, East
town, began to gradually move to suburban loca- Harbor ushers in a new development opportunity.
tions. In addition, the decision was made to speed To begin this renewal, in 2003 the Dalian the mu-
construct of an international shipping center in nicipal planning bureau invited Singapore’s PSA
northeast China and to improve port layout by and American TVS to propose planning solutions.
moving this facility to Da Yaowan Port. Then the Both concept plans made by these foreign design
Dalian municipal party committee and munici- companies mentioned the value of respecting
pal government decided to transition the East the traditional structure, texture and context. An
Harbor area from port and industry and to let the important concept of the PSA company scheme
REVIEW 10 79
Figure 4: Plan of Singapore’s PSA
Figure 5: Plan of American TVS
80 ISOCARP
Figure 6: Japanese coastal landscape design scheme
was to “extend the eastern city structures to the emphasis on the business, leisure, offices. The
planning area”. This concept was especially influ- municipal planning bureau put on international
ential on future plans. After that, the Dalian Urban bidding for iconic square, Venice Watertown and
Planning and Design Institute produced a new other major projects, and carried out the Davos
East Harbor conceptual plan on the basis of these International Conference center, the location of
two concept plans. the green space center and other major projects.
The next year, Dalian municipal government
held an international symposium about East Har- East Harbor planning ideas
bor planning, and put forward requirements that - history, landscape and space
the “East Harbor planning should pay attention to The historical context of inheritance
highlight the shipping center theme, and plan on Different from the Chinese traditional urban grid
the international first-class level, to be the inter- road network, the downtown road network in
national shipping center landmark in Dalian”. In Dalian embodies the western classical urban de-
2006, the document “East part of Dalian Port trans- sign thought. The road skeleton shapes like a spi-
ferring detailed planning” was approved formally. der web, in a straight line between each square,
Two years later in August, East Harbor headquar- which radiates out several roads, with multi-layer
ters delegated a Japanese company to complete ring roads around it. Formed by nodes and radia-
the coastal landscape design scheme, then the tion, the network laid this characteristic land-
municipal government approved to this plan. scape. Open space combines with the radiation
To tie with the city’s investment promotion roads. The unique urban landscape that moun-
and construction of key projects, the East Harbor tain and sea view integrates into the streets is
plan has been made three major and dozens of very impressive.
local adjustments. The area of East Harbor area To honor this urban design tradition, and con-
was expanded to 6.1 square kilometers (reclama- sider the modern car traffic demand, East Harbor
tion area of 3.9 square kilometers), and had more planning road network eventually adopted local
REVIEW 10 81
Figure 7 (top): The road

network – existing and
in planning
Figure 8 (bottom):
Convex dams in Dalian Port
Figure 9 (right top):

Plan of international
cruise center
Figure 10 (right bottom):

The view of international
cruise center
radiation within total grid, and reduced the size of house and the lighthouse were preserved.
the plot scale, within the surrounding urban tex- It was commendable that planning cleverly used
ture natural fusion. the convex dams, turning them into the Internation-
Planning also paid attention to the protection of al Cruise Center, which would be a new type of com-
historical relics. Some representative historical build- prehensive complex with travel, leisure, culture, en-
ings and structures were retained. For example, the tertainment, business office, hotel apartments and
four convex dams which were built by Russian gov- passenger transport incorporated into the construc-
ernment, the port authority building, the port ware- tion of the international cruise home port.
82 ISOCARP
REVIEW 10 83
The updating of urban functions quarters functions. By setting up fast and efficient
A hundred years ago, the city was built to compli- information platform, completing information
ment the port transportation function. Recently gathering, communication and transformation,
with the industrial declining, the city is becoming East Harbor will attract corporate headquarters
more and more prosperous accompanied by the and scientific research institutions thereby be-
rise of the service industry. East Harbor District coming the center of management and control of
will take the responsibility to lead the develop- regional or even international economic develop-
ment of the city once more, with its superior lo- ment. It will provide power support for the con-
cation and unique historical background. There- struction of Northeast Asia international shipping
fore, East Harbor is designed to be the core area center. Third, it will be the core of modern cultural
of international shipping center of Northeast Asia life and gatherer of senior talents. East Harbor dis-
and a modern service industry agglomeration trict has a long history of atmosphere and unique
district, ensuring that the city will enter a new his- place with a spirit of vicissitudes, which can be a
torical period. powerful charm to the humanities. Through the
First, it’s necessary to develop the financial cen- construction of the symbol culture building-inter-
ter and business base functions. The existing CBD national conference center, East Harbor’s regional
on the People’s Road is seated in the southwest cohesion and visibility will be promoted, which
of East Harbor, whose construction has been sat- have a strong appeal to the city elite. The plans
urated with no space to expand. East Harbor will call for the constructions of high-quality residen-
continue to create higher levels of the business tial areas, and provide a good working and living
and financial functions, providing basic support environment. East Harbor will become the gather
for the construction of Northeast Asia internation- place of high-end talents, and provide technical
al shipping center. Second, the development of support for the construction of Northeast Asia
information hub and scientific research head- international shipping center.
84 ISOCARP
The elongation of the People’s Road landscape avenue

The People’s road connecting Zhongshan Road to the west forms an east-
west main road across the city. This road connects Xinghai Square, the
People’s Square, Zhongshan Square and iconic harbor squares, and serves
as the most important axis in city. The Dalian CBD developed along the
People’s Road now has rows of large office buildings, hotels, shopping
malls and complete living facilities. It has a good development momen-
tum. In East Harbor planning, The People’s Road extends to the east, bring-
ing the avenue’s landscape to the coast. This extension line let the city be-
come enlightened. The scene of Dalian bay which suddenly unfold in front
of people, presents the characteristics of the coastal city form. East Harbor
district naturally becomes an organic part with the original city center.
Figure 11 (left):
The East part of Dalian Port
transferring detailed planning
Figure 12 (top):
East-West axis in city
Figure 13 (bottom):
Bird view of The People’s Road
REVIEW 10 85
Hydrophilic space creation

Besides partly used as protective greenbelt, about 6 km long coastline
is intended to provide more leisure life for residents and tourists. In ac-
cordance with the plan, the landscape area of about 1.4 square kilometers
will be built on the frontier coastline of reclamation, including: East Ven-
ice Watertown; an inland water system; a yacht port; an outdoor music
square; a ship restaurant; a fisherman wharf; a tourist wooden footway and
a Sports Park. They emphasize the theme of sea, making people’s seaside
life feel more colorful.
East Venice Watertown was planned in the middle of the block along
East Harbor coastline. In view of this project being located in reclamation
area, the occasion water was pulled in, to form the inland river. The low-
rise public buildings were located along the this river, creating a pleasant
hydrophilic public space.
Figure 15: The plan of East

Venice Watertown
Figure 14: The view of East

Venice Watertown
86 ISOCARP
EAST HARBOR’S CONSTRUCTION, The construction underground

FACING THE FUTURE OF CITY East Harbor district built the longest underground
pipe gallery in China to date. With a total length of
The International Conference Center 20 kilometers, this gallery contains water, electri-
With the Davos conference settled in Dalian, East city, heating, sewage and other facilities and has
Harbor District is focused on for the location and abundant space to accommodate future facilities.
construction of an International Conference Cen- It can effectively avoids the problem of “zip road”.
ter. After research, the center was arranged at To solve such problems like shortage of fresh
the core zone of East Harbor’s coastline, the end water and the intrusion of sea water, East Harbor
of The People’s Road extension. The government first adopted the advanced Japanese energy sav-
introduced Coop Himmelblauto in Austria to de- ing technology- rainwater recycling permeability
sign it, focusing this deconstruction architecture retention system, which can collect tens of thou-
—“eye of city”, whose construction is even more sands cubic meters of rain. The collected water
difficult than “bird’s nest” and “water cube” for will be used for plants irrigation, road cleaning,
Beijing Olympic Games. It promotes the develop- and improve the East Harbor’s soil properties.
ment of the whole region. Besides hosting large In addition, an underground rail transit system
domestic and international conferences, the cen- was built in the East Harbor area. The No. 2 subway
ter has also held several performances since the line, along the east-west trunk road, runs through
completion, to abundant the citizens’ leisure time the entire East Harbor and has two stations. It will
and add cultural atmosphere to the city. provide a guaranteed smooth pedestrian flow
distribution in the central area, and is a favorable
factor of the development of surrounding areas.
Commercial exploitation
So far, there have been 20 well-known domestic and
foreign enterprises which have invested into the
East Harbor district. Thirteen projects have already
started construction and a critical mass of hotels, fi-
nance and commerce headquarters is forming.East
Harbor’s reflection,
UNDERGROUND SPACE
DEVELOPMENT AND
LANDSCAPE DESIGN
Hard to achieve “Underground city”

In the original planning idea, East Harbor was to be
a “three-dimensional” modern metropolitan area,
like Montreal in Canada, where there is a vast net-
work of underground space in the center area, con-
necting all the public buildings and traffic facilities,
thereby maintaining a pedestrian vitality even in
cold winter. For this new development area of East
Harbor, it seemed that it’s better to build this con-
cept out all at once to avoid the need to retrofit ele-
ments and to conserve resources.
Figure 16: The International

Conference Center
REVIEW 10 87
Figure 17: No. 2 subway

line construction
Figure 18: Cluster effect

with hotels, finance and
commerce headquarters
88 ISOCARP
Figure 19: Fountain

in front of International
Conference Center
However, in the actual operation process, it was scientific projects. As a result, all the buildings
discovered that this multi-dimensional develop- were carefully designed to be very rich in form so
ment was difficult to achieve. First, due to the lack that we can see the in foreseeable future a mag-
of commercial atmosphere in developing areas, it nificent city image of East Harbor. However, only
was difficult to obtain investment commitments the landscape design didn’t get enough attention.
for the development of underground space. East Harbor owns 13 kilometers along the
In addition, divisions of land are purchased by coastline. This landscape resource is very rare in
different developers. It’s difficult to reconcile the the city’s centurial area. Only the fountain can be
interests of them all, so the unified construction called the design highlight on the coastal square
cannot be executed. Planners also found it difficult before International Conference Center, where
to develop suitable performance standards (to be the ground lacks green vegetation being made
made part of the land transfer agreement) due to entirely of simple bricks. As a result, the spatial
the lack of specific market information about the scale is disorder by the monotonous color of the
underground development. These problems led square. Objectively speaking, the square’s land-
the conception of East Harbor “underground city” scape cannot bring out the brilliant of this land-
ultimately difficult to achieve. mark building-International Conference Center,
thereby weakening people’s impression of the
Landscape design flaw Center and the whole district. Therefore, land-
TLandscape design attaches importance to the scape design is essential. Through the construc-
integrity and balance of space, economy and tion of the space environment, it brings people
policies. Management attentively control the en- the most intuitive feeling, also the most pro-
tire development process, and strived to develop found experience.
REVIEW 10 89
Figure 20: Coastal line

of East Harbor
CONCLUSION
“A hundred years ago, Dalian was built for the

harbor; a hundred years later, this city will prosper
for the harbor.” East Harbor embodies the city his-
torical miniature, but also takes the responsibility
for the city’s future. As a pilot area of city renewal,
East Harbor will drive the entire Dalian Bay up-
grading. Without doubt, when the whole indus-
trial coastline is replaced by hydrophilic space,
the amazing natural charm which Pacific brings
to this peninsula city will be fully displayed.
Urban planning points out the development
objectives and direction, also provides a develop-
ment framework and strategies for East Harbor’s
future construction. But it still needs to be im-
proved in the long process of construction, mak-
ing more scientific and reasonable arrangement of
complex space resources, and provide continuous
power to the whole city’s development.
90 ISOCARP
REVIEW 10 91
HAMMARBY SJÖSTAD · A UNIQUE SUSTAINABILITY PROJECT IN STOCKHOLM
HAMMARBY SJÖSTAD – A UNIQUE

SUSTAINABILITY PROJECT IN STOCKHOLM
RONALD WENNERSTEN HONGLING LIU
92 ISOCARP
RONALD WENNERSTEN · HONGLING LIU
A unique project
Hammarby Sjöstad, an area centrally located in
Stockholm, the capital of Sweden, is now in its fin-
ishing phase. It is a unique area in many ways and
more than 100 000 visitors from all over the world
have come to see it. Once fully built, Hammarby
Sjöstad will have at least 12,000 residential units
for more than 25,000 people and a total of about
35,000 people will live and work in the area. Ham-
marby Sjöstad should be fully built by 2017.
A new annual ring in Stockholm’s history

Stockholm has gradually added new rings of
urban structures through history. Starting from
the medieval narrow streets with merchants
building along the docks in the old city, to the
Figure 1: Chinese delegation led by President
1800’s with its more closed structures, to the in- Xi Jinping (At that time vice president) visit the
strumental and functionalistic typical suburb dis- information center GlashusEtt in Hammarby Sjöstad
tricts being built in the 1960s and 70s. Finally the
end of the 1980s came the postmodern reaction
against this modernistic urban planning, which
had created large social and economic barriers in
the city and championed an architecture which
was not appreciated by the public.
The 1999 comprehensive plan for Stockholm
stated that the city should grow inwards, through was described as offering “peaceful idyllic scenes
densification and transforming old central indus- from nature” in the 1920s, yet just a few decades
trial areas. Historically, shipping and industry, later it was sneeringly referred to as a corrugated
rather than private apartments, had priority to steel “shantytown”. Finally in the new millennium,
the waterfront. These waterfronts now became it was reborn, as a modern and environmentally
the hot spots for residential apartment buildings friendly part of Stockholm’s city centre.
and offices. One of the best known examples of Water has inspired the name of the entire pro-
this late redirection in Stockholm is the district ject, the town around the Hammarby Lake. The
Hammarby Sjöstad, or just Sjöstaden (Lake City), first drawings of what would become Hammarby
as it is often called in Stockholm. Sjöstad were sketched in 1990 and the first en-
vironmental programme date from 19981. The
How it all started idea was to showcase a unique opportunity by
Every place has its own history, and the area sur- expanding the inner city with a focus on the water
rounding Hammarby Sjö to the south of Stock- and at the same time converting an old polluted
holm has changed dramatically many times. It industrial and harbour area into a modern neigh-
REVIEW 10 93
Figure 2 (top): Hammarby

Sjöstad in the early 1900s before
industry started to develop
Figure 3 (bottom): Hammarby

Sjöstad in 1997 with scattered
small scale industries
94 ISOCARP
bourhood with high environmental performance.

When the first comprehensive plan for the new
district and the concepts guiding its develop-
ment were announced, there was little political
enthusiasm for the project. What gave the plan
real momentum was that in 1996 Stockholm
decided to apply for the 2004 Summer Olympic
Games. Hammarby Sjöstad was proposed as a
cutting edge environmental project hosting an
Olympic village and the site of a new arena with
70,000 seats. Although the games went to Athens,
the Olympic proposal generated enough consen-
sus and enthusiasm so that the Hammarby Sjös-
tad project went forward. Assisting with this drive
was the fact that Stockholm also had an urgent
need of new apartments. The important ecologic-
al considerations and plans remained despite the
new proposal for a mixture of an inner city atmos-
phere and modernistic architecture. Stockholm’s
largest urban development project for decades
was under way. Figure 4: Hammarby
Sjöstad in 2005
THE PROJECT
IMPLEMENTATION
The integrated planning process vironmental and quality programmes as part of

The real key to the district’s success is the integrat- the process of issuing land allocation permits to
ed planning that was carried out before the area developers. Despite the right to act by fiat, these
was developed. All of the various authorities and programmes were developed in cooperation with
administrations that normally get involved in the the developers and their architects early in the
various stages of the process sat down and drew process. By selling or leasing out the land, the city
up the plan for the new conceptual approach that could also finance schools, transport infrastructure
would result in Hammarby Sjöstad. The integrated etc. and also take responsibility for cleaning up the
planning work carried out from the start was – and area where a large amount of polluted soil needed
still is – unique. The goal was to create a residen- to be taken away. The environmental pilot projects
tial environment based on sustainable resource also received some state funding in the first years.
usage, where energy consumption, water use, car
traffic and waste production are minimised, and The Quality programme
resource saving and recycling are simultaneously The Quality Programme is a document for the co-
maximised. Today this planning process is being ordination of the external environment design. It
applied in a number of new urban developments acts as a framework for detailed design and covers
in Stockholm. And the results were – and will con- areas such as: architectural coordination; colour
tinue to be – visible in Hammarby Sjöstad. schemes; material quantities; parks and streets;
The municipal planning monopoly in Sweden lightening and public art.
means that each municipality decides how land
should be used within its’ jurisdiction. This self- Architecture and urban development
regulation concept is one of the most important An essential objective was to insure that develop-
conditions for local government in Sweden. Given ment on the 160 hectare site reflected the char-
that Stockholm City had previously acquired the acter of Stockholm, with its tradition of cohesive
Hammarby Sjöstad site, the city could impose en- areas and strong roots in historical tradition. A basic
REVIEW 10 95
Figure 5: Comprehensive plan for

Hammarby Sjöstad from 2007
principle was that Hammarby Sjöstad represents open block-based city, a combination of a closed,
an extension of the inner city with its special Stock- traditional inner city with more modernistic and
holm approach to both natural elements and spa- open planning types. The inner city street dimen-
tial structures. Urban and block structure, density, sions, block sizes, building heights, density and
mixed business content and public, park and water functionality mix are integrated with a new open-
room designs should expresses this urban charac- ness, waterfront views, parks and sunlight. Lim-
ter. The district represents a further development ited building depths, recessed penthouse flats,
of the European neighborhood town, which by maisonettes, large balconies and terraces, big
history demonstrated outstanding flexibility for windows, flat roofs and light-coloured rendering
changing lifestyles and social structures. on water-facing facades embody different appli-
The expansion required extensive infrastructure cations of a modernistic architecture programme,
development, the solution of existing transporta- as does the focus on sustainable materials, such
tion issues and that the old industrial and terminal as glass, wood, steel and stone. Traffic and servi-
areas be phased out, concentrated or given a new ces are concentrated along a three-kilometre av-
purpose. Stockholm and Nacka municipalities, the enue linking Hammarby Sjöstad together. Parks,
immediate neighbour, agreed on ways in which quays and walkways have been laid out around
the areas on either side of the shared municipal Hammarby Sjö (Lake) itself, while the water areas
boundary could interact and develop. at the heart of the district comprise a concentrat-
Hammarby Sjöstad adds a new “growth ring” ed visual park – the city district’s blue eye. Taller
to Stockholm’s urban growth – a modern, semi- buildings, facing the water, have been built along
96 ISOCARP
Figure 6: Architectural
design examples
Figure 7: “Instabil”, by Lars

Englund. This figure also shows
the latticed cube building in
the background
REVIEW 10 97
both sides of the Hammarby Seaway, in classic

city centre style, and interact with large-scale
quay facilities and expansive stretches of water.
Differing areas within the new town offer archi-
tectural variety. The milieu at Sickla Udde and
alongside Sickla Kanal is more intimate and small-
er scale, with its natural beaches. Here, building
sizes gradually fade towards the shoreline and
then follows the contours of the land as it rises
towards the avenues’ crown and Sickla Park. The
housing in Sickla Kaj have a more urban style.
Large-scale, multi-functional buildings lie along
the avenue, while small-scale, detached front and
back courtyard buildings lie between the quays
and the Sjöstad parterre, the park promenade.
Hammarby Gård has dense, urban milieus around
a lens-shaped park area and a newly created pool.
Lugnet, on the shores of Hammarby Sjö, is home
to a waterfront terrace, known as Lugnets Terrass,
with jetty decking, pergolas and specially plant-
ed areas, adjacent to the avenue. Lugnet is also
home to Hammarby Sjöstad’s most distinctive
building in the form of a latticed cube (40 x 40 m)
that is double the height of those that surround it.
Kobben a uniquely design housing

block for social interaction
Architecture design has an important effect
on people’s health and good design adds a
negligible extra cost on the overall investment
cost. This is why cooperation and foresight be-
tween builder and architect has to be continu-
ous through the planning and implementation
phase in order to give optimal results. Unco-
ordinated substitutions can change both the es-
thetical quality and the function of the building.
Kobben (CAN architects) is an example of an
innovative spatial design with new technical
solutions and an unconventional configura-
tion of the interior and exterior with different
courtyards. In the Kobben block there are 10
(top to bottom) apartments on each storey which are connected
Figure 8: The street and esplanade system. to only one staircase, situated in a transparent
Main transport line for cars and trams.
room in the middle between pairs of building
Figure 9: Traffic to houses and walking blocks. This design is intended to create a kernel
paths. The park system
in the block, where one can meet and thus cre-
Figure 10: The green wedges connected
ating security among the residents. This central
to the nearby nature reserve. The public
places. Mainly open places for recreation room has almost the same function as public
Figure 11: The service structure. Mainly space and is important for social relations. Evalu-
schools and kindergartens ations show that the residents in Kobben has a
98 ISOCARP
Figure 12: Kobben houses
very positive living experience in the block. It is to weave in art early in the design of public
an unorthodox architecture which reflects how spaces. The intention is that art efforts should
people move in the block, in the house and in engage and enhance the experience of the ex-
the Vertical Street, the staircase with the func- ternal environment, but also create identity and
tion of the street. This is important in a cold cli- Landmarks, The following examples of art in the
mate where the street is a nice place to mingle District.
only in the summer. Pier sculpture “Observatory” by artist Gunilla
The architectural design of Kobben is intended Bandolin. The sculpture is located, as a gem, on
to create identity, security and health through a the line of sight passing through the entire area
stimulating environment and at the same time and pointing towards the city. As a house it has
be ecological sound and sustainable. The meas- both an inside and an outside. The ceiling is the
ured energy supply through district heating is sky. You can climb up to the sculpture’s highest
in total 79 kWh/m2 and year. The building has level, survey the town and the water in all dir-
used ecologically sound building materials. The ections. Fountain sculptures were also added
entrance creates a welcoming view with its con- to the development, including one by Thomas
trasts between light and dark marble. Nordström. “Instabil”, by Lars Englund placed
at Lugneta consists of a green completely un-
The art in Hammarby Sjöstad balanced wing that is positioned on an orange
Public art investment in Hammarby Lake City column. The wing moves with the wind and the
includes both the northern and southern part sculpture is about twelve feet high when the
of the new district. The rule is that that 1% of wing reaches its highest position and the wing
the total investment should be invested in art- is eight feet long. Another example is the instal-
istic decoration. Characteristic of the art is the lation along the Sjöstad parterre and the storm
economy of scale in art projects and ambition water channel.
REVIEW 10 99
Figure 13: Pier sculpture

“Observatory” by artist
Gunilla Bandolin
Figure 14: Fountain sculptures

by Thomas Nordström
100 ISOCARP
Figure 15: Installation along

the Sjöstad parterre and the
storm water channel
THE ENVIRONMENTAL PLANNING Hammarby Sjöstad should be 50 % lower than

the corresponding level for housing areas from
The Vision – “Twice as Good” the same period. It was also stated that the goal
There are several key elements that have secure should be reached with existing technology. The
support for the project through many difficulties. environmental goals were formulated from gen-
First, Stockholm has a strong environmental trad- eral descriptions down to detailed targets in the
ition. For its decades of innovative environmental environmental programme.
policies, it was the first European city awarded
the title of European Green Capital of Europe in The Hammarby model – a unique eco-cycle
2010. Second, systems integration, as a strategy The integrated environmental solutions can be
to achieve environmental goals, has been part followed through an eco-cycle that has become
of the long-term environmental strategy of the known as the Hammarby model. The eco-cycle
city for over 20 years. The environmental focus handles energy, waste, water and sewage for
together with innovation are keywords used by housing, offices and other commercial activ-
the city to brand itself. It wants to attract actor’s in ities in Hammarby Sjöstad. The eco-cycle is also
future sustainable business development. designed to act as a role model for the develop-
The City of Stockholm proclaimed that Ham- ment of equivalent technological systems in big
marby Sjöstad should become an ecological fore cities. The Hammarby model has served as a very
runner for environmentally sustainable building important tool for visualizing the integration of
both at the national and international level. Early resource flows during the discussions between
in the process a joint and clear vision was cre- city departments, energy- water and waste com-
ated “Twice as Good”. The interpretation of this panies and the architects and builder during the
vision was that the environmental impact from planning process.
REVIEW 10 101
Figure 16: The Hammarby

Eco-cycle model
The following are core eco-cycle objectives.
Energy Waste Water & Sewage

1. Combustible waste is used to 6. Combustible waste is converted 10. Rainwater from the streets is
generate district heating and into district heating and electricity; treated locally and hence does not
electricity; 7. Food waste is biodegraded to pro- burden the wastewater treatment
2. Biofuels are used to generate dis- duce biogas that fuels vehicles, plant;
trict heating and electricity; whilst the sludge becomes nutri- 11. Rainwater from courtyards and
3. District heating and cooling are ent-rich fertiliser; roofs is led off into Hammarby Sjö;
both produced using purified 8. All material that can be recycled 12. Wastewater is treated and then
wastewater; is sent for recycling: newspapers, helps in the production of district
4. In some blocks Solar energy is cardboard, glass, metal, etc; heating and cooling;
converted into electrical power 9. Hazardous waste and electrical 13. Biogas is extracted from bio-
or used to heat water. Electricity waste is recycled or sent to landfill degraded sewage sludge;
should bear the Good Environ- 14. The biodegraded sewage sludge
mental Choice label, or equivalent; is used as fertiliser or cover for
5. Biogas is extracted from sewage mining residues.
sludge and solid food waste. It is
mainly used for fuelling the inner
city buses.
102 ISOCARP
Figure 17 and 18: Examples

of storm water solutions
ENVIRONMENTAL SOLUTIONS tested using chemical, physical and biological

processes. The wastewater sent to the local treat-
Water and sewage ment plant comes exclusively from the residen-
One of Hammarby Sjöstad’s environmental goals tial units in the area and not from surface water
is to halve water consumption. Stockholm resi- and industries, and the levels of contaminant are,
dents use 200 litres of water/person/day. The goal therefore, hopefully minimal. The sewage sludge
in Hammarby Sjöstad is 100 litres, and thanks to from the treatment plants is bio digested and bio-
eco-friendly installations, consumption levels are gas extracted. Biogas, the most eco-friendly fuel
currently at around 150 litres (39 US gallons/day/ currently available, is used by buses and approxi-
per person). mately 1,000 gas stoves in Hammarby Sjöstad.
Cleaner wastewater is another goal. The quan- The sludge is then used as fertiliser in forestry or
tities of environmentally harmful substances cover for mining residues.
discharged into the archipelago via the treated All storm water, rainwater and snowmelt is
wastewater shall be reduced and the aim is also to treated locally in a variety of ways, and the sys-
recycle cleaner sewage sludge to the agricultural tem is referred to collectively as LOD (the Swed-
sector. In addition, 50 % and 95 % of the phos- ish acronym for “local storm water treatment”).
phorus shall be separated out and recycled for Storm water from developed areas is infiltrated
use on farms. Cutting edge technology was evalu- into the ground or drained to Sickla Canal, Ham-
ated at Sjöstadsverket, a test treatment plant marby Canal or Danvik Canal. A storm water canal
for wastewater. Four treatment processes were runs through the park Sjöstadsparterren (the
REVIEW 10 103
Figure 19 to 21: Solid waste

collection system
104 ISOCARP
Sjöstaden parterre). The water runs from the sur- collect the containers without driving into the
rounding buildings and courtyards via numerous area and the refuse collectors avoid heavy lifting.
small gutters and is then carried on to Hammarby
Sjö through a water ladder designed by the artist, Environmental solutions – Energy
Dag Birkeland. Once construction of Hammarby Sjöstad is com-
The green roofs seen on some of the buildings pleted, the residents will produce 50% of the
in Sjöstaden are another link in the local storm energy they need. Treated wastewater and waste
water treatment (LOD) chain. Their task is to col- are used in the production of heating, cooling,
lect the rainwater, delay it and evaporate it. At the electrical power and biogas. The area also uses
same time, the small, dense sedum plants form new energy technology, such as solar cells and
living green areas in the cityscape. solar panels.
Rainwater and snowmelt from the streets is col- The Högdalen district thermal plant uses com-
lected and treated in a variety of different ways in bustible waste to produce district heating and
Sjöstaden. The most common way involves drain- electricity, while the Hammarby heating power
ing the water into special basins, and Sjöstaden plant uses the heat in the treated wastewater
has two closed settling tanks. The water is allowed from the Henriksdal wastewater treatment plant
to remain in the tanks for several hours, to allow to produce district heating. The wastewater,
the contaminants to sink to the bottom (settling), which is now cooled, is used to cool the water
and is then drained out into the canals. Mårtens- circulating in the district cooling network in Ham-
dal and Lugnet have open storm water basins marby Sjöstad and throughout the city.
where the surface of the water can be seen. Here, The sun’s luminous energy is converted to elec-
the soil and plants in the area can handle the con- trical energy in solar cells. Solar cells have been
taminants from dirty water when it sinks down installed on several facades and roofs. Two build-
into the ground water. ings have been fitted with solar cells that provide
the electricity needed for the buildings’ com-
Environmental solutions – Waste munal areas. 390 m² of solar panels have been
Waste is no longer just waste these days, it is a installed on the roof of the Viken block and use
resource that must be utilised. New products solar heat to warm water, producing half of the
are made from the recycled waste, enabling nat- building’s annual hot water requirements.
ural resources to be saved. Waste management is
divided into three separate levels in Hammarby Transportation
Sjöstad: property-based, block-based, and area- Transportation imposes a heavy environmental
based. The waste that is heaviest and generates burden in a densely built-up city district. This is
the biggest volumes – household waste, food why Sjöstaden offers energy saving and attractive
waste, newspapers and paper – is sorted and alternatives to private car usage. The result is that
placed in different refuse chutes inside or adja- 80 % of residents’ and workers’ journeys are by
cent to the properties. Waste that does not be- public transport, on foot, cycling or by carpooling.
long in the property-based refuse chutes can be Substantial investments have been made in
left in the block-based recycling rooms. This cat- public transport in the area, both in the form of
egory includes packaging, bulky waste and elec- connecting to the new light rail link “Tvärbanan”
trical waste. and bus traffic within the city. Public transport has
Refuse chutes are linked by underground pipes a central route running through Sjöstaden, with
to a central collection station to which the waste four stops along the avenue that connects one
is carried by vacuum suction. An advanced con- side of the city district to the other.
trol system sends the various fractions to the right Sjöstaden has ferry links. The ferry, which trav-
containers – one for each fraction. els on Hammarby Sjö between the southern and
Hazardous waste, such as paint, varnish and northern sides of Sjöstaden, is run by the City of
glue residues, nail polish, solvents, batteries and Stockholm and is free to use. The ferry runs 365
chemicals are sorted and handed in to the area days of the year from early in the morning to late
collection station. The waste collection trucks can at night.
REVIEW 10 105
Figure 22: Light rail train

with the “Luma” factory
in the background
Figure 23: Ferry link

to central Stockholm
106 ISOCARP
Carpools have been launched in the area which The Healthy Hammarby Sjöstad
are open to both residents and those working One of the goals of Hammarby Sjöstad is for the
in the District. Around 10 % of households have district to be a healthy place for people to live,
joined the carpool to date, and there are 25 to 35 a place that stimulates the body and soul, and
carpool cars parked in the area, with the number hence a place that offers opportunities for exer-
varying according to demand. Around 75 percent cise, sports and culture. In the centre of the area a
of the cars are bifuel cars. The aim is for at least new church has been built.
15 % of households and at least 5 % of the Ham- Sjöstaden has a number of exercise and sports
marby Sjöstad workplaces to be signed up to the facilities, such as Hammarbybacken, a slalom ski
carpool. slope with amazing views. This hill consists of
waste from an earlier nearby construction project.
THE GREEN AND HEALTHY CITY The sports facility at Hammarbyhöjden, near the
southern side of Hammarbybacken is an import-
The green Hammarby Sjöstad ant asset, especially for school and youth sports
The Stockholm tradition contained in the plan activities.
is the interaction between city and nature. In The foot of the slope is also home to the valu-
Stockholm water surfaces represents intensively able Nacka nature reserve. A sports hall with a
present natural elements; an ever-changing ele- large exercise facility has been built in Sjöstaden,
ment to consider and visually experience. Ham- and this positive feature is echoed in the annual
marby Sjöstads central water surfaces provide a Sjöstad Games held on Sweden’s National Day
visual park, a city district “blue eye”, a Nordic in- under the administration of Hammarby IF sports
terpretation of the public space. In addition, the association. Sjöstaden has numerous footpaths
landscape with its hills, parks and greenery rep- and cycle paths alongside the canals, as well as
resent natural qualities. Great efforts have there- many attractive paths for strolling through a var-
fore been made in both the planning and con- iety of green public spaces in the district. There
struction phase in order to preserve the existing are also cycle paths along Sjöstaden’s main
vegetation and natural ground, to build new through-road, and numerous gyms have been
parks and to create green streets and courtyards. opened within the area.
The green wedges, finger pitch, are a park A variety of different types of cultural activ-
tradition created in Stockholm in the 1930s ity also are important in terms of overall health.
where the green, and even the water, formed the Cultural outlets in Hammarby Sjöstad include
natural boundaries of the city’s buildings. Stock- not only the Fryshuset social and cultural centre,
holm has a unique green structure in which the but Kulturama, which offers instruction in a wide
parks loosens and structures the city to make it a range of Arts for students of all ages, along with
growing inner city above the natural water bar- a library.
riers. This park tradition is well consistent with
the ecological aspects of the plan for Hammarby GlashusEtt – The area’s
Sjöstad. The basic theme is a system of parks in environmental information centre
strategic locations that connect to some land- Centrally in Hammarby Sjöstad is the Glashu-
scape green space and with a clear orientation sEtt information center with its characteristic
towards Hammarby Lake. architecture designed by Tengbom Architects in
The large nature reserve in the nearby muni- Stockholm.
cipality Nacka is tied together with Hammarby The exciting and interesting design and con-
Sjöstad through ecoducts, planted viaducts, tent of GlashusEtt make it the natural focal point
which bridges the Southern Link. for information on environmental issues in Ham-
Sickla Park is a naturalistic urban park where marby Sjöstad. First it plays an important role in
the impressive ancient oaks has been preserved. engaging and informing the residents as well
The park is beautiful, with winding walking as local schools about issues like energy saving,
paths, an exciting playground and a small foot- waste sorting and to avoid flushing different
ball yard. thing in the toilets which can affect the waste
REVIEW 10 107
Figure 24: Ecoducts (green

passways) over the highway
to the large nature reserve
close to Hammarby Sjöstad
Figure 25: Preserved oak park
108 ISOCARP
Figure 26: New Church
water system. The knowledge centre also pro- uted to the success. One was the simple vision
vides Stockholm with a natural hub for demon- “Twice as good” which could be broken down into
strating the links between modern technology precise targets for environmental objectives in
and a better environment in an atmosphere of the environmental programme. This process was
harmony with exciting new architecture. supported by a visual eco-cycle model, the Ham-
The environmental information centre is tasked marby model, where different integrated system
with spreading knowledge through study visits, solutions could be developed. But in the end the
exhibitions and demonstrations of the Hammar- most important factor was probably the partici-
by Model (see front cover) and new eco-friendly patory process under the control of the city, who
technology. National and international visitors owned or leased the land. This process included
come to Sjöstaden to see not only how the City several city departments, the developers and
of Stockholm has planned the new city district, their architects as well as the water, energy and
but also how an ecological approach has char- waste companies. The process secured a common
acterised the entire Sjöstaden planning process. acceptance of the basic ideas behind the project
GlashusEtt is also used as a teaching centre for during planning and implementation. One lesson
a variety of different courses on environmental learned during the project is that the implemen-
and urban planning, public meetings, politicians’ tation controls and the enforcement instruments
meetings and customer meetings. from the city should be planned at an early stage.
The Hammarby Sjöstad project is in many ways
LOOKING FORWARD an example of a sustainability project. It has a clear
focus on environmental issues but also it is an at-
The project Hammarby Sjöstad has in many ways tempt to integrate solutions to achieve a higher
been a great success and inspired other cities quality of life and to encourage more sustainable
around the world. The project has shown that old lifestyles. This is a great challenge for urban plan-
polluted industrial areas can be converted into at- ners and architects - How can we create an urban
tractive living areas close to water with very high environment that supports resource efficiency
environmental standards. Several factors contrib- and sustainable life styles? Social relations affects
REVIEW 10 109
Figure 27 (top):
Hammarbybacken. The
picture is taken from the hill
between Hammarby Sjöstad
and the nature reserve. It is
used for skiing in the winter
Figure 28: The information

center GlashusEtt
110 ISOCARP
our quality of life. Good social relations is a quality

in itself but also a buffer against stress and other
expressions of physical illness. The society cannot
control individual’s social relations but it might be
able to develop better places to live and work. The
neighbourhood has not lost its importance in the
modern urban environment but it has changed
its characteristics. It continues to be important for
people’s identity, but it has increasingly become
an arena for public life, local culture, recreation
and pleasure. And the dwellings role as carrier of
lifestyle and identity has been reinforced.
In Hammarby Sjöstad the idea was to integrate
many of the aspects so that the inhabitants could
live a more sustainable life without a high degree
of environmental awareness and without too
much effort. In this perspective Hammarby Sjös-
tad is a typical example of ecological moderniza-
tion intending at decoupling economic growth
and better life for people from environmental
degradation. This is still a challenge because of
the increasing consumption as a result of in-
creasing welfare among people. The consump-
tion products used in Hammarby Sjöstad are also
often imported from developing countries and
thus some of the environmental problems related
to production have been exported.
One sustainability problem, which the Ham-
marby Sjöstad project has not been able to solve
is its segregation in Stockholm. Hammarby Sjös-
tad is an expensive area, which many people in
Stockholm cannot afford to live in. Several of the
suburb districts, being built in the 60s and 70s,
today have almost only immigrants from outside
Europe. This is a situation that Stockholm shares
with many European cities. Stockholm has started
an ambitious project to handle that problem but
the challenges are huge.
References:
To conclude Hammarby Sjöstad has been an
www.hammarbysjostad.se
inspiration for the further development of Stock-
holm and other places in the world. After it is ap- http://www.stockholm.se/PageFiles/169740/
proaching completion we know what we could Sustainable%20J%c3%a4rva.pdf
have done better. Without trying out new ideas
GlashusEtt information: www.hammarbysjostad.se
step by step we will never go further in sustain-
able development. In many new areas Stockholm More information around sustainability projects
is now on the way to take these further steps. in Sweden at http://www.sisud.com/
Endnote
1 A great deal of the effort to carry the project on was
done by the chief urban planner in Stockholm Jan
Inghe-Hagström, who sadly never came to see the final
development because of his early death in 2005.
REVIEW 10 111
PLANNING AND PRACTICE OF WUXI TAIHU NEW TOWN
PLANNING AND PRACTICE

OF WUXI TAIHU NEW TOWN
XIAOXING FENG
Bird-view of Taihu New Town at night
112 ISOCARP
XIAOXING FENG
REVIEW 10 113
BACKGROUND OF PLANNING New Town site enjoys both favorable geological

AND CONSTRUCTION conditions and a favorable natural environment.
OF TAIHU NEW TOWN It also would provide easy transportation with the
airport and could be easily linked to nearby high-
Major Decisions on Master Plan of Wuxi City ways. The nearby Lake Taihu constitutes another
Wuxi, located in the Yangtze River Delta in East good condition for the construction of the New
China is known as a land of fish and rice and as Town. Finally, due to the rapid urbanization in re-
the birthplace of China’s modern national indus- cent years, the historic downtown area’s circular
try and commerce. Wuxi also is a tourist destina- development pattern has become inefficient. In-
tion with its beautiful landscape of hills and rivers creases in vehicles coupled with limited roadway
on Lake Taihu, one of four largest freshwater lakes opportunities have produced traffic jams. Almost
of China. Wixi City is a historic location with its all available land in the old city is used for build-
downtown dating to over 2000 years ago. ings instead of green space or other kinds of de-
In 2002, Wuxi Government made a major stra- velopment. Therefore, it was hoped that the New
tegic decision to plan and build a new city center Town could take over some functional projects
on the south shore of Taihu Lake. This decision which are unable to develop in the old downtown
was made after due considerations. area for lack of space; start some new projects
Within the Yangtze River Delta economic re- which can meet the demands of modern life; and,
gion are several cities with strong economies in- create a new habitat with beautiful environment,
cluding Wuxi, and its neighboring cities, Suzhou with complete public facilities and convenient
and Changzhou. There is much competitive eco- transportation.
nomic and social development pressure between
them. Due to her ideal geographical location Overview of Taihu New Town
between Shanghai and Nanjing, Wuxi govern- Since 2003, the local government has conducted
ment intends to expand its influence and service a series of studies ranging from: the overall struc-
to Suzhou and Changzhou, or even to a wider ture of the city, to the shape of the region; the
region, by construction of Taihu New Town, thus statutory plans including general plans, special
enhancing the functions and competitiveness plans and regulatory plans; and, advisory reports
of Wuxi City. The purpose of building Taihu New covering conceptual plans and urban design.
Town is not only to transfer the functions of the In 2005, urban construction was initiated in
old downtown, but also, more importantly, to de- some parts of Taihu New Town and the work
velop new industries and urban functions so as to began on some roads, bridges and tunnels, which
play an important role of convergence and radia- connect the New Town to the old downtown.
tion to her neighboring areas. Secondly, the Taihu In 2007, the construction of the New Town was
Figure 1: Location of Jiangsu

province in China and Wuxi
city in the Yangtze River Delta
114 ISOCARP
XIAOXING FENG
geared to full speed and by the end of that year VISION AND PLAN
the New Town had an area of 150 square kilom- IMPLEMENTATION
eters, a population of 250,000, and had included OF TAIHU NEW TOWN
5 rural towns under its jurisdiction.
By the end of 2013, Taihu New Town had a A Waterside New Town
population of about 480,000 and provided ap- With Lake Taihu as its name card, Wuxi has been
proximately 150,000 jobs. Through five years of known as The Pearl of Lake Taihu. Therefore, the
government-led hard work, the primary and sec- construction of a waterside new town was set as a
ondary roads in the New Town were almost com- top priority at the very beginning, making the re-
pleted, one third of all large public green spaces lationship between Lake Taihu and the New Town,
were completed, public facilities such as the new and relationship between the waterways, urban
government building, Wuxi Grand Theatre and roads and buildings an important issue. Taihu New
Wuxi Exhibition Center were built, and 10 mil- Town is surrounded by water, with Lake Taihu to
lion square meters of settlement housing for re- its south and west. More than 300 waterways flow
located farmers were built. In addition, 7 million through the New Town, which provides a typical
square meters of commercial housing were been urban landscape of water and land.
built with investment from the non-government- The conceptual planning contest of Taihu New
al sector. In 2013, Wuxi’s GDP ranked No.10 and Town started in 2003 and focused on the overall
her per capita GDP ranked No.11 in China. structure planning. The chosen plan adopted an
The size of planned construction land of the implicit way with Chinese characteristics to build
New Town by 2050 is 100 square kilometers (with the relationship between the New Town and Lake
an additional 50 square kilometers of land for Taihu. According to the plan, instead of placing the
non-constructive purposes such as hills and wet- new town center next to the Lake, the central dis-
land) and the planned population is expected to trict, residential community and industry area in
grow to 800,000 to 1 million1. the New Town would be connected to the water
Figure 2: Main water and green

system of Taihu New Town
REVIEW 10 115
with three introduced vertical waterways from designed in a comparatively free way with some
Lake Taihu. After several rounds of design com- passing through and some along the blocks and
petition for the core districts during 2004-2006, walkways connecting river bank and different
the final plan aims to form a rich and varied urban blocks.
space by developing the highly structured Finan-
cial Business District and the free-formed Cultural A New Town with Preserved Historic Sites
Region on both sides of the central water system. Due to public land ownership, it is a common-
Prior to large-scale construction of infrastructure place to tear down old buildings and to construct
in 2007, a plan for a specialized water system was a town on cleared land. This approach has the
made, setting details for river preservation, con- advantage of facilitating the layout of urban func-
nection, renovation and landfill. It also provides tions and traffic organization, but it also brings the
advice for bridge layout in the course of road con- problem of losing the historic urban context and
struction. The urban design of the south New Town uniqueness of the development and leads to the
completed in 2012-2013 examined the view of phenomenon termed “A Thousand Cities with the
the New Town from the perspective of south Lake Same Faces”.
Taihu, thus optimizing the skyline of the New Town. From the beginning, the plan established two
The completed areas reflect the relations be- networks. One covers the original rivers, vegetation
tween water and a multi-functional town. The on the bank and intact historic buildings. The other
river bank of the core area (including the gov- network, based on the first one, includes the urban
ernment and No.1 Financial Business District) is road system and new functional architectures. So
mainly paved with hard material. The shape of a detailed planning of two historical blocks, plan-
the square and surface of water and the neatly ar- ning of waterfront space (including the layout of
ranged buildings reflect a strong flavor of artificial river-side architectures and environment design)
work. In the green space, some rivers and vegeta- and the renovation and expansion programs of
tion on both sides as well as some simple wharf some age-old temples, houses and factories, were
and a stone bridge are preserved. The watercourse worked out for Taihu New Town.
in the residential community and industry area is Except for the temples, most of the preserved
116 ISOCARP
XIAOXING FENG
Figure 3: The completed areas including the Figure 4: Typical waterside

government and No.1 Financial Business District space in villages
buildings were empowered with new functions. utilization, ecosystem and green architecture. In
For example, a large steel plant has been trans- addition a detailed control plan defined targets
formed into a digital movie production base, where for every parcel of land, compiled special plans
many factory buildings has been changed into stu- for related efforts including energy plan and slow
dios with some industrial machines preserved as traffic system. Local government issued relevant
decorations in green space. Since its opening in documents making the eco-town construction a
2013, these redeveloped facilities have attracted vital goal for Wuxi. It required all administrative de-
120 companies from film production, animation partments to provide more stringent management
production, film shooting and culture media. A and service to the project construction. The prom-
century-old street is under renovation. Most of ulgation of the first local regulations on eco-town
the original walls, yards and wood structures have in China (coming into effect in February 2012), was
been well-retained. A boutique inn is scheduled to approved by the standing committee of Jiangsu
open in 2015, where some buildings will be trans- Provincial People’s Congress. This action acceler-
formed into guest rooms like Jiangnan dwellings, ated the work on Taihu New Town with a wider
and some buildings will be used as a platform of scope, a more comprehensive system and more at
cultural exchange with foreign countries. an in-depth level. In the New Town, 2.4 square kilo-
meters of land was designated for a Sino-Swedish
A Low-carbon Ecological New Town eco-city demonstration project in cooperation
Since sustainable development is an inevitable with Swedish Ministry of Environment. Another 4
trend of future, Taihu New Town aims to build it- square kilometers of land was established as one
self into a low-carbon ecological new town. From of the first “Energy-Saving and Green Architecture
2009 to 2011, we devised an eco-town consulta- Demonstration Zones” in Jiangsu.
tion report; set specific development goals, strat- In recent years, low-carbon targets have been in-
egy and priorities; and composed a target system cluded in the contracts of land concession to guide
of eco-town planning and construction which set the project practices. A wide area of residential
detailed and quantified sub-targets for urban func- communities and public facilities, together with
tions, green transportation, resources and energy supporting facilities within 300-500 meter range,
REVIEW 10 117
Figure 5 (top): Wuxi national

digital film industrial park
Figure 6 (bottom): The century-old

street in XunTang village
118 ISOCARP
XIAOXING FENG
are under construction. A slow traffic system and

an over-16km-long common duct has been com-
pleted. Some green infrastructures like rainwater
collection and utilization and solar street lights
have been put into use one after another.
Thanks to the efforts made over the years, Taihu
New Town was awarded “National Demonstration
Area for Low-carbon Eco-town” by the Ministry of
Housing and Urban-Rural Development in 2010.
By the end of 2012, the Town was awarded the first
“National Green Eco-Town”.
A New Town with New Industries

and Urban Functions
As the birthplace of China’s national industry and
commerce, Wuxi has more industrial land that is
found in peer cities. The city is home to 5 industry
parks and 4 national and provincial industrial bases
in addition to the township enterprises which are
booming. As a result of the overall positioning and
its proximity to Taihu Lake, Taihu New Town now
is the main location for industrial transformation
and upgrading guided by the principle of restruc-
turing and transformation. Growth is focused on
emerging industries while being supplemented
by optimized traditional existing industries. The
initial conceptual plan and industrial strategy have
clearly divided the New Town into three sections
based on different functions, namely the East Side,
the Central District and the West Side.
The Central District, mainly for residence and
public facilities, is a new downtown area in Wuxi.
Its major industries are finance and business, cul-
ture and exhibition, and modern services. The West
Side enjoys unique landscape resources, which is
suitable for culture and tourism, film production,
cartoon and animation.
At present, the No. 1 Financial Business Block,
about 1 million square meters in floor space has
been built in the Central District and 65 financial
institutions and corporate headquarters have
settled in the Block. The Exhibition Center has
hosted nearly 100 successful exhibitions and 2 mil-
lion visitors since it was put into operation in May
2010. Over 300 performances have been staged in
the Grand Theatre since its operation in May 2012.
Figure 7 (top): Green travel With an attendance rate of over 70%, the Theatre
in Taihu New Town has attracted more than 300,000 people.
Figure 8 (bottom): With convenient transportation, the East Side
Solar street lights is aimed for the Internet of Things (IoT), high-tech
REVIEW 10 119
Figure 9 (top):
Wuxi Exhibition Center
Figure 10 (bottom):
Wuxi Great Theatre
120 ISOCARP
XIAOXING FENG
Figure 11: Xincheng elementary school
and R&D industries. In the East Side, IoT industries the center of community as much as possible after
have clusteredwith the National Sensor Network careful study on their service areas. The functions
Industrial Park as its core. Nearly 1,000 hi-tech com- of the neighborhood center were examined and
panies of sensors, IT, micro and nano technology the scale and outdoor space of relevant buildings
are located here, creating over 50, 000 jobs. are clearly defined, such as those of the commun-
In the West Side, more than 900 companies of ity library, sports venues, public green land, market
films, animation and media have taken roots, cre- and nursing home for seniors.
ating over 11, 000 jobs. It is also home to several Currently, Taihu New Town has 17 million square
universities with over 30, 000 faculty and students. meters of completed housing properties and the
Thanks to the available landscape and the existing population of residents is ever increasing. Since
national tourist resorts, new eco-tourism projects 2011, construction of supporting facilities has be-
have been established including the Lavender Gar- come the priority of the New Town. Several kin-
den, happy-farmer orchards and wetland parks. dergartens, elementary and secondary schools
have been put into use and commercial streets
A Livable New Town located in some mature residential blocks have
Taihu New Town, with an estimated ultimate cap- also achieved great success. In addition, several
acity of one million residents, is planned to be built commercial complexes are now under construc-
into a model livable town by the Wuxi govern- tion and are expected to open in 2014-2015. When
ment. On the basis of a stable overall layout and opened they will create a rich variety of restaurants,
a sound statutory plan of the New Town, a series tea houses, coffee shops, cinema, department
of specific planning covering community sup- store, supermarkets and other stores. Bus routes
porting facilities, educational facilities and facilities will also be optimized to meet the needs of the ris-
for the elders were set out to create a more con- ing population in the New Town. Wuxi Metro Line
venient and comfortable living environment. The 1 will be put into operation in June 2014, bringing
community-level supporting facilities are placed to closer the new and old towns.
REVIEW 10 121
Figure 12: A commercial street

in residential blocks
CHARACTERISTICS in preliminary stage of project, to guidance of

AND EXISTING PROBLEMS design development in medium-term, to field
supervision in late-stage of construction. This
Plan-Guided Construction helped keep the implementation of the project
of the New Town in compliance with the intention of plan. To some
Before 2000, urban planning was not taken ser- extent, Taihu New Town is a result of a construc-
iously and it was usually regarded as a pile of tion mode of compulsory planning. Yet problems
useless drawings. It was even common to initi- still exist due to the limitation of plan, such as the
ate construction without planning. Since 2000, large spatial dimensions of streets in some areas
under the influence of rapid urbanization, and as and the weak combination of land functions.
a result of many problems arising from a lack of
research in the preliminary stages of projects, the Quality Improvement of New Town
local government has attached greater import- by Refined Planning and Management
ance and allocated some government funding for In terms of plan-making, the planning system of
urban planning. Taihu New Town is relatively complete. The over-
The planning and construction of Taihu New all urban planning covers the complete range
Town started at the right time. Unlike the spon- composed of zoning plans, regulatory detailed
taneous development of the old town, the de- plans and special municipal plans. For key areas,
velopment of Taihu New Town fully reflected the urban planning combined with commercial plan
guidance role of the plan, and the traffic network, are formulated, and consulting reports as well as
function layout and space shape of the New Town various plans including color plans and eco and
are all developed according to the plan. Further- low-carbon plans are prepared. Numerous high-
more, the coordination of government and the level famous foreign design and consulting com-
efforts of the Planning Management Depart- panies from all over the world including America,
ment has integrated planning efforts with each Germany, Britain, Finland and Japan, and several
development phase, from business promotion domestic leading design companies have partici-
122 ISOCARP
XIAOXING FENG
pated in the planning and designing of some sig- growth expectations. Moreover, under the impact
nificant buildings. By learning from the experien- of the state macro-economic regulation on real
ces of other similar projects around the world, the estate, the construction of some residential areas
overall plan of the New Town is both specific in and commercial office facilities cannot catch up
contents and feasible in practice. In terms of plan the planned schedule, and completed residential
implementation and management, both plan im- and commercial buildings are experiencing slow
plementation and management are closely linked, sales and inadequate popularity.
making sure the guiding principles of planning,
guiding requirements in urban design and the re- CONCLUSIONS
quirements for eco and low-carbon are effectively
and innovatively carried out. For example, Wuxi Rome was not built in a day, and the same will be
took the lead in bringing ecologic low-carbon re- true of Taihu New Town. It is estimated that at least
quirement into the requirements of planning and two decades are needed to realize the blueprint
the conditions of land grant among major cities of of Taihu New Town. To planners and builders there
China. Another example is that when transferring is still a long way to go and a lot to learn. How
plots of key areas, urban design requirements like to further learn management experiences from
the axis of urban landscape, building lines and de- advanced cities both home and abroad? How to
sign of building facades must be clearly defined. promote the development of a low-carbon, eco-
Refined planning and management help ensure logical and smart town? How to properly handle
effective implementation of most projects. How- the relationship between government and mar-
ever, because of the rapid construction, a few pro- ket? How to master the timing and pace of con-
jects have sacrificed quality for speed in order to struction better? These are the critical issues which
catch up the schedule. need to be considered in the next planning and
construction stage of the New Town.
New Town Construction
Driven by Public Projects
Like most other cities in China, Taihu New Town
has benefited a lot from strong support by the
government during its construction. Thanks to
the detailed work plans made by the government,
over-100 kilometers of urban roads (including
underground pipelines), more than 5 square kilo-
meters of green land and several large infrastruc-
ture projects have been completed within 3 to 5
years. Moreover, 50 to 100 hectares of commercial
and residential plots are being brought into mar-
ket each year. Thanks to government’s efforts on
construction, the New Town has presented itself
to the citizens in a short period of time. However,
there is a gap between the Government’s desire
and market demand. The government built R&D
buildings to introduce new industries, encour-
aged social investment to build office buildings
so as to attract quality companies, built condos
Endnote
to accommodate the forecasted population, and 1 The Construction Headquarters is a temporary institution as
constructed commercial facilities to enhance the Taihu New Town is not an administrative district. Therefore,
all the data referred in the article regarding the population,
overall supporting functions. As a matter of fact, jobs and introduced enterprises are from departments’
interview rather than accurate statistics. The interviewed
due to limited size of Wuxi and closely-matched departments include the Construction Headquarters of
economic strength of adjacent cities, the radia- Taihu New Town, Administrative Committee of Taihu
International Science & Technology Park and Administrative
tion capacity of Taihu New Town is not meeting Committee of Wuxi Shanshui City.
REVIEW 10 123
THREE CONTRASTING APPROACHES TO URBAN REDEVELOPMENT AND WATERFRONT TRANSFORMATIONS IN HAMBURG
THREE CONTRASTING APPROACHES

TO URBAN REDEVELOPMENT
AND WATERFRONT TRANSFORMATIONS
IN HAMBURG: “STRING OF PEARLS”,
HAFENCITY AND IBA (INTERNATIONAL
BUILDING EXHIBITION)
DIRK SCHUBERT
Figure 1: HafenCity Hamburg,

view over Magdeburger
Hafen and Überseequartier,
Elbphilharmonie with tower
cranes on the left hand side
in the background.
Source: Dirk Schubert
Hamburg is the site of Europe’s second largest port ledge infrastructure. However, the Hamburg Metro-
and is a tidal seaport city on the estuary of the politan Region not only has to strengthen itself
River Elbe, 100 kilometres upstream from the North within the region, acting “from the region for the
Sea. Hamburg’s topography is shaped by the con- region”, but also has to compete with other regions
fluence of the smaller River Alster and its tributar- of Germany and Europe. Therefore border-crossing
ies that flow into the Elbe. The city is characterised alliances and networks of large-scale partnerships
by Lake Alster in its middle and a port with ocean with other regions and among the three federal
liners on the Elbe. The city-state Hamburg is part of states have to be contracted.
the Hamburg Metropolitan Region which covers a In addition, as the economy of the region grows,
settlement and economic area on both sides of the several challenges needed to be resolved at a
river Elbe of approximately 20,000 km² containing regional, national and global scale.
about 4.5 million inhabitants and 1.9 million One challenge is to meet the demand of the
employees. The functional interdependencies in metropolitan housing market where there is a
the region can easily be understood by studying need for more suitable housing for the growing
commuter patterns. Reflecting this regional inter- number of one- and two-person households and
dependency, governance is based on the voluntary for older buyers, who are likely to choose quality
participation of three German federal states- over quantity. A 2004 forecast predicted that the
Schleswig-Holstein, Lower Saxony, and Hamburg. city can gain an additional 80,000 inhabitants or
In addition, 14 counties from Schleswig-Holstein 60,000 households by 2020. Altogether, Hamburg
and Lower Saxony are members of an informal should have a positive balance of migration,
“common sense” strategy for the metropolitan re- with a focus on 15 – 30 year olds. The city offers
gion based on the Regional Development Concept attractive housing, employment, and education
(REK Hamburg 2000). to this group, thus presenting an appealing living
As the metropolis and core of a region, Hamburg space. By contrast, the balance of migration within
offers an outstanding technical, social, and know- the surrounding suburban area is still negative, but
124 ISOCARP
DIRK SCHUBERT
it is declining. To capture this housing market, sub- companies and the 800,000 inhabitants of the
stantial attention will need to be paid to improv- Süderelbe region. Their order reads “strengths
ing the available housing stock and creating new strengthen” for growth, creation of value, and jobs.
housing for present inhabitants, young families, The port also represented a great opportunity.
and newcomers. As older less efficient port facilities began to de-
At the same time, the sites to accommodate this cline, these areas represented potential redevelop-
demand were effected by restricted land avail- ment opportunities gifted with waterfront views.
ability. Unless this spatial imbalance was resolved Additionally, there are the national and global
there was a good possibility that many future issues which might ensue from climate change,
commuters might end up living and paying their global warming, and climate protection are
taxes in the suburban villages and towns not in important City and metropolitan topics. Hamburg
Hamburg where they work. accepts this challenge with a broad climate protec-
Another regional challenge is the expan- tion concept, which is interdisciplinary, integrative,
sion of the port of Hamburg. Without regional and has a regional aspect. It relies on active man-
cooperation, the city would be unable to provide agement of spatial resources, taking into account
space and accommodations to capture all of the the increasing conflicts of use and the need for
demand. An example of this type of cooperation is economical and sustainable land use in the port
“Süderelbe AG”, a public private partnership which area and the region.
was established to promote the mutual develop- Therefore, regional marketing and internation-
ment of the regional competence cluster, i.e. “port alisation are therefore the new key projects of a
and logistics”, “aviation industry (Airbus/EADS)” metropolitan region. So-called “soft” location
and others associated with the synergies between factors like quality of life and regional image are
science and research facilities of the region. The becoming increasingly important for successful
goal of this project was to secure a high-quality economic development. The HafenCity and the IBA
location and quality of life for the almost 30,000 are two important examples of this.
REVIEW 10 125
A NEW URBAN tial strategic concept, which shows future empha-

DEVELOPMENT ses of action and does not follow the demands of
CONCEPT spatially comprehensive planning. At the same
time, it is an informal strategy that encompasses
Since April 2007, the city of Hamburg has had a the key projects of the city, incorporating a vision
new concept of urban development – the Spatial of how these aims shall be realised. In a highly ab-
Vision of Hamburg. Since the publication of the stracted form the guiding plan shows the spatial
last urban development concept of Hamburg structure of the city region and identifies the im-
in 1996, the so-called STEK (Stadtentwicklung- portant topics which will influence future urban
skonzept 2007), important new development development.
potentials have arisen, and important parameters The Spatial Vision of Hamburg also relies on the
have changed for the city. With a perspective of major growth industries of the city to strengthen
10 to 15 years, the Spatial Vision for Hamburg their role as a driving force of the economic dy-
identifies important topics and tasks for spatial namic. These are industries that probably make
development. Hamburg wants to seize the op- large demands for space and that request specific
portunities of a growing metropolis by mobilising locations, including businesses in the compe-
its urban potentials and strengthening its charac- tence cluster…“port and logistics” and “aviation”,
ter as a “green” metropolis on the waterfront. The which are supported by various promotions. On
most important aim of the plan reads “More city the other hand the “creative industries” look for
in the city”. With this demand, Hamburg consist- older buildings and conversions close to down-
ently gives priority to higher densities, infill, and town. This economic dynamic is carried by a num-
sustainable spatial development. ber of small- and middle-sized businesses. The
The advantages of urban renewal development creative economies like media, Internet technol-
are obvious: savings can be achieved by using the ogy and communication, film, music, and design
existing infrastructure of the city – from public are initiators and at the same time milieu-defin-
transport to cultural and educational facilities, ing for the city. Hamburg has already established
thus reducing the cost of new buildings. The loss quarters like “Schanzenviertel”, “Karoviertel”, and
of often-precious scenic and natural open space “Ottensen”, which offer such a milieu for certain
is minimized while built areas with scenic fea- groups, but where displacement and gentrifica-
tures will be renewed. The “Green Metropolis on tion are also important topics.
the Waterfront” will be an important feature of In the period following German reunification,
Hamburg and a benchmark for the development many conversion areas of the Federal Armed
of the inner city. This requires a responsible and Forces, the Post, the German Rail, and large hos-
sustainable use of space and resources. “More pital areas provided new urban uses. But most
city in the city” means giving inner-city locations important, as in all seaport cities, is the conver-
a high-quality urban shape by means of higher sion of derelict former port areas. As little as 10
densities, new uses, mixed uses, and upgrading years ago, the rapid worldwide increase in con-
public spaces. More apartments and more jobs tainer transhipment and cruise ships could not
contribute to a higher quality of life. have been predicted. In Hamburg, this develop-
As a growing city, Hamburg needs enough ment is taking place with an active port located
apartments to fulfil the demand of the growing in the middle of the city. The future space, tech-
population. Therefore, the city set itself a goal of nical infrastructure, new container terminals, and
building 5,000 to 6,000 new apartments a year. environmental protection requirements present a
Urban conversion and infill requires the partici- financial challenge for the entire city.
pation of many actors and often a large measure
of long-term endurance. Often, local initiatives WATERFRONT TRANSFORMATIONS
don’t want higher densities and infill, and there AND CITY/PORT INTERFACE AREAS
are many fights against new projects (“Nimby” –
Not in my backyard). For many decades, the port areas of Hamburg
The key strategy shall be understood as a spa- had not been addressed by urban planning
126 ISOCARP
DIRK SCHUBERT
Figure 2: Map with areas

of waterfront transformation
in Hamburg
groups and were perceived as “no-go areas”, dan- vitalisation”, “change of use”, and “development”
gerous unsafe zones, and “facades of ugliness”, as are often used synonymously.
well as diasporas and stepping stones for new- The cycle of dereliction, neglect, planning,
comers. The discourse on appropriate strategies implementation, and revitalisation of old har-
for handling these areas has stirred controversy bour areas, as well as the necessary construc-
on the theory and practice of planning goals and tion of port infrastructures, are part of a complex
priorities in other cities as well. network of stakeholders and interests. Derelict
The term “revitalisation” of ports and water- waterfront sites offer opportunities for new sus-
fronts straddles a range of meanings attached to tainable uses that no longer require sites close to
very diverse processes and plans. While port plan- the water. New waterfronts in particular mirror
ning includes (internal) port development meas- globalisation processes and have become loca-
ures such as the reorganisation and relocation tions for work, housing, and recreation favoured
of port uses, urban planning now concentrates by the “creative class” (Florida 2005, Peck 2005) in
on changing former port economies to activities knowledge-based societies.
such as services, tourism, leisure, and housing. ∙ Everywhere, efforts are being made to com-
Terms like “quay”, “waterside”, and “embankment” pensate structural changes in cargo handling,
describe areas, buildings, and facilities formerly ship building, and seaport industries, as well
associated with ports. Revitalisation, however, has as the resulting loss of employment by way of
no precise definition, but embraces a complex revitalisation projects that exploit structural
field of changing uses, rejuvenation and regener- changes in an attempt to modernise urban
ation, redesign, and remodelling at the intersec- economies. Although there are a great variety
tion of diverse interests connect at the interface of influences such as project size, local and
of city/country - port/water. Hence, the terms “re- regional office, housing market, and timeframe
REVIEW 10 127
of planning and implementation, a roughly ment (BSU), is the planning authority in the port
similar approach can be noted in targets of Hamburg. Thus, urban development planning
chosen for regeneration and in the context of can generally not be done in port areas and port
governance and planning cultures: related-waterfronts. Cooperation between the
∙ Dereliction, relocation of terminals and two Authorities is notoriously difficult.
port uses;
∙ Neglect of derelict areas; BEGINNINGS OF REDEVELOPMENT:
∙ Planning, concepts, and designs for sub-opti- “STRING OF PEARLS”
mally used former port areas;
∙ Implementation, construction; After the end of the Cold War, Hamburg regained
∙ Revitalisation and enhancement of port areas its central position as the most eastern port on
and along waterfronts. the North Sea and as a gateway to the Baltic Sea.
Most of the port is owned by the city of Hamburg
Generally, transformation begins in the oldest and is governed by the Hamburg Port Authority
parts of the ports and cities, with small projects (HPA). The port is perceived as part of the urban
such as converted warehouses, and slowly moves infrastructure, and capital investments in quays
to more peripheral areas that were redeveloped and harbour basins, and the maintenance and
later. Initially, a step-by-step approach is often dredging of the shipping channel are important
taken, beginning with the most attractive sites, transactions in the city’s budget.
but not integrating developments in a sustain- The waterfront along the northern shore of
able urban or regional (re)development strategy. the Elbe in Altona, with splendid views towards
In the context of stronger competition between the shipyards and ocean liners, plays a special
seaports and the challenges of globalisation, role in Hamburg. As in other seaport cities, the
waterfront redevelopment has to be integrated oldest facilities and infrastructures from the mid-
into a city-wide and regional planning and re- nineteenth century near the city centre became
search perspective. vacant or underused in the 1980s, and the port
In the meantime, while much experience in moved south-west-seawards, where new contain-
transforming central urban waterfronts has been er terminals were built. When its port-related ac-
gained, frequently the targets of the projects are tivities declined, public attention became increas-
not adequately defined, and it is not clear what ingly focused on new uses for the area. In the early
the indicators are for best practice and “success 1980s, the northern shore of the Elbe comprised
stories”. Often, this kind of project-based “research” a heterogeneous mix of land uses with buildings
is done with local studies and merely compares from the mid-nineteenth century to the post-war
the situations before and after revitalisation. As period. The idea of upgrading of this waterfront
not much trans-disciplinary comparative research area raised high expectations. New uses had to be
in this field is available, such studies offer oppor- found, identification points created, and attrac-
tunities for identifying different structures of de- tions for citizens, visitors, and tourists established.
cision-making processes, different types of urban Revitalising measures on the waterfront were ex-
(re)development, and diverse socio-cultural con- pected to have a positive impact on the city. The
ditions (Wolman and Ford III and Hill 1994, p. 838). best locations were presented to companies and
Compared with other planning tasks, a compli- investors looking for new sites. A catchy name
cated set of competencies exists for waterfront was found for the zone: “String of Pearls”. It was
revitalisation projects. They include national assumed that applying a coherent strategy for the
state responsibilities and ownership relations whole area would be difficult, but that a string of
(like customs and regulations of the “freeport” spectacular projects based on a market-led ap-
- abandoned in Hamburg in 2013), different lo- proach would generate enough interest and, con-
cal authority competencies, and finally private sequently, higher land values to upgrade the area.
rights and interests. However, the Hamburg Port Since then, a number of new buildings and con-
Authority (HPA), with its special rules, and not the versions of older warehouses have significantly
Ministry for Urban Development and the Environ- gentrified the area along the northern Elbe bank.
128 ISOCARP
DIRK SCHUBERT
Figure 3: “String of Pearls” - Map of Projects

along the northern shore of River Elbe
Source: Freie und Hansestadt Hamburg,
Stadtentwicklungsbehörde, perlenkette
hamburgs hafenrand. Die Revitalisierung
des nördlichen Elbufers, Hamburg 2000
Most of the new projects are office buildings that housing estates, the wholesale market, industry,
include ground-floor restaurants. The long per- port facilities, and railway lines.
iods of time that pass from riverfront sites falling Begun in the late 1990s, HafenCity is the most
derelict to surveys, designs, and implementation important urban redevelopment project in Ham-
works are due to different reasons specific to each burg. Hamburg has adopted a plan-led, mixed-use
project. The implementation of projects was not approach for HafenCity. Following a competition
strictly governed by planning requirements, but for a Masterplan, specific districts were designed
by the availability of plots and developers’ inter- with a focus on offices, housing, shopping, and
ests as well as investment considerations that recreation. In a way, HafenCity is a latecomer pro-
originated from different periods and planning ject, where planners tried to avoid the mistakes of
contexts. The metaphor of the “string of pearls” other waterfront revitalisation projects like mono
suggests that there had been an urban planning structures in the London Docklands. Approxi-
concept, but it was not coined until the project mately 5.500 apartments for 10.000 to 12.000
was already under way. More than two decades inhabitants were planned, with projections for
after the start of the retrieval of public access to required social infrastructure, such as schools and
the waterfront, a promenade along the river con- community centres, based on these figures. The
nects the different parts of the transformation. area is within the Elbe flood plain, making built
and organisational solutions for the protection of
A GIANT STEP: HAFENCITY people and buildings indispensable.
The Masterplan (2000) specifies the phased
The approach for HafenCity differs from the implementation of developments in sub-districts.
“string of pearls”. It is the most important urban It lays down the principal development sequence
redevelopment project in Hamburg – the most from west to east, avoiding uncontrolled con-
significant reclamation of the (outer) city centre struction activities throughout the development
for housing in Germany – and one of the largest area. A zoning plan for HafenCity’s first phase was
projects of its kind in Europe. The HafenCity re- drawn up in 2000, and land sales started in 2001.
establishes the connection between the River A development agency was devised in 2002, and
Elbe and the city centre, giving Hamburg a new the first buildings were completed by 2004. The
direction for growth: down to and along the river. newly founded GHS (Gesellschaft für Hafen- und
HafenCity extends from the Speicherstadt (Ware- Stadtentwicklung GmbH, later HafenCity Ham-
house District), to the Elbbrücken, the bridges burg GmbH) is responsible for the area and the
across the river. For the first time, a large area is implementation of its projects. A typical quango
being taken from the port area and put to other (Quasi autonomous nongovernmental organiza-
uses. The existing site covers approximately 155 tion) was set up to hasten development, and soon
hectares of both old and new operational port owned most of the land.
facilities. It is surrounded by several neglected The federal state government fosters opportun-
REVIEW 10 129
Figure 4: Masterplan HafenCity

Hamburg 2000.
Source: www.hafencity.com1
Figure 5: View from HafenCity University

building along Magdeburger Hafen,
Überseequartier (southern part not built
yet), temporary cruise ship terminal,
Unilever Building and Elbphilharmonie
(with tower cranes).
Source: Photo Dirk Schubert 2014
130 ISOCARP
DIRK SCHUBERT
Figure 6: Public transport in the HafenCity district: U4

subway, H Bus stops, Fähre (Ferry). Source: HafenCity
Hamburg, Projekte, October 2014
ities for growth in Hamburg and its metropolitan An updated Masterplan for the eastern part of
region (“Metropolis Hamburg – a Growing City”), HafenCity was decided on in 2010. Three districts
HafenCity being its flagship project. In 2006, plans with a variety of uses are in the pipeline: the Baa-
for the future centre (Überseequartier) of Hafen- kenhafen neighbourhood will be used for differ-
City were finalised. Construction of the charac- ent types of housing and recreation; Oberhafen
teristic mixed-use development began in 2007, will be transformed into a creative and cultural
starting with a new metro line. In 2004, a tempor- district, where existing older warehouses will be
ary cruise terminal received its first passengers reused, and sport facilities right by the water will
at Hamburg. The world financial crisis caused be provided; and the most eastern district, Elb-
some delays and office space vacancies in the brücken neighbourhood, will be the entrance
Überseequartier. Implementation of the south- gate with higher buildings and a mix of offices as
ern part of the commercial heart of HafenCity well as residential and shopping facilities.
was halted, and a new developer must be found.
The overwhelming demand for (affordable) hous- IBA, IGS AND THE
ing can lead to more housing projects. In 2008, “LEAP ACROSS THE RIVER”
the Maritime Museum was opened in Speicher B
(Warehouse B). The most spectacular project is a The river island Wilhelmburg with the area “Leap
concert hall (Elbphilharmonie) on top of Speicher across the River Elbe”, and the district Harburg are
A (Warehouse A). This landmark project has at- especially affected by the transit traffic. The sep-
tracted a good deal of international attention, aration of neighbourhoods by traffic roads and
not only because of the spectacular architecture the noise exposure by road, rail, and air traffic
but also because of rapidly increasing costs and have become a reality in many other parts of the
delays in construction work. In the planning and city. Future important tasks for urban develop-
construction phase, it became a distinctive inter- ment are to find solutions that meet the desires
national new trademark of the city. of city residents for a better quality of life and
REVIEW 10 131
Figure 7: Flood protection and wharf concept in the

HafenCity, where parts of the promenades can be
overflooded (line means 8.30 over zero = safe).
Source: Hafencity Hamburg, Projekte, October 2012
Figure 8: View along the eastern part of

HafenCity (under construction) with bridge
Baakenhafen West.
132 ISOCARP
DIRK SCHUBERT
simultaneously take into account the economic a more regional perspective, “Leap across the Riv-
development of the city. So this is a special oper Elbe” that is planned to improve the housing
portunity for Hamburg to move forward within and living conditions within the area. The exhib-
an experimental scope during the preparations itions are both intended to speed up the step-by-
for the Internationale Bauausstellung IBA Ham- step approach to regeneration.
burg (International Building Exhibition) and the The dynamic port and the large river island
International Garden Show 2013 (IGA), where Wilhelmsburg with their diverse city landscapes
many involved parties are integrated in a future form conflict-laden interfaces, but at the same
discussion about sustainable solutions for urban time represent an urban development potential
development. of inestimable value. In 2013 the exhibitions vi-
A new urban connection is planned from the sualised new ideas and solutions in this area for
city centre north of the river via HafenCity across future life in metropolises. The “experience area”
the Elbe to Wilhelmsburg to Harburg Riverport river Elbe is connected with the assignment to
and the south. Amidst these poles and bridge conserve this multifaceted area, to develop it and
heads, Wilhelmsburg Mitte is expected to de- make it accessible and tangible to the people of
velop into a new centre. But most importantly, the city.
the Reiherstieg, canals, and the watercourses in Stretches along Reiherstieg and the southern
Wilhelmsburg should become its new “life veins”. banks of the Norderelbe are still mainly taken up
Wilhelmsburg will become the focus of iconic by port-related and industrial uses, while the east-
urban design projects. The strategy also includes ern side has a range of different residential neigh-
Figure 9: View along Dalmannkai -

Residential buildings and Elbphilharmonie
with tower cranes in the background.
REVIEW 10 133
Figure 10: List of IBA

(International Building
Exhibition) procects related to
the superior objectives.
Source: IBA Hamburg 2013
134 ISOCARP
DIRK SCHUBERT
bourhoods. Flood control structures and noisy fice and housing market were possible. In 2000,
transport arteries crossing Wilhelmsburg lend it the implementation phase was predicted to last
the character of a transit space. Conflicts between about 25 years.
port uses, new terminals, the relocation of the The “Leap across the River Elbe”, on the other
dock railway, the cross-harbour link (Hafenquer- hand, reorganised urban perspectives for the
spange), and new residential areas are inevitable. entire city. Using architectural projects, the geo-
It is assumed that the “Leap across the Elbe” is a graphical centre of Hamburg will be moved from
task that will span one century, occupying at least the periphery into a new centre by means of a di-
two generations. The IBA is not a classical building verse range of projects and plans that are part of a
exhibition, but a demonstration project for new long-term strategy. Initially, the existing building
ideas of participation and planning procedures. stock will be selectively enhanced and distinct in-
The main topics are, briefly: novative projects incorporated into an overall
∙ Cosmopolis: Social inclusion, cultural diversity, urban design concept that will restructure the
improvements of education, and concepts for interface between port and city. The upgrading of
an international urban society; Wilhelmsburg will take many decades and must
∙ Metrozones: Concepts for fragmented uses be balanced between requirements of the local
and development of inner edges of the city; inhabitants for affordable housing and dangers of
∙ Cities and climate change: Concepts for a partial gentrification.
sustainable metropolis, demonstration of The projects and plans illustrate paradigm
environmentally friendly, renewable energy shifts in urban planning that relate not only to
using own resources. Hamburg. Shortage of funding and deficits in the
budget make untargeted subsidies impossible
On the IBA Dock, a floating exhibition and office and enforce more flexible plans and concentra-
dock, the plans and models can be visited. Topics tion on the most important , ie, flagship, projects
and goals for the future of metropolis can be ex- with the most impact.
plored as well the current status of IBA projects. When more than 30 years ago discussions
All projects with an IBA certificate will be evalu- began on the redevelopment of derelict and sub-
ated for criteria such as distinctiveness, feasibility, optimally used harbour sites, it was assumed that
project capability, and structural effectiveness. By this would be a specific and unique planning task.
this project-led, experimental, and incremental Using experiences from North America, the new
approach the IBA hopes to generate a valorisation post-industrial waterfront was embedded in a re-
for the total island Wilhelmsburg in the long run. invention of the city image. The waterfront was
the place where the transformation from an in-
REFLECTIONS ON FURTHER dustrial and Fordist city to the post-industrial and
PROJECTS FOR THE FUTURE science-based city could be recognised; in a way,
it was a shift from ships to chips (Schubert 2001:
Plans for the transformation of derelict waterfront 131; Ward 2002: 342). In the 1980s, inexperience
sites in Hamburg started with a project and an not only in Hamburg, but in other sites in Europe,
architecture-led incremental approach along the unclear responsibilities, a bad image, and want for
northern river bank. Conflicts arising between possible future uses allowed “pioneers” to exploit
urban and port development were dealt with case niches for their own purposes. This was soon fol-
by case among the authorities and stakeholders. lowed by single redevelopments of (often listed)
Rapid implementation of building projects was warehouses and the conversion of architectural
the prime goal. HafenCity implied a jump in scale heritage sites dating back to early industrialisa-
and a more complex implementation strategy tion, into lofts and expensive private apartments.
formulated with the city as a developer and a pro- Soon it became clear that standardised regenera-
ject embedded in urban perspectives of inner- tion models (“do a Baltimore” - referring to the
city extension. HafenCity is a more plan-led and Baltimore Inner Harbour and the festival market
proactive approach, while improvements and approach) were not delivering the best local solu-
updates of the plan related to changes in the of- tions. The partly mono-functional and small-scale
REVIEW 10 135
approach to redevelopment of central port and tics – and are expected to grow rather than lessen
derelict waterfront sites has now been integrated in the future. Architects’ visions as well as the cov-
into large-scale strategic and often regional per- etousness of the real estate industry and urban
spectives. Waterfront sites became integral parts developers, egged on by the media to convert
of redevelopment and important components harbour and waterfront sites into promenades
of comprehensive urban and regional concepts. and attractive housing, offices, and cultural facili-
Although waterfront areas similar to Hamburg ties, clash with the requirements of port logistics
are important elements for redevelopment and and economies.
unique image factors for urban marketing, they The largely automated terminal operation and
are now often integrated in sustainable medium- the ISPS Code (International Ship and Port Facility
and long-term regeneration perspectives, togeth- Security Code) have made ports into high-secur-
er with other brownfields, transport, and land- ity zones, strictly controlled and with limited ac-
scape planning projects. cess. This in turn implies the reversal of centuries
Currently, the distribution of resources and of development: cities need their ports, but mod-
power between terminal operators and logis- ern container ports no longer need cities; this out-
tics enterprises as “global players” and the cities dated structure has become a hindrance to future
and ports as “local actors” has become more and development. The perception of port cities as one
more unbalanced. Whilst the attention of large organisational and spatial unit consisting of city
logistics companies is increasingly concentrated and port is replaced through decoupling and spa-
on investment returns and global optimisation tial specialisation.
strategies, (seaport) cities must consider local The flagship projects are an integral part of
medium- to long-term perspectives for the de- their respective national planning cultures, urban
velopment of their ports and urban areas. Today, regional housing and office markets, and globally
the flow of goods is managed from business loca- established real estate and project management
tions far from the ports. Important terminal oper- structures. At the same time, they document
ators such as the Port of Singapore (PSA) or Dubai perspectives of European urban development
Ports World act globally with a focus on horizontal from monocentric to polycentric (regional) cities.
and vertical integration, offering their customers Although the ambivalence, fragmentation, and
bespoke logistics services. The part of global ter- social polarisation continue to be significant on
minal operators (transnational terminal operating a small scale, they are embedded in large spatial
companies-TTOs) has significantly increased dur- contexts.
ing past years (Juhel 2001, p. 143). Spatial planning has thus gained in significance.
The postulate to stop thinking in terms of “city Although city marketing is primarily concerned
or port“, but of “city and port” instead, incorpor- with landmark projects by “star” architects, they
ating aspects of sectoral and comprehensive are now nothing more than important compon-
regional planning, collides with harsh reality. Mer- ents within the whole city. The implementation
ging the terms “competition” and “cooperation” of integrated and sustainable regional and spa-
into “co-optition” signifies a joint approach that tial planning policies on the other hand is linked
is, however, still wishful thinking. It is important to different political traditions and planning
to abandon romantic and nostalgic views, as the cultures. Countries that have anticipated the in-
planning of cities and ports will increasingly fol- creasing competition between seaport cities and,
low different development parameters. The fu- in response, adopted forward-looking regional
ture development in coastal regions and seaport strategies and new governance structures involv-
cities is thus dependant on the interaction and ing the relevant private and public stakeholders
development of the global economy, transport are likely to succeed in the long term.
and ship building, nature and the environment,
as well as climate change and, ultimately, the cit-
izens’ interests. The conflicts of interest in costal
regions are similar all over the world – amplified Endnote
1 http://www.hafencity.com/upload/files/files/
by global development trends in the field of logis- z_de_broschueren_24_Masterplan_end.pdf
136 ISOCARP
DIRK SCHUBERT
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http://www.portusonline.org/building-the-city-anew-the-
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Peck, Jamie. 2005. Struggling with the creative class.

International Journal of Urban and
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Hamburg, Hamburg, Hannover, Kiel 2000.
Schubert, Dirk. 2008. Transformation processes on waterfronts

in seaport cities: Causes and trends between divergence and
convergence, In: Port Cities as Areas of Transition.
Ethnographic Perspectives, eds, Waltraud Kokot,
Mijal Gandelsman-Trier, Kathrin Wildner, and Astrid
Wonneberger. Bielefeld: transcript.
STEK Stadtentwicklungskonzept - Räumliches Leitbild,

Hamburg 2007.
Ward, Stephen V. 2002. Planning the Twentieth-Century City:

The Advanced Capitalist World. Chichester: John Wiley & Sons.
Wolman, Harold L., Coit Cook Ford III and Edward Hill. 1994.
Evaluating the success stories. Urban Studies. 31(6): 835-850.
REVIEW 10 137
A PROCESS OF SMART URBAN TRANSFORMATION DYNAMIC PLANNING OF“ENERGIZING KOWLOON EAST” - FROM MASTER PLAN TO ACTION CATALYSTS
A PROCESS OF SMART URBAN

TRANSFORMATION DYNAMIC PLANNING
OF “ENERGIZING KOWLOON EAST”
– FROM MASTER PLAN TO ACTION CATALYSTS
RAYMOND KW LEE
Seasoned visitors to Hong Kong may still have fond WHERE IS KOWLOON EAST
memories of their scary experiences touching down The Kowloon East (KE) area that is covered by
onto the Kai Tak Airport amidst the densely popu- the EKE Initiative comprises the former Kai Tak
lated urban area in Kowloon. Since the relocation Airport, the ex-Kwun Tong and Kowloon Bay in-
of the Hong Kong International Airport to Chek Lap dustrial area. KE fronts onto the eastern part of
Kok in 1998, the 300 hectares site laid idle for many Victoria Harbour in Hong Kong. It is about 20
years. Additionally, the areas adjacent to the Kai minutes away from the traditional CBD and 15
Tak Airport in Kwun Tong and Kowloon Bay have minutes from the new office node in Quarry Bay.
also been undergoing tremendous changes as The entire KE is about 490 ha.
many of the factories relocated across the border The abandoned Kai Tak Airport site is be-
to Mainland China. In late 2011, the Government ing progressively developed into a community
of the Hong Kong Special Administrative Region with both public and private housing catering
(HKSARG) announced the Energizing Kowloon East for a population of about 90,000 together with
(EKE) Initiative to facilitate the transformation of sites earmarked for commercial, sports, leisure,
the former Kai Tak Airport as well as the Kwun Tong tourism and other supporting government and
and Kowloon Bay industrial areas, an area now call community facilities. It is estimated that a total
Kowloon East. commercial gross floor area (GFA) of about 1.7
By using the EKE project as an example, this paper million meters2 will be provided in the Kai Tak
demonstrates that a master planning approach Development.
may not be the best way to transform an urban Kwun Tong and Kowloon Bay had been the site
area to meet the strategic developmental goal of a of rapid industrial growth in the heyday of Hong
city, especially when land ownerships are compli- Kong’s manufacturing industry, creating hun-
cated, stakeholders’ interests intertwine and spaces dreds of thousands of jobs and propelling Hong
are still actively used. A dynamic, action-oiented Kong’s prosperity. Following relocation of the
plan provides an alternative approach to bring Airport to Chek Lap Kok and our manufacturing
about desirable changes by being responsive to base to the Mainland, this area has lost some of
local contexts and emerging needs. its past vibrancy, leaving a huge stock of indus-
trial buildings not being fully utilized.
Since 2001, all industrial land in Kwun Tong and
Kowloon Bay industrial areas has been rezoned
to “Business” use which would allow conversion
and redevelopment of industrial premises/build-
ings to office and commercial uses. Some high
grade office building and retail centres, with
a total GFA of about 3.5 million meters2, have
emerged in Kwun Tong and Kowloon Bay. Other
than these new office and retail centres, there are
close to 300 existing industrial buildings in Kwun
Tong and Kowloon Bay and a high percentage of
them are held under multiple-ownership.
138 ISOCARP
RAYMOND KW LEE
Figure 1: Location
of Kowloon East
Figure 2: Artist impression

of the Kai Tak Development
Figure 3: A mix of old factory

buildings and Grade A Offices
REVIEW 10 139
EKE INITIATIVE EKE INITIATIVE

PLANNING WITHOUT A MASTER PLAN FACILITATE URBAN TRANSFORMATION
The EKE Initiative is not a development project How has Hong Kong Transformed?
of a new area. It is also not a large-scale urban Population growth in Hong Kong was quite stable
redevelopment project, in which land ownership in the late 19th century and early 20th century. It
of an extensive area is consolidated and existing was not until the 1950’s, after the Second World
developments are demolished to make way for War, that it witnessed a sharp increase in popula-
comprehensive redevelopment of the entire area. tion. This was mainly due to an influx of immigrants
Energizing Kowloon East starts from: from the Mainland China. Since then, there was on
1. Establishing an understanding of the place and average increase of about 1 million people per dec-
its users as well as on how they interact; ade. This rapid growth rate was sustained until the
2. Making better use of “left-over” space; late 1980’s to the early 1990’s.
3. Reconsidering the use of public space; and, There was inadequate housing for the influx of
4. Releasing the development potential immigrants in the 1950’s and 1960’s. As a result,
of the area. squatter areas were common in many parts of the
urban area in Hong Kong. On Christmas day in
The smart transformation of KE does NOT relied 1953, about 50,000 people lost their homes in the
on huge investment in major infrastructure facili- tragic fire of the Shek Kip Mei squatter areas. The
ties to drive the change. There is neither major Government had to provide rehousing for them
land resumption nor eviction of existing users. and this disaster marked the beginning of the pub-
The existing urban fabrics are preserved as far as lic housing programme in Hong Kong.
possible and there is no comprehensive, pre-de- Throughout the 50’s and 60’s, there was mas-
termined development blueprint to follow in the sive construction of resettlement and low-cost
transformation process. public housing estates, in particular in northern
EKE Initiative is vision driven. It emphasizes Kowloon. The entire foothill of the Lion’s Rock in
leveraging the market forces and improving the northern Kowloon was virtually a big construction
public space to drive the change. Every oppor- site providing a large number of low-cost housing
tunity for improvement is seized with a view to that was completed within a relatively short period
promoting increment transformation of the area. of time. Although these housing blocks provided
During the process, continuous community en- shelter for the needed, they were only equipped
gagement and cooperation is promoted to en- with very basic facilities. For example only com-
sure needs and aspirations of different stakehold- munal toilet facilities were provided.
ers are addressed as far as possible. In 1972 the Hong Kong Government launched
The general approach is to continuously nur- the Ten-year Housing Programme aiming at clear-
ture partnership with different stakeholders, im- ance of all squatter areas in the urban area by pro-
prove infrastructure and public facilities in the viding adequate public housing. This also marked
public realm, facilitate private redevelopment the beginning of a massive new town develop-
and provide an overall development framework/ ment programme in Hong Kong. Today, there are
atmosphere that is conductive towards a smart nine new towns in Hong Kong which house about
transformation of Kowloon East to a place which half of its existing population.
is open and engaging, creative and innovative in By the 1980’s, the public housing estates de-
a professional, careful and high-quality manner. veloped in the early years could no longer meet the
Making a place is very different from develop- needs and aspiration of the residents. In response
ing a new area or constructing a new building/ to aspirations for better facilities and increasing
public facility. It will take a long-term view to fa- need for more housing due to population increas-
cilitate, manage and deliver the transformation. It es, the Government embarked on a redevelopmen
is also a long process to change people’s percep- t programme for its public housing estates. By
tion on how a place is to be used. 1990’s almost all of the public housing estates in
the north and central Kowloon were redeveloped.
140 ISOCARP
RAYMOND KW LEE
Figure 4: Population growth

in Hong Kong
Figure 5: Squatter area

in the 50’s and 60’s
Figure 6: Public housing

under construction
REVIEW 10 141
Figure 7: Massive construction Figure 8: Inadequate public

of public housing housing facilities
“Development Planning” cess before arriving at a development and imple-

and “Place-making” Approaches mentation plan.
The transformations of Hong Kong in its earlier This approach of development has served Hong
years were mostly to meet the housing need of an Kong reasonably well. Hong Kong is now a modern
increasing population, to provide more land for city with a population of over 7 million. Its economy
economic activities, and, to cater for the provision is very vibrant with a per capita GPD comparable to
of more social facilities. Broadly speaking, these many other advanced economies. Notwithstanding
early transformations follow a “Development its high density of development1, it has managed to
Planning/Master Plan Approach”. In a nutshell, the retain over 60% of its land area as countryside, of
“Development Planning/Master Plan Approach” which about 40% are designated country park. It
refers to a systematic process of undertaking dif- has the least per capital length of public road and
ferent technical assessments to find solutions to lowest car ownership rate when compared with
meet certain development needs or objectives. similar economies. We have a very efficient public
Public engagement and necessary statutory pro- transport system and public transport accounts for
cedures were undertaken during the study pro- about 90% of our average daily trips.2
142 ISOCARP
RAYMOND KW LEE
Notwithstanding these achievements, the cur- Plan Approach” to manage the transformation of
rent form of development has also created a num- our city in meeting our social, environmental and
ber of challenges that need to be addressed. Its economic development needs.
high density development, albeit being efficient
and economical in the use of land and provision of Smart Urban Transformation – EKE Initiative
supporting infrastructure, has resulted in densely The EKE Initiative announced by HKSARG in 2011
packed development with poor air ventilation and is an experiment in shifting away from the “De-
urban design. In some parts of its urban area, the velopment Planning/Master Plan Approach” to
urban heat island effect is serious. a “place-making approach” in facilitating trans-
Moreover, the society of Hong Kong has be- formation of Kowloon East. The “place making
come more affluent. Its needs and aspirations can approach” refers to an integrated community
no longer be met by just providing basic housing based strategy for planning, design, implementa-
and job opportunities. There is increasing demand tion and management that mobilizing local com-
for a socially just, environmentally friendly and munity assets, inspiration and potential to create
economically vibrant way to sustain the long-term good public spaces as well as providing emphasis
development of Hong Kong. There is a demand to on high quality urban design, active dialogues
make it a more liveable city with cleaner air, green- and engagement of the community to create a
er environment, more leisure and cultural facilities, sense of place.
safe and healthy food, etc. In recent years, despite With the booming in Hong Kong’s financial and
an increase in public engagement activities, more service sectors as well as large numbers of region-
and more disputes are encountered when push- al headquarters and regional offices of multi-na-
ing ahead development projects. This has created tional companies setting their foot in Hong Kong,
a high level of tension and anxiety in the com- there is a high demand for quality office floor-
munity. The once very efficient development pro- space.3 This demand can no longer be met by the
cess of Hong Kong has been called into question traditional Central Business District (CBD) of Hong
and some of its development projects have been Kong as it is running out of land for development.
stalled or experienced serious delays. In the decade of 2000 to 2010, the stock of of-
This situation has prompted us into thinking fice supply in the traditional CBD only increased
“what are cities for” and whether there is any way by about 4%, whereas during the same period,
other than the “Development Planning/Master the office supply in Kwun Tong and Kowloon Bay
Figure 9: Development
Planning/Master Plan
Approach
REVIEW 10 143
Figure 10 (top): Office Supply

of Kowloon East: a comparison
– from last decade on to the
next 20 years
Figure 11 (bottom): Office

Supply of Kowloon East: a
comparison – actual/forecast
completion with actual/
forecast overall completion
of new offices
144 ISOCARP
RAYMOND KW LEE
has increased drastically by about 230%. Kwun the minimal expectation of everybody.
Tong and Kowloon Bay currently also accounts Planning in the present internet era where in-
for a high percentage of new office. It is estimated formation and communication are more readily
that more than 40% of new office supply in 2014 available than ever, the static “master plan” ap-
and 2015 will come from Kwun Tong and Kow- proach where a city or district should evolve may
loon Bay. Together with the new supply from the no longer be effective. Robust actions guided by
Kai Tak Development, it is estimated that KE has a clear planning vision may be more appropri-
the potential to supply an addition of 5.2 million ate to meet the changing community needs and
meters2 of commercial GFA. aspirations. Such an approach would allow for
To capitalize on the fast-growing opportun- experimentation and public reactions would
ities of the Mainland and sustain Hong Kong’s become important indicator for continuation of
position and longer term development, a steady any particular action. A notable example of this
and adequate supply of quality office space is approach is the New York City’s plan to ‘pedes-
pivotal. It is against this background that the trianize’ parts of Time Square. When the ‘ped-
Chief Executive of HKSARG announced the EKE estrianization’ scheme was first announced in
Initiative in his 2011/12 Policy Address to facili- 2009, the City’s residents were in uproar. In the
tate the transformation of Kowloon East into an last few years, New Yorkers have grown increas-
attractive, alternative Central Business District ingly accustomed to the scheme and the chan-
to support Hong Kong’s long-term economic ges brought about by it have been hailed a suc-
development. cess by business owners, residents and tourists.
The EKE Initiative, with the recognition that
WHY “ENERGIZING” KE comprises numerous stakeholders and a lot
AND NOT “MASTER PLANNING” of vibrant existing uses, has similarly adopted
a dynamic planning approach to introduce key
Theoretical Background actions by phases to catalyse desirable chan-
In the modernist planning era (roughly from ges with a view to facilitating the transforma-
early 20th Century to 1970’s), “utopian cities” are tion in a progressive and organic manner. It is
planned by experts who claimed to know best. an experiment to revitalize an old area without
Although cities planned during this era usually employing wholesale redevelopment. It aims to
served the purpose of enabling rapid land de- bring about collective actions with market play-
velopment, there was minimal communication ers to enhance and make more efficient use of an
and negotiations with the people actually liv- old industrial area, without dictating how it ul-
ing in them or would live in them. The plans for timately should look like. It comprises a series of
these “utopian cities” tended to be highly sani- action-oriented projects that are most impactful
tized without the degree of resilience and flex- to bring about changes to the area at different
ibility that enabled utilisation of social capitals in time horizons.
the organic evolution process of cities.
On the other hand in the post-modernist plan- Comparison with Overseas Experiences
ning era (roughly from 1970’s to early 2000’s), Comparing with overseas experiences in trans-
there were more emphasis on public engage- formation of old industrial areas, the EKE Initiative
ment in which layman’s voices were heard and has the following major differences:
considered. Human scale and informal spaces a. The scale of KE transformation is very substan-
were encouraged and nostalgic treatments in tial. It covers an area of about 500 hectares and
urban and architectural design became widely has the potential to supply a total commercial
accepted as norm. Plans were made based on GFA of about 7.1 million meters2 including the
public consensus rather than top-down impos- existing stock of 1.9 million meters2. The Lon-
ition. However, the reality is that overwhelming don Canary Wharf and has a commercial GFA of
and conflicting voices from multiple stakehold- about 1.3 million meters2. The commercial and
ers either gets the planning process into an im- office complex in La Defence in Paris extends
passe or result in a mediocre plan that just meet over an area of about 560 hectares and has a
REVIEW 10 145
total commercial GFA of about 3.5 million me- is 6.9% which is relatively low when compared
ters2. The Marina Bay Development in Singa- to other districts in Hong Kong (e.g. Yau Tsim
pore, which is virtually a new development on Mong District having 10.1% and Tsuen Wan
reclaimed land, has a commercial GFA of about District having 9.2%).
2.8 million meters2. The transformation projects
in Battery Park and Hudson Bay in New York Market forces have already started the trans-
City are mainly mixed use development pro- formation process of KE. The challenge is how and
ducing a commercial GFA of 0.8 million and 2.3 what should be done to facilitate the transforma-
million commercial GFA. tion process and to be undertaken by whom.
b. These overseas transformation projects mostly Unlike the former Kai Tak Airport, which has be-
follow the “Development Planning/Master Plan come a green field site after relocation of the air-
Approach” in that there is a clear vision and port, Kwun Tong and Kowloon Bay are developed
determination for quality development with areas with many existing industrial buildings that
characteristic urban design element according are in active use. Although many manufacturing
to a comprehensive master plan. The public industries have already moved out, the area is still
sector has played a dominant role in provid- economically vibrant providing accommodation
ing infrastructure and setting up a dedicated for some 25,000 industrial, commercial and trad-
implementation agent to plan, develop and ing enterprises as well as providing workshops for
implement the master plan. The subject sites arts, cultural and creative uses. It is estimated that
are held by the government or land ownership about 220,000 people are working in the area.
is mostly consolidated with a single or relatively However, the area suffers from several structural
few land owners. In addition, very few, if any, issues including; obsolete buildings; poor main-
economic activities remained at the sites be- tenance of buildings; and congested sidewalks,
fore their transformation. pedestrian and vehicular conflicts.
c. The ex-Kwun Tong and Kowloon Bay industrial The challenge in facilitating the transformation
area is a typical example of the product of “De- of KE is that Kwun Tong and Kowloon Bay are still
velopment Planning/Master Plan Approach”. very vibrant economically and many of the exist-
The area was developed from reclaimed land, ing buildings are held in the hands of different
the reclamation of which commenced in the owners. To create a sense of place, an inclusive,
50’s and completed in late 1970’s to the early organic and sustainable place-making strategy
1980’s. It was planned as an industrial and emphasizing high quality urban design and the
manufacturing area with emphasis on func- use of active dialogues to engage with the com-
tionality and practicality. There are over 300 munity has been adopted. This approach is seen
existing buildings and many of them were built to be facilitating the transformation process.
about 50 years ago. The ownership of these However, it is impossible for the Government
buildings is fragmented and it would be dif- to repurpose all existing industrial buildings
ficult to consolidate their ownership. Many of and convert them to commercial office build-
these buildings have also been developed to ings overnight. While market mechanisms have
their maximum permissible level and there is already started the process, the transformation is
little incentive in terms of economic gain aris- likely to be organic and will take place over an ex-
ing from additional redevelopment. tended period of time.
d. Notwithstanding that many manufacturing
industries have relocated their production HOW TO ENERGIZE
operation to the Mainland China, many in-
dustrialists still hold onto their premises in KE Energizing Kowloon East Office
as headquarters of their production. Some of A dedicated office, the Energizing Kowloon East
them have rent out part or all of their premises Office (EKEO), with multi-disciplinary profes-
for other business operation, and some have sional staff of planners, architects, engineers and
sold it to others to operate. The vacancy rate landscaped architects was set up in June 2012 to
of the existing industrial building in KE in 2012 supervise and execute the EKE Initiative.
146 ISOCARP
RAYMOND KW LEE
Figure 12: The Energizing

Kowloon East Office (EKEO)
Figure 13: Conceptual

Master Plan – version 3.0
REVIEW 10 147
The Conceptual Master Plan (CMP) to Energiz- LATEST PROGRESS

ing Kowloon East provides a broad framework to ON EKE INITIATIVE
guide the work of EKEO. The CMP is not a final
blueprint. It will evolve overtime taking account Since the setting up of EKEO in June 2012, steady
of progress of work and feedback of the continu- progress has been made in enhancing connec-
ous public engagement in the transformation tivity, improving environment and releasing de-
process. In fact the current version is the third it- velopment potential in KE. The following provides
eration. However, there are four core values in the some examples.
CMP which guide all efforts:
1. To enhance “Connectivity” of KE; Enhancing Connecitivity4
2. To build the “Branding” of KE as the CBD2 of The aim is to create a pedestrian environment in
Hong Kong; KE that is walkable and easily accessible by ve-
3. To emphasize on making use of “Design” to hicular traffic, in which people would like to stay
drive change; and, and enjoy. A feasibility study was commissioned
4. To provide opportunity for a “Diversity” of uses. in February 2013 to examine improvement meas-
ures to the pedestrian environment in Kowloon
These four core values would remain un- Bay with the intent to provide better accessibility
changed in the evolving concept plan to make from Kowloon Bay MTR Station to Kowloon Bay
Kowloon East the CBD2 of Hong Kong. There are Business Area and further to the waterfront of
10 main tasks identified in the CMP, which aim at the Kai Tak Development. Three stages of Public
enhancing connectivity, improving environment Engagement have been carried out. A compre-
and releasing development potential. hensive long-term pedestrian network linkage
In terms of improving connectivity, the pos- proposal to connect different parts of the KBBA
sibility of a rail-based environmentally friendly by improving at-grade pedestrian facilities, en-
linkage system as well as proposals to strengthen hancing landscape and streetscape, promoting
pedestrian connection between MTR stations and greening, diverting existing heavy pedestrian
the Kowloon Bay and Kwun Tong areas are being flow, connecting different important nodes of at-
examined. In terms of improving environment, a traction through at-grade connection or pedes-
face-lifting of public open space and the conver- trian footbridges was formulated. The improving
sion of an existing open nullah into a landscaped proposals will be progressively implemented. A
river would be undertaken to bring vibrancy to similar study for the Kwun Tong area has just com-
the waterfront. Also plans call for the renewal of menced in early May 2014.
existing public space will be undertaken so that
they conform to the KE transformation. In terms Improving Environment
of releasing development potential, examination Bring Vibrancy to the waterfront
is being taken to relocate or rationalize the land and along Hoi Bun Road
uses on sites occupied by existing government A vibrant waterfront in Kwun Tong will help to fa-
facilities so that the development potential of cilitate the transformation of KE. Action is being
these sites can be optimised to facilitate the KE taken to regenerate the Kwun Tong waterfront
transformation. and to provide the general public with access to
In the public realm, efforts are made to ensure this part of the waterfront.
the infrastructure and public facilities are well- When Kwun Tong was still an active industrial
designed and related to the intention of trans- area, there were a lot of barges mooring along its
forming KE, while at the same time respecting its water front, undertaking various cargo handling
industrial heritage. A one-stop shop service for activities. After the relocation of the public cargo
private developers to facilitate redevelopment or handling area and other temporary uses under-
conversion of their industrial premises into com- neath the flyover of the Kwun Tong bypass, this
mercial uses is also provided. part of the waterfront has been reclaimed and
progressively opened up for public use and de-
veloped into Kwun Tong Promenade. Phase 1 has
148 ISOCARP
RAYMOND KW LEE
Figure 14: The major Figure 15: Kwun

projects improving the Tong in the 60’s
environment and 70’s
REVIEW 10 149
Figure 16: Kwun Tong

waterfront promenade
150 ISOCARP
RAYMOND KW LEE
Figure 17: Fly the Flyover

Operation One
already been completed while Phase 2 should which involves a small area at the eastern part
be completed around end 2014. Then the entire of the park, will experiment with incorporation
length 900 meter waterfront will be opened up of artistic design and installation that reflect in-
for public use. dustrial past of KE. It will be completed later this
Part of the unused space underneath the year. The second phase upgrading involving the
Kwun Tong bypass has also been turned into a remaining part of the park will follow.
multi-purpose informal event space for public
use, Fly the Flyover Operation One (FF01). Activ- Converting King Yip Street
ities such as music shows, music performance, Nullah to Tsui Ping River
arts and culture activities as well as architectural The existing King Yip Street nullah was con-
and planning exhibitions have been taken place structed more than 50 years ago. It is located near
in there. Kwun Tong Promenade and next to Laguna Park
The feasibility of turning Hoi Bun Road, which and Shing Yip Street Rest Garden. Currently, the
has often been occupied loading and unloading flow in the nullah during dry weather has visual
activities for various industrial operations, into a and odour concern. The environment of the nul-
tree-lined boulevard is being looked into. lah is unpleasant with stained concrete nullah
wall and lack of greening and walking space. The
Face-lifting of Tsun Yip Street Playground. proposal is to adopt an integrated design ap-
The playground is an important public space lo- proach to upgrade storm water drainage function
cated in the densely developed Kwun Tong area. of the nullah as well as to transform it into a land-
There is potential to upgrade its existing facilities scaped “green river” to provide quality leisure and
such that they will be in line with public percep- greenery space, improve pedestrian walkability
tion on how this space is to be used in the trans- and connectivity, as well as improving the overall
formation of KE. The first phase of upgrading, environment of the area.
REVIEW 10 151
Figure 18: Tsun Yip street

playground – Reconsider the
use of public space
152 ISOCARP
RAYMOND KW LEE
Figure 19: Converting an open

nullah into a landscape river
REVIEW 10 153
Figure 20 (top): Kowloon Bay

Action Area
Figure 21 (bottom): Kwun

Tong Waterfront Action Area
154 ISOCARP
RAYMOND KW LEE
Releasing Development Potential sive actions to achieve a clear vision. The process
Kowloon Bay Action Area, with an area of about is facilitated by a multi-disciplinary professional
17 hectares, is at the core area of KE and located team that adopts an integrated strategy for plan-
at the fringe of the existing building stock of com- ning, design, implementation, management and
mercial/industrial developments. The area con- community engagement to create quality public
sists of government land currently occupied by spaces. Should this experiment be proven to be
government facilities (two vehicle examination a success, it may provide an alternative model
centres, a waste recycling centre, and a mainten- for urban renewal as compared to the conven-
ance depot) that are not necessarily required to tional comprehensive redevelopment model that
be located in KE. Action is in hand to identify re- are often ground to a halt in places where land
location sites for them such that this prime site ownership is complicated, stakeholders’ interest
can be released for developments that are condu- intertwine and both human and economic activ-
cive for the transformation of KE. ities are still active.
Kwun Tong Waterfront Action Area comprises If people working in Kowloon East find it a
a number of existing Government uses (public place that they like to walk and stay and do busi-
transport interchange, cook food centre and pub- ness, we can conglomerate talents, attract invest-
lic open space). This area has the development ment and provide business opportunities. By
potential to be optimised for a mixed-use de- experimenting with the dynamic place-making
velopment comprising offices, artist workshops approach in facilitating a smart transformation
and office studio, retail, restaurants, outdoor of Kowloon East, we hope to build a vibrant com-
performance area and waterfront promenade, munity with its roots and unique character grow-
that can have synergy effect for the transforma- ing out from its own context. It is important that a
tion of KE. The Action Area has been included as close dialogue with the different stakeholders be
part of the competition of the “Kai Tak Fantasy maintained in making Kowloon East the CBD2 of
(KTF) - International Ideas Competition on Urban Hong Kong.
Planning and Design” launched in late 2013. The
competition is to look for creative thoughts and
design excellence for the area, including ex-Kai
Tak runway tip, the Kwun Tong Waterfront Action
Area and the waterbody between them.
WHAT NEXT
As professionals involved in shaping our urban

environment, there is a belief that the city is a liv-
ing organism that evolves and transforms itself.
Similar to human beings, no cities look alike and
Endnotes
each of them has its uniqueness. The experiences 1 In 2012, the population density of Hong Kong
as a whole was 6,620 persons/km2 (the most
of one city in dealing with a particular issue can- densely populated area of Kwun Tong was
not be copied directly to deal with similar prob- 56,000 persons/km2) while that of London
was 5,300 persons/km2 , Boston was 5, 210
lem in another city because their circumstances persons/km2 Melbourne was 430 persons/km2.
2 In 2012, the road density in km/square km for
and context are very much different. This is why Hong Kong, Singapore, London, New York,
the model in regenerating Cannery Wharf in Lon- Tokyo was 2, 5, 9, 13 and 19 respectively and
the numbers of cars/100 persons for Hong
don or developing the Marina Bay in Singapore Kong, Singapore, Tokyo, New York and London
was 7, 12, 19, 21 and 32 respectively.
cannot be reproduced in facilitating the trans- 3 According to a study undertaken by the
formation of KE. Planning Department of HKSARG, it is
estimated that on average an addition of
The Energizing Kowloon East Initiative is an about 100,000 m2 office GFA needs to be
provided each year from now up to the year
experiment in progress and only time can prove of 2030 in order to maintain the long-term
its success or otherwise. It represents a dynamic economic growth of Hong Kong.
4 A word created by the author which combines
way of planning that allows quick and respon- the ideas of connectivity and city
REVIEW 10 155
A PARTICIPATORY PLAN FOR THE HISTORIC DISTRICT OF MAPUTO
A PARTICIPATORY PLAN FOR

THE HISTORIC DISTRICT OF MAPUTO
PABLO VAGGIONE SARA CANDIRACCI
Figure 1: The views of Maputo

Bay and Baixa are an important
asset. Source: Tim Daugherty
156 ISOCARP
PABLO VAGGIONE · SARA CANDIRACCI
CONTEXT six parallel streets. In 1876, after the Mac-Mahon

sentence, which ended litigation between Portu-
The Municipal Government of Maputo is prepar- gal and England, the encampment was elevated
ing an integrated urban renewal plan for the area to the category of village.
of Baixa, the city’s historic waterfront district. The In 1887, the status of the town was elevated to
plan, financed by a World Bank grant, covers an the city. The swampy marshlands that surrounded
area of 320 hectares and is currently under prepa- the areas of the small island settlement were re-
ration by a team of consultants including Design claimed, connecting it to the mainland. The plan
Convergence Urbanism from Spain, Cardno from of 1892 defined the urban structure of the city for
the United States and the University Eduardo decades. It established the continuity of the orth-
Mondlane from Mozambique. Enactment of the ogonal grid of the Baixa, and featured three major
plan by the Municipal Government of Maputo is avenues and squares, comprising an area of 57
estimated for fall 2014. This article describes the blocks. The seat of the colony capital was moved
key challenges to address as well as the salient from Ilha do Mozambique, and in the same year,
points of the plan. the railway to Pretoria was inaugurated. This led
to a period of great expansion, with the deploy-
Maputo ment of infrastructure such as water supply, tele-
Maputo is the capital of Mozambique and togeth- graph, and lighting system. Public trams were
er with the neighbour city of Matola constitutes inaugurated in 1904. In 1905, the harbour was
its largest metropolitan area. Situated in the ex- expanded, thus increasing its operability. In 1912
treme south of the country, the metropolitan area the population reached 26,000 inhabitants.
has 2 million inhabitants. During the Mozambican Baixa continued to be the centre of activity
Civil War (1977-1992), the population doubled, during the next decades. In the early years of the
from approximately 540,000 inhabitants to al- 20th century the town saw the completion of
most one million. The pace of growth was espe- buildings of high quality. The 1952 master plan
cially pronounced towards the end of War when outlined a radial mesh extension along the coast
the average annual growth rate was 4.5%. Metro- in a “city-garden” style, with wide avenues, large
politan Maputo is expected to exceed 4 million roundabouts and larger public spaces. It also es-
people by 2025.1 tablished a policy of segregation between the
Maputo was originally named Lourenço “cidade de cemento” (“concrete city”) occupied
Marques, the navigator who, in 1544, was sent mostly by settlers, and its outskirts, called “cidade
on exploration by the governor of the Portu- de caniço” (“caniço2 city”), where the so-called in-
guese colony at Ilha da Mozambique. The first digenous population developed housing before
settlement, in today’s Baixa, was then a small is- independence. Between 1950 and 1960 the rate
land near the mouth of the river, surrounded by of population growth quadrupled mainly due to
swampy marshlands. It served as shelter for ship informal settlements in the sprawling peri-urban
repairs, and later as a supply base for operations area. This pattern was largely exacerbated in the
of trading companies. As trade increased, so did first years after independence and the Civil War
the needs for labourers and housing. The first or- period, when an intense migration from the rest
ganized development, planned in 1851, featured of the country to the capital took place.
REVIEW 10 157
Figure 2: The Baixa Central Business Distrcit is

relatively dense. Source: Tim Daugherty
Today Baixa serves as Maputo’s central business All cities have a district that gives them an inter-
and administrative district. It is the location of sev- national reputation. Baixa has an unique and valu-
eral government office buildings which employ able cultural heritage, characterized by a variety of
some 30,000 individuals. It is also a shopping des- valuable spaces, landscapes, green areas and histor-
tination including both formal and informal busi- ic buildings, which belong to different architectonic
nesses. Baixa generates more than $500 million3 styles that signal Portuguese colonial, vernacular
a year in economic activity and approximately decorative and modernist periods. Each asset has
150,000 to 250,000 individuals work in the area.4 its own particular significance, and they all come
During the daytime, the working population of remarkably together in a compact seaside district.
the Baixa significantly outnumbers the residen- Baixa comprises at least three areas, each dis-
tial population of the area, which is barely 12,000 tinct in character. Central Baixa contains the his-
people. The number of inhabitants in Baixa has, in toric core, where most heritage assets are located.
fact, decreased by 15% between 1997 and 2007. This area is also the centre of commercial and ad-
At about 70 inhabitants per hectare, the residen- ministrative activity. East Baixa, including the area
tial density is low for a consolidated urban area. known as Maxaquene, has been developed in the
The sprawling growth pattern in the peri-ur- last decade to be the new central business district,
ban area continues today. It is characterized by with mostly office space in stand-alone towers.
large number of informal settlements, which are a West Baixa has an area of light industrial and ware-
legacy of previous periods of rapid urbanization. house uses, many of them forming an ensemble
Only 9% of the residential area of Maputo is fully of historic value. Further to the west, there are
urbanized, in terms of infrastructure and housing larger industrial plots suitable for redevelopment.
(Jenkins 2012)5. This growth pattern puts a high Although only about one third of the Maputo Bay
degree of stress on the city, due to the lack of suf- waterfront in the Baixa area is currently accessible,
ficient affordable residential land with basic infra- as warehousing and light industrial uses domin-
structure, and the low occupancy of areas where ate, the promenade in the this area constitutes an
infrastructure exists, such as Baixa. important urban amenity and landmark, which at-
158 ISOCARP
tracts many people especially in the weekends. The population growth in peri-urban areas, which
The most important urban characteristic and converge during daytime to the Baixa for business
quality of the Baixa, both historically and as an opportunities, has spawned disorganized public
urban entity, is its multi functionality, the divers- transport demand which contributes significantly
ity in its users and its vitality. There are also a lot to congestion. Policy inaction could most likely
of economic formal and informal activities and result in the next decade or so in the demolition
diversified social dynamics through the Baixa, pri- of historic assets and their replacement by non-
marily during daytime, as it constitutes a meeting descript buildings of a scale and size that is not
point for many people from different social back- considerate with the context. This would threaten
ground, all trying to make a living. the city’s identity.
Making the most of these favourable condi-
tions is a once-in-a lifetime opportunity for Ma- The planning system
puto. If properly valorized and managed, Baixa is After the civil war, political stability and the estab-
a resource that can generate socio and cultural lishment of a legal framework brought the atten-
benefits for the city and the entire population, tion back to urban planning and management.
improving the quality of the built environment; Initial plans focused on the definition of cadastral
generating positive benefits on identity cultiva- plots for informal and semi-rural settlements, and
tion and social inclusion; and diminishing the risk consisted on drawing a grid over informally oc-
of homogenization and uniformity that comes cupied land. Through this practice it was realized
in the wake of the process of rapid urbanization that comprehensive planning was indispensable.
and globalization. At the same time, the conser- This effort was boosted by ProMaputo, a ten year
vation of its cultural heritage can be an asset for Municipal Development Programme financed by
economic development, creating new employ- the World Bank and started in 2007.
ment opportunities, stimulating heritage tourism, There are three levels of urban planning for Ma-
developing small and medium sized business, puto. At the highest level is the Maputo Structure
and increasing real estate values. Tourism, for in- Plan (PEUMM – Plano de Estructura Urbana de Ma-
stance, is growing but has an unfulfilled potential. puto), which was approved in 2009. The PEUMM
According to 2004 data, tourism represents 2.5% defined as objectives:
of the GDP in Mozambique which is rather low in ∙ Improved accessibility to all areas, the city
comparison to South Africa’s 8% of GDP. centre and their connections with the region
The sustainability of the character and of the and neighbouring countries;
vitality of the Baixa is under threat. Real estate ∙ Ecological balance, environmental sustainabil-
investments in Baixa are growing. It is estimated ity and quality;
that the value of current or planned investments ∙ Densification of the urban fabric enabling
is almost $2.4 billion. Few mechanisms exist to rationalization of infrastructure and urban
effectively manage these pressures, which could services and an increased social interaction
lead to sub-optimal results. There are also con- among all the residents of Maputo;
cerns of speculation as the future supply of prop- ∙ Construction of social housing; and
erties could greatly exceed demand ∙ Conservation of monumental and cultural
Uncoordinated overbuilding could make Baixa and historic assets qualities which enrich and
another non-descript area, impairing its poten- embody the city’s collective memory.
tial. Historic assets are exposed to deterioration
and demolition, poor public space and sidewalk The next level of planning is the Partial Urban-
maintenance, disrepair in many buildings, failing ization Plan (PPU – Plano Parcial de Urbanização),
drainage infrastructure, unorganized informal of which fifteen have been produced so far; and
trade, and inadequate waste collection practices the plan for Baixa is one of the latter. It is an inter-
are signs of sub-optimal management. Traffic mediate instrument that takes objectives to the
congestion in the core area is exacerbated by the ground, establishing planning standards and de-
high number of private vehicles entering it, cre- velopment control guidelines at a block scale. The
ating parking demands that are difficult to meet. Detail Plan (PP – Plano de Pormenor) would de-
REVIEW 10 159
fine planning standards at a plot scale, including occupy sidewalks and create traffic bottlenecks.
detailed design for public spaces. In areas with food informal vendors, organic rub-
KEY CHALLENGES bish piles up creating health hazards. Stormwater
drains on these streets are cluttered with litter,
Piecemeal development increasing the risk of flooding. Vendors operate
A key challenge in preparing the plan for Baixa is in precarious conditions, unprotected from the
dealing with the large number of actors whose weather and without sanitation facilities.
activities are directly or directly related to Baixa The activities of the informal economy are
and who have different kind of interests and say critical for the majority of households. The in-
on the future of this area, including people from formal economy in Baixa is estimated to employ
the central and local governments, private sector, between 2,000 to 5,000 street vendors and pos-
services providers, associations of formal and in- sibly many more if off-street informal businesses
formal business, and community representatives. are considered. Most of the informal vendors in
Another challenge is the many projects that had Baixa live in the informal settlements surround-
been initiated or approved without much coordin- ing Maputo and spend up to one third of their
ation with the Department of Urban Planning and monthly income on public transport. Within all
Environment of the Municipal Council (CMM). This of Maputo, it is estimated that the informal sector
highlights a suboptimal communication between employs 64.4% of the entire population. The as-
central and local governments and also between sessed annual contribution of the informal econ-
departments within the local level. An example of omy to the GDP of Baixa is nearly $60 million; the
this is the bridge to Katembe, linking both sides of size of the formal economy in Maputo is approxi-
Maputo Bay. The bridge, a decision taken at cen- mately $2 billion.
tral government level without much coordination
with CMM, is a large structure that cuts across the Undervalued heritage assets
west part of the site and must be dealt as a given, Differentiation is one the most effective strategies
as construction is about to start. for urban competitiveness, and built heritage is
At least 43 property development projects, an irreplaceable asset for a city’s differentiation in
totalling around 1.5 million square meters of built the long term. However, in Maputo the preserva-
area, had been approved by the Department of tion agenda is a conflictive topic, as it is in many
Infrastructure in East Baixa before the start of rapidly growing cities. Some see historic preserva-
the PPU. The approval process and the quantity tion constraining redevelopment of sites for new
of documentation submitted vary from case to constructions that bring commercial opportunity
case. The lack of coordination in the approval in the short term. General heritage legislation has
process with the Department of Urban Planning been in place since 1988. Additionally, in 2010, a
results in the absence of unifying criteria yielding draft Direction was prepared for the protection of
an insufficient consideration of the urban form as cultural heritage property but this has yet to be
a whole. The majority of the approved projects approved and adopted. However the concept of
are high-end office and commercial buildings. heritage in these instruments has a focus primari-
The lack of sound financial viability studies and ly on architectural monuments and specific build-
a clear picture of what is in the pipeline may lead ings. What is missing is a deeper understanding
to an oversupply. and acknowledge of Baixa historic landscape, in-
cluding its intangible social, cultural and econom-
Informality ic dimensions; and the recognition of the role it
Informal street vendors are ubiquitous in the cen- can play to create the city’s identity, improve life
tral part of Baixa. A survey revealed that on aver- quality and enhance economic development.
age there are approximately 20 vendors per street The existing legislation might be considered
segment in Baixa. Traders in appliances, apparel, adequate for the conservation of prominent
food, mobile phone components and souvenirs monuments and institutional or religious build-
are concentrated in the areas with most pedes- ings, but not for the historic landscape. This is
trian and vehicular traffic. In many cases they fully important since the fabric of historical residential
160 ISOCARP
Figure 3: Informal vendors along

waterfront. Source: Tim Daugherty
streets, buildings, public spaces, views, economic area is located along Avenida 10 de Novembro, in
and social dynamics, create the critical mass that East Baixa. On weekends, parked cars occupy the
is key to the city’s differentiation, vitality and iden- sidewalks leaving almost no space for pedestrians
tity. Each of the “everyday heritage” assets and or cyclists, as well as damaging the surface of the
elements, which by themselves would perhaps sidewalk. There are also many informal vendors
not merit being listed or considered, creates a dis- selling alcohol and food which hinders its poten-
tinctive urban character. This lack of a proper legal tial of becoming a preferred city-wide amenity. The
conservation framework further exposes Baixa area is also scarcely illuminated at night.
to the risk of being demolished. While pressures Green areas occupy only 4.79% of the PPU area.
for replacement are increasing, there is a general Tunduru Garden is one of the most important city
lack of awareness on the potential economic and gardens and occupies an extension of around 6
socio-cultural benefits that retaining a differenti- hectares. In recent years poor maintenance has led
ated character would bring to Maputo. to remarkable degradation, with lighting and some
facilities in a state of complete abandonment.
Public space In terms of streetscapes, while roads are general-
Baixa contains a number of parks and open spaces, ly well maintained, sidewalks are narrow and 75%
streetscapes, and key views. These are vital con- of them are crumbling and require maintenance.
tributors to the physical character of the place. During the daytime sidewalks are used as parking
However, public spaces are not planned as a sys- spaces. There are very few streets within the Baixa
tem, and in general the importance of the public where there is seating available on the sidewalks,
realm is underestimated. To fulfil its potential as an and street lighting is limited. There are no pedes-
urban destination, public space in Baixa needs a trian streets in a particularly well-suited area such
significant make-over. as the waterfront. In the Jardim dos Professores, on
The promenade along the waterfront could be a the high ridge above East Baixa, the construction
formidable asset for Maputo, but it is underutilized. of tall buildings is compromising stunning views of
The accessible part of the waterfront in the plan Maputo Bay.
REVIEW 10 161
Figure 4: At night, the waterfront has

intense vehicular traffic. Source: Authors
Floods informal operators. While the Public Transport

Baixa is a low-lying area which is prone to flood- Company of Maputo (TPM) operates on defined
ing in heavy rainfall. In addition to climatic and routes with a maximum capacity of 70,000 pas-
topographic conditions, the causes are very much sengers per day, a private network of “chapas”
associated with poor conditions in the drainage (minibuses) operating, both with municipal
and storm water systems (Vicente el at, 2006)6 . authorization and without licenses, provide ap-
Coverage within the Baixa is high, but the storm proximately 80 to 90 percent of the transport
drainage capacity is low. Drainage is discharged services. Chapas are owned by private individ-
into Maputo Bay, and the lack of tidal valves af- uals, many of whom own only one vehicle. Most
fects the operational performance of the system vehicles are old and poorly maintained; many
when heavy rain occurs in high tide. In addition, are unsafe. Enforcement of roadworthiness
there is very little organized routine maintenance standards is weak, although there have been
which causes rainwater gutters to be blocked by improvements recently.
dirt, solid waste, and plastic bags. During heavy The amount of space dedicated to the street
storms water runs down over roads as it cannot network is over 40% of the total land area. How-
enter the drainage network. ever, congestion in Baixa is significant. Because
demand for parking greatly exceeds supply,
Congestion street capacity is compromised by parking in
There is insufficient attention paid to public undesignated areas. There are 5,000 designated
transport especially given the high number of parking spaces, but during the working hours it
workers in this part of the City. Public transport was observed that 18,500 cars were parked. The
service levels and quality are limited. General lack of planning regulations specifying car park-
issues relate to a lack of reliability, long wait- ing requirements in buildings and the high cost
ing and journey times, overcrowding, safety of below-grade construction, required as most
and security issues, and inconvenient routing. of Baixa is built on reclaimed land, have contrib-
Transport is provided by a mixture of formal and uted to limited off-street parking availability.
162 ISOCARP
DRAFTING THE PLAN THROUGH agency mandated with preparing integrated exe-
PARTICIPATORY METHODS cution schedules, creating land pools which can
be used as guarantee for financing and operating
Creating implementation momentum capital for infrastructure investment, and prepar-
through involving stakeholders ing land for release to the market is an essential
To capture its potential, Baixa needs a collective step in implementing the plan.
vision and a roadmap to make it happen. Creat-
ing a singular place that takes full advantage of Creating a collective vision
its heritage and waterfront location, with a di- and choosing a preferred spatial option
versified and inclusive economic model, will not To support the preparation of the plan for Baixa,
happen spontaneously if current trends continue. the team adopted a participatory approach in or-
Change will require commitment of all stakehold- der to hear the voices, perceptions and priorities
ers and a clear set of rules of the game in the form of a wide-cross section of stakeholders about the
of an openly available guide that shows what can Baixa and its cultural heritage. Numerous focus
and what should not be done. groups and individual interviews were held to
Making the future of Baixa a shared opportuni- understand the complex reality of Baixa, analyse
ty is a priority. A successful future for Baixa is not the qualitative and multi-dimensional character of
only a function of guiding construction and infra- its historic landscape, and perceive people needs
structure; it is about creating a space that can be and expectations about the future of this area.
used by all, and where there are opportunities for The team organized a series of charettes with
all. Enhancing accessibility and living options, and the members of the Plan Supervision Committee.
providing the conditions for economic develop- The Committee was appointed by the munici-
ment for a broad spectrum of the community, in- pality and its members include Planning, Infra-
cluding organizing informal trade are indispens- structure, Transport and Economic Development
able building blocks of balanced growth. departments; the Ministry of Culture; large land
It would be unrealistic to think that a set of holders such as the railway company and Port
drawings can drive change. Even if it is compliant of Maputo; associations of informal vendors; de-
with all legal frameworks, a plan by itself does not velopers; and utilities companies.
guarantee execution, and the municipality should The most important aspect of the charette,
not be perceived as the only entity responsible of an intense session in which stakeholders work
doing so. It is imperative that the plan creates together, is that it concludes with an outcome
partnerships with citizens, the private sector, that is shared by all, or at least a majority of group
and other instances of governments in order to members. This provides an essential sense of
be implemented. An extended, beyond what is direction and a shared understanding of prior-
statutory required, participatory approach during ities when preparing complex urban plans. The
plan preparation is an invaluable tool to generate objective of the first charette was to engage the
ownership from residents and visitors; support members of the committee in different approach-
from private sector to contribute with manage- es to participatory planning and to adopt a vision
ment skills and capital; and coordination between statement to guide the PPU preparation.
government instances so that all public money in- Participatory planning tools were used through-
itiatives go in the same direction. out the charette including scenario planning,
Creating the conditions for a rational organiza- visual and inter-active polling charts, consensus
tion of public and private resources to implement building and feedback loops. Through the use of
a collective vision requires institutional far-sight- scenario planning tools, participants reflected on
edness, good planning, incentives and partner- the strong interrelation between physical struc-
ships. This means aligning objectives between ture and economic activity, and what could be the
local and national level of governments and end-results of various policy options.
public or public-private entities that usually hold
land such as the port authority and railway com-
pany, as in the case of Baixa. Establishing a special
REVIEW 10 163
Figure 5 (top): Charrettes

were lively and well attended.
Source: Tim Daugherty
Figure 6 (bottom):
The evaluation of spatial
options was systematized.
Source: Tim Daugherty
164 ISOCARP
SEGMENT SPECULATIVE NEGLECTED UNDERUSED VIBRANT

Physical form t Radical transformation t Progressive cycle of t A historic area t Blends reused
t Tall buildings in decay that no strategy historic buildings
superblocks t Poorly maintained for contemporary that retain
t Architectural shapes and infrastructure and economic activity character and new
design styles that could buildings leading to t No new construction buildings that add
be anywhere abandonment allowed contemporary
opportunities
Economic model t Primarily based on t Dominant single-use t Single use: subsidies t Diversified: tourism,
property development t Uses may do not from government to tertiary, property
and construction generate enough maintain assets development and
revenues t Tax breaks local businesses
t Small amount of
tourism
Benefits t Short-term, rapid t None t Retention of cultural t Retention and reuse

economic gain for a assets of historic assets
few land holders and t Safeguarding small contributes to
investors businesses economic diversity
t Long term economic
gain for residents,
small business, land
holders and investors
Risks t Risk of single use t Dilapidation of land t Model will probably t Needs private
t Property bubble and historic assets collapse if subsidies are investment for
t Easily replicable t Lack of tax revenue discontinued which clear rules
elsewhere t Congestion and transparency of
t Volatile to macro t Under-use at night approval process is
conditions t Marginalization essential
t Destruction of historic t Depends on
and natural assets incentives for re-use
Table 1: Implications of
Development Scenarios
REVIEW 10 165
Following the scenario planning exercise, the A PLAN THAT CAPITALIZES

group drafted collectively a vision statement ON OPPORTUNITIES
which reads as:
A mixed-use, compact Baixa
Baixa is a multifunctional destination, Creating a mixed-use, multifunctional destination
inclusive and vibrant, clean and green, would mean that its use is not limited to business
where visitors and residents enjoy the hours as it would be the case if Baixa becomes
historic and cultural heritage, the sea predominantly an office space. A single-use Baixa
and the public space will not make economic sense not only because it
would be limiting revenues to partial use of real
The principles to achieve the vision are: estate, but because there are many cases in which
∙ Inspiring areas that are empty at night become unwelcom-
∙ Organized ing and unsafe, thereby pulling property prices
∙ Livable down. Around the clock activity is one of the best
∙ Accessible recipes for a healthy and diversified source of in-
∙ Safe come both for developers in the form of rentals
∙ Attractive and sales and for the municipality in the form of
taxes. A single-use Baixa may bring advantages
The team prepared various spatial options that in the short term for a few project promoters; a
would contribute to achieve the vision. The princi- multi-functional Baixa would bring sustained ad-
ples were used to develop a series of parameters, vantages for a broader part of the society.
such as population density, floor area ratios (FAR),
land use, and others, that guided the preparation Creating a new development node
of each option. in West Baixa and providing order
In a second charette, three spatial options were to projects in East Baixa
presented to the Plan Supervision Committee to Baixa has the potential of being one of Africa’s
jointly identify the most suitable one. Each concept most singular districts, but overbuilding could
was represented using a hand gesture metaphor make it another non-descript area. Lack of
to help communicate visually the approach behind uniqueness could make Baixa lose much of its
each concept. Options were assessed by charette potential. On the other hand, it would be un-
participants using the principles as reference. realistic to treat Baixa as a museum. The plan
The first spatial option followed a concentra- proposes a new pole in West Baixa that would
tion of development in the central part of the create significant property development oppor-
Baixa, leaving areas to the west and east with tunities while reliving congestion of the central
lower densities. This option is the most similar to area. A new intermodal station would serve as a
current trends, and received about 10% of votes. catalyst for development. The station will include
The key idea behind the second option is recon- the terminal of a proposed bus rapid transit (BRT)
necting the city with the waterfront through corri- system currently under study; the municipal bus
dors and public spaces, allowing higher densities system; chapas ranks; a large car park which will
on streets parallel to the sea. This was the second deter drivers from entering in the central area;
most preferred option, principally because the and a large commercial space. The intermodal sta-
opening up the waterfront for public use was tion would take advantage of plots located under
highly regarded. This option received 35% of the the Katembe Bridge. A large plaza for an organ-
votes. The third concept proposed new areas ized informal market will be located adjacent to
of development to the east and west of central the intermodal stations so that entrepreneurs can
Baixa, creating new gateways and reducing pres- take advantage of the footfall.
sure to the historic area. This option was favoured Higher FAR and taller buildings will be allowed
by 55% of the participants. It was agreed that the by planning regulations in this mixed-use area.
third option could incorporate the idea of recon- About 40% of the residential space will be for af-
necting city with waterfront. fordable housing. A pedestrian axis will link West
166 ISOCARP
Figure 7: Waterfront after

improvements. Source: Cardno
Baixa with the historic center. Car parking facili- receive a floor area bonus or other incentives.
ties will be located on unused block cores, along
the pedestrian axis. Reconnecting the city with the waterfront
In East Baixa, the area Maxaquene next to the and creating a system of public spaces
ridge has a substantial amount of speculative Reconnecting Maputo with the sea will bring ma-
projects being built or in the pipeline. Projects jor improvements in terms of quality of life, and
have been approved on an individual basis, and will create opportunities for economic develop-
without a holistic perspective, which has contrib- ment. The plan provides for a walkable waterfront
uted to create a disordered pattern. This is not over a continuous path of 3 kilometers, the full ex-
only not beneficial to Baixa but detrimental to the tent of the Maputo Bay shore within Baixa. Areas
project themselves as a chaotic urban setting will previously inaccessible will be opened to the
lower their value. public by relocating industrial uses and creating
The plan limits building heights in the area next new development areas. Accessibility would be
to Jardim dos Professores to not disrupt views to enabled by providing a number of public trans-
the Maputo Bay. Buildings laid out in the East- port modes in close proximity, including ferry,
West orientation will be lower to prevent block- bus, and the elevator that will connect Baixa with
ing sea views. The plan also proposes a logic grid the north part of Maputo. Traffic calming meas-
and an organizing principle for approved but not ures will be introduced to create a pedestrian-
yet built projects. If these are amended according friendly environment.
to the plan guidelines they would be eligible to Figure Key to the recuperation of the water-
REVIEW 10 167
Figure 8: Bagamoio Street after

improvements. Source: Cardno
front is creating a “necklace” of amenities and ac- Establishing clear rules for protection
tivities. These will include community spaces on and reuse of historic assets
stilts, a fish market and restaurant area, a souvenir Through classifying for protection and adaptive
night market adjacent to a cruise terminal, com- reuse policies, the plan can create the conditions
mercial space, and ample, shaded walking and for the development of a historic district in the
biking spaces. The plan also creates pedestrian waterfront. In the central area, designated herit-
paths that link a system of existing and new pub- age assets can be reused for tourism-related servi-
lic spaces in a way that residents of Baixa will be at ces such as hotels, shops, and restaurants. The in-
a maximum walking distance of 15 minutes from dustrial and warehouse area in West Baixa would
a public space. be reused by adapting buildings into spaces for
Key to the recuperation of the waterfront is cre- creative industries, including affordable office
ating a “necklace” of amenities and activities. These space for start-ups, art galleries, and residential
will include community spaces on stilts, a fish mar- use. Planning standards will seek to integrate
ket and restaurant area, a souvenir night market new development in a considerate manner to
adjacent to a cruise terminal, commercial space, the existing historic fabric. Heights, FAR, setbacks
and ample, shaded walking and biking spaces. and other measures intend to induce a cohesive
The plan also creates pedestrian paths that link a urban form.
system of existing and new public spaces in a way The plan includes a classification system to
that residents of Baixa will be at a maximum walk- protect heritage assets. This starts with an assess-
ing distance of 15 minutes from a public space. ment to identify the complete range of assets of
168 ISOCARP
heritage interest. Those assets were then fitted rently used by informal traders and the different
into a hierarchy of classification to establish the areas of specialization by goods traded. The plan
relative level of significance of each asset. There- designates new areas for registered informal ven-
after, legislation can be devised to safeguard the dors which provide 50% more space for vendors
significance of every heritage asset against in- than what exists now. The space for informal ven-
appropriate interventions. dors will be located next to areas of high footfall,
Baixa’s built heritage can be considered as a such as transport nodes, car parks, pedestrian
number of distinct collections including colon- axes and waterfront public spaces.
naded buildings dating from the early 1900s; in-
dividual Art Deco inspired structures, dating from Creating conditions for public transport
circa 1930 onwards; international style inspired to be the preferred mode
warehousing and industrial buildings; and mod- As car ownership increases, Maputo is facing in-
ernist tall buildings, pre-dating 1974. creasing congestion problems. However, the street
Using an adapted form of an internationally-ac- capacity in Baixa is adequate and the orthogonal
cepted classification hierarchy, the plan allocated pattern has spacious boulevards and few narrow
each identified heritage asset to a classification streets. Improvements in congestion will not come
level. The hierarchy utilised is based on a model from building more roads or widening vehicle
recommended by the International Council on space, but rather from managing car parking.
Monuments and Sites (ICOMOS), being one of the The team held numerous focus groups, with
principal advisors to UNESCO’s World Heritage participants of all ages and social groups, on the
Centre. The classifications adopted are from Cat- theme of congestion and private vehicle use. There
egory A+ to D, ranging from exceptional assets was a strong consensus among private vehicle
with Outstanding Universal Value to “ambiance” drivers that they would be willing to walk 15 min-
assets, with limited individual relative value, but utes as long as they can leave the car in a safe place
which as part of a wider group contribute posi- and the walk to their final destination was pleas-
tively to the character of its local urban setting. Al- ant. The parking strategy is based on a system
though there are no assets of A+ value in Baixa or, of car parks which allow covering most of Baixa
indeed, Maputo, it is important that the classifi- within a 15-minute walk. Car parking facilities are
cation hierarchy covers the widest possible range linked to commercial space and along pedestrian
of values so that the relative importance of assets axes that connect them with key points of interest
universally can be understood. in Baixa. The system is also designed with pricing
The catalogue identified 313 classified assets, that incentivizes leaving vehicles in multimodal fa-
19 (6%) at category A, 68 (22%) at category B, 133 cilities furthest from the center. These facilities will
(42%) at category C, and 93 (30%) at category D. be linked by public transport.
A committed policy to prioritize public trans-
Organizing informal trade in commercially port would require making it faster than the car.
advantageous locations with high footfall This would mean designating streets where pub-
The collective vision places emphasis on creat- lic transport has the priority or dedicated rights
ing an urban area that can be used by all. A key of way. A principal objective of the transport plan
point in delivering this is organizing informal is to make modal switch fast and effortless. This
trade in a way that it becomes another resource would be facilitated by identifying stations that
for a vibrant Baixa rather than a disturbance to bring together several modes, including BRT,
pedestrian and vehicular traffic. In many cities, buses, chapas, ferry, elevator, taxis and private ve-
markets and orderly street trade areas are an im- hicles. Single ticket policies should support easy
portant factor of attraction day and night and on modal change.
weekends. Well organized street markets are also In the east part of Baixa there is a steep 60-me-
highly compatible with the key aim of creating at- ter height difference between the low part of
tractive residential spaces. Machaquene and the top of the ridge, where the
The team conducted a survey of informal trade park Jardin dos Professores is located. Providing
in Baixa to determine the amount of space cur- a means to connect the high and the low part
REVIEW 10 169
Figure 9: Proposed public

transportation system.
Source: Design Convergence
170 ISOCARP
of the city would allow better access to services, everyday heritage and of socio-economic dy-
workplaces and waterfront amenities for those namics that the singularity and vitality of Baixa
living to the north of Baixa. This need would be rests. The individual value of many of the build-
met by introducing a public elevator that con- ings identified in the heritage catalogue may not
nects the bus hub on the high part of the ridge be evident to those in charge of controlling de-
and the business district which is below. This ele- velopment and even to the general public. If this
vator can become a tourist asset in itself. everyday heritage is not valued to its full extent
it is doubtful that the Baixa will be able to retain
Possible barriers to implementation its identity.
The plan is currently in its final draft stage, with A number of historic buildings in the Baixa are
submission to the municipal council for approval in sub-optimal maintenance conditions. If these
foreseen in the fall of 2014. There are a number building further decline they may have be demol-
of challenges that would pose possible barriers ished for safety reasons. This is a way around con-
to plan implementation that would need to be servation regulations for owners that see historic
addressed. protection as a hurdle to redevelopment oppor-
Without strong political will and a well-coordin- tunity. The role of the plan is to help authorities
ated institutional approach to project licensing control the interest in speculative demolition and
that includes all levels of government, the Baixa is to incentivize owners to restore and maintain
at risk of taking a sub-optimal development path. their properties in the best possible condition.
As there are currently no regulations set forth in Restoring buildings has costs that owners and
a detailed plan, the criterion by which real estate renters might not want to pay. While the public
projects are approved is unknown. Furthermore, sector cannot be asked to pay for works in pri-
it is evident that the projects have been con- vately owned buildings, it can create incentives so
ceived in the absence of a coherent framework. that owners feel compelled to do so, for example
Implications include the ability of the existing through land and property tax breaks and other
infrastructure to cope with the increased demand instruments.
and the negative visual impact of a patchwork of
tall buildings.
A plan by itself does not guarantee execution. It
is imperative to create partnerships that will con-
tribute with management skills and capital to the
realization of the vision. Clear guidelines, in the
form of a cadastre and building codes specifying
what can be done where and for each plot of land
are essential to creating a level playing field and
constitute a pre-condition to sustainable partner-
ships and investments. Developing a cadastre Endnotes
is not a technical or financial question, but, one 1 According to UN-HABITAT
2 In Mozambique, “caniço” refers to the plants of the Typha
of leadership and demonstrable commitment of group, vastly used in the construction of traditional housing
decision-makers. The open and transparent avail- or sheds.
3 Calculation produced by Consulting Team. 2014. Developed
ability of information may be perceived in the from GDP information for the City of Maputo provided by
the Mozambique Data Portal. National Institute of Statistics.
short term as a dilution of authority; it is nonethe- http://www.ine.gov.mz/en/. Accessed on December 15, 2013.
4 Calculation produced by Consulting Team. 2014. Developed
less a critical first step in changing a dependency from an analysis of vacancy rate and total floor area data
on land sales and often chaotic development to collected during the Project’s Heritage & Land Use Survey.
5 Jenkins, Paul. 2012. Urbanization, Urbanism, and Urbanity
a model based on recurrent and diversified rev- in African City. Palgrave MacMillan Press. http://www.
enues for the municipality. palgraveconnect.com/pc/socialsciences2014/browse/inside/
inline/chapter/9781137380173/9781137380173.0001.
As indicated earlier, Baixa contains a valuable pdf?chapterDoi=9781137380173.0001. Accessed on
December 18, 2013.
historic urban landscape whose conservation and 6 Vicente, EM; Jeremy, CA; Schreiner, HD. 2006. Urban
revitalization can make it a singular destination. Geology of Maputo, Mozambique. The Geological Society of
London. http://www.iaeg.info/iaeg2006/papers/iaeg_338.pdf.
It has been argued that is in the critical mass of Accessed on November 21, 2013
REVIEW 10 171
BUILDING A NEW RELATIONSHIP BETWEEN THE OLD TOWN OF SENIGALLIA AND THE ADRIATIC SEA
BUILDING A NEW RELATIONSHIP

BETWEEN THE OLD TOWN
OF SENIGALLIA AND THE ADRIATIC SEA
GIOVANNI SERGI
172 ISOCARP
GIOVANNI SERGI
Figure 1: The new marina

of Senigallia (2014). In the
background the cranes are
demolishing a chimney in an
abandoned industrial site to
be redeveloped into a new
tourism settlement.
Source: Alessandro Accoroni
REVIEW 10 173
Figure 2: View of the port of Senigallia,

painting of the 18th century. Source:
Municipality of Senigallia
SUMMARY re-establish the bond between the old town and

Senigallia is a port and resort town, home to about the Misa River and the Adriatic Sea with several ac-
45,000 people, which is located near the mouth of tions. The old town always had a commercial and
the Misa River where it joins with the Adriatic Sea. fishing dock on the shore of the Misa River. The
Senigallia consists of a walled inner city, started Plan enabled the constructions of a new marina
in the late Middle Ages based on the remains of and the fishing port. Second it proposed methods
a Roman town (referred to as the Old Town), sur- to mitigate the physical isolation created by the
rounded by newer urban development. construction of the Rimini-Ancona railway line in
The Detailed Plan for the old town of Senigal- 1861 as well as the new truck road both of which
lia was completed and approved by the Municipal are located between the sea shore and the walls of
Administration in 2009 after a complex process. the old town. Another important element is repre-
This Plan is interesting because it proposes a mod- sented by the recent renovation of the Rotonda a
el which has many innovative elements compared mare (round building over the sea) built in 1930
to previous plans implemented in Italy. First, the and used to encourage the growth of seaside resort
Plan aims to restore the old town to the way it tourism. Today the Rotonda a mare is a meaningful
looked like before the earthquake in 1930, includ- symbol of Senigallia and the whole Marche Region.
ing the possibility to rebuild several earthquake- In the past few years some projects included
damaged buildings in a way that is faithful to their in the Detailed Plan have been implemented and
original design. as a result there is growing interest developing
The Plan also proposed that the redevelopment both housing and commerce investments. The
174 ISOCARP
GIOVANNI SERGI
Figure 3: Aerial view of the area

of Senigallia in 2012.
Source: Foto Leopoldi
Old Town has become attractive thanks to the In Italy we need to find new ways to redevelop
far-reaching approach used in the Detailed Plan old towns through strict conservation and also by
which was drawn up by Prof. Pierluigi Cervellati identifying suitable ways to reinterpret the “heart
from the IUAV University in Venice and its careful of the city” still present in all Italian urban areas.
implementation by the Department for the Old Through a long and complex political and cul-
Town led by Architect Stefano Ciacci. tural development, Italian urban planning has
outlined ideas and developed technical-scientific
THE HEART OF THE CITY tools and regulations to guarantee the conserva-
tion of major portions of the great cultural herit-
In 1951 Saul Steinberg drew the famous San Marco age represented by cities and Italian historical
Square in Venice during the CIAM International landscapes. Unfortunately the conservation of
Congress of Modern Architecture, in Hoddesdon buildings in many Italian old towns has not been
UK, which focused on the “The Hearth of the City”. combined with the maintenance of their social
He succeeded in summarising the Italian landscape and economic viability. The loss of economic ac-
and old town as they are seen in the world. A square tivities and population has constantly emptied
surrounded by great architecture and characterised several old towns. Today in Italy some urban plan-
by social life. A mix of rare beauty, strong human ners, architects and economists believe that the
relationships and Mediterranean atmosphere. The strict restrictions set to protect the old towns
Italian old towns are still studied and visited be- have contributed to the decaying of several old
cause they are models of the so-called “ideal city”. cities and are outdated1.
REVIEW 10 175
Figure 4: Aerial view of the

renovated Rotonda a mare in 2006.
Source: Municipality of Senigallia
THE ITALIAN EXPERIENCE industrial settlements by preserving landscape.

CONCERNING CONSERVATION It is also important to highlight documents writ-
OF OLD TOWNS ten by the Architect Saverio Muratori concerning
the development of old towns as providers of dif-
It is well known that the great cultural, historical ferent types of housing, for example publications
and landscape heritage in Italy has been an influ- like “Studi per un’operante storia urbana di Venez-
ence on the development of plans to protect and ia” published in 1959.
promote old cities and landscape. There are sev- Another important example is the Plan for the
eral examples which make this point. TThe Assisi Old Town in Bologna outlined by the Municipality
Town General Plan, drawn up by Giovanni Astengo of Bologna in 1968. It used the tools of historical
in 1955, is regarded as fundamental. This Plan con- analysis, sociological analysis, morphological and
tained a series of measures focused on renovation, structural analysis, as well as studies of the physic-
urban redevelopment, the development of new al and social environment to draft a Plan for the ac-
industrial plants and infrastructure improvements. tive conservation of the old town in Bologna. This
The Plan defined some initiatives, like the building plan guaranteed a balance between the urban
of new industrial areas that could contribute to a and the territorial system2.
new economic development. The Town General Another influential concept is that of the old
Plan and Detailed Plans aimed at protecting the town as a work of art, outlined by Pierluigi Cervel-
historical and artistic heritage, creating a modern lati and applied in his several Plans for Italian old
network of infrastructure and new residential and towns as well as in several essays among which
176 ISOCARP
GIOVANNI SERGI
Figure 5: Map of Senigallia

in 1732. Source: Municipality
of Senigallia
“L’arte di curare la città”, published in 2000. HISTORICAL CONTEXT

It is also worth mentioning the debate on poli-
cies and plans to safeguard and protect old towns The site on which Senigallia was founded, in the
developed by ANCSA - Associazione Nazionale Pre-Roman age, was some hundred meters dis-
dei Centri Storici e Artistici (National Association tant from the Adriatic Sea in a square-shaped
of Old and Artistic Centres) founded in Gubbio area of 30 hectares surrounded by the sea, a bight
in 1960.In Italy the debate concerning the most of the Misa River and the Penna stream. The re-
suitable urban planning tools to be used with lationship between the town, the Misa River and
old towns has been focused on the fact that Ital- the sea characterised the history of Senigallia and
ian legislation to preserve old towns has not been contributed to the development of this town and
proven effective. its economic activities.
In contrast to this, the Project for the old town One of the activities that was the core of this
of Senigallia can guarantee a positive result. The relationship was the Trade Fair of Senigallia dat-
Plan for the old town not only contains rules for ing back at least to the 14thcentury.In the 17th, 18th
preservation, it also encourages economic op- and19th centuries the Fair played a main role in
portunities to benefit the old town. With this Plan the economy of the town. It took place in summer
we are approaching a model which integrates the lasting 15 days and attracted exhibitors from sev-
Plan and the development Project to combine eral areas on the Adriatic Sea. A lot of exhibitors
measures focused on culture, economic promo- berthed their boats in the harbour between the
tion and urban planning. estuary of the Misa River and the old town.
REVIEW 10 177
To support this important economic activity, ously gained economic value. The development
the government of the Papal States developed an of production and residential settlements in this
Enlargement Plan prepared by Luigi Ercolani, car- town reflects the mobility mode mainly based on
dinal, in the 18thcentury which converted a part the railway line, road and highway network. Also,
of the area of the ancient Roman town into a sort the Italcementi plant and the Sacelit asbestos pro-
of trade fair district. This district was characterised duction plant were built. These companies trans-
by new buildings of efficiency and great archi- ported their raw materials and finished products
tectural value overlooking the right shore of the through their corporate railway junctions.
Misa River. It included a colonnade along the Misa
River designed to host all activities connected to RECONSTRUCTION
the trade fair in Senigallia and providing a place AND RENOVATION
for the boats to berth along the river’s shore. PRIOR TO THE PLAN
Since the Unification of Italy in 1861, the eco-
nomic importance of the Trade Fair decreased Since the early nineties, the Municipal Adminis-
due to the construction of the Bologna-Ancona tration of Senigallia has recognised the import-
railway line in 1861, the new coastal section of ance of the old town to the whole city. For this
the National Trunk Road no. 16 in 1921 and the reason the redevelopment of important buildings
highway Bologna-Taranto in 1974. The railway and certain areas within the old town has been
line which is perpendicular to the river bed, ob- promoted. The complex procedures and high
structed the access and berthing of big-sized costs have required a long planning and opened
boats in the old Harbour, thus reducing maritime a debate in town.
trade. Maritime transportation was therefore The most complex work undertaken was the
replaced by road transportation. For a long per- reconstruction of the Theatre La Fenice (19th cen-
iod of time, the main activities in Senigallia were tury) in 1996. The theatre collapsed during the
based on railway transportation and then on road earthquake in 1930 and was abandoned. The re-
transportation. construction took place in the same location and
In the 20th century the relationship with the a modern theatre with 700 seats was built. During
sea had changed to one characterized by fish- excavations for the new theatre two Roman roads
ing activities which did not have great economic and remains of some domus and tabernae- dat-
importance and seaside tourism, which continuing back to the 1st century BC and the 1st century
178 ISOCARP
GIOVANNI SERGI
AD. - were found. Underneath the theatre an in- It was one of the secondary places of residence of
teresting archaeological area together with a mu- the Duke of Urbino. This building was damaged by
seum were built. These were opened in 2000. the earthquake in 1930 and lost the last floor. The
Another very important redevelopment work Municipal Administration, on the occasion of the
was the building of the new Antonelliana Library Jubileum in 2000, restored the building that hosts
in 1998 by the Architect Massimo Carmassi. Start- the throne room with a precious wooded coffered
ing from the big areas on the highest floor of the ceiling.
Foro Annonario (19th century) and the building In 2002 the newly restored Ducal Square was
that hosted the slaughterhouse, the Municipal opened to the public. It is located between the
Administration has built a functional library with Ducal Place and the Rocca Roveresca. This area
a large reading room, a newspaper and periodical had been given a precise representative function
library, book storage, offices, areas for meetings in the Renaissance and now its features meet the
and conferences as well as a video archive. needs of an old town, whose inhabitants have a
In 2005 the restoration works of the Foro An- different lifestyle compared to previous centur-
nonario were completed. The Foro Annonario ies. When the project was presented and imple-
was designed by Architect Pietro Ghinelli in 1834 mented, discussion involved the whole town, but
close to the old docking of boats and to one of in the following years inhabitants and tourists
the entrance gate to the old town, on the right have expressed their positive judgement on the
shore of the Misa River. The project, as part of the new functional structure of this square.
implementation of the Detailed Plan (but prior to Palazzetto Baviera is an ancient palace of great
its adoption), comprised clearing, consolidation, architectural and artistic value that overlooks the
improvement of the curtain wall, the construc- Ducal Square. Now it is being renovated and works
tions of a square flooring made of the typical local for seismic improvement and removal of architec-
pavement with inlays of Istria stone, the renova- tural barriers will complete the ones already imple-
tion of wooden trusses and replacement of the mented between 2002 and 2004. The objective is
lighting system. The project is the completed pre- ensuring structural and static safety, functionality
vious restoration works focused on the fish mar- of rooms and systems in order to make this build-
ket in 1997 and old workshops in 2002. ing suitable for future activities: museum and ex-
The Ducal Palace is a very important artistic and hibitions, debates and conferences. Work on this
historical building in front of the Rocca Roveresca. project will be completed by 2014.
THE DEVELOPMENT OF THE DETAILED

PLAN FOR THE OLD TOWN OF SENIGAL-
LIA - OBJECTIVES AND METHODS
The Detailed Plan aims at giving back to the Old

Town its “magnificence” which was its main fea-
ture in the first decades of the century. The Plan
describes the old town up to the thirties as a sort
of shared work of art. Since it was damaged by the
earthquake in 1930, it requires careful restoration
and where needed, even a precise reconstruction
of lost parts of historical buildings.
Similarly to the restoration process used for
works of art, the Plan used a precise method of
historical analysis and research based on sources
from archives, iconographic sources and other
Figure 6: A 2012 view documents to identify buildings to be restored as
of the Foro Annonario
built in 1834. Source: well as rules to intervene on other buildings and
Foto Leopoldi public and private open spaces. The definition of
REVIEW 10 179
Figure 7: Detailed Plan for the

Old Town 2009, Catalogue
of historical typologies
of buildings. Source:
180 ISOCARP
GIOVANNI SERGI
Figure 8: Detailed Plan

for the Old Town 2009,
groups of measures. Source:
REVIEW 10 181
the appropriate restorative measure to be used Graphic documents such as cadastral surveys,
is provided by graphic tables that compare the graphs, photographs and research on history,
existing building condition to a drawing of the culture and materials of the period of construc-
building envisioned in 10 years under the Plan. tion, shapes, structures and materials, projects
This explicit outlook for the reconstruction of in which the interventions designed for the old
damaged buildings is highlighted by the tables town are presented, accompanied by documents
drawn by the team of Prof. Cervellati. related to the period before and after the inter-
The Plan comprises two main objectives. The vention itself.
first objective is to identify tools for urban plan- This legislation regulates, for each type of build-
ning, the definition of projects and measures to ing, private and public free areas, ordinary and
be used within the old town walls. These tools, extraordinary maintenance works, partial or total
on the one side, regulate the restoration/recon- demolition, restoration, renovation or redevelop-
struction of the old town and, on the other side, ment, typology and authentic restoration as well
promote a series of measures to give the walled as new works.
town an overall and specific image. The second
objective is to preserve the historical context THE IMPLEMENTATION OF THE DE-
and existing buildings by taking into account TAILED PLAN FOR THE OLD TOWN
all phases within the history of Senigallia. The FROM 2009 TO 2014
consistence of buildings damaged by the earth-
quake has to be preserved and restored. It is very In the first five years of the Detailed Plan the Mu-
important to guarantee buildings the use they nicipal Administration has contributed to the im-
were designed for which corresponds to the plementation of objectives to encourage direct
habits of groups of people living in the old town. involvement of the private sector. The Municipal
Administration’s objectives in 2009 were to “…
RULES SET BY THE maintain, renovate and restore the remaining ma-
DETAILED PLAN terial, historical/artistic culture of the past, to confer
magnificence to the walled town…”. The objectives
The Detailed Plan for the Redevelopment and have been gradually reached through a great
Conservation of the old town in Senigallia regu- number of measures concerning maintenance
lates the maintenance and the restoration and/ works of some parts of buildings in the old town
or renovation of material, historical and artistic as well as redevelopment of entire buildings.
elements. Through projects and the implementation of im-
The Plan has the following major elements: portant public works, such as the reconstruction
General Report, which presents the analysis, of the Theatre La Fenice and the new marina, the
theories and guidelines of the Detailed Plan; Municipal Administration has created a frame-
Technical Implementation Provisions, which work for private investors who have regarded the
include detailed implementation regulations by Detailed Plan as a reference for investments.
defining: cadastral lots; building units; methods Recent works are the reconstruction and lift-
of intervention; intended use; technical imple- ing of the Hotel Bice and the renovation of the
mentation rules for buildings and open spaces; building that hosted the high school for scientific
paved areas and green areas; urban decoration; studies. Some further works focus on the special
methods to present projects; problem of reconstruction of buildings in the
Report on Historical Buildings and structural old town that lost one or more floors during the
restoration, which means historical investigations earthquake. It is also worth mentioning several
both on the area where the building is located ordinary and extraordinary maintenance works
and on the building itself, accompanied by a sum- such as the improvement of facades and roofs.
marized description; Moreover the Municipal Administration has sup-
Code of Practice, which specifies constructive ported several works to redevelop the urban area,
details of maintenance, renovation and restora- like the upgrading of Giardini Catalani and Saffi
tion works for each building. square. Overall hundreds of works have been car-
182 ISOCARP
GIOVANNI SERGI
Figure 9: Detailed Plan for the Old

Town 2009, the main street, existing
situation (black and white) and outlook
(colors) according to the Plan. Source:
ried out in different parts of the old town. ema Arena Italia where apartments and spaces
Some fields of redevelopment have been iden- for the service sector will be built; the designed
tified in the past few years within the Detailed works regarding the former parking area in Baro-
Plan. These five fields focus on decayed build- ccio street where the building of 6 apartments is
ings. They are important because they will al- going to be started.
low the construction of new parking areas and The Municipal Council also decided to de-
ensure morphological redevelopment of the velop a very challenging project called “Orti del
area. The Detailed Plan has established specific Vescovo” upon final approval of the Detailed Plan
interventions to ensure urban and building in 2009. This project focuses on the completion
redevelopment. of the Portici Ercolani (18th century colonnade)
The fields of redevelopment will be focused on on the right shore of the Misa River and building
the following areas: of 37 fair rent apartments, 11 apartments, small
Rodi street, where the construction of a build- businesses along the colonnade and offices in
ing with 22 apartments is anticipated; the com- delle Caserme street. This project could be sup-
pleted works on the former gym Nirvana in Baro- ported by both private and public funds.
ccio street where 11 apartments have been built;
the designed works close to the Penna stream
where the building of 42 apartments, shops and
parking lots is going to be started; the designed
works regarding the building that hosted the cin-
REVIEW 10 183
Figure 10: Two historical buildings locat-

ed in piazza delle Oche at the entrance
of the Old Town which has been restored
in 2014. Source: Alessandro Accoroni
Figure 11: Elements of the project

“Orti del Vescovo” 2014. Source:
184 ISOCARP
GIOVANNI SERGI
THE RESTORATION area outside the walls with a green meadow.

PROJECT OF THE This vision was further defined by the 2011 “Plan
ANCIENT WALLS for Conservation and Promotion of the wall sys-
tem in Senigallia” which developed specific pro-
For several centuries the walls of Senigallia jects to be implemented along the whole length
have constituted a single structure that defined of the wall perimeter.
the town area and shaped it. Originally the walls The 2011 Plan sets guidelines for the homogen-
could be seen from a long distance and were an eous re-planning of spaces, both inside and out-
effective symbol of the old town. Since the 19th- side the walls, by relocating several buildings next
century the walls have lost their defensive func- to the walls in order to give the walls visibility and
tion and external spaces have been gradually to restore their sense of space. For this reason
occupied by buildings that made it difficult to green “buffer” areas are foreseen along the walls
understand the significance of the walls. including a path.
The Detailed Plan for the old town of Senigallia Another recent plan-inspired project was the re-
recognised the importance and potential of the development of the Giardini Catalani, which is
walls that are still existing and whose restoration located between the Theatre La Fenice and the
can highlight the image of Senigallia as a histor- ancient Porta Braschi. After their completed re-
ical town. The objective is to restore the vision of development, the Giardini Catalani are now char-
the walls in their entirety along their perimeter, by acterised by a wide meadow and pre-existing
highlighting the historical core and buffering the pines which have been selectively thinned.
Figure 12: Map of the Plan for conserva-

tion and promotion of the wall system
in Senigallia approved in 2011. Source:
REVIEW 10 185
Figure 13 (top): A 1996

aerial view of the Rocca
Malatestiana, Foro Annonario,
Ducal Square and Ercolani
Colonnade along the Misa
River. Source: Foto Leopoldi
Figure 14 (bottom): Port

Master Plan 2003. Source:
186 ISOCARP
GIOVANNI SERGI
THE NEW MOBILITY MODEL THE CONSTRUCTION

FOR THE OLD TOWN AIMS OF THE NEW FISHING
AT GRADUALLY CREATING PORT IN 2006
A PEDESTRIAN AREA AND MARINA IN 2009
The Detailed Plan also examined problems relat- In the past few years the port of Senigallia has
ed to the road system and tried to solve problems been subject to important technical-functional
concerning traffic, accessibility, and the availabil- upgrading: the Municipal Administration has
ity of car parks. It proposes the gradual creation of taken measures to re-launch port-related activ-
a pedestrian area in the old town. The Plan aims to ities and nautical tourism as well as strengthen
define a system of ground level and underground the role played by the port in creating a bond
public car parks, outside the wall but close to the between the old town and the sea, between the
points of access to the Old Town. The reduction of Eastern and Western seafront.
vehicles, enhancement of restricted traffic areas, In 2003 Municipal Administration assigned the
restrictions on circulation and parking, increase task to draw up the variance to the Port Master
of pedestrian areas, restitution of squares of his- Plan to Architect Fabio M. Ceccarelli, Eng. Raffaele
torical-artistic value (used in the past as car parks) Solustri and Eng. Alessandro Mancinelli. The vari-
and the identification of access and exit paths for ance included the technical-functional adjust-
vehicles were deemed necessary to vitalize the ment of the Port, which was completed in 2009.
Old Town. In accordance with the Detailed Plan for the
Figure 15: A 2012 aerial view of the

Marina and of the fishing port with the
Old Town and Ercolani Colonnade in the
background. Source: Foto Leopoldi
REVIEW 10 187
Figures 16 and 17: Fishing port

and fishing market. Source:
Alessandro Accoroni
188 ISOCARP
GIOVANNI SERGI
old town, the Port Master Plan has developed by the Municipal Administration and in October
two projects in order to redevelop the port area: 2010 the Municipality and building contractor
the building of a marina and of a fishing port on signed the related agreement.
the estuary of the Misa River. The first project was This project aims at changing an abandoned
the construction, in 2006, of a new harbour for 85 and polluted industrial area into a dynamic core
boats, including provisions for fuel storage and through an urban architectural plan charac-
the development of a fishing market. The project terised by the cycle-pedestrian and road connec-
was financed by Regional (laws on harbours) and tions with other parts of this town
EU funds. The area has been equipped with public This project includes a combination of func-
lighting system, drinking and non-drinking water, tional elements: the residential area will host 170
sewage system, electrical and telephone system apartments and some towers, an oval-shaped
The next step, completed in 2009, was the square open to the sea and in a barycentric loca-
construction of a harbour for pleasure boats for tion with respect to the settlement. The square is
336 berths and berthing jetties equipped with surrounded by a two-level colonnade. The Plan
specific services, an outer harbour, a new naval also includes a five-star hotel with congress cen-
engineering plant as well as new road connec- tre, a museum and urban works.
tions and services connected to the fish market
and the shipbuilding area. The main objectives
of this project were to provide new accessibility
for boats from the sea, the establishments of a
cycle-pedestrian connection between the two
seafronts, and the restorations of the bond be-
tween the town and port. The port area therefore
loses its mere commercial character and acquires
a social function as a place to build relationships.
THE PROJECT OF 2009 FOR

THE REDEVELOPMENT OF THE
AREA HOSTING THE TWO PLANTS
ITALCEMENTI AND SACELIT
DECOMMISSIONED IN 1970
The area hosting the industrial plants of Italce-

menti and Sacelit is located between the railway
line and the sea, some hundred meters from the
perimeter of the Old Town. It is close to the port
and stretches over an area of 4.6 hectares. Both
companies played an important role in the eco-
nomic development of Senigallia: for decades Endnotes
they shaped its image, social and economic re- 1 The urban planning policies developed in
Italy according to the model of general and
lations. The Italcementi plant was operative be- detailed urban planning, for instance the
Detailed Plans for Old Towns, defined by the
tween 1906 and 1970, while the Sacelit plant be- Law n.1.150 dated 1942, are influenced by
tween 1948 and 1970. the fact that they were thought more than
seventy years ago.
In 2007, an important local building contractor, 2 A territorial system is composed of elements
(population, workplaces, housing system, and
after acquiring the plants, entrusted Architect specific geographical area) that constitute
Paolo Portoghesi to redevelop the area. This is a town or regional system. These elements
are analyzed and studied to outline planning
probably the most important urban transforma- tools. I refer to the handbook by Brian J.
McLoughlin “Urban and regional planning.
tion project in Senigallia, after the one that took A systems approach” published in 1969 and
place in the 18th century. In 2009 the redevelop- also in the handbook “Governo del territorio
e pianificazione spaziale” by L.Gaeta U.Janin
ment project for the Sacelit area was approved Rivolin Luigi Mazza published in 2013.
REVIEW 10 189
THE WILLAMETTE FALLS LEGACY PROJECT: REDISCOVERING THE FALLS
THE WILLAMETTE FALLS LEGACY PROJECT:

REDISCOVERING THE FALLS
CARLOTTA COLLETTE
KELLY MOOSBRUGGER
190 ISOCARP
CARLOTTA COLLETTE · KELLY MOOSBRUGGER
The largest waterfall in the Pacific Northwest has

long been hidden from public view. Spanning the
broad Willamette River between Oregon City and
West Linn, Oregon, Willamette Falls - second only
to Niagara in volume in all of North America - can
be partially viewed at a distance from pullouts on
two nearby state highways. But for more than 100
years the close-up experience of the falls powerful
rush has been only reachable by boaters on the
river below.
The first European and American settlers in
Oregon harnessed the falls to power the birth and
growth of industries in the west . Woolen, lumber
and paper mills on both sides of the river have
blocked access to and constrained the view of the
falls since the mid-1800s.
Today, with the 2011 closure of the last mill to
operate on the Oregon City eastern bank of the
river, the promise of public access to the falls and
redevelopment of the mill property into an un-
matched urban experience is within reach.
Guided by four shared values, a unique multi-
jurisdictional public partnership has been working
to catalogue the opportunities and remove the
barriers to the 22-acre site’s redevelopment for
more than three years. Now this partnership has
the potential of a private partner, and the grand
hope of a whole region is coalescing to make this
new vision for Willamette Falls a reality.
Figure 1: Willamette Falls in

Oregon City, Oregon, the
second largest waterfall by
volume in North America
REVIEW 10 191
A GATHERING PLACE a woolen mill, homes, shops and even an opera

FOR THOUSANDS OF YEARS house were developed.
The river at Oregon City has two personalities.
The natural grandeur of the falls and the abun- Upriver it is calm and spread out, an easily navig-
dant fish attracted Native People who lived, able connection to the fertile farm land of the Wil-
fished, traded and celebrated at the base of the lamette Valley. But the granite outcropping that
falls for generations. Archeological evidence of lies under the falls, turns the lower river into a
their presence traces back 13,000 years. When the wild, turbulent crash of water. Millions of years of
first European/American trappers, explorers and the river crashing over rock left a flat bench below
frontier men arrived in the early1800s, they found the cliffs, a natural place for people to gather and
a thriving Native American culture here. trade. The importance of this place as a transition
In 1829, the Hudson Bay Company established point along the main transportation artery of a
a trading fort next to the falls. In the early 1840s, growing territory meant that it also became a des-
families began to cross the continent in covered tination for settlers and the people who managed
wagons in ever increasing numbers. They traveled this settlement. Long before streets were platted
the historic Oregon Trail which terminated at the in Seattle, Portland or San Francisco, Oregon City’s
falls. Unlike earlier trappers and explorers, these Main Street extended from the falls, through this
American settlers came with a different goal – to site and north through the basalt bench, becom-
build a community and a new commerce, nur- ing the spine of a thriving pioneer town. Stern-
tured by the water wheel and eventually turbine- wheelers shipping goods from the valley to the
turning power of the falling water. In 1844, Ore- south and the city to the north loaded and un-
gon City, the first city incorporated west of the loaded at Oregon City.
Rocky Mountains, was founded. Quickly lumber For the next hundred years, as one riverfront
mills were constructed and the first woolen mill industry became obsolete, it was quickly replaced
in Oregon was built on the basalt outcropping at by a new business. In the later part of the 19th
the base of the falls. A vibrant Main Street with Century one of the first hydroelectric power sta-
192 ISOCARP
tions was constructed at the falls, and in 1889 the stretches north for about a mile along the eastern
first long-distance transmission of electricity in bank of the Willamette River, beginning near the
the world connected the falls to a young Portland, base of Willamette Falls.
Oregon, 14 miles downstream. As the region grew Oregon City has been designated as one of nine
up around it, the homes and businesses along the regional centers within the metropolitan area in a
historic Main Street of Oregon City gradually gave 50-year strategy called the 2040 Growth Concept.
way to a collection of mills that spread out across The 2040 strategy identifies regional and town
the 22-acre site. centers and transportation corridors to guide
As many as 2,000 people worked at the site in future growth and development and protect
its early years, but the multitude of mills were farm land and forests outside the region’s urban
consolidated over time into one major industry growth boundary. As a regional center, Oregon
– paper production – and modernization of the City’s downtown is slated for public investment
industry reduced the need for workers to fewer to make it a more significant center of activity
than 200. Finally, in February 2011, the last mill, and jobs so it can help accommodate population
the Blue Heron Paper Company, closed its doors, growth in the southeast portion of the metropol-
and the industrial era of Oregon City ended. itan area.
THE REGIONAL CHALLENGES

PLANNING CONTEXT TO REDEVELOPMENT
Oregon City is situated in the Portland, Oregon, Although Oregon City’s downtown has been
metropolitan area, about 14 miles south of down- designated as a regional center, little new de-
town Portland. It is a city of approximately 32,000 velopment has occurred here in decades. The city
people, surrounded by other small and medium has a vibrant Main Street organization that has
sized cities to its north and west and rural land brought new small businesses and more activ-
to its south and east. Downtown Oregon City ity to downtown, but these successes have come
through renovation of existing buildings, not
through new commercial development. The city’s
story, from Tribal gathering place, to the Oregon
Trail terminus, to the first city and birthplace of
West Coast industries, makes it the historic heart
of Oregon. Careful redevelopment could nurture
a new vibrancy with old architecture, unmatched
natural assets and a growing creative sector.
Creating a high quality urban mixed-use pro-
ject on the 22-acre paper mill site will be a chal-
lenge for lots of reasons. Financing and investor
risk assessment are clouded given that no current
market comparable for such development exist
in Oregon City today. There also are physical ob-
stacles to redevelopment:
1. It is subject to flooding, last experiencing a ma-
jor flood event in 1996. A significant portion of
Figure 2 (left): 1867 Figure 3 (top): The site, on the the site is within a city-designated flood man-
view of the Oregon City right side of the river in this agement area. Future development of the site
waterfront. The tailrace of photograph, is constrained
the Oregon Woolen Mill by the river on two sides, could be limited to about six acres that are out-
can be seen flowing into and a state highway, railroad, side the historic flood zone;
the river in the lower right and cliff on another side. 2. Transportation access to the site is constrained.
side of the photograph. The 22-acre site includes
over 500,000 square feet of There is only one entrance point – the remnant
existing buildings. Main Street – and the river, historic and new
REVIEW 10 193
dams, an active rail line, and a state highway sur- THE WILLAMETTE
round the site, narrowing possibilities for provid- FALLS LEGACY PROJECT
ing public entrance and egress;
3. Pedestrian access is constrained. Across the rail- The prospect of restoring this priceless natural
road tracks, basalt bluffs rise above the site, with feature drew a new coalition of community, busi-
historic workforce housing on top. Pedestrian ness and political leaders from Oregon City, the
access to this residential neighborhood is pro- Metro Regional Government, the surrounding
vided by one of only two municipal elevators in Clackamas County and the State of Oregon. Each
North America; government agency designated two elected of-
4. A visual impediment remains. On the other side ficials and provided executive management
of the river, another paper mill, still in operation, leadership and direction for the visioning and
provides an industrial backdrop to the otherwise master planning effort. In the past three years,
scenic riverfront; these jurisdictions have worked closely to outline
5. It’s not an easy site to work with. The paper mill a new future for the site.
property is only two blocks wide and approxi- Upon the paper mill’s declaration of bankrupt-
mately a quarter mile in length, with some of the cy in 2011, the government agencies formed an
22 acres encompassing an intake basin in the riv- informal partnership to study the site with an eye
er and natural basalt outcroppings. Most of the towards potential public acquisition. Several ac-
existing infrastructure and utilities on the site tivities were undertaken by this group which led
will have to be replaced for new development to to the definition of the Willamette Falls Legacy
occur. And the site has more than 50 metal and Project. The following summarizes the activities
concrete structures that must be either removed taken during this two year period.
or renovated as part of redevelopment.
Working with the Property owner
All of these constraints led the planners to con- The public agencies leading this effort also
clude that the site was unlikely to be redeveloped worked with the bankruptcy trustee of the Blue
with private funding alone. Creating an amenity Heron Paper Company to ensure that future site
that respects the nationally significant history of owners understand the public commitment to
the site required coordinated public action from the site. Performing this due diligence was key to
local, regional, state, and federal sources. the next step of the process – working with the
trustee of the site to put together a vision and
master plan, in hopes of attracting private invest-
ment and ensuring that future development of
Figure 4: The area around the falls has the site would be guided by a community-sup-
flooded every 20 to 30 years since it was
settled by pioneers. This photograph ported vision.
of the 1964 flood shows industrial
buildings and power generation facilities Public outreach and participation
at the dam overtaken by floodwaters.
With river levels so high, the falls The state of Oregon has long established plan-
disappear underneath the raging water. ning goals, the first of which is citizen participa-
tion. Ensuring that the plans for the site were
guided by the local and regional community was
a very important part of the process – not only
because citizen participation is so valued in the
state, but also because widespread public sup-
port for the project will be crucial in the future
when taxpayer dollars are likely to be invested in
the site. Backing from the general public is also
critical because the master plan and zoning chan-
ges must be approved by the City Commission of
Oregon City.
194 ISOCARP
Native American Tribes; regional, state and fed- States National Register of Historic Places. The
erally elected leadership; and community-based expectation of the master plan is that future
business and neighborhood groups are partici- development will retain the historic character
pating to help form the vision to redevelop this of the site at a very fundamental level, and in-
site in a way that honors the site’s history and nat- corporate some of its existing architecture and
ural beauty. The visioning process engaged more industrial equipment into future development
than 3,000 people in the Oregon City community plans. The site will benefit from the authentic
and the wider region. Tours of the site attracted industrial history that already exists, rather than
hundreds of people, including elected officials attempting to contrive historic reference as
from across the region, members of the Grand many greenfield developments find necessary.
Ronde Confederated Tribes Council, business
leaders, architects and planners, environmental Public access: Visitors will have a front-row
activists and the general public. Attention to the seat to experience the truly extraordinary Wil-
project has increased as more people become lamette Falls. Cut off from public enjoyment
aware of this hidden gem in the river. and effectively removed from the public con-
The results of this public process envision an sciousness for more than 150 years, the falls
extension of downtown Oregon City, not a separ- constitute the most scenic experience along
ate campus, and inclusion of generous spaces for the entire Willamette River. The site also will
the public to experience the site and reconnect to provide an important opportunity for Oregon-
the Willamette River and its habitat. ians to connect directly with the river, which is
Definition of the Core

Redevelopment Values
Four shared values evolved which are shaping the Figure 5: The de-ink building (left image)
is one of the five structures identified for
future of the Willamette Falls site: historic and cul- re-use in the framework master plan. Built
tural interpretation, public access, healthy habitat in 1927, this structure is situated on Main
and economic redevelopment. Oregon City’s City Street and former 3rd St. Re-use of the
large-volume structures on the site offers
Commission first articulated these values in the exciting opportunities for a range of uses
spring of 2011, and they have since been used as (right image – rendering).
the framework for all project decisions.
Historic and Cultural Interpretation: through

thoughtful redevelopment, visitors will learn
about the rich history of the Oregon City river-
front, both before and after the arrival of Euro-
peans and Americans. The falls hold the story of
the area’s first people. Petroglyphs on the rocks
at the falls are visible and would be an obvious
element for future cultural interpretation. The
oral literature of the Chinookan and Kalapuyan
peoples refer to Willamette Falls. Falls on major
rivers were perhaps the single most desirable
setting for Native American settlements. Anad-
romous fish, including salmon and steelhead,
congregating below falls before moving up-
stream could be easily harvested by Native fish-
ers. The built resources on the property have a
strong and significant association to Oregon’s
industrial history. Many of these structures are
considered eligible for listing on the United
REVIEW 10 195
isolated from many of the communities along ∙ Once construction ends: A total of about
its route. 1,400 permanent full-time equivalent pos-
itions, including people with jobs at the site
Healthy Habitat: This land is critical for water (direct jobs) and in businesses that support
quality in the Willamette. Every fish and lam- the people and businesses that are located
prey that travels the river passes over or around at the site (indirect and induced jobs);
the falls. Historically, the falls were surrounded ∙ $2.9M estimated annual tax revenue, bene-
by unique plants because of microclimates cre- fiting the City of Oregon City, Clackamas
ated by the mist. Re-envisioning the site will County, school districts, and others;
provide an opportunity to reestablish native ∙ $14.6M estimated annual spending from
plant communities and enhance this ecologic- visitors arriving from outside of the Portland
ally diverse stretch of the Willamette River. region.
In the upper section of the site, alongside the Additional benefits are less quantifiable, but
historic dam there is a large still-water basin. are equally important to Oregon City and Clacka-
This was used for log processing and storage, mas County’s ongoing economic development
acting as a sort of mill pond. This water body is efforts. Redevelopment of the site transforms
now stagnant. Dam outflows and tailraces that Oregon City’s downtown into a unique place
run under the site have been filled in or chan- to live, work and enjoy the river. It also helps
nelized as industrial development dominated to create the thriving regional center that is en-
the site. Opening these could enable water to visioned by the region’s 2040 Growth Concept.
flow through from the basin and through the
site, either at the surface as rivulets or under-
ground. Re-opening the tail races, either in
part or in full, to receive greater flows from the
lagoon above would have multiple environ-
mental benefits. The water quality of the basin
would improve through circulation of fresh
water through the area. Below, greater circula-
tion would aerate water flowing through the
tail races, thus providing a more welcoming
habitat for fish and other riparian vegetation.
Economic Redevelopment: The Willamette Falls

redevelopment will carry on a tradition of eco-
nomic development along the riverfront, where
mills and industry thrived for more than a cen-
tury. The partners’ actions to date have been
aimed at returning part of the site to private
development, connecting to and reinvigorat-
ing the downtown as a hub of employment,
shopping, business and tourism.
The benefits of redevelopment at the site are
significant, and could result in the following
gross economic benefits: Figure 6: The falls have long been a destination
for fishing salmon, sturgeon, and Pacific lamprey.
∙ During construction: A total of about 1,400 Native American gatherings and trade took place
new jobs, including direct construction here from time immemorial. Even today, several
jobs, indirect (business-to-business) jobs, tribes harvest lamprey from the basalt cliffs under
Willamette Falls.
and induced jobs created from increased Source: http://photos.oregonlive.com/photo-
household spending; essay/2012/07/willamette_falls_lamprey_eel_h.html
196 ISOCARP
Figure 7: The framework plan lays out the bones

for future redevelopment: a street grid that
re-introduces Main Street and a few side streets
to the site, several development blocks outside
of the floodplain, the Riverwalk trail, and open
space areas along the shoreline. The five historic
structures are also identified in the plan. The
plan attempts to balance certainty with flexibility,
leaving many details about uses and structures up
to future owners and developers while ensuring
the overall plan reflects the four core values
The plan capitalizes on the opportunity cre-
ated by water. It continues the transformation
of the site that first occurred with the geological
formation of the falls, then through the industrial
DEVELOPMENT history harnessing the power of the falls. The
OF THE MASTER PLAN plan will transform the site by offering restored
views of the falls, recreation on the river’s edge,
In the summer of 2013, the partners hired a interpretation of history and culture, and habitat
consulting team to carry out the visioning and improvements in and around the site.
master planning process for the site - an effort The physical geography and features of the site
to break down the barriers to development by lead to a design that includes open space along
rezoning the site and creating a more certain the waterfront in floodplain areas and several
environment for private development. Led by development blocks where the land is above the
Oregon City staff, a project management team floodplain and fairly flat. A broad riverfront walk-
has been working with Walker Macy, one of the way could connect to a viewing platform where
region’s leading landscape architecture, plan- visitors can feel the mist of the falls. A new grid
ning and urban design firms. Walker Macy and of streets would re-introduce the original Main
the project management team are supported by Street and three other former streets, creating an
an integrated consulting team, including Cogan additional entrance to the site and improving traf-
Owens Cogan for community engagement, GBD fic flow. The plan is deliberately general enough
Architects for structural advice, Winterbrook to not overly constrain future development, but
Planning for land use and rezoning, and Loci, structured enough to ensure that the four core
Inc. and ECONorthwest for economic and market values are maintained and public support for the
study services. redevelopment can be secured.
REVIEW 10 197
Historic Preservation The Riverwalk

The Plan identifies five structures on the site that Through citizen participation, the public partners
have historical significance and architectural in- heard from the community that public access out
tegrity. It requires that these buildings or elements to view the falls should happen before anything
of them remain on the site as part of the site re- else on the former Blue Heron Mill site. Thus, the
development. Historic preservation is highly val- partners have identified the opportunity for a
ued by the community in Oregon City. Through public walkway along the Willamette River - “The
the public engagement process, it became clear Riverwalk” - as a priority for public access.
that a plan that leaves a future developer the op- The Riverwalk is also key for economic develop-
tion to clear all existing structures would not be ment for Oregon City and on the site. This walk-
publically acceptable. The less-historic structures way will welcome the public back to the site for
on the site could be utilized for redevelopment, or the first time in over a century. Public access to
they could be demolished by a future developer. the site will open eyes to the potential of the site
It is hoped that the flexibility offered by the plan and create a new marketable identity for the site
will result in a site that is a mix of old and new and for downtown Oregon City. The benefits of
structures with distinct character. this investment will range from the regional to
the local, including:
∙ Increased visitation to downtown Oregon City.
New visitors to the site will enjoy a walk along
the river and to the falls, and will also walk
into downtown Oregon City to visit shops and
restaurants;
∙ Increasing private investment interest in the
site. Providing public access to the site will cre-
Figure 8: A rendering of the ate a truly exceptional “front door” for future
future Riverwalk, produced by development and remove a significant risk
Portland planning and landscape
architecture firm Walker related to riverfront development;
Macy, shows how the existing
infrastructure on the site could be
utilized as walkways and platforms.
198 ISOCARP
∙ Establishing a new regional attraction that reintroducing a more natural riverbank will be a
provides the new, iconic “postcard image” for complex undertaking. The design of the River-
the region. This will help enhance the growth walk also will have to address ADA access, could
of Clackamas County’s tourism business include cultural interpretive elements along the
cluster, increase tourism activity in the region, walkway to tell the story of the site.
and help establish a new regional economic
development identity.
Creating an amenity that respects the nation-

ally significant history of the site will require co-
ordinated public action from local, regional, state,
and federal sources. The Metro Regional Govern-
ment has already invested more than $1 million
in site planning and environmental assessments
(one positive finding is that the site has relatively
low levels of contamination due to historic flood-
ing and the lack of top soil). The county and the
city have each committed to annual funding to of
$100,000 each to the planning effort. The State of
Oregon has authorized $5 million to begin creat-
ing public access for the site. Project partners are Figure 9: One demonstration plan
identifying additional funding sources and grants produced by Walker Macy shows
to match the state funding and plan and design how the framework plan could
be translated into development
the Riverwalk. The area of the Riverwalk is en- on the site. This plan includes
tirely in the floodplain and is built up with layers removal of numerous structures
of remaining mill buildings and their foundations. along the waterfront for habitat
restoration and public space; while
Removing some or all of these structures and other demonstration plans leave
more structures intact along with
programmed public space, and
less area for habitat restoration.
REVIEW 10 199
NEXT STEPS ticipation and support will play a key role in im-
plementing the vision.
The success of the Willamette Falls Legacy Project Of particular significance are the more than
vision process has been a direct result of its foun- 150 individual Community Champions who have
dation of collaboration. The public partners have pledged their time and talents to support the vi-
invested time, money, leadership and expertise sion. This may include the creation of a “Friends of
to provide direction for the vision and master Willamette Falls” nonprofit organization that could:
plan effort. The multi-year effort to implement ∙ Provide informational materials, events and
the vision is dependent upon maintaining the outreach opportunities for public learning and
strong partnership that was forged during the support for the project;
planning phase. ∙ Design and manage a fundraising campaign
Multi-agency partnerships require careful plan- to assist in construction, operation and
ning, seamless coordination, trust and long-term maintenance;
commitment to achieve their goals. The benefits ∙ Hold, invest and transfer funds to public part-
of such endeavors exceed the sum of individual ef- ners to fulfill project activities;
forts. For instance, a collaborative approach to ob- ∙ Participate closely with the public partners
taining local, regional and state permits reduces to ensure that project planning activities and
the time and expense of addressing them individ- products are shaped by stakeholders and
ually. A united front also lends itself to securing supporters.
funding as many federal and other grants require
or reward projects that show a strong local com- During the time before publication of this article,
mitment and collaboration among partners. An the bankruptcy trustee for the site was consid-
effective partnership demonstrates a spirit of ering offers to purchase the property. Just after
cooperation that instills confidence in the public this article was submitted, the site was purchased
and the private sector and institutionalizes the by Falls Legacy L.L.C., a private investor who has
collaborative ethic. This in turn expands the part- already acknowledged support for the Riverwalk
nership and helps ensure its success over time and the community plan for the site.
and changing political environments. For up-to-date information, see the project web-
It is expected that the partners will negotiate site at www.rediscoverthefalls.com.
intergovernmental agreements to form an official
partnership group that will lead the design and
construction of the Riverwalk in coming years.
During this time, collaboration with the private
sector to develop the rest of the site will be on-
going. Much of the development will require Figure 10: Visitors to the future
Riverwalk will see the falls from
public-private and public-public partnerships. In- this vantage point atop the
vestments in high quality public open space and foundation of Mill A, where the
access to the site’s major amenities (the river and mill once generated power.
From this up-close view, one
the falls) are a critical first step in redeveloping can also feel the mist blowing
the site. The open communication and public en- up from the falls.
gagement seen in the early stages of this project
must be sustained for future —phases.
The thousands of Oregonians who helped
create this vision will be instrumental to its suc-
cess. In the vision and master plan phase, project
leaders and staff engaged a broad spectrum of
stakeholders, including Native American Tribes,
regional, state and federally elected leadership, Endnote
and community-based business, environmental 1 National Heritage Area designation applications are being
prepared for this part of the river based on this being the
and neighborhood groups. Their continued par- birthplace of West Coast industries
200 ISOCARP
REVIEW 10 201
THE HISTORY OF THE INTERNATIONAL COMMISSION FOR THE PROTECTION OF THE RHINE (ICPR)
THE HISTORY OF THE INTERNATIONAL

COMMISSION FOR THE PROTECTION
OF THE RHINE (ICPR)
BEN VAN DE WETERING
ANNE SCHULTE-WÜLWER-LEIDIG
202 ISOCARP
BEN VAN DE WETERING · ANNE SCHULTE-WÜLWER-LEIDIG
Although water quality problems in the Rhine were already

recognised in the 15th century, a deteriorating quality was not
really apparent before the end of the 1960s. By that time, the
pollution of the Rhine with organic substances had led to acute
oxygen problems and a disappearance of almost all aquatic
life. Discharges of heavy metals, pesticides, hydrocarbons
and organic chlorine compounds caused further ecological
problems. More and more efforts were needed to produce good
quality drinking water, and the Rhine had the distressing repu-
tation of being the sewer of Europe.
The International Commission for the Protection of the Rhine
(ICPR) was established in 1950 as the first intergovernmental
body for the management of transboundary waters. Within
the ICPR, Switzerland, France, Germany, Luxembourg and the
Netherlands closely co-operate, while the European Economic
Community co-operates in matters pertaining to water.
What started with the development of a joint monitoring
strategy in the 50s and 60s of the last century, has become today
a comprehensive integrated management strategy of the Rhine,
comprising aspects of water quality, emission reduction, eco-
logical restoration and flood prevention. This development was
guided by a process of “learning by doing” and was influenced
considerably by some major disasters.
This article illustrates how management approaches of the
Rhine Commission have developed to date and it gives an
outlook into the ongoing European Union water policy. Special
attention will be paid to the prerequisites necessary for a suc-
cessful water management strategy and to those factors that
might be considered to be the success factors in the work of the
Rhine Commission.
REVIEW 10 203
THE RHINE RIVER: of the water quality and sediment pollution. More
USES AND CONFLICTS and more efforts were needed to produce good
quality drinking water, and by the end of the six-
The Rhine is one of the most well known and ties the Rhine had the distressing reputation of
most important rivers in Europe (Figure 1). For being the sewer of Europe.
many centuries, it has not only been an important In 1986, the Sandoz accident clearly illustrated
shipping lane, but also a source of food and valu- the disastrous impact accidental pollution can
able water, a crystallisation point for human set- have on the whole river. Due to a fire in a Swiss
tlements and a source of inspiration for poets and factory producing chemical and pharmaceutical
writers. Industrial development in North Western products, between ten and thirty tons of insecti-
Europe mainly took place on the banks of the cides, fungicides and herbicides flushed into the
Rhine River. From its source in Switzerland and river with the water needed to extinguish the fire
Italy, the Rhine flows via France, Germany and the and killed almost all river life between Basel and
Netherlands into the North Sea. The Rhine is 1,230 Koblenz (ca. 400 km).
km long and has a catchment area of 200,000
km2. After the Volga and the Danube the Rhine Ecological problems
is Europe’s 3rd largest river catchment. Nowadays, In the 19th century, the course of the Rhine was
more than 58 million people live in 9 countries drastically altered in order to improve conditions
in the Rhine watershed. About 8% of the total for navigation and to enable the use of alluvial
surface is used for settlements, trade and indus- riverside areas for agriculture and other purposes.
try. Here, Europe’s most important industrial and Further “corrections” in the river bed followed in
chemical companies’ annual production is worth the 20th century (Figure 2).
some 550 billion Euros. More than 800 km of the As a result, between Basel and Mainz the length
Rhine are navigable with an annual load of almost of the river was reduced by more than 80 km and
200 million tons of cargo crossing the Dutch-Ger- 85 % of the alluvial land was lost. Meanders and
man border. Rhine water is used for industrial and alluvial land were cut off, causing great changes
agricultural purposes, for energy production, for in the river ecosystem. Other problems were the
the disposal of municipal wastewater and for the increase of flow velocity, the erosion of the river
production of drinking water for more than 30 bed and the drop of groundwater levels
million people. Numerous dams and weirs serving hydropower
Furthermore, the Rhine is the natural habitat production were constructed in the Rhine and its
for a great variety of plants and many birds, fish tributaries. Due to these physical barriers it was
and other species. It is obvious that the many dif- almost impossible for the most important fish
ferent claims on the river must lead to conflicts or species in the Rhine, the Atlantic salmon, and
problems: water quality problems, problems in for other migratory species, to reach the spawn-
river ecology and flood-related problems. ing grounds. Catches of Rhine salmon decreased
Although water quality problems in the Rhine dramatically from more than 280,000 tons of fish
were already recognised in the 15th century, the around 1870 to zero in 1950.
deteriorating quality of the river was not really ap-
parent before the end of the 1960s. By that time, Flood-related problems
the pollution of the Rhine with organic substanc- Flood problems are as old as the river itself. Heavy
es had led to acute oxygen problems in the river rainfall or sudden snow melts and local ice-bar-
and almost all aquatic life had disappeared. riers have always caused high water levels in the
Other threats to the river ecosystem were the Rhine basin. However, during the last two centu-
wastewater discharges of industries, agriculture, ries, human activities in and along the river have
traffic and households. Large amounts of heavy strengthened the negative impact of higher wa-
metals, pesticides, hydrocarbons and organic ter discharges. Changes in the course of the river
chlorine compounds were discharged into the and the riverbed, the increased use of the whole
Rhine, causing further ecological problems: dis- river basin, erosion, urbanisation and changes
appearance of indigenous species, deterioration in the water flow seriously increased the risk of
204 ISOCARP
Figure 1: The Rhine watershed with its sub-basins

(total surface ~ 200.000 km²; Germany (~53%);
Switzerland, France, Netherland (each ~13% - 18 %);
Italy, Austria, Liechtenstein, Luxemburg, Belgium
(together ~ 3%)
REVIEW 10 205
RHINE 1838. Source: Generallandesarchiv Karlsruhe
RHINE 1872. Source: Generallandesarchiv Karlsruhe
RHINE 1980. Source: Landesvermessungsamt Stuttgart

Figure 2: Changes in river landscape: the Rhine at
Breisach 1838, 1872 and 1980: Only 160 years ago, the
river freely moved through the floodplain; it topped
the banks and changed its river bed. Today it is forced
into a fixed bed and deprived of its natural dynamics.
206 ISOCARP
floods in the Rhine area. At the same time, more ing instruments for the Contracting Parties. This
and more people and economic activities settled situation lasted until 1986, and, as often is the
in endangered areas, thus increasing the poten- case in environmental decision-making, a seri-
tial damage resulting from high water levels. ous disaster was needed to enable another step
The 1993 and 1995 floods in the middle and forward.
lower Rhine area clearly pointed out the need for
a drastic change in both river management with MANAGEMENT
respect to floods and the risk management poli- BY DISASTERS
cies in areas potentially at risk. During the last 15
years, the very same problems were repeatedly Towards the end of 1986, an accident in a Swiss
experienced in almost all European watersheds chemical warehouse painfully showed how vul-
like the Odra, Elbe and Danube. nerable the Rhine ecosystem still was and how
many threats still existed. Due to the disaster at
INTERNATIONAL the Sandoz-plant near Basel, 10 to 30 tons of toxic
CO-OPERATION substances flowed into the river and caused the
death of almost all aquatic life downstream as far
All the problems above mentioned have some- as the Loreley near Coblence. The Sandoz incident
thing in common: they can only be solved effec- triggered a wave of publicity in every state and
tively in a basin-oriented international context. country along the Rhine. Political attention was
For example: the sediment quality in the down- raised and in a very short time not less than 3 min-
stream Rotterdam area is directly influenced isterial conferences addressed the issue of Rhine
by upstream discharges; Salmon cannot return pollution, and finally resulted in the Rhine Action
to their upstream spawning areas when down- Programme (RAP) of 1987.
stream barrages and weirs block their long way The Rhine Action Programme (RAP) clearly de-
up; and, the magnitude of flood problems will fined goals to be reached by the year 2000:
be influenced by upstream and downstream ∙ To improve the ecosystem of the Rhine to such
riverbed conditions. Therefore, basin-wide co- an extent that higher species, such as salmon
operation is the first prerequisite for effective and sea trout, again become indigenous;
river management. Obviously, for the Rhine, this ∙ To guarantee the production of drinking water
means international cooperation. from the Rhine for the future;
The first two decades of co-operation within the ∙ To reduce the pollution of river sediments to
ICPR were dedicated to getting a common under- such an extent that sludge may at any time be
standing of the Rhine problems and to creating a used for land filling or be dumped at sea;
legal and institutional basis for co-operation. This ∙ To improve the ecological state of the North Sea.
first period of cooperation, just after World War II,
was essential to create confidence, trust and un- When adopting the Rhine Action Programme,
derstanding between the member states. the ministers agreed on some very challenging
Joint monitoring programmes were devel- and ambitious targets like a 50% to 70% reduc-
oped, but the first joint measures to protect the tion of inputs of dangerous substances between
river against the effects of organic pollution were 1985 and 1995 and the return of the salmon by
only taken after 1970. Between 1970 and 1985, the year 2000.
successful programmes were developed to re- The Rhine Action Programme has been very
duce inputs of polluted municipal and industrial successful. All along the river, measures have
wastewater. Oxygen levels steadily rose. Some been taken to prevent pollution and as early as
improvements could be observed in the situa- 1994 the ICPR could report that most of the re-
tion with regard to pollutants. In this period, the duction targets had been reached. In the field
main efforts focused on “end-of-pipe” techniques, of industrial sources, the 50% target had been
i.e. wastewater treatment, rather than on preven- almost completely met. In particular, the dis-
tive measures. During this period the Commission charges of noxious substances by municipalities
agreed upon several Conventions as legally bind- and industry fell distinctly. Inputs of most priority
REVIEW 10 207
Figure 3: Reduction of point

source inputs into the Rhine
between 1985 and 2000
Figure 4: Reduction of annual

loads of substances at the
German-Dutch border at
Bimmen-Lobith
208 ISOCARP
substances were reduced by 70 -100% or were no cus of attention, such as pharmaceuticals and cer-
longer detectable. In the year 2000, at the end of tain substances with hormonal effects. These are the
the implementation process, almost all reduction issues to be discussed today or in the near future.
targets had been achieved (Figure 3). As a result, the Rhine water quality has consid-
Since the flow (m³/s) of the Rhine varies a lot erably improved in the last decades. From being
from one year to the next, annual loads may only the sewer of Europe in 1970, the Rhine River has
be estimated. In spite of these reasons for inac- developed into one of the cleanest international
curacy, Figure 4 is rather reliable: between 1985 rivers in Europe.
and 2000, the annual amount of discharges fell The rise of the average annual oxygen content
for most priority substances. In addition, between of Rhine water at the German-Dutch border re-
1985 and 2005 the total load of nitrogen at the flects the pleasing success in the field of waste-
German-Dutch border fell by 30%. water treatment in the period 1955 -2006 (cp.
In 2005, about 96% of the population in the fig. 5). Parallel to improved oxygen contents, the
Rhine catchment are connected to municipal number of invertebrate species like insects, mol-
waste water treatment plants. In 1985, no more luscs, leeches etc. has distinctly increased, even
than 85 % had been connected. though river straightening has clearly changed
Nowadays there are still inappropriate amounts the species composition and little demanding
of a few substances which flow down the Rhine immigrant species prevail (in some sections by
into the North Sea, especially nitrogen or some up to 90%). Since 1995, the species number has
heavy metals like copper and zinc. These mainly more or less remained constant, however, many
come from diffuse inputs into waters and not insect species abundant more than 100 years ago,
from pinpointed sources. Other problems still such as the Ephemera Oligoneuriella rhenana are
remaining are due to former inputs, the so-called still missing. Presumably, this is also due to the
historic contaminations (for example PCP). monotonous structure of river banks caused by
Recently, other substances have become the fo- waterworks improving conditions for navigation.
SALMON 2000, THE ECOLOGICAL

DIMENSION OF THE RHINE
ACTION PROGRAMME
The most challenging objective of the Rhine Ac-

tion Programme was the return of the salmon - as
flagship species - to the Rhine by the year 2000.
Extensive programmes were developed and im-
plemented to enable salmon to return to their
spawning grounds. Fish passages were built by-
passing many physical barriers in the Rhine and
its tributaries. At the same time, habitat improve-
ment measures were taken in many tributaries
in order to restore spawning grounds. Parallel
action aimed at creating a new stock of Rhine
salmon was required.
The success of the so-called “Salmon 2000”
Programme is evident. Since 1990, salmon has
returned from the sea to the Rhine and its tribu-
taries and, since 1992, natural reproduction has
Figure 5: Development of the been recorded. Ambitious political goals at inter-
species number of invertebrates national level have been translated into concrete
between 1900 and 2006 and of
the oxygen contents of the Rhine measures and activities at local level. The pro-
at the German-Dutch border gramme continued after 2000 as “Salmon 2020”.
REVIEW 10 209
There is evidence that, by the end of 2013, almost necessary before adequate measures were tak-
7,300 adult salmons had returned to the Rhine en. The ICPR drafted an “Action Plan on Floods”
basin to spawn in the tributaries of the Rhine including the target of ecological improvement
(fig. 6). With the construction of three fish pas- of the Rhine and its floodplain and, in 1998, the
sages on the Nederrijn / Lek in the Netherlands Rhine Ministers decided to implement this plan
(2001 – 2004) and two large fish passages in the until 2020 (cost estimation 12.3 billion Euros).
Upper Rhine (Germany / France, 2000 and 2006)
the objective “Improve the continuity of the main The action targets are:
stream” has been achieved in some sections. Fur- ∙ Reduce damage risks by 10% in 2005 and by
ther measures are required and are currently un- 25% by 2020;
der discussion between the states in the Rhine ∙ Reduce gauges by 30 cm in 2005 and by 70
watershed. According to a careful estimation, a cm in 2020;
population of some 7,000 to 21,000 salmon will ∙ Increase awareness of floods by drafting risks
annually migrate upstream by the year 2020. maps (ICPR Rhine atlas 2001);
This concept of further integration of policies ∙ Improve the flood forecasting system.
received an extra impetus and even more politi-
cal commitment after the extreme floods in the By 2010, important action targets had been
middle and lower sections of the Rhine in 1993 achieved, as different measures entailing costs of
and 1995. Like in 1987, after the Sandoz disaster, 10,3 billion Euros were implemented. The ripar-
it is evident that serious problems were needed ian states have for example created great reten-
to convince the Rhine states that measures had tion areas for 229 million m³ of flood water along
to be taken. Although prevention and precaution the main stream, as they are most effective in or-
were basic principles for the management of the der to reduce extreme flood stages. In order to
Rhine, two enormous floods with even greater increase flood awareness the ICPR published a
consequences for many people seemed to be Rhine atlas in 2001.
Figure 6: Number of salmon returning

to the Rhine and its tributaries for natural
reproduction (1990 – 2013)
210 ISOCARP
REFLECTIONS
The successful co-operation in the framework of

the ICPR has been an example for many other riv-
er basin organisations. It is of course not possible
to simply project the Rhine approach on any oth-
er river in the world. Therefore, it is very important
to take good notice of the process steps made in
the Rhine Commission and to learn from both
positive and negative experience in the ICPR. In
the same way, the ICPR can learn from experience
made on other international rivers.
Based on the experiences and achievements of
the ICPR, it could be argued that a process driven
by political commitments is more effective and
flexible than an approach using legally binding
measures. This could be illustrated by the rapid
success of the implementation of the Rhine Ac-
tion Program - a political commitment - follow-
ing a period of a slow but steady improvement References
resulting from a series of binding measures on International Commission for the Protection of the Rhine (ICPR):
wastewater treatment. However, both elements Upstream - Outcome of the Rhine Action Programme, 2003, 32
are required and finding a good balance between p., Koblenz, ISBN 3-935324-46-4
political commitment and legal enforceability is a
International Commission for the Protection of the Rhine (ICPR):
continuous and iterative process.
Rhine & Salmon 2020, A Programme for Migratory Fish in the
The achievements of the Rhine Commission
Rhine System 2004, 32 p., Koblenz, ISBN 3-935324-51-0
have also triggered and guided further develop-
ment at EU level, such as the Water Framework International Commission for the Protection of the Rhine
Directive of December 2000 and the Directive (ICPR): Action Plan on Floods 1995 – 2005, Action Targets,
on the assessment and management of floods Implementation and Results, 2007, 16 p., Koblenz,
(2007). These directives do not only legally un- ISBN: 3-935324-63-4
derpin the implementation of measures by EU
International Commission for the Protection of the Rhine (ICPR):
Member States; they have also strengthened the
ICPR - Report No. 166, Effectiveness of measures for a successful
importance of river basin commissions in Europe,
and sustainable reintroduction of migratory fish in the Rhine
because they oblige Member States to coordinate
watershed – Extended summary, 2009, 14 p., Koblenz,
measures at the international river basin level.
ISBN 3-935324-78-2
All these developments can be seen as a fruitful
output from many interactive processes in river International Commission for the Protection of the Rhine (ICPR):
commissions as well as in their Member States Progress Report on the Implementation of the Master Plan
and at a European level. Co-operation in river Migratory Fish in the Rhine Bordering States 2010-2012, 2013,
basin management has to be based on mutual
International Commission for the Protection of the Rhine
confidence of all parties involved. The negative
(ICPR): The Rhine and its catchment: an overview, 2013, 34 p.,
and positive lessons learnt from co-operation in
Koblenz, ISBN: 978-3-941994-46-1, 51 p., Koblenz,
the International Commission for the Protection
ISBN 978-3-941994-38-6
of the Rhine may serve as an example for other
(international) water management authorities all International Commission for the Protection of the Rhine (ICPR):
over the world. Website: www.iksr.org (in German, French, Dutch and English)
REVIEW 10 211
INVENTORY OF ENVIRONMENTAL FEATURES IN MUMBAI, INDIA
INVENTORY OF ENVIRONMENTAL
FEATURES IN MUMBAI, INDIA
SHIRLEY BALLANEY BINDU NAIR
MUMBAI – CITY OF MANY

DIVERSE DIMENSIONS
Mumbai, is the most populous city in India and

second most populous city in the world. About
12.48 million people live in an area of 480 square
kilometers, which also makes it one of the densest
city in the world. Mumbai is the financial capital
of India and a key wealth generator for the coun-
try. It is also home to the densest slum in Asia –
Dharavi, a home to about 1 to 1.5 million people.
A city of dreams for many – with one of the largest
film industry in the world located here.
Mumbai is endowed with very rich architectural
heritage – ranging from 15th century Portuguese
structures, to grand Victorian edifices, to art deco
buildings. The city also has the rare distinction
of having a wide variety of flora and fauna. The
metropolis is ecologically unique with diverse
range of significant features including rivers, nat-
ural drains, forests, large expanses of vegetation,
natural rock formations, hills, beaches and man-
groves. Mumbai has the rare distinction of having
a National Park within its city limits. Over 40% of
the land area consists of environmental features.
Mumbai today offers a rich visual palette of built
and natural environment that is unique to a rapid-
ly transforming metropolis.
212 ISOCARP
SHIRLEY BALLANEY · BINDU NAIR
Figure 1: Environmental
Features in Mumbai.
Source: HCP Design,
Planning and Management
REVIEW 10 213
Figure 2 (top): Slums in Mumbai. Figure 3 (bottom): The Bandra Worli Sea Link.
Source: http://blogs.lse.ac.uk/ Source: http://defenceforumindia.com/forum/
indiaatlse/2012/10/24/the-challenges-of- economy-infrastructure/45181-made-india-indian-
making-indian-cities-slum-free-part-1/ firms-shine-across-globe-5.html
214 ISOCARP
Figure 4 (top): Mahim Bay. Figure 5 (bottom): Night time Mumbai.

Source: http://www.trekearth.com/gallery/ Source: http://intercongreen.com/2013/12/18/
Asia/India/West/Maharashtra/Mumbai/ real-estate-booms-ignoring-climate-responsive-
photo1239555.htm buildings/
REVIEW 10 215
Figure 6: Slums to high-rise

development
also recognized that this unique land formation

GROWTH AND
was a natural harbor. The archipelago was grad-
TRANSFORMATION
ually transformed, by the British, into a harbor and
OF MUMBAI
city by reclamation. Colossal engineering works
began around 1708 AD and continued until the
The physical transformation of Mumbai (its top-
mid-19th century. Mumbai’s present form, as we
ography and landscape) has occurred in a fairly
recognize it today, was firmed up by mid 1940s.
short period of time. Mumbai, or Bombay, was
Post-independence, particularly in the decades
an archipelago, a cluster of islands housing fish-
of 60s and 70s, Mumbai witnessed rapid growth
ing settlements until the early 18th century. These
and there was another phase of transforma-
islands were not well linked with the land mass of
tion in its landscape – the growth of suburban
the mainland. In fact, there were no factors that
towns. Given that Mumbai’s land mass limited
could provide impetus to the growth of the settle-
the scope for expansion, demand for more space
ments – trade, presence of an activity etc. - until
led to initiatives such as the development of Navi
about the time British established their suprem-
Mumbai, a new urban township of Mumbai, in
acy over the Indian Sub-Continent. Then it was
late 1960’s. (It now has a population of approxi-
recognized that these group of fishing islands
mately 1.2 million people.) Simultaneously, some
had a natural locational advantage; they were the
areas of Mumbai redeveloped into much denser
closest port of entry to the Indian Sub-continent
places, particularly the suburbs. But more critic-
from Europe through the Suez Canal. The British
ally, environmentally significant areas became far
216 ISOCARP
Figure 7 (top): Transformation of Mumbai Figure 8 (bottom): Slum encroachment

– from an archipelago to a peninsula. into Poiser River.
Source: HCP Design Planning and Management Source: HCP Design Planning and Management
REVIEW 10 217
Figure 9 (top): Encroachment along the coast.

Source: HCP Design Planning and Management
Figure 10 (bottom): Indiscriminate dumping of

garbage in natural drains.
218 ISOCARP
Figure 11: No environmental feature indicated on DP map (left);

environmental feature overlaid on DP map (right).
more susceptible to the demand for built space. projecting populations, estimating social and
Slowly the city started spreading into the natural physical infrastructure requirements based on
green and mangrove cover. The swelling popula- standards1 and translating these requirements
tion and high pressure for developable land led over space. Land use zoning, structural road
to alteration in the topography and unstoppable network, development regulations and city
construction led to the obliteration of the natur- level infrastructure provision become the key
al drainage network. Quite a few of the natural elements of the DP. The development plan is
drains were covered and narrowed by encroach- a broad brush plan and does not take into ac-
ments, rivers were channeled, hills were quarried count the detailed circumstances found on the
for construction material or were simply blasted ground. Some cities (states) do have mechan-
away for creating new road links or housing, man- isms to undertake detailed planning as a next
groves were gradually reclaimed and expanses of step that take into account the ground situation.
vegetative cover were engulfed by developments. Mumbai does have the mechanism for undertak-
Loss of such fragile areas was accompanied by ing detailed planning (called the ‘town planning
complete apathy towards remaining features – scheme’) but is not in practice currently – it has
lack of maintenance, indiscriminate dumping of been discontinued over time. The consequence
waste and sewage and rampant encroachments. of this approach is, that the overall growth pat-
terns, transformation in the topography, environ-
CURRENT PLANNING mental features, and heritage and cultural assets
MODEL / PARADIGM tend to be overlooked in the city’s DP. The cur-
rent DP of Mumbai (prepared in 1999!) does not
The causes for such a development pattern are reflect environmental conditions in its base map
easy to discern. Every city prepares a city De- nor has the DP been prepared to reflect any topo-
velopment Plan (DP) to guide its future develop- graphic features as there is no contour map for the
ment. In practice, the DP preparation process is city! The flaws of such an approach were brought
strongly focused on (and very simplistically) on to the fore during the floods of 2005 in Mumbai.
REVIEW 10 219
http://www.indiamike.com/india-images/
pictures/2672005-mumbai-flood
http://www.abc.net.au/news/2011-08-30/flooding-hits-mumbai/2861496
220 ISOCARP
http://static.panoramio.com/photos/large/13006052.jpg
http://www.indiaonrent.com/view/m/mumbai-water-flooda-flash-back.html
Figure 12: Mumbai flood of 2005
REVIEW 10 221
THE 2005 as the growth pace outstripped the ability to de-

MUMBAI FLOOD velop detailed plans for new additions. Because
this situation created a bottleneck preventing
Mumbai experienced a torrential downpour on 26 new construction, the practice of detailed plan-
July 2005, an incredible 94 cm (37 inches) of rain- ning was discontinued. The result was haphaz-
fall was received in a period of 24 hours. Though ard planning – the overall DP level road networks
Mumbai receives heavy rains and is used to down- were planned but beyond that, there was no plan-
pours, the situation in 2005 was an unfortunate ning. Subsequent growth did not consider the
combination of events. The exceptionally heavy natural land slopes, contours, natural drain paths
downpour coincided with high tide2. The storm and the result was that most of the natural drain
water drains could not discharge the water into network was destroyed. In fact city roads in the
the sea owing to the high tide which blocked the DP ended up blocking several natural drain paths.
outflow and actually pushing the water back into Archaic legislation such as the rent control act
the drains causing the inland to inundate. and the urban land ceiling act encouraged slum
Water levels rose rapidly, submerging roads formation typically along the natural drain paths
and railway tracks – the traffic was immobilized, (low lying inexpensive land belonging to the gov-
people lost their possessions as most of the resi- ernment was conducive to encroachments).
dential areas were flooded. Particularly hard hit The entire coastline of Mumbai is surrounded
were slums areas which tend to proliferate on low by a rich mangrove cover. Overtime due to the
lying, low value lands along the rivers and natural pressures of growth vast expanses of mangroves
water channels. Apart from private housing, the have been reclaimed and given way to develop-
public buildings housing amenities too suffered ments. The reason for this trend is again the lim-
damage. Infrastructure such as the mass tran- its imposed on the development in the city. The
sit system, phones, and electricity flooded and permissible floor space index (FSI or FAR) for a city
stopped working. The air and rail links to the city like Mumbai where the demand for built space is
were severed. People were stranded in the open very high is restricted to 1.5 (with some mechan-
for many hours and days in some cases. The situa- isms to purchase additional FSI). As consequence
tion continued for nearly a week before normalcy of this there is immense pressure of develop-
resumed. The loss to life, infrastructure and econ- ment. Mangroves are crucial for a coastal city like
omy was enormous. The losses to the economy Mumbai and guard against tidal effect and ero-
(commercial establishments) were pegged at Rs. sion. They also support a wide variety of fauna
5000 crores (Rs. 500 million). and flora and most importantly fish. Fishing is an
Several critical factors contributed to the dis- important economic sector in case of Mumbai,
aster3. Mumbai’s storm water system was put in most of the local demand for fish in the city is met
place in early 20th century and was designed for a locally.
much lower capacity. It proved to be inadequate
to drain out the rainfall received. Additionally, the EFFORTS POST
system had not been maintained over the years 2005 FLOODS
and was clogged, which further reduced its carry-
ing capacity. Of the approximately 105 outfalls The 2005 floods in Mumbai focused attention
into the sea, only three had flood gates to stop squarely on the antiquated storm water drainage
the rising sea water from re-entering the system system and the neglect towards the environment-
and flowing back onto the land. al features in the process of planning, growth and
The areas of South Mumbai and portions of the development of the city.
Western Suburbs of Bandra, Ville Parle, Khar along After the 2005 floods, a “Fact Finding Commit-
the north south railway line were well planned by tee on Mumbai Floods” was set up to investigate
the British4. Post-independence the practice of the causes of this disaster. Basically it highlighted
undertaking detailed planning or the town plan- the factors discussed above and suggested
ning schemes was given up around 1960s and 70s improvements in storm water system, improve-
222 ISOCARP
ments in the solid waste management system, people at large. The methodology and outcomes
desilting and opening of the natural drains and of these are briefly described here and could be-
rivers and most importantly managing Mumbai’s come references or templates for generating simi-
natural drainage system comprising of the 4 rivers lar databases for other cities in India.
and the numerous creeks and bays.
There was already a study ready to improve the Detailed Inventory
storm water drainage system for Mumbai called and Condition Assessment
the BRIMSTOWAD Report and the Fact Finding Methodology
Committee recommended its implementation. To begin with, there was no digital map of Mum-
The city administration took this up and this led bai available that even approximately matched
to the widening of the rivers and water courses. the ground situation. A functionally accurate
However, a more comprehensive view and ap- base map was generated by overlaying the DP
proach towards the natural features was deemed sheets on Google Earth images. This map was
necessary. The Mumbai Metropolitan Region De- used for mapping all the environmental features
velopment Authority MMRDA had established as well as further documentation and analysis.
the Mumbai Metropolitan Region – Environment A draft preliminary list of features was gener-
Improvement Society (MMR-EIS) in 1996, to pro- ated from available secondary data, such as talk-
mote protection, preservation and improvement ing to people and experts and reviewing topo-
of Environment in MMR. In 2007/8, MMR-EIS de- graphical maps and the satellite images. Rapid
cided to conduct a systematic comprehensive assessment visits were made in the entire city
inventory of the environmental features, iden- and features were verified, new features were
tify key problems and suggest interventions to added to the list based on ground observations.
protect as well as enhance some of the features A preliminary list of features was generated which
within Greater Mumbai. HCP Design, Planning was taken up for further detailed condition as-
and Project Management, an urban planning and sessments that included recording all land uses
design firm based in Ahmedabad was appointed in a 100 meter distance abutting the feature to
for this task in 2008. include building heights, important land marks,
edge condition, outfalls, accessibility, visual as-
INVENTORY sessments of water quality, encroachments and
OF ENVIRONMENTAL identification of site specific issues. Assessments
FEATURES were mapped, described in standard formats and
supported by extensive photo documentation.
The scope of the assignment defined the environ-
mental features as rivers, natural drains, large Outcomes
urban greens and coastline features. The task was In all, about 77 environmental features were iden-
structured to generate two major outcomes – a tified including 5 rivers, 19 natural drains, 7 large
detailed inventory & condition assessment and an urban greens and 46 coastline features. A master
action plans to improve and rejuvenate the fea- list was generated to indicate the feature name,
tures. Both tasks were huge in scale and called for location, ward, length or area, salient features,
developing a very systematic approach and meth- issues and a photograph of the feature. Each fea-
odology. However it was not just the enormity ture was presented through a series of maps, a
of the task that was the major challenge, but lack descriptive note and photo plates.
of primary and secondary information that was
spread in bits across several institutions. The data- Action Plans
base was to be built up on primary data, relying on Methodology
ground assessments. Attention was also paid to Following the inventory and condition assess-
standardizing the presentation of the features, de- ment, most vulnerable or critical features were
veloping annotated maps to show the condition identified. Then these features were qualified by
assessment and action plan proposals to facilitate condition to identify those that are in a precar-
their communication to the policy makers and ious condition and most likely to generate an
REVIEW 10 223
Figure 13: Detailed Condition

Assessment Map.
Source: HCP Design Planning
and Management
224 ISOCARP
Figure 14: Comprehensive

Approach.
Source: HCP Design Planning
and Management
adverse or disastrous impact if left neglected or proach. For example, if slum redevelopment is
unimproved for long. A ‘vulnerability index’ was proposed then interventions for creating access
developed based on the physical attributes of roads, creating open spaces abutting the feature
the features, and based on its value, most critical and connections with the main sewerage system
or vulnerable features were identified. The out- are indicated as guidance. Cross references to
comes were supported by visual assessments. interventions are indicated – if a slum redevelop-
A diagnosis of the problems and threats facing ment intervention involves creation of a road or a
the environmental features from the condition promenade, a cross reference is made in the road
assessments revealed that these were ‘generic’ or and promenade interventions.
common and widespread in nature – the result of The most crucial question that emerges is, who
encroachments, unprotected edges, narrowing of will implement the interventions? To answer this,
widths, slums, solid waste dumping, lack of access, all agencies involved in the maintenance and
disposal of sewerage. However, the degree of se- management of the environmental features were
verity varied from feature to feature. In view of this, reviewed. What emerged was no surprise – there
a standard menu of interventions was proposed are a plethora of agencies created under several
included widening, edge defining and strength- regulations and there is no coordination amongst
ening, one time cleaning, construction of access them. Absence of a comprehensive city wide view
roads, creation of green space and promenades, of the environmental features is an inevitable re-
removal of encroachments, slum improvements, sult of a non-coordinated approach amongst
provision of sewers, the restoration of mangroves, multiple stakeholders.
reforestation and land use recommendations.
Each intervention was numbered as a separate Outcomes
project, and displayed on a critical features maps Out of a total of 77 environmental features, 15 were
by using standard templates. Interventions are identified as most vulnerable and needed immedi-
based on a comprehensive and an integrated ap- ate attention. These include 3 rivers (Oshiwara,
REVIEW 10 225
Figure 15: Proposed Interventions.

226 ISOCARP
Mithi and Poisar), 6 natural drains (Vikhroli Nala,

Mogra Nala, Tilaknagar Nala,Piramalnagar Nala,
Irla Nala and Safed Pul Nala), 3 large urban greens
(SanjayGandhi National Park, BARC/Mandala Hills
and Aarey Milk Colony) and 3 coastline features
(Cumballa-Malabar Hill Rocky Outcrops, Worli Sea
Face Rocky Outcrops and Versova Beach). A total
of about 503 interventions are proposed. There are
approximately 19 instances of widening, creation
of 1.67 square kilometers of open spaces, 87 kilom-
eters of edge definition and strengthening, 29 kilo-
meters of new sewer lines, and 171 slum improve-
ments impacting 4,00,000 households and 44.1
square kilometers of reforestation. As of now the
current agencies are charged with implementation
of these interventions but an alternate mechanism
is under contemplation.
SUMMARY
The study took a comprehensive overview of

all the features and this analysis has resulted in
improving accessibility to environmental features
which will not only make them usable as recrea-
tional spaces but also help in improving mainten-
ance. This will also help in generating an oppor-
tunity for adding several square meters of green Endnotes
space and creating environmental improvement 1 The standards and norms were laid out in the 1960s
and 70s are no longer relevant in today’s context. These
opportunities in the course of slum improvements make if compulsory of the city government to provide
far too many ‘amenities’ and the land requirements
and provision of sewers. More importantly, at this prescribed therein are too high. Increasing land values
juncture when Mumbai’s DP is in the process of in the cities make it impossible for the Government
to acquire land and the result is a development plan
being revised, it is proposed to incorporate this that can never be implemented. The other more grave
consequence is that the land on which the ‘reservation’
study as an input layer into the planning process. of the amenity is put gets condemned for a long time
The project initiated by MMR-EIS is the first of its and remains out of the land markets.
2 Mumbai being a coastal city experiences tidal cycles.
kind for any city in India. A comprehensive city 3 The causes are based on authors’ understanding of
Mumbai as well as these were widely cited across several
wide database and status of the environmental articles in the print media post floods.
features has been created for Mumbai which is 4 Incidentally they were planned using the town planning
scheme mechanism which actually originated in Mumbai
an excellent starting point for integrating these in and was prescribed in the Bombay Town Planning Acts of
1915 and 1954. Post the British Rule and in Independent
the city planning processes and taking a holistic India, the Bombay Town Planning Act of 1954 was
view of the a city’s ecological systems and their replaced by the Maharashtra Town Planning Regional
Planning Act, 1966 which includes the town planning
important functions neglected thus far. scheme mechanism but the practice was discontinued.
REVIEW 10 227
THE VISTULA DELTA DEVELOPMENT · PLANNING AND IMPLEMENTATION
THE VISTULA DELTA DEVELOPMENT

– PLANNING AND IMPLEMENTATION
ANNA GOLEDZINOWSKA
228 ISOCARP
ANNA GOLEDZINOWSKA
LAND OF WATER
The Vistula Delta is the only area in Poland, and

one of the few in Europe, where people live and
manage land located above and below sea level.
This is an area defined in terms of geomorpho-
logical and hydrological hazards and the poten-
tial of water. The whole delta area (territorial) cov-
ers approximately 200,000 hectares.
This extensive region consists of three main
geomorphological forms: The Vistula Marshland
(Polish Żuławy Wiślane, but the name “Żuławy”
is also used in some documents in English), The
Vistula Spit (Polish Mierzeja Wiślana), and the Vis-
tula Lagoon1 (Polish Zalew Wiślany). The largest of
them is the Vistula Marshland, covering an area of
about 170,000 hectares.
Man has been adapting the Marshland to the
needs of agriculture and settlement over the cen-
turies thus changing the landscape of the delta.
The basis for this change was the construction
of polders. The result of this technology is a very
distinctive landscape. With polders, each piece of
land has been sustained by a dense network of
canals and drainage ditches. In most cases water
is pumped from the polders, which are areas situ-
ated at or below water level, to the rivers and ca-
nals located above sea level and thereby drained
into the Baltic Sea. There also are some polders
which are drained by gravity. In Poland, polders
date back to the thirteenth century, however, a
turning point was the arrival of Dutch settlers in
the sixteenth century. These new settlers brought
a specific culture of land cultivation and drain-
age. According to historic data, in the last four
centuries the Delta has increased approximately
20,000 hectares with expectable decreases in the
Lagoon as more land was converted into polders.
From the sixteenth century to the end of World
Figure 1: Vistula Delta War II the polder areas of the Marshland held a
REVIEW 10 229
Figure 2 (left):
Catchment area
of the Vistula River
Source: http://shelf3d.com/
i/Vistula%20river.
Figure 3 (right top):

Pump Station at Błotnik
Figure 4 (right bottom):

Dike between the old bed of
the Vistula and the current
mainstream (Błotnik)
predominantly protestant population. This fact is exchange in population. In place of the descend-
still reflected in the local architecture, which did ants of Dutch and Frisian settlers came Polish
not wear the constituent elements of luxury, but people from other parts of the country and the
is distinguished from the poorer rural building by Soviet Union, as well as Ukrainian, as a result of
scale, the durability of materials and the finesse the change to the Polish territorial borders.
of detail. The most characteristic buildings were After World War Two the government took over
arcaded houses with distinctive timber-framed the land and established large state-owned farms.
ornament. Unfortunately, most of this resource The local population received workplaces but did
has been destroyed by the ravages of war and to not identify with an existing heritage. The situa-
a greater extent by the lack of adequate care dur- tion worsened after the democratic breakthrough
ing the communist era. of 1989. After the collapse of state farms, the area
World War Two caused two major changes. In has been effected with mass unemployment and
March 1945 the polder infrastructure was de- a series of associated social problems. Given the
stroyed by retreating German troops and the land post war socio-economic circumstances, heritage
situated below sea level (depression polders) was sites were neglected and the routine mainten-
flooded. Since 1945 the area of the delta has not ance of the hydro-technical system was stopped.
increased. The re-birth and restitution of land In the heart of the delta there is a combination
followed successively de-watering and drying of soil conditions which shaped the development
of the area, which took from August 1945 to the pattern of the region. There the soil is fertile but
end of 1949. The second change was the rapid unfavourable for the construction of large build-
230 ISOCARP
ANNA GOLEDZINOWSKA
REVIEW 10 231
Figure 5: Houses in Cyganek (top)

and Trutnowy (bottom)
232 ISOCARP
ANNA GOLEDZINOWSKA
ings. In the heart of the delta there are only small These natural, cultural, economic and political
towns which developed as service centres for conditions make development planning of the
agricultural areas, such as Nowy Dwór Gdański area a big challenge which requires multi-level
and Nowy Staw. Cities and medium-sized towns cooperation.
were built on the edge of the delta (Gdańsk,
Elbląg, Tczew, Malbork). The delta is inhabited STRATEGIC PLANS
by more than 250,000 people, of which nearly
100,000 live in rural areas. The Vistula Delta area required a new concept to
Today, seventy percent of the marshland are guide development following political transform-
polder areas, mechanically dewatered by pump- ation after 1989. Since then several documents
ing stations. The remaining 30% is land drained have been completed and adopted.
by gravity. This gravity-drained part is beyond the The spatial development plan of the Pomorskie
reach of the sea, however it is exposed to tidal Voivodship (2002), identified the various prob-
flooding. lems and opportunities of the region and identi-
The delta is intersected by two international fied the differentiated solutions which needed to
inland waterways E-40 (Gdansk-Odessa) and E-70 be carried out by the various administrative levels
(Rottardam-Klajpeda), however, the majority of in the area of the Lower Vistula Valley and Delta
Polish sections of the international waterways are of the Vistula. This approach continued after up-
classified as 1st (250-400 t) or 2nd class (400-650 t) dating the document (2009). The document con-
so they are not suitable for heavy freight. Import- tained a number of findings to halt the degrada-
ant communication routes run through the Delta, tion of the area, such as:
including a national road and railway line to War- ∙ The improvement of existing flood control
saw. Lower Vistula Valley is an important corridor facilities and recommendations to restore the
for infrastructure and transport and also plays gaps in the network;
an important role in the transport of energy and ∙ The restoration of some depression polders to
fuels in the direction of Gdańsk-Sopot-Gdynia increasing the habitats of aquatic and water-
agglomeration. dependent species;
∙ The improvement of the ecological status of
GOVERNANCE IN THE surface waters and morphological riverbeds;
VISTULA MARSHLAND ∙ The preservation and restoration of hydrotech-
AND DELTA nical heritage;
∙ Incentives to favourable promote the retention
Since the territorial reform of 1999, the Vistula of historical sites of this region; and,
Marshland was divided into two self-governing ∙ Incentives to encourage the development of in-
voivodeships (regions): Pomorskie and Warmin- tegrated agriculture (sustainable) by regulating
sko-Mazurskie, the first of which covers about water relations of soils and reducing flood risk.
80% of the area, and the other 20%.
Currently, the Delta lies in the administration This policy applied to the following poviats:
of the two regions2, 10 poviats (counties) and 36 Gdańsk (municipal), Gdański (rural), Nowodwor-
gminas (communes). Each of these levels operates ski, Malborski, partly Sztumski and Tczewski but
independently, with the largest group of compe- also Kwidzyński located in the subregion in Lower
tence lying with the gminas while the regions Vistula Valley.
have the greatest influence on the distribution of A separate policy plan was needed for the
EU funds (beyond the central administration). Warmia and Mazury Voivodship Vistula Delta due
Finally, as a result of the economic and political to the amount of land located within the Marsh-
reform of 1989, there were administrative reforms land and the presence of other areas requiring ur-
which included the establishment of local self- gent public intervention. The Spatial development
government at the municipal level (1990), and in plan of the Warmia and Mazury Voivodship (2002),
the second stage (1999), self-government for the among other policy recommendations’ defined
poviats (counties) and voivodeships (regions). the Elbląg spatial policy area covering the west-
REVIEW 10 233
Figure 6: Map Zulawy Loop
ern part of the region, including the following po- ic Revitalization could not be implemented due
viats: Elbląg (municipal), Elbląski (rural), Braniews- to lack of funds and the inability of regional gov-
ki, Iławski and Ostródzki. ernments to coordinate or enforce a substantial
As a result of these planning documents both part of the activities envisaged. Nevertheless, the
regional assemblies adopted the Program for Eco- detailed analysis found in the report became very
nomic Revitalization of the Vistula Delta and the helpful in the elaboration of individual develop-
Vistula Lagoon in 2006. This document included ment projects.
an in-depth diagnosis of issues and a comprehen- Almost simultaneously other inter-regional doc-
sive program for improvement, including specif- ument were prepared, but this time with a much
ic lists of tasks to be accomplished as well as an narrower objectives. The “Żuławy Loop” program
assessment of the impact of planned investments called for the development of waterways of the
on regional development. The work has been Vistula Delta and the Vistula Lagoon (2006) and
based on extensive consultation involving of nu- was approved by both regional assemblies. The
merous local, regional and state stakeholders as inspiration for the program was the idea to use
well as representatives of the Kaliningrad Oblast. the region’s unique waterway features and cultural
∙ Three main priorities were established: landscape as a basis to promote tourism develop-
∙ Ensuring lasting security from flooding; ment. Tourism was seen as a vehicle to reinvigorate
∙ Revitalizing the vistula delta and the vistula the local economy.
lagoon; Another important sectorial document prepared
∙ Raising the level of civilization and stimulating for this area was the “Programme for the Żuławy re-
pro-investment activities while maintaining gion – till the year 2030. Complex Flood Protection”.
the natural and cultural specificity. The document was prepared by the Regional Wa-
Unfortunately, this 2006 program for Econom- ter Management Board in Gdansk in consultation
234 ISOCARP
ANNA GOLEDZINOWSKA
with local and regional stakeholders and approved importance”. The goal of this project was to cre-
– in line with the competences – by the President ate a network of harbours and marinas to meet
of the National Water Management Board (2009) the basic requirements of boaters and to encour-
and the Ministry of Environment. In order to en- age water related opportunities as a basis for job
sure good co-operation regarding implementation growth and economic development of the delta.
of the program, a special agreement was signed With a budget of approximately 83.5 million eu-
among the main stakeholders3. The program has ros, including a 49.1 million euro grant from the
two main objectives: flood protection of the re- European Union, a broad spectrum of tasks were
gion; and, the sustainable development of the implemented. Of note, this project assumed that
area. This plan emphasized that the achievement the new infrastructure improvements would not
of first objective provides the conditions needed to be financially self-sufficient but justified the in-
nurture the harmonious functioning and develop- vestment by taking into account the stimulation
ment of the socio-economic objective. of private commercial enterprises related to the
The national planning policy, to some extend public investment. Depending on the size and
secondarily, also has confirmed the recommen- importance of the junction of the waterways and
dations of the regional documents by identifying the popularity of the routes these new marina fa-
the uniqueness of the Vistula Marshlands. The Na- cilities might include:
tional Spatial Development Concept 20304 (2012) ∙ Basic stop for yachts and boats;
distinguished seven types of functional areas. ∙ Functioning of the boatswain office;
They were delimitated on the basis of dominating ∙ Access to water and electricity;
problems, impact of which goes beyond the local ∙ Access to sanitation;
and regional influence, and the solution required ∙ Reception and waste discharge;
to coordinated action at macro level. This group ∙ Parking;
also included the Vistula Marshland. ∙ Information board and multimedia kiosk;
∙ Fencing the harbour and
THE NEW GOLDEN ERA ∙ Site monitoring using cctv cameras.
In the years 2007-2013 Poland became the great- Originally the project was to include more than
est beneficiary the EU cohesion policy and re- 60 projects, however a host of issues including
ceived 67 billion euros in financial assistance. Be- conducting environmental assessments and the
cause of all the years of careful plan development lack of local cost share partners the first stage was
and adoption, work programs were ready to be scaled back to 17 projects comprising:
implemented. As a complimentary action, the re- ∙ 4 yacht ports;
gional assemblies of Pomorskie and Warmia-Ma- ∙ 7 marinas;
zury declared “the Year of Marshland” (Żuławy) in ∙ 3 mooring posts;
2008. This period was used for gaining support ∙ Remodelling two bridges into drawbridges;
for and defining two trans-regional infrastructural ∙ Electrification of Gdanska Głowa lock;
projects for the Vistula Delta based on previous- ∙ System of touristic information and promotion.
ly approved interregional documents: “Program
for development of waterways of the Vistula Delta As a result of the reduced number first phase of
and the Vistula Lagoon” and “Programme for the facilities, the actual tourism impact in the region
Żuławy region – till the year 2030. Complex Flood was lower than expected. It is hoped that when all
Protection”. facilities have been completed, tourism will meet
“Żuławska Loop – the development of water tour- expectations.
ism Stage I” also began the implementation of The improvements resulting from the “The
“Program for development of waterways of the Vis- Żuławy Loop” plan are being implemented by
tula Delta and the Vistula Lagoon”. The initial stage local government partners from the Pomorskie
was financed within the Operational Programme and Warminsko-Masurskie Voivodeships. The first
“Innovative Economy” 2007-2013, Measure 6.4, phase of the project involved 16 partners cover-
“Investments in tourism products of supra-regional ing both voivodeships, but the main actors were
REVIEW 10 235
1 Rebuilding spurs on the Vistula River

2 Redevelopment mouth of the Vistula River
3 Restoration of the flood embankment on the left Giemlice
- Kiezmark-Przegalina
4 Restoration of the flood embankment on the right Palczewo-Lisewo-
LINER DEVELOPMENTS:
Czerwone Budy – Drewnica

5 Redevelopment of the Radunia Canal in Pruszcz Gdański
6 Redevelopment of the riverbed of Motława River
7 Restoration left floodbank of Tuga River
8 Redevelopment of the riverbed Dzierzgoń River
9 Redevelopment of the Wąska River riverbad/embanksments
10 Redevelopment the shaft leading Drużno Lake
11 Redevelopment flood-control system on the right bank of the River Elblag -
reconstruction of embankments of the River Elblag Babica from the river, the
location of the mouth of the River Babica to the border town of Elblag
12-34 No. 15 Cedry Wielkie, No. 37 Błotnik, No. 80W Stara Wisła, No. 4 Przejazdowo,
OF POMP STATIONS:
REDEVELOPMENT
No. 25 Lędowo, No. 4W Stegna, No. 66 Klecie, No. 68 Złotowo, No. 27

Wróblewo, No. 9W Debina – Świerki, No. Wocławy, No. 9 Dziewięć Włók, No.
33 Wocławy, No. 36 Trutnowy, No. 17 Cedry Małe, No. 39 Suchy Dąb, No. 11
Wiślinka, No. 19 Trzcinowo, No. 18 Trzcinowo, No. 6W Grochowo, Wybicko, No.
65 Kławki, No. 23 Majkowo, Fiszewka "F", No. 31 Gajowiec, No. 71 Dłużyna, No.
73 Topolno, No. 72 Dłużyna, No. 2d Złotnica, No. 67 Stalewo, 7a Kępniewo,
Figure 7: Map - Program Zulawski
236 ISOCARP
ANNA GOLEDZINOWSKA
Figure 8: Marina in Błotnik
the local governments where investments were Funding for the first stage of the program came
located. In 2013 those gminas formed a company, from the state budget, the budget of local gover-
whose objective was the effective management nments and, in particular, the European Union.
of the newly created infrastructural. The total program can be allocated into six sub
Unlike the local management of the marina fa- -projects (listed in Table 1) and will cost approxi-
cilities and other local improvements, flood safety mately 522 million zlotys.
responsibilities were legally assigned to the na- The first phase concerned the key elements of
tional water management board and its regional the hydrotechnical system of the Vistula Marsh-
branches. land. Paradoxically, projects aimed at improving
The implementation of the “Programme for the the environmental safety have to go through very
Żuławy region – till the year 2030. Complex Flood detailed procedures to determine the environ-
Protection», has been divided into several stages. mental impact assessment - the Vistula as one of
The first step is to be completed by 2015. It is as- the largest unregulated rivers in Europe is part of
sumed that due to the time needed to implement international network “Natura 2000”. Yet, unlike
the program and the EU financial programming the “Żuławska Loop”, the first phase of the pro-
policy, the remainder will be divided into two or gram has been almost completed on time. Thanks
three stages. Overall the project consists of ap- to efficiencies in completing phase one tasks,
proximately 250 tasks costing a total value of 1.6 money was available to complete some addition-
billion zlotys (400 million euros). al improvements from the reserve list.
REVIEW 10 237
238 ISOCARP
ANNA GOLEDZINOWSKA
BENEFICIARY TASKS ESTIMATED TIME OF

OF THE SUB-PROJECT COST [MLN ZŁ] IMPLEMENTATION
Regional Water t Redevelopment mouth of the Vistula River 147 2011-2015

Management Board t Rebuilding spurs on the Vistula River
in Gdansk t Redevelopment of the the riverbeds of Motława
and Dzierzgoń River
t Redevelopment of the Wąska River
t The monitoring system of flood risk
Land Drainage Board of t Vistula River: restoration of the flood embankment 147 2011-2015
Pomorskie Voivideship in on the right Palczewo-Lisewo- Czerwone Budy –
Gdansk Drewnica; restoration of the flood embankment on
the left Giemlice - Kiezmark-Przegalina
t Tuga River: restoration left floodbank
t Redevelopment of pump stations: No. 15 Cedry
Wielkie, No. 37 Błotnik, No. 80W Stara Wisła, No. 4
Przejazdowo, No. 25 Lędowo, No. 4W Stegna, No.
66 Klecie, No. 68 Złotowo, No. 27 Wróblewo, No.
9W Debina – Świerki, No. Wocławy, No. 9 Dziewięć
Włók, No. 33 Wocławy, No. 36 Trutnowy, No. 17
Cedry Małe, No. 39 Suchy Dąb, No. 11 Wiślinka, No.
19 Trzcinowo, No. 18 Trzcinowo, No. 6W Grochowo,
Wybicko, No. 65 Kławki
Żuławy Land t Redevelopment flood-control system on the 69 2011-2015

Drainage Board in Elbląg right bank of the river Elblag - reconstruction of
embankments of the river Elblag Babica from the
river, the location of the mouth of the river Babica
to the border town of Elblag
t Redevelopment the shaft leading Drużno lake.
t Redevelopment pump station No. 23 Majkowo,
Fiszewka “F”, No. 31 Gajowiec, No. 71 Dłużyna, No.
73 Topolno, No. 72 Dłużyna, No. 2d Złotnica, No. 67
Stalewo, 7a Kępniewo,
t Redevelopment Wąska river embankments
City of Gdańsk t Redevelopment of the Radunia Canal in the City 137 2010-2014
of Gdansk
City of Elbląg t Redevelopment flood system the right bank of the 42 2009-2015
river Elblag - Polder Nowe Pole-Zatorze
t Redevelopment flood-control system on the right
bank of the river Elblag
t Flood Monitoring - Local System Monitoring and
Support Response Flood Hazard
Poviat Gdański Redevelopment of the Radunia Canal in Pruszcz 43 2010-2015

Gdański
TOTAL 522
Figure 9 (top left):

Drawbridge in Rybina
Table 1: Implementation and
Figure 10 (middle left):
beneficiary participation in the
Lock at Biaea Gora.
first stage of the program.
Image by S. Lewandowski
Source: own composition
Figure 11 (bottom left): on the basis of information
Historic bridge over the from the Regional Water
Vistula River in Tczew Management Board in Gdansk
REVIEW 10 239
Figure 12: Work on dike at Vistula River

near Tczew. Image by S. Lewandowski
CONTINUATION Pomorskie Voivodship 2014-2020” provides the op-

OF THE PROGRAMS portunity to support the development of tourist
infrastructure but only if it will lead to increased
In the years 2014-2020 the Polish allocation of the employment and entrepreneurship in problem
EU funding will be even greater - 82.5 billion. At the areas. This means that the possibility of funding
same time it is anticipated that this will be the last will depend on proving - not declaration as it was
period when support will be targeted as widely so far - that the project has an impact on the vo-
as it is estimated that by 2020 the Polish regions cational activation of inhabitants and increase the
should reach the GDP per capita of 75% of the economic potential of this area.
European average.
Continuation of both projects is planned for the
2014-2020 programming period. This does not
mean, however, that new projects will have the
same pathway for funding as before. Flood pro-
tection project are likely to be further funded at
national level in the Operational Program “Infra-
structure and Environment 2014-2020”. It is ques-
tionable, however, that there will be adequate Endnotes
1 Some geographers distinguish the Vistula Lagoon
funding for the second stage of “Żuławska Loop” as a separate entity
2 Part of the Vistula and the Vistula Spit belongs to
project. The operational programs are still at the Russia (Kaliningrad Oblast).
stage of negotiations with the European Com- 3 The signatories of this agreement were Deputy
Minister of Environment, President of National
mission, however, even at this time it seems a Water Management Board, Marshal and Deputy
Marshal of Pomorskie, Marshal and Deputy Marshal
foregone conclusion that national level support of Warmia and Mazury.
for tourism related improvements is not strong. 4 It is worth noting that the document was adopted
after the commencement of two major projects
The new “Regional Operational Program for the funded by national programs.
240 ISOCARP
ANNA GOLEDZINOWSKA
References
Cebulak K., 2010, Delta Wisły - powyżej i poniżej
poziomu morza, Stowarzyszenie „Żuławy” i Lokalna
Grupa Działania „Żuławy i Mierzeja”, Nowy Dwór
Gdański.
Kistowski M., 2013, Kompleksowe Zabezpieczenie

Przeciwpowodziowe Żuław - do roku 2030” w
świetle zasad planowania strategicznego i celów
zrównoważonego rozwoju regionu, [in:] Funkcjonalny
obszar Delty Wisły w terytorializacji Polski, T. Parteka
& A. Golędzinowska (eds), Studia KPZK PAN, vol. CXLV,
Warszawa.
Office of the Marshall of the Pomorskie Voivodeship,

Office of the Marshall of the Warmińsko-Mazurskie
Voivodeship, 2006, Program for development of
waterways of the Vistula Delta and the Vistula Lagoon.
Office of the Marshall of the Pomorskie Voivodeship,

Office of the Marshall of the Warmińsko-Mazurskie
Voivodeship, 2007, Żuławska Loop – the development
of water tourism. Stage I.
Regional Water Management Board in Gdansk, 2010,

Programme for the Żuławy region – till the year 2030.
Complex Flood Protection.
REVIEW 10 241
WATER AND CITIES: THE SINGAPORE STORY
WATER AND CITIES:

THE SINGAPORE STORY
LAU YING SHAN MERCY WONG
Water: it is fundamental for life, integral to human

culture, necessary for industrial activities, and
helpful for recreation. While human functioning
is reliant on water, water is also feared, as it can
be a carrier of disease and a force of destruction.
The reverence for water is no less in cities – places
of high populations and dense buildings – where
municipal managers need to be on their toes to
manage water for the city’s functioning, but not be
overwhelmed by water.
Singapore is one example of a city that has been
successful in managing its water resource through
careful planning and meticulous execution. This
city-state in the equatorial region of Asia provides
exciting prospects for its 5.4 million residents who
hail from four main ethnic groups. About half of the
resident non-student population have at least post-
secondary education qualifications1, while the per
capita GDP is $68,5002. Surprisingly, the city-state
is supported by only an area of about 716 square
kilometers located in the equatorial region of Asia.
While the monsoons bring intense, heavy rains,
Singapore’s small land area means it has a limited
water catchment area. Despite these challenges,
Singapore has evolved from being a ‘basket case of
Figure 1: View of the river
urbanisation’ in the 1950s and 60s, to a first-world in downtown Singapore.
city in about half a century. Its success would not Source: Photo by William Cho,
have been possible without good governance and via Wikimedia Commons
[http://en.wikipedia.org/wiki/
management of water, an essential foundation for File:Singapore_River_where_it_
human development. all_begins.jpg]
242 ISOCARP
LAU YING SHAN · MERCY WONG
REVIEW 10 243
‘TAMING’ WATER they blew up the water pipes that brought the
water supply from Skudai and Gunung Pulai in Jo-
In the early 1960s, Singapore had a population hor to Singapore, and left us with only two reser-
of less than 2 million people.3 As the population voirs which would not suffice for more than two
boomed post-World War II, slums proliferated in weeks. And so even if the British had all the will
the city centre, creating unhygienic and unpleas- and guts of 90,000 British troops, Indian troops
ant living conditions. Backyard industries, farms, and Australian troops to put up a fight, it was
and overhanging latrines fed immense amounts not possible…… thirsty men cannot fight,” he re-
of waste to the Singapore River. High monsoon counted in 20085.
rainfall frequently stalled activities; flooding in Water was an existential issue, a matter of life
low-lying areas such as Bukit Timah Road pre- and death. Hence, the two water agreements with
vented children from attending school. Malaysia, signed in 1961 and 1962 respectively,
A former crown colony of the British Empire, were enshrined in the 1965 separation treaty be-
Singapore already had some basic water infra- tween Singapore and Malaysia6.
structure. MacRitchie reservoir, Seletar reservoir, Water was also needed to support the eco-
and Peirce reservoir were developed by the British. nomic development of the young, industrialising
Water pipes across the causeway also transported nation. The question of Singapore’s water self-suf-
water from neighbouring Johor (in the present ficiency was posed to a team of engineers, who
Peninsula Malaysia) to Singapore. Basic public in 1971 formed the Water Planning Unit which
services were provided by the Municipal City reported directly to the Prime Minister. This team
Council; trucks with ’32 doors’ transported night was tasked to develop the Water Master Plan and
soil collected from villages to sewage treatment was highly committed to its objective. For ex-
plants. To alleviate the disruptive floods, efforts ample, two members of the team, Mr Lee Ek Tieng
were undertaken to improve public drainage in and Mr Tan Gee Paw, eventually, at different per-
Singapore, such as the establishment of the ‘Joint iods, became the Permanent Secretaries of Singa-
Committee on Flood Alleviation’ in 1951 to cen- pore’s Ministry of the Environment. The water
tralise and coordinate flood management4, under agenda also had support at the highest level of
the government’s Public Works Department. One government. “Every other policy had to bend at
valuable engineering legacy implemented by the the knees for our water survival” recalled Mr Lee
British was the separation of the stormwater col- Kuan Yew.
lection and sewage systems; drains only captured The Water Master Plan of 1972 charted a vision
rainwater, enabling, much later, the creation of for Singapore’s water self-sufficiency. It included
urban water catchments. several unconventional proposals such as turning
Decolonisation plans called for Singapore to be the island into an urban water catchment, the rec-
part of the new Malaysia, in which the city-state lamation of water from sewage, and desalination.
would formally merge with neighbouring Malaya However, technology of the time was too costly
as well as North Borneo and Sarawak. However, to make the latter two objectives feasible, but the
less than two years after being part of the newly- proposal to develop urban water catchments was
independent Malaysia, Singapore separated from implemented.
Malaysia in a sudden turn of events in 1965. The In the first step of transforming Singapore into
vulnerability of the small new nation-state with- an urban catchment, activities and industries that
out a hinterland to rely on was not lost on its lead- caused water pollution were curtailed. From 1977
ers, who acted quickly to ensure that the founda- to 1987, the landmark clean-up of the Singapore
tions for the country’s survival were taken care of. River and Kallang Basin relocated street hawkers
Foremost amongst the various concerns for and slum-dwellers to hawker centres and public
Singapore was its water security. Then Prime housing. Pig farms, which produced highly-pol-
Minister Mr Lee Kuan Yew had not forgotten how luted discharge, were phased out in 1984. To pro-
water was a lever in forcing Singapore to sur- tect water catchments from industrial pollution, a
render during the Second World War. “When the ‘negative list’ prevented polluting industries from
Japanese reached Johor in early February 1942, ‘setting up shop’ in Singapore. A cap on urbanisa-
244 ISOCARP
Figure 2: Singapore River in 1977, before the river clean-up.

Source: Urban Redevelopment Authority, Singapore
tion was also imposed to keep land use intensity of water to households no longer necessitated
at 34.1% of the land area in unprotected catch- water rationing. By 1982, Singapore was con-
ment areas, as planners were cautious about the sidered malaria-free. Five years later, it no longer
impacts of urban development on the integrity of relied on night soil collection for sewage manage-
water catchments.7 ment.8 In 1987 the clean-up of the Singapore Riv-
As the urban landscape rapidly developed in er was completed, and the first Mass Rapid Tran-
the 1970s and 1980s, the drainage and the sewer- sit stations were opened. In stark contrast to just
age teams of the Ministry of the Environment twenty years earlier, when only 45% of primary
worked to quickly put in the necessary infrastruc- school students made it to secondary school, 94%
ture before residential and industrial develop- of all school-age Singaporeans completed both
ments were built. Then, engineers faced a slew of primary and secondary school education.9
challenges. On top of addressing existing prob- Maslow’s hierarchy of needs is not absent from
lems such as the reduction of flood area, these Singapore’s development history. As the more
teams had to pre-empt the challenges that would fundamental concerns such as the provision of
arise from urbanisation, such as increased flood- basic public health services, water and electricity
ing. Besides addressing environmental problems, supply, education and housing were addressed,
the functions of drainage and sewerage would Singapore was able to focus on more ambitious
eventually also serve the purpose of water supply targets. It now had the resources to realise the
for Singapore. other parts of the vision set out in the 1972 Water
Master Plan.
A MATURING NATION A key development to boosting water self-
sufficiency in Singapore was the innovation of
By the 1990s, Singapore had come a long way in NEWater, which is water reclaimed from treated
its development, driven by the commitment of wastewater (or ‘used water’) through the re-
public service leaders to ensure the city-state’s verse osmosis process. Singapore had already
survival and provide better prospects for its cit- considered the idea of recycling water since the
izens. For example, a steady, continuous supply 1970s. However, the breakthrough in water rec-
REVIEW 10 245
lamation technologies only occurred in the 1990s, plants’. The PUB also engaged the media and com-
when manufacturers were able to produce mem- munity leaders to help instil public confidence in
branes of good quality and at lower costs. With the water reclamation process, and established a
more reliable and more affordable technologies, visitors’ centre to explain the stringent water treat-
the Public Utilities Board (PUB) stepped up its ef- ment process and why NEWater is safe to drink. In
forts at making the recycling of water in Singa- 2002, NEWater made its official debut when then
pore a reality. In 2000, the PUB embarked on two Prime Minister Goh Chok Tong led 60,000 people
years of intensive trials at a demonstration water in a toast to Singapore with NEWater at the Na-
reclamation plant. In addition, cross-border polit- tional Day Parade in 2002.
ical tension with Malaysia in 2001 put threatening Because NEWater is ultra-pure, it is preferred for
clouds over water supply from Malaysia and trig- use by wafer fabrication plants. Today, NEWater
gered the push for the development of recycled has mainly been used for industrial and air-con-
water as an alternative water source. ditioning cooling purposes at wafer fabrication
A key obstacle, however, was the ‘yuck factor’ parks, industrial estates, and commercial buildings
associated with reclaiming water. To encourage in Singapore. To ensure the reliability of this water
public acceptance, the term ‘used water’ is used resource, an extensive range of tests, amounting
in place of ‘wastewater’ to reflect the mindset that to more than 110,000 to date, and internal and
water can be re-used. In Singapore, the more posi- external audits are conducted regularly to ensure
tive name ‘NEWater’ was given, and sewage treat- that NEWater continues to meet international
ment plants were rebranded as ‘water reclamation drinking water standards.
246 ISOCARP
Figure 3 (left): Treated used As an extra precaution, the Figure 4 (top): The Marina Figure 5 (bottom): An organ-
water enters the microfiltration water is passed through Barrage separates the Marina ised kayaking activity in the
modules on the left, before high-intensity ultraviolet Channel from the sea, thus Marina Reservoir. It is organ-
going through reverse osmosis light for disinfection. The creating a freshwater reservoir ised by residents in Kolam Ayer,
on the right. The reverse product is NEWater, a high- a neighbourhood adjacent to
osmosis process is able to grade reclaimed water that is the Kallang River which flows
separate water molecules from ultra-clean and safe to drink. into the Marina Reservoir.
dissolved solids, viruses, and Source: PUB, Singapore’s Source: PUB, Singapore’s
bacteria, producing pure water. national water agency national water agency
REVIEW 10 247
During the 1990s Singapore also started ex- reflected the strong will and focus on water self-
ploring desalination as another source of water. sufficiency in Singapore.
In 2005 Singapore’s first desalination plant was Beyond water supply, Singapore also re-
opened, as the PUB’s inaugural public-private cognised the importance of managing water
partnership project (PPP), with the capacity to demand. The ‘Water is Precious’ campaigns from
produce 30 million gallons of water per day. This the 1970s, which aimed to nurture water-saving
new water source added to the city-state’s capabil- habits, have evolved into a slew of multi-pronged,
ities to be more self-reliant and sustainable. stakeholder-specific initiatives today to encour-
The Marina Barrage was another key develop- age water conservation, such as the 10-Litre Chal-
ment. It was originally conceived by former Prime lenge, which encourages residents to reduce their
Minister Lee Kuan Yew as a drainage project at the daily water consumption by 10 litres.11 The idea,
mouth of the Marina Channel to alleviate flood- still, is for people to recognise the importance of
ing in the low-lying central area of Singapore. water and to actively do their part to reduce water
With improvements in membrane technology consumption. The role of pricing as an economic
and falling costs of operations and maintenance, signal to consumers was also recognised. In 2000,
it became possible to treat raw water from this water prices were adjusted to reflect the marginal
highly-urbanised catchment which comprised cost of water. In addition, mandatory measures
about one-sixth of Singapore’s total land area. The were introduced, such as the use of water-efficient
idea was extended to create a freshwater reser- appliances. The water agency has also meticulous-
voir at the heart of the city by building a barrage ly controlled the amount of water lost through its
across the Marina Channel, boosting Singapore’s own network of pipes, bringing unaccounted-for-
water supply while also acting as a tidal barrier. In water in Singapore down to just about 5%.12
addition, it was designed as a lifestyle attraction to
optimise its function in the city area; what could WATER AS AN
have been a grey utilitarian facility now houses a ENVIRONMENTAL ASSET
gallery, water playground and food outlets, with
an open-air, green rooftop serving as public space As Singapore matured, the priorities of its people
for families and the community. The barrage also evolved. The 2001 Concept Plan, which guides
regulates water levels at the Marina Reservoir and long-term physical development for the next
the waterways in its catchment, facilitating water forty to fifty years, outlined a vision for Singa-
activities such as kayaking and dragon-boating. pore as a ‘great place to ‘live, work, and play’. It
These developments in the 1990s and 2000s recognised that there was a need to provide
required different functional lines in the public more lifestyle and recreational options for Singa-
service to work together. For example, NEWater poreans. In land-scarce Singapore, this meant
required close collaboration between PUB, which optimising land use not only to advance Singa-
looked after water supply and the regulation of pore’s development as a vibrant city, but also to
electricity and gas, and the former Sewerage De- enhance Singaporeans’ sense of ownership and
partment under the Ministry of the Environment. rootedness to the city-state.
Operating the Marina Barrage also meant that Several initiatives were explored to ensure that
PUB and the former Drainage Department under water policies and infrastructure supported the
the Ministry of Environment needed to work optimisation of land use. For example, the urbani-
together. To streamline these functions, PUB was sation cap was lifted in 1999, when it was shown
reconstituted in 2001 so that it would have a hol- that water quality in reservoirs did not deteriorate
istic overview of all water-related functions. The significantly despite development in their catch-
electricity and gas regulation functions of the old ments. In addition, the odour buffer distance
PUB were subsumed under the Energy Market Au- between developments and water reclamation
thority, also formed in 2001.10 On the other hand, plants was reduced when the plants were cov-
the Drainage and Sewerage Departments from ered up.
the old Ministry of the Environment were moved More significantly, the Deep Tunnel Sewerage
under the charge of PUB. This institutional shift System collects used water via a system of deep
248 ISOCARP
Figure 6 (top): Parks and Figure 7 (bottom): Kayakers at

Waterbodies Plan 2002. This MacRitchie Reservoir.
is Singapore’s first Parks and Source: PUB, Singapore’s
Waterbodies Plan, designed national water agency
to guide the development
of Singapore’s parks and
waterbodies for a more liveable
city. It has since been updated
by revised editions of the plan.
REVIEW 10 249
Figure 8: The mangrovelined Sungei Api

Api flowing through a housing estate in
Pasir Ris, a town in the northeastern part
of Singapore. Source: PUB, Singapore’s
national water agency
tunnels for treatment at a centralised water rec- tivities in 2004, and kayaking was introduced at
lamation plant at Changi, in the eastern tip of MacRitchie and Bedok Reservoirs. These efforts
Singapore. With this system, some of the conven- made water bodies more accessible to the pub-
tional water reclamation plants in various loca- lic, bringing people closer to water, and allowing
tions across Singapore were decommissioned, them to appreciate the importance of Singapore’s
thereby freeing up valuable land for other uses. water resources – a stark contrast to the earlier
Water bodies and water catchment areas be- days when reservoirs were out-of-bounds.
came recognized as lifestyle and recreational Drains and waterways were also part of the
places for the Singaporean community, particu- equation for improving the quality of life in
larly since the major woes of overcoming water Singapore. To keep up with the rapid pace of de-
scarcity had substantially been addressed. In velopment in the 1970s and 1980s, drains were
2002, the Parks and Waterbodies Plan mapped constructed in the fastest ways possible to al-
out previously unexplored areas for recreational leviate and pre-empt flooding. This resulted in
activities. For example, trails and boardwalks a network of concrete, utilitarian-looking canals.
were introduced in the Central Catchment area It was the mission of the Water Bodies Design
surrounding MacRitchie Reservoir. Landscaped Panel in the 1990s to improve the aesthetics of
linear pathways, or the Park Connector Network, the drains in Singapore, using methods such as
linked one park to another and were mostly lo- installing railings with aesthetic design, retain-
cated along major waterways. In the same vein, ing water in the drainage channel, and using
PUB opened up its reservoirs for recreational ac- foliage to mask the dry canal.13 The mangrove-
250 ISOCARP
Kranji Reservoir
Punggol
Reservoir
Lower Seletar
Reservoir
Serangoon
Reservoir
MacRitchie
Reservoir
Jurong Lake Bedok Reservoir
Pandan Reservoir
Marina Reservoir Completed Projects
Upcoming Projects
Sentosa
ABC Waters Certified Projects
by Public and Private Agencies
Figure 9: Singapore has an extensive network Singapore’s reservoirs, inculcate a greater

of about 8,000km of waterways. Leveraging community appreciation of Singapore’s
on this vast network to enhance liveability, precious resource, as well as improve the
the Active, Beautiful, Clean Waters programme aesthetics of the urban environment. Source:
helps to cleanse urban runoff entering PUB, Singapore’s national water agency.
BEFORE AFTER
Figure 10: Before its redevelopment, the together to revitalise and integrate this stretch
stretch of the Kallang River along Bishan Park of the Kallang River with Bishan Park, creating a
divided the towns of Ang Mo Kio and Bishan. naturalised, meandering river
The National Parks Board and PUB worked Source: PUB, Singapore’s national water agency
REVIEW 10 251
Figure 11 (top): Students Figure 12 (bottom): Learning

learn about the importance of about the flora and fauna in
conserving water and keeping a waterway. Source: Source:
Singapore’s waterways clean PUB, Singapore’s national
during an Active, Beautiful, water agency.
Clean Waters Learning Trail at
Lower Seletar Reservoir. Source:
Public Source: PUB, Singapore’s
national water agency.
252 ISOCARP
lined Sungei Api Api is one signature project Building up interest in water
which was steered by the Panel. When the resi- The opening up of reservoirs for recreational ac-
dential development in the Pasir Ris area was tivities and the ABC Waters programme enabled
proposed, marginally more land was allocated the PUB to take a different approach to public
to Sungei Api Api than if it had been designed as education. The availability of such outdoor spaces
a concrete channel. This meant that Sungei Api near water allowed for more participatory, place-
Api could accommodate the mangroves whilst based learning to take place. This was a more en-
meeting drainage needs. In addition, the Water gaging (and less propagandistic) way to convey
Bodies Design Panel commented on develop- the two main messages of conserving water and
ment proposals to ensure that developments keeping water catchments clean to the various
near to waterways undertook efforts to beautify stakeholders in the country. It also encouraged
the adjacent drains and canals. joint ownership of water among the public, pri-
In 2006, PUB launched the Active, Beautiful, vate, and people sectors.
Clean Waters (ABC Waters) programme, with the The importance of generating interest in water
objectives of providing new community spaces, was recognised, not only to cultivate desirable
integrating reservoirs and waterways with the habits, but also to nurture a new generation of
urban landscape, and improving water quality. people dedicated to addressing water challenges.
On the one hand, the ABC Waters design fea- An offshoot of Singapore’s earlier investments in
tures, such as rain gardens, bio-retention swales, water technologies was the emergence of a thriv-
and constructed wetlands improve water quality ing cluster of water companies based in Singa-
in the urban environment. On the other hand, it
was a platform for what is now known as blue-
green infrastructure in the city. The ABC Waters Figure 13: The Singapore
projects led by the PUB incorporated hydro- International Water Week is
a platform where thought
logical, ecological, and community considera- leadership on water sustainability
tions in their design. For example, the Kallang is exercised (top) and where ideas
River @ Bishan-Ang Mo Kio Park, a flagship pro- can be exchanged between water
practitioners from across the globe
ject under the ABC Waters programme, has been (bottom). Source: PUB, Singapore’s
transformed from a utilitarian-looking concrete national water agency.
canal into a naturalised stream.
Similar to how developers were instrumen-
tal in the agenda of the Water Bodies Design
Panel, the PUB recognised that influencing the
developers, who are key to shaping the physical
landscape of urban Singapore, was important
for the ABC Waters programme to be truly suc-
cessful. The ABC Waters Design Guidelines serve
as a reference for partners in the urban develop-
ment industry to incorporate ABC Waters fea-
tures in their projects. In 2010, the ABC Waters
Certification scheme was started as an incentive
to recognise public and private sector organisa-
tions that embrace the ABC Waters concept in
their developments. In addition, the ABC Waters
Professional programme was launched the next
year. Targeted at development practitioners, it
aims to build up competencies, covering a spec-
trum of skills from the design and conceptualisa-
tion to the implementation and maintenance of
blue-green infrastructure.
REVIEW 10 253
pore, such as Hyflux, Keppel Seghers, and Sem- change will have an impact on water resources,
bcorp. The seed for a thriving water industry in bringing about more intense rainfall, but also
Singapore had been sowed. In 2006, the Environ- more extreme dry spells. One the one hand,
ment and Water Industry Programme Office was more frequent events of more intense rainfall
set up to further promote research and develop- challenge Singapore’s drainage capacity. On the
ment in environmental and water technologies. other hand, Singapore also recently experienced
Also, the Singapore International Water Week was dry periods in 2010 and 2014, with February 2014
launched in 2008 to bring together people in the being the driest month since the 1869. Amidst a
water sector from around the world to exchange denser urban environment and more uncertain
best practices in water administration. Riding on weather patterns, novel ways are needed to keep
Singapore’s knowledge and experience in water the city-state liveable and sustainable.
management, these initiatives helped to support A present challenge is that Singapore’s drain-
Singapore’s knowledge-based economy. age and sewerage infrastructure, put in place
More importantly, these initiatives set up a vir- some thirty to forty years ago, is ageing and
tuous cycle of water innovation, and contribute needs to be improved. A substantial amount of
to capacity-building in solving water challenges excavation needs to be done in public spaces
around the world. The biennial Singapore Inter- to replace old underground pipes or to expand
national Water Week 2014 achieved $14.5 billion drains. However, due to tight space constraints in
in awarded projects, tenders, investments and urban Singapore, this will possibly disrupt traffic
memoranda of understanding concluded at the and cause disturbance to residents. Concurrently,
event, thereby reinforcing cities’ commitment Singaporeans today demand faster information
to developing sustainable water solutions14. As flow and are more questioning. Project engineers
former Prime Minister Mr Lee Kuan Yew said, “We therefore not only need to navigate a more chal-
did not do this by ourselves. We climbed on other lenging work environment, but also need to be
people’s shoulders. We brought this [technology] prepared to manage higher public expectations.
together and improved on them. We’re happy In addition, there are constraints to the extent
to have people climb on our shoulders, whether to which infrastructure can be improved, espe-
they are from the Middle East, China,India… It’s cially if the efficacy of the infrastructure is closely
a collaborative effort. The world will need this coupled with the amount of space it occupies. In
because what we have assumed was limitless 2011, drainage design standards in PUB’s Code of
— endless supplies of water — is not so. We’ve Practice on Surface Water Drainage were raised
found it not to be so, and that we’ve got a way to cater for higher-intensity storms. However,
out of it.”15 in a densely-built urban environment, there are
limitations to the degree to which drains can
KEEPING SINGAPORE LIVEABLE be widened. Whilst the public drainage system
AND SUSTAINABLE will be improved as far as possible, PUB’s holistic
“source-pathway-receptor” approach also looks
In 2013, the government of Singapore published at other localised measures to enhance flood pro-
a population White Paper, which anticipated tection.16 These will become more important so
a possible population increase of 1.5 million as to build in more adaptability and flexibility in
people by 2030, above the current population of the face of climate change. For example, deten-
5.4 million. To support a growing population and tion tanks can help to store excess stormwater
economy, water demand in 2060 is expected to during a storm event. In Opera Estate, a low-lying
almost double from the current 400 million gal- part of eastern Singapore which used to experi-
lons a day. This increased demand will be met by ence frequent floods, there is a detention tank
increases in energy-reliant NEWater and desalin- located under a school field which temporarily
ated water which will constitute up to 55% and stores the overflow from the Opera Estate Out-
25% of Singapore’s water supply. let Drain during heavy rain. As another example,
Singapore’s total land area, however, will not blue-green elements such as the ABC Waters de-
increase substantially. Furthermore, climate sign features which can retain water also help in
254 ISOCARP
Figure 14 (top): In fifty years,

the non-domestic sector will
constitute 70% of Singapore’s
water demand, while the
domestic sector will constitute
30% of demand. NEWater
production and desalination
will be ramped up to meet this
growing demand, comprising
55% and 25% of Singapore’s
water supply respectively.
Source: Public Utilities Board,
Singapore
Figure 15 (bottom): PUB’s

holistic “source-pathway-
receptor” approach to
stormwater management aims
to build in more adaptability
and flexibility to Singapore’s
drainage systems. ‘Source’
solutions slow down runoff from
developments into the public
drainage system, ‘pathway’
solutions increase the capacity
of existing canals, and ‘receptor’
solutions protect infrastructure
from being flooded
Source: PUB, Singapore’s
REVIEW 10 255
overall stormwater management, and soften the

urban landscape.
The challenges posed by a denser living environ-
ment and a growing population and economy are
not new: Singapore had already been continu-
ously tackling them as far back as 1965 when it
needed to build a new nation that aligned with
the aspirations of a generation of post-war baby-
boomers. Through foresight, meticulous plan-
ning and execution, and good urban governance,
Singapore has been able to meet the needs of its
people. Adapting to climate change and a more
inquiring population are among the new factors
in the ‘ball game’, and these can be embraced with Figure 16: A raingarden at
similar governance principles and tools. Balam Estate in Singapore,
where runoff is first filtered
The ability to transform water from a scarce through densely planted
resource into an environmental and economic surface vegetation and then
asset in about half a century is testament to what through an engineered filter
media later.
Singapore has achieved so far, and what it can Source: PUB, Singapore’s
achieve in the future. national water agency.
256 ISOCARP
Figure 17: The Centre for Liveable

Cities (CLC) developed the CLC
Liveability Framework, which distils key
learning points from Singapore’s urban
development experience to serve
as a guide on how to plan and build
liveable cities. What has thus far helped
to achieve Singapore’s outcomes of a
Sustainable Environment, Competitive
Economy, and High Quality of Life, are
10 implicit principles grounded by 2
key pillars: Integrated Master Planning
and Development, and Dynamic Urban
Governance 17
Source: Centre for Liveable Cities,
Singapore
REVIEW 10 257
THE RELATIONSHIP
BETWEEN WATER
AND THE CITY
“Thirsty men cannot fight.” These words by Singa- Figure 18: Water, a precious
resource and an environmental
pore’s first Prime Minister Mr Lee Kuan Yew sum-
asset that Singaporeans value
marise the essential importance of water to hu- and enjoy.
man survival. It is on this foundation that cities, Source: Public PUB, Singapore’s
which are dense agglomerations of people, are
built. And cities prosper when water can be har-
nessed to support industrial activities.
But cities today also need to shed the image
of dense, polluted, inequitable, and unpleasant
living environments that hark of the Industrial
Revolution. They should be, instead, places for
creativity and human progress, where residents
can feel a sense of pride. Water has phenomenal
potential to transform cities in this way, as it can
soften the city’s appearance, cool the city, serve as
spaces for recreational and community activities,
and provide nodes of habitat for urban biodivers-
ity. Because it connects emotionally with people,
it can inspire the reflective individual, and calm
Endnotes
the pressured, busy city soul. 1 Department of Statistics Singapore 2013. Population Trends 2013.
Singapore sought to overcome its water scar- Available from: http://www.singstat.gov.sg/publications/publications_
and_papers/population_and_population_structure/population2013.
city through pragmatic long-term planning and pdf [29 April 2014]
2 Department of Statistics Singapore 2014. Latest Data. Available from:
close inter-agency coordination. As the city pro- http://www.singstat.gov.sg/statistics/latest_data.html [29 April 2014]
gressed, it transcended a utilitarian approach to 3 Department of Statistics Singapore 2014. Population and Population
Structure. Available from: http://www.singstat.gov.sg/statistics/
water management. Planners in Singapore have browse_by_theme/population/time_series/pop2013.xls [9 May 2014]
4 Tan, YS, Lee, TJ & Tan, K 2009, Clean, Green and Blue: Singapore’s
long recognised the potential of such blue-green Journey towards Environmental and Water Sustainability, ISEAS
infrastructure in improving the liveability of the publishing, Singapore
5 Lee Kuan Yew, at the Singapore International Water Week 2008
city-state. Along with a few cities around the 6 Agreement relating to the separation of Singapore from Malaysia as
an independent and sovereign State. Signed at Kuala Lumpur, on 7
world, Singapore is actively encouraging urban August 1965. Available from: https://treaties.un.org/doc/Publication/
planners and architects to weave water consider- UNTS/Volume%20563/volume-563-I-8206-English.pdf [29 April 2014]
7 Centre for Liveable Cities & Public Utilities Board 2012. Water: From
ations into urban design, to explore a new frontier Scarce Resource to National Asset, Singapore’s Urban Systems Studies
Booklet Series. Cengage Learning Asia Pte Ltd, Singapore
of liveability and sustainability in cities. 8 Tan, YS, Lee, TJ & Tan, K 2009, Clean, Green and Blue: Singapore’s
Journey towards Environmental and Water Sustainability, ISEAS
publishing, Singapore
9 ‘Singapore: Rapid Improvement Followed by Strong Performance’,
Strong Performers and Successful Reformers in Education: Lessons
from Pisa for the United States, OECD, 2010.
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statutes.agc.gov.sg/aol/search/display/view.w3p;page=0;query=
DocId%3A%22e5810b4a-404c-4ea0-ae9b-32829652c051%22%20
Status%3Apublished%20Depth%3A0;rec=0 [29 April 2014]
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from http://www.pub.gov.sg/conserve/Households/tenlitres/Pages/
default.aspx [5 May 2014]
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13 Water Bodies Design Panel 1993, ‘Aesthetic Treatment of Waterways’
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about Water,
15 Singapore International Water Week, 2008
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Future, Available from: http://www.pub.gov.sg/managingflashfloods/
Documents/ManagingStormwater.pdf [5 May 2014]
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Urban Solutions Issue 1 July 2012, pp. 58-63, Available from: http://
www.clc.gov.sg/Publications/urbansolutions.htm [25 May 2014]
258 ISOCARP
REVIEW 10 259
PLANNING TO MITIGATE HURRICANE DAMAGE AND TO INSURE THE CONTINUED GROWTH OF CANCUN AND ITS REGION
PLANNING TO MITIGATE HURRICANE

DAMAGE AND TO INSURE THE CONTINUED
GROWTH OF CANCUN AND ITS REGION
ISOCARP CANCUN URBAN TASK FORCE TEAM
Source B: http://fotografiasconhistoria.wordpress.com/2012/03/25/cancun-turismomexico/
Figure 1: Aerial view over

Punta Cancún
260 ISOCARP
ABOUT THE URBAN the world. Cancun’s population is approximately

TASK FORCE 500,000 inhabitants. Most ‘Cancunenses’ are from
Yucatan and other Mexican states. A growing
The Urban Task Force (UTF) is an ISOCARP initia- number of residents are from the rest of America
tive to provide expert and unbiased advice on and Europe.
pressing planning issues. The Cancun UTF was
organized in response to the damage inflicted HURRICANE WILMA
on the region by Hurricane Wilma. The intent AND THE DAMAGE IT CAUSED1
of the project was to provide local authorities
with a set of ideas designed to enable Cancun Wilma was the third Category 5 hurricane of the
to be better prepared for future hurricanes. An 2005 season. At its peak, it was the most intense
additional task was to propose alternative urban tropical cyclone ever recorded in the Atlantic
models for Cancun. basin and the tenth most intense globally.
On 21 October, Hurricane Wilma’s eye passed
BACKGROUND over the island of Cozumel. Then, around mid-
night on 22 October, it entered the mainland
For much of the 20th century, Cancun was an al- south of Cancun, with winds near 140 mph. Once
most unpopulated and undeveloped island just ashore, the eye slowly drifted northward, with the
off the coast of the Yucatan Peninsula. In the early centre passing just to the west of Cancun. Over-
1970s, the government of Mexico decided to de- land, it quickly lost some of its power, dropping
velop a tourist resort on Cancun. A causeway was first to a category 3 and finally to a category 2, still
built to link Cancun to the mainland, together a large and powerful hurricane. Although Wilma’s
with an international airport and an entire city intensity weakened, the storm had been under-
for workers, with housing, schools, and medical going a cycle of eyewall replacement prior to
facilities on the mainland. As a result the entire making landfall and had formed a double eyewall
development, both on the island and on the main structure. This unusual structure subjected the
land, assumed the name Cancun. region to four eyewall passes rather than the nor-
Despite initial skepticism that forced the Mex- mal two and led to a doubling of the area affected
ican government to finance the first eight hotels, by the hurricane winds2. Wilma passed northward
Cancun soon attracted investors from all over and out of Mexico early on 23 October.
REVIEW 10 261
Figure 2: Satellite image of Hurricane Wilma.

Source: http://dave.isom.us/wp-content/uploads/2012/01/Hurricane_Wilma_200510212015.jpg
In addition to at least three deaths and numer- Windblown branches, wood, and landscape
ous persons reported missing, the insured dam- materials also can become dangerous projectiles
age to Cancun was estimated to be between $5 during hurricanes; a coconut is reported to have
and $8 billion (USD). It was estimated that 95% penetrated a window and then an interior wall
of the tourism infrastructure was seriously dam- of a house near Puerto Morelos, as if shot from a
aged. A number of the beautiful beaches of Can- cannon. Landscape materials can also be blown
cun were washed away. Many houses were dev- around by the wind. In fact, landscape damage
astated, many commercial buildings sustained is such a reliable predictor of storm intensity that
damage, and many jobs were lost. it is one of the metrics used to categorize hurri-
There are three forces that caused the damage canes on the Saffir-Simpson scale.
to the Mayan Peninsula: wind, waves, and flooding.
Waves
Wind There are three types of wave damage: storm
Wind damage to buildings can be caused by deb- surge, overwash, and beach transport.
ris or from structural failure induced by the wind Storm surge is water pushed by the force of
itself. There was an enormous amount of glass the storm. There are five processes that act on
broken during Wilma. Such damage can lead to storm surge, of which two, pressure and wind,
water damage and even structural failure as the are the most influential. The extremely low pres-
hurricane force wind enters and causes a cascade sure found in Wilma’s centre pulled water higher
of interior door and even wall failures. near the centre of the storm so, as the center of
Roofs and signs are especially prone to wind-in- the storm approached the coastline, the water
duced failure. Roofs tear off and signs and various and waves in the ocean became higher. In addi-
outdoor standards bend and break. Wind damage tion, the friction of the waves piled the water up.
is responsible for most electrical service failures Wind direction also pushes waves higher, an ef-
during a storm. fect termed ‘wind set-up’, so that waves are higher
262 ISOCARP
Figure 3: Beach erosion and

wave damage. Source: Authors.
downwind and lower at upwind locations. and in the case of Wilma, the highest winds oc-
The slope of the seabed near the shore greatly curred from the east southeast, which resulted in
influences the amount of damage on the shore the scouring of sand along the northern reaches
from waves. If the seabed approach to the shore of the coastline. This scouring effect was especial-
is deep, there is less friction and the waves do not ly evident along the island of Cancun, and sand
build up. The seabed along the Yucatan Penin- deposition was greatest at southerly locations
sula is shallow, characterised by a gentle rise ap- along the coast. In Puerto Morelos, several small
proaching the shore. As a result surge builds into piers were buried in sand. Besides causing the
large powerful waves, with the potential for great obvious damage to swimming beaches, erosion
damage to structures near the shore. Mitigat- exposed foundations in some locations.
ing this situation are offshore reefs, which allow
waves to break, losing much of their power. Off Flooding
the island at Cancun, there are no reefs; the waves Rainfall from Wilma ranged from 9 to 14 inches.
build and roll in unabated. But south of Cancun, As the soil is thin and the underlying geology
the offshore reefs protect shore properties. consists of fractured, but only moderately por-
Overwash is the term for wave-driven seawater ous, limestone, water drained slowly in many
that flows over low areas along the coast and locations. In urban areas with large amounts of
floods interior areas. Overwash was not a major impervious surfaces, natural drainage was fur-
problem from Wilma, as the mainland is located ther challenged by the higher amounts of run-off.
on limestone bedrock that gently slopes upward Flooding was a major problem.
from the sea. There was some localised overwash,
which mostly affected mangrove vegetation.
Beach transport consists of the erosion and
deposition of sand along the shoreline caused
by waves. It is influenced by the wind direction,
REVIEW 10 263
Figure 4: (top) Damaged caused by

wind and flooding. Source: Authors
Figure 5 (bottom): Wave and wind

damage. Source: Authors
264 ISOCARP
PLANNING CONSIDERATIONS communicate these ideas to the local design pro-

TO MITIGATE FUTURE fessionals and builders.
HURRICANE DAMAGE
Waves
Wind Bathymetry along the coastline, completed in
First, it is important to note that the concrete the mid-1990s, can be used to model surge using
block and reinforced concrete construction meth- programs such as SLOSH (Sea, Lake and Overland
ods universally employed in urban centers such Surges) using the Composite approach which
as the Cancun region are far less susceptible to can simulate several thousand hypothetical hur-
wind damage than wooden frame structures. ricanes under differing storm conditions. Areas
Photos and buildings examined by the UTF did identified with higher surge damage probabilities
not display any evidence of major direct wind- might be deemed less suitable for development.
induced structural failures. There appeared to be Existing buildings in areas prone to surge damage
a small number of progressive failures, where the should be informed of the hazard, so the owners
roofs failed, and then some, or all, of the structure can implement mitigation efforts (such as the es-
failed. Such financial loss can be avoided by in- tablishment of energy reflective seawalls).
cluding building code requirements for improved Beach transport can be mitigated in highly de-
tie-downs, especially at edges. Despite the lack of veloped areas, such as the hotel on the barrier
structural failures, it is a good idea to require large island, through the constructions of groins. How-
buildings, especially those in an urban environ- ever, the effectiveness of groins to mitigate beach
ment, to undergo wind tunnel testing of both transport during a hurricane is doubtful. There
the building and the building’s neighborhood en- also is evidence that the construction of vertical
vironment and to insist that structural engineers seawalls exacerbates beach erosion. Beach ero-
perform load calculations on the building envel- sion and sand transport during hurricanes can
ope and rooftop equipment. In rural areas, how- only be mitigated by implementation of set-back
ever, it was reported that traditional wood and limits and the restoration of natural dunes and
thatched dwellings sustained serious damage. their associated vegetation. Whenever that is not
However, damage to glass was a major prob- possible, the construction of energy-dissipating
lem resulting from Wilma. Engineers have exten- types of sea walls can be used, but set-back lim-
sively studied the this kind of damage, and sev- its are still advisable. More detailed engineering
eral studies confirm that small missiles, such as studies should be made of this issue; some con-
roofing gravel and other missiles have sufficient sideration should be given to removing the exist-
strength to shatter even thick hotel windows ing vertical seawalls if possible, and construction
when propelled by hurricane-force winds3. While of new vertical seawalls along the beachfront
wind-borne debris may have been a major cause areas of the region should be prohibited.
of broken glass in the downtown, it appears likely
that glass damage to oceanfront structures might Other Damage Mitigation Considerations
have been the result of wind-induced changes Natural Features
in pressure along the outer shell of buildings, The natural topography of the region also contrib-
perhaps as a result of gusting. If this is to be pre- utes to the extent and duration of, and damage
vented, methods to shield the glass on new and resulting from, flooding. A new map produced as
existing buildings need to be developed and part of the UTF displays a series of three dunes as
implemented. The only reliable protection is to well as existing and fossilized mangrove swamps.
cover windows with other materials, such as Farthest to the right is today’s narrow coastal dune
wood sheets. Other types of wind damage from band, and next to it in light green lie today’s exist-
Wilma need to be collected, and the newer building mangrove swamps. Two elevated ridgelines
ing codes now in effect in Florida should be scru- made of ancient dunes are located to the east of
tinized for ideas to be incorporated in the local these swamps. They are shown in darker shades
building codes. It also is important, once specific of yellow. Behind each of these ancient dune sys-
mitigation techniques have been established, to tems are low-lying areas, the fossilized remains of
REVIEW 10 265
Figure 6: Ancient dunes: the

long yellow bands following the
coast as former shore line dunes.
Source: Authors’ design
266 ISOCARP
ancient mangrove swamps. These areas are shown the course of the UTF be used to accurately as-
in shades of darker green. All the fossil strandline sess and document beach transport as well as
and mangrove units were formed during Pleis- document areas where over wash occurred. Such
tocene Inter-glaciations, when the sea level was analysis can assist in documenting areas more or
equal to, or higher than, the modern level. less suitable for development, especially along
Flood water falling behind the fossil dunes the coast to the south of Cancun.
is collected and held in the lower ancient man-
grove areas. To drain, flood water must slowly SCENARIO PLANNING
percolate though the fossilized sand dunes, FOR CANCUN’S FUTURE
a process that can take several days or more.
Therefore, the ancient mangrove areas act as a Three main areas can be identified in Cancun’s
reservoir for flood waters. urban form. The first area consists of a narrow strip
Every effort must be made to preserve the ex- of 22 km extending North-South along the axis of
isting natural outfalls for flood water from man- Boulevard Kukulkan, between the Nichupté La-
grove swamps. Extensive construction in low- goon and the Caribbean Sea. This linear develop-
lying areas, the locations of ancient mangrove ment, aptly called the Hotel Zone, concentrates
swamps, should be avoided. Development par- tourism-related development with a multitude of
allel to the coast should be focused on the dune resorts, hotels, and support businesses, as well as
areas, and to preserve future development op- historical ruins.
tions, the continuation of quarrying of these areas The second area is known as Pueblo de Apoyo
needs to be carefully considered. Similarly, areas (literally, Support Town), and is located north of
excavated by the quarrying now represent areas the Kukulcan strip. Its distinctive pentagonal
prone to surge-induced flooding, and any con- shape was planned by Enrique Landa. This area is
struction in these areas should recognize this fact. otherwise known as Centro (downtown) and con-
Another way to reduce damage is to use decor- centrates a number of civil amenities such as the
ative planting materials, which are less suscept- city hall. Its character is mainly residential.
ible to wind damage, or to producing wind-borne The third area, Zona de las Regiones, located to
debris and projectiles. The use of plants native to the north of the Centro, is an attempt to cope with
the shoreline and region is highly recommended. Cancun’s considerable growth. The urban fabric
of this area consists of a large orthogonal carpet,
Sea Level Rise dedicated to residential use, with single family
The planning team secured information and ac- housing the dominant typology. Its capacity is for
tual measurement data about sea level change a remarkable half a million people. However, its
in the region from a variety of sources. However, roads are narrow, and open areas and civic amen-
much of the actual data was collected over a per- ities scarce.
iod of time, which makes interpretation unreli- Scenario planning is a group process that en-
able. As a result, it was thought prudent to rely on courages knowledge exchange and the develop-
a global coastal average of 3.7 mm/yr obtained by ment of a mutual deeper understanding of im-
Holgate and Woodworth 2004 (GRL 31, L07305) portant issues central to the future. The goal is to
as the best estimate for the peninsula. If this rate craft a number of diverging stories by extrapo-
continues, some sources project “a sea level rise lating uncertain and heavily influencing driving
of 0.09 to 0.88 m for 1990 to 2100, with a central forces. The team adopted this methodology with
value of 0.48 m”. Developments along the beach- the aim of provoking a thorough reflection on the
front coastal areas need to take sea level rise and challenges and opportunities facing Cancun.
its possible contribution to hurricane damage It is relevant to mention that the tourism in-
into serious consideration. dustry in Cancun will be an enduring element in
city planning. Therefore, it is to be noted that the
Further study tourism supply and demand economics for tour-
It is also recommended that the pre-Wilma and ism dictate specific planning requirements.
post-Wilma aerials collected by IMPLAN during Informed by a series of presentations with lo-
REVIEW 10 267
cal experts in regional and municipal planning, by large-scale tourism developers.

GIS and meteorology, and a number of dialogues Further expansion of the Hotel Zone along the
with representatives of the private sector, the coastline would increase the pressure on infra-
team elaborated the following three scenarios. structure and urban services, such as the provision
of energy and waste management. Emission will
Scenario A: “Ciudad Turismo” also increase, as well as land and water consump-
This scenario assumes that the region’s tourism tion. A larger service sector will result in increased
infrastructure, residential neighbourhoods, and stress to the workforce residential areas outside
commercial districts will continue to develop the city.
much as they have done in the past 35 years. It is expected that the density increase of the
The economic base of this scenario focuses on Zona Hotelera will lead to higher pressures on traf-
mass tourism. In this setting, the competitive fac- fic and very likely a congested situation at the con-
tor for Cancun can be described as “sun and sand necting intersection nearby the city centre.
at an attractive price”. Cancun’s competitors are This suggests that a broad and comprehensive
those destinations that can offer comparable cli- traffic strategy needs to be prepared, considering
mate conditions at comparable prices. The target public transport as a vital element.
consumers of this scenario are concerned with In this regard, it was made known to the team
price, a group that generally chooses all-inclusive that the local government is already considering a
packages for their holidays. Hence, the main actors multi-million dollar bridge across the Nichupte la-
in this model are the tourism industry integrators, goon. Whist Scenario A is the only one that would
international tour operators, and hotel chains, such create conditions which might support this invest-
as Barceló, Melia, and Starwood. ment, the UTF team recommends reconsidering
In tourism industry models based on the quan- the bridge project, as perhaps increasing intersec-
tity of visitors, the role of the host territory can be tion options and improving the circulation pattern
described as a provider of natural resources and at both ends of the Hotel Zone could render the
workforce for a fee. In most such cases, resource bridge unnecessary.
consumption (i.e. land, water, energy, waste) is very In contrast, the area existing between the air-
high, and the economic margin for locals rather port and the city centre is to be considered as an
low. The workforce’s required skills can be con- independent project that can be implemented in
sidered as low. The model’s labour force comprises parallel or at a later stage. It is believed that this
mainly low wage service industry workers, who development evidences little synergy with the
have reduced opportunities for cultural develop- scenario of mass tourism.
ment and little access to broader skills.
In this scenario, the role of institutional policy Scenario B: “Ciudad Central”
making can be considered marginal. The main ac- This scenario sees Cancun develop as a leading
tor in the scenario is the private sector, specifically commercial and service centre serving its sur-
travel industry integrators who control key ele- rounding region and a larger influence zone in
ments in the value chain (visitor’s transport from Yucatan and the Caribbean. The tourism industry
and to their origin, accommodation, leisure, and will be retained, but the main source of employ-
food and drink consumption), and commoditise ment would be in service-related jobs.
local resources and labour. The economic base consists of a combina-
Future development is assumed to preserve the tion of the currently existing tourism industry,
current lineal growth pattern and other tenden- which would be retained to some extent, with
cies previously established. The actual Zona Hotel- the addition of a cluster of services focusing on
era will increase its density. The Pueblo de Apoyo, the tourism industry reaching the Yucatan penin-
where the support workforce resides, is expected sula and the near Caribbean region. Services pro-
to grow, although to a lesser degree, based on the vided to the region can include financial services,
existing grid pattern extending in a northwest dir- telecommunications, education, health, trans-
ection. This scenario has a strong parallel with the portation, logistics and distribution, and light
coast development of Waikiki, Hawaii, dominated manufacturing.
268 ISOCARP
SCENARIO A SCENARIO B
SCENARIO C
Figure 7: First sketch of concepts.

REVIEW 10 269
The scenario’s competitive factor can be de- 2. Libramiento Merida -Playa del Carmen Cor-
scribed as “employment in paradise”, as the cap- ridor: An industrial district intended to serve
acity to attract skilled human resources to oper- the import-export activities of the region
ate the model is vital. The target consumers are with relevant trade/logistics components and
the professionals in addition to a less relevant infrastructure;
visitor figure. The model’s main actors are the 3. Cancun-Puerto Morelos Corridor: A regional
public sector, which is responsible for providing district that would contain a myriad of corpor-
the enabling policy and the required infrastruc- ate headquarters and professional offices, ma-
ture, and the corporations, which are required to jor health facilities, universities, and specialised
address a location commitment to create a servi- services. The international airport becomes an
ces critical mass. important node for commerce as well as tour-
Cancun’s resource consumption, as a regional ism, and the two ports are to be developed
centre providing services to support the regional as potential doors to the Caribbean. Some-
tourism industry, can be described as medium what like San Diego, California, this balanced
as the model calls for a compact, higher-density economic scenario necessitates a new vision
urban development. Margins for service-focused for future demographics and investment.
cities tend to be high if they are capable of ag-
gregating significant value for their surrounding Keeping its focus on the tourism industry, this
region. Education and cultural development are scenario contemplates a switch in target market
crucial in this scenario, as the economic model re- from mass tourism to a qualitative-based profile
quires high workforce skills, with special mention with fewer visits. In this setting, Cancun’s com-
to information and communications technology. petitive factor is its capacity to offer a distinctive
The role of institutional policy making is critical. tourist experience, adding cultural, educational,
Without the vision and initial impulse from the and health-related activities to those pull factors
public sector it is unlikely that the private sector expected to be found in a sun and sea destina-
can independently undertake such transformation. The target segment consists of tourists look-
tion, as it has neither enough human resources to ing for environmental quality, historical and cul-
implement such complex, comprehensive vision tural heritage, unique design and construction,
nor the financial mechanisms to avoid short-term and unparalleled service.
obligations. To make this model possible, close cooperation
The model will require a remarkable transform- between sectors is required.
ation in the accommodation stock, from hotel Institutional instruments must be put in place
rooms to condominiums to provide housing for to ensure quality in new development and stan-
professionals moving in. In addition, hospitals, dards of service, and to financially support the
schools, and other support facilities need to be transformation of the built stock from mass-ori-
upgraded or built from scratch. As much as the ented to increase its competitiveness in terms of
investment in infrastructure such as roads and quality. The dynamism of the local entrepreneur
airports is critical, so is a high expenditure in edu- is vital, as the model is based on a number of lo-
cation and cultural activities to both attract and cal private sector ventures rather than relying on
prepare professionals. large tourism industry multinationals. The con-
To fulfil the growth perspective foreseen in this cordance with environmental lobbies in develop-
scenario, urban development will need to be care- ment policy is also indispensable, as the model
fully planned, including a series of catalytic pro- needs the highest environmental standards to be
jects. Specifically, these comprise the site of the competitive.
new civic centre in Malecon and the creation of Future urban development is structured in
three major corridors in addition to the Hotel Zone: three distinctive axes: between the airport and
1. Via Lopez Portillo Corridor: A mixed-use district the city centre, along the extension of the high-
with an emphasis on small commercial/service way going westwards, and a bypass between the
developments that serve both local residents two main highways, connecting the airport and
and the building industry in the Hotel Zone; creating a compact, triangular urban lay out.
270 ISOCARP
These new city strips induce an increase in embedded in the natural beauty of the landscape.
urban density within the existing city grid. The For the demanding tourists, it provides a sense of
distinctive urban areas express a variety of pro- privacy, almost a thematic approach, which might
grammatic clusters that represent a diversifica- as well be one of the unique selling points of the
tion of economic activity. In general terms, the region. At the same time, the relative separation
Western Corridor acts as a small scale yet regional of the contained settlements makes it possible to
production and service area; the Southern Cor- diversify the tourism opportunities. The sprawl of
ridor as a more extensive industrial zone spe- the communities can be seen as an archipelago of
cialised in transport and value added logistics, different experiences.
taking advantage of the proximity of a relatively To reduce daily commuting, each village is
well equipped airport. The East Corridor will fea- to be accompanied by housing facilities for lo-
ture a cluster of universities, research, technology cal inhabitants that work in the tourist industry.
services, and government institutions. The model The small scale in the mix of locals and tourists
banks on the quality of landscape and climate in could even be one of the attractions of the vaca-
attracting highly educated human recourses from tion (authentic informality). The sprawl of small
all over the world. communities makes it possible for the ecological
The scenario assumes a diversification of eco- green zones function to as a whole; the urban
nomical activities in the city itself, an efficient settlements are just ‘plug-ins’. Normally, such lay
infrastructure network that is largely based on outs cause negative effects on the environment
connectivity and a strengthening of social net- because of increased mobility. To prevent this, the
works between management, knowledge, tech- communities should have an autarchic (self-suffi-
nology, and production. It is proposed that the cient) character: Cancun as the city of villages.
existing bus service be complemented by a light
rail system.
Scenario C: “Ciudad de Comunidades”

The “City of Communities” model would place
emphasis on preserving the environmental qual-
ity of the region and the redevelopment of a
number of communities within the region, such
SCENARIO B
as Puerto Juarez and Puerto Morelos, which have
grown organically around small ports to the north
and south on the Cancun city proper.
Tourism would continue to be a primary eco- SCENARIO C
nomic driver, but its territorial footprint will show
SCENARIO A
a dispersed arrangement which peaks, marking
GROWTH
these communities as well as other attractors

such as the cenotes (immense, deep, open wells)
located to the southwest of Cancun.
With some similarity to the smaller-scale de-
velopment of Oregon or New England coast-
lines, this model would decentralise the tourism
economy. It would also facilitate opportunities
1970 2000 2030
for more diverse tourism experiences and sup-
port ecotourism development at the cenotes and
coastal villages
In many ways, this scenario is the opposite of
Scenario A: tourism is scattered around in a much
bigger area along the Mexican Riviera. Small com- Figure 8: Urban forms - growth options.
munities of high-quality tourist compounds are Source: Authors’ design
REVIEW 10 271
ENVIRONMENTAL IMPACT MATRIX
ENVIRONMENTAL VARIABLES FACTORS OF THE LIFE QUALITY

EFFECT ON —> WATER URBAN
LAGOON MANGROVES FOREST REEF / BEACH NOISE AIR QUALITY
RESOURCES GREENERY
SCENARIO A
Hotel zone
Urban shape
Other settlements
Mobility
Airport
Urban utilities
SCENARIO B
Hotel zone
Urban shape
Other settlements
Mobility
Airport
Urban utilities
SCENARIO C
Hotel zone
Urban shape
Other settlements
Mobility
Airport
Urban utilities
EFFECTS: ADVERSE LESS ADVERSE NEUTRAL FAVOURABLE
Figure 9: Environmental
Impact Matrix.
272 ISOCARP
HURRICANE IMPACT MATRIX
POTENTAL DAMAGE WIND FLOODING STORM SURGE
SCENARIO A
Hotel zone
Urban shape
Other settlements
Mobility
Airport
Urban utilities
SCENARIO B
Hotel zone
Urban shape
Other settlements
Mobility
Airport
Urban utilities
SCENARIO C
Hotel zone
Urban shape
Other settlements
Mobility
Airport
Urban utilities
LESS MORE DAMAGE
Figure 10: Hurricane

impact Chart.
REVIEW 10 273
ENVIRONMENTAL (measured by the number of filled matrix cells

ASSESSMENT for each of them) can be considered as similar, it
should be pointed out that its differing plan ele-
The following evaluations have been prepared ments are affected differently in each scenario.
to allow stakeholders in the Cancun region to Scenario A shows the greatest number of ad-
compare the impacts of the alternative develop- verse environmental effects. Further and inten-
ment scenarios on the environmental and their sive development of the hotel zone around the
relative resistance to the destructive forces of lagoon, and the possibility of creating a new
hurricanes. The accuracy of assessment is limit- bridge across it, threaten the fragile ecosystem.
ed by the general nature of the assumptions and It will also exploit most intensively the beach on
information used, so the analysis operates only Cancun’s Zona Hotelera. The transport of tour-
with qualitative estimates which are meaningful ists, if still by buses and taxis, will adversely af-
solely for comparison purposes. fect the acoustic and air quality. Both hotel and
The analysis has been presented in the form municipal growth will increase the demand for
of matrices. For each alternative, the following water supply and public utilities. A second land-
plan components have been assessed: hotel ing strip for the airport will be needed, and its
zone, urban shape (city of Cancun), develop- construction will result in loss of forest and in-
ment of the other settlements within Benito creased noise, which will have a negative effect
Juarez municipality, mobility (understood as on fauna in the surrounding zone. Growth of
flows of people and goods as well as means of mobility between the city, airport, and Riviera
their transportation), airport, and public utilities Maya as well as within the sprawling area of the
(excluding transportation). city itself, will produce great volumes of air pol-
The environmental impact matrix compares lution and a high level of noise. Lower emphasis
both environmental and quality-of-life issues. on the development of the other settlements
The environmental features assessed are: within the municipality will have less adverse
Nichupté Lagoon; mangrove areas along the environmental impact.
coast (south of Cancun); forest systems; and In Scenario B the development impact less-
finally, reef/beaches. The quality-of-life issues ens on the lagoon (it is assumed to receive a
examined include water resources; noise level; nature conservation area status) and beach but
air quality; and urban greenery /landscaping. increases on the forest as the city will need to
The overall matrix shows the impact of each grow, despite the higher densities. The territorial
component within each scenario on each of the expansion can threaten the aquifer zone, which
environmental and quality-of-life variables. The supplies Cancun’s drinking water. The problem
classic environmental impact matrix analyses of worsening the life quality within the city will
separately its magnitude and importance, but be similar to scenario A.
due to the general form of scenarios, this im- In Scenario C, the environmental impact of
pact estimation is limited to a four-grade scale development is generally less strong than in the
of effects: adverse; less adverse; neutral; and other scenarios (in the Hotel Zone even the fa-
favourable. vourable effects can be expected), but it affects
The matrix estimating the potential hurricane a much greater area. The pattern of dispersed
impact uses three variables to address the prin- tourism will affect above all the natural areas
cipal detrimental factors of the hurricane: high- south of Cancun - the mangroves, forest, reef,
speed wind; rain flooding; and, storm surge. The and beaches although probably not so badly as
impact strength is estimated within a three- in Scenario A. The necessary mobility increase
grade scale: from the least to the most serious will still have strong effect on the quality of life.
potential damage (or from the most to the least Factors related to quality of life (especially the
resistant item). levels of noise and air quality) are most strongly
threatened by the developmental forces within
Scenarios and their environmental impact all scenarios. The adverse effects accumulate
Although the overall impact of all scenarios also on the lagoon and the forest in the Scenario
274 ISOCARP
Figure 11: People enjoying the

beach at Cancun. Source: Authors
A, the forest in Scenarios A and B and all environ- strong determination to improve existing condi-
mental variables in Scenario C. tions by creating strong relations with the con-
An analysis of the hurricane impact matrix text, through a clear sense of location, position,
shows that the biggest potential damage should and orientation.
be expected from Scenario A closely followed by This establishes a coherent urban environ-
Scenario C due to the concentration of growth ment that not only unlocks private sector de-
adjacent to the ocean. Scenario B represents the velopment possibilities but most importantly
highest flooding alternative due to an increase redefines the regional center structure with the
in the built area and the potential for greater creation of a coherent public place that enhan-
damage to utilities. ces the activity of its residents and users.
The Ciudad Turismo Scenario is believed to be
CONCLUSION the most likely if the government does not support
a revision of the current development approach.
It is likely that the scenario that best matches the The Urban Task Force estimates that Cancun will
future of Cancun results from a combination of recover from Wilma and follow a continued mod-
the three scenarios presented in this report. erate growth pattern with this scenario.
Therefore, many of the issues discussed in The Ciudad de Communidades would have an
each scenario would have to be addressed and improved growth pattern with a more distributed
planned. A successful urban planning strategy socio-economic base, and the Ciudad Central
in a complex urban fabric such as this requires a scenario would have the highest potential by cap-
REVIEW 10 275
Figure 12: The team of the

Urban Task Force. 4
Source: Authors
turing regional and international commerce com- Endnotes

1 We acknowledge the assistance of the following individuals
plementary with an expanding tourism industry. and institutions which provided invaluable information
Population projections for 2030 based about hurricane Wilma: Dr. Chis Pyke, US EPA, Global
Change Research Program; Lindy Dinaers, Hazard, NOAA
on these scenarios range from 1,500,000 to Coastal Services, Remote Sensing Service Center; Dr. Jim
Titus, US EPA, Sea Level Rise; Alan E. Strong, NOAA; Dr.
2,000,000, but the density would vary consider- Bruce Richmond, USGS; Christopher Junkins, Meteorologist,
ably, with the “mass tourism” model showing National Hurricane Center, Tropical Prediction Center;
Wayne P. Szameitat, Sales Manager, Optech Incorporated; Dr.
the highest density and the “ciudad de comuni- Edward Olsen, NASA, Jet Propulsion Laboratory; Dr. Bjorn H.
Lambrigtsen, NASA, Jet Propulsion Laboratory.
dades” model the lowest. 2 National HurricaneCenter release 11 PM EDT SAT OCT 22
In the end, Implan’s challenge will be to create 2005
The center of Wilma has moved off of the northeastern coast
a master plan for the municipality that considers of the Yucatan Peninsula....
The plane also reported the remains of an inner eyewall...
the same factors forming the basis for the UTF and an outer eyewall with a diameter varying between
program: promote economic opportunities, so- 60-80 n mi. Wilma is currently trying to finish an eyewall
replacement cycle that began almost 48 hours ago....
cial equity, and environmental quality. 3 See: http://www.wbdg.org/design/env_wind.php
4 ISOCARP Team Members: Pablo Vaggione, Spain – Team
Cancun/the Mexican Riviera is an extraordin- Leader; Ismael Fernandez, Mexico - VP UTF; Alvaro Arellano,
ary place that has the potential to be one of the Mexico; Krystyna Mieszkowska, Poland; Jim Reilly, USA;
Ric Stephens, USA; Hein Struben, Netherlands; Gijs Wolfs,
most memorable tourism experiences, a vital Netherland. IMPLAN Team Members: Eduardo Ortiz Jasso,
Director; Margret Bongers; Rocio Garza Leonard; Luis
Caribbean trade centre, and an environmental Ernasto Perez Fernandez; Isaac Rincon Garcia; Gerardo Garcis
heritage for the people of the Yucatan, Mexico, Beltran; Angel Lorento Viruel. A special thanks to Dr. Paul
Blanchon, Universidad Nacional, Instituto de Ciencias del
and the world. Mar y Limnolgis, Reef Systems Unit.
276 ISOCARP
REVIEW 10 277
ARTICLE FOREWORD TWO
278 ISOCARP
REVIEW 10
FOREWORD TWO
279
© Image courtesy of Gdynia Municipality. Photo by: Tadeusz Urbaniak/ZMPG-a S.A.
ABOUT THE AUTHORS
ABOUT THE AUTHORS* BALLANEY, SHIRLEY

Shirley Ballaney is an architect
urban planner with over 18 years
of rich consulting experience in
urban and regional planning. She
currently heads Environmental
Planning Collaborative (EPC) a not-for-profit, planning
research and advocacy organization that works with
local governments and other agencies, and is also a
Senior Principal Planner at HCP Design, Planning and
Management (HCPDPM), a highly regarded architec-
ture, planning and project management firm in India.
She is engaged in several statutory urban planning and
research projects with an emphasis on transforming
the urban planning practice in India to make it more
effective in improving the quality of life in Indian cities.
She has successfully conceptualized, led and managed
several city/area plans and research projects. Through
her projects, she has set exemplary professional
standards and contributed to improving the planning
processes. Her areas of interest and expertise are
land use planning, land management issues in urban
areas, planning legislation, conducting negotiations
with stake holders and urban policy. She has written
numerous papers, presented at conferences and
now is a visiting faculty at the School of Planning and
Public Policy, Center for Environmental Planning and
Technology (CEPT), Ahmedabad and Adani Institute of
Infrastructure Management (AIIM) at Ahmedabad.
In 2005-6 she was awarded the Hubert Humphrey
Fellowship by the Department of States, US, to pursue
the Special Program in Urban and Regional Studies at
MIT, Cambridge, USA. She has received several fellow-
ships from the Netherlands Government, Swedish
International Development Agency and United Nations
University Japan. In 1992 she was awarded the Michael
Ventris Memorial Award for Architecture from the
Architectural Association, London.
NAIR, BINDU
Bindu Nair is a geographer, urban &
regional planner with over 17 years
of rich experience in the area of
statutory urban and regional plan-
ning. She has a significant portfolio
of planning and research projects. She has prepared
statutory Development Plans and Town Planning
Schemes for various cities in Gujarat, Maharashtra and
* in alphabetical order as per the Andhra Pradesh. She has worked on some path break-
last name of the ﬁrst author ing projects and has undertaken imperial research work
280 ISOCARP
ABOUT THE AUTHORS
such as - Inventory and Action Plan for Environmental FENG, XIAOXING

Assets in Greater Mumbai, Inventory of Public Lands in Feng Xiaoxing has a Master of Arts
Ahmedabad for WB. She is currently involved in prep- degree in Urban Planning from
aration of Development Plan for Morbi Wankaner Urban Tongji University. She serves as the
Development Authority in Gujarat. senior engineer, incumbent Deputy
Her key publications include ‘ Preserving and Revital- Director of New Town Branch of
izing Mumbai’s Environmental Assets, An Approach‘ Wuxi Bureau of Planning, and as the Director of Plan-
published in Journal of Landscape Architecture and ning, Sector of Construction Headquarters, of Taihu
‘Application of Satellite Images and GIS in the Prepara- New Town. She has over a decade of urban planning
tion of Development Plans: Case Study – Master Plan and management experience. During 2002 – 2006, she
for TUDA Region and Zonal Development Plan for was responsible for various types of planning in Wuxi
Tirupati Town’, presented at the Indian National Cartog- City. Since 2007, she has been mainly responsible for
raphers Association (INCA) Conference. planning and management work in Taihu New Town,
She was selected for an International Visitors Program which has won much praise for its sound planning
(IVP), by the US Department of State for a Special system, innovative ways and proper control and
Program in Sustainable Economic Development and implementation.
Environmental Protection, January 2003.
She is affiliated with HCP Design and Project Manage- GOLĘDZINOWSKA, ANNA
ment Pvt. Ltd. (HCPDPM), a nearly 50 year old firm that Anna Golędzinowska graduated
provides architecture, urban design, interior design, from the Faculty of Architecture at
planning and project management services and the Gdansk University of Technol-
Environmental Planning Collaborative (EPC) a private ogy. Since 2005 she has been
not-for-profit policy research and advocacy organiza- associated with the Department
tion that works with local and state governments in for Regional and Spatial Development at the Marshal’s
urban policy, planning and management. She can be Office of the Pomorskie Voivodship, where she deals
reached at bindu.na@gmail.com with issues of urban renewal, heritage and cultural
landscape conservation as well as development of
COLLETTE, CARLOTTA tourism infrastructure in regional development. Co-
Carlotta Collette is a member of author of Spatial development plan of the Pomorskie
the Portland areas’ elected Metro Voivodeship and the Spatial development plan of
Regional Government. She has held Tri-City agglomeration. Member Metrex Expet Group
that office for seven years. Her dis- on Intra-Metropolitan Policentricity (2008-2010) and
trict includes Oregon City, West Linn Expert team for revitalization formed by the Marshal
(across the Willamette River from the project site) and of Pomorskie Voivodeship (since 2008). Leader of the
six other Clackamas County cities, a portion of the city research project “Transformation of public space in a
of Portland, and large unincorporated neighborhoods medium sized town in conditions of market economy
in the county. She previously served on the Milwaukie, in Poland” at the Faculty of Architecture, Gdansk
Oregon, city council and was a public engagement University of Technology (since 2011). Member of
strategist for 14 years with the Northwest Power and ISOCARP and ERSA
Conservation Council, based in Portland.
HE, BIN
MOOSBRUGGER, KELLY Bin He is an urban planner in China
Kelly Moosbrugger is a planner with Academy of Urban Planning and
the City of Oregon City and project Design (CAUPD) Shenzhen Branch.
staff for the Willamette Falls Legacy Bin has worked as a planning and
Project. She received a Master of design consultant on a wide variety
Urban and Regional Planning degree of projects in China during past 10 years.
from Portland State University in 2012 after studying Bin’s work has focused on sustainable development
economics at the University of Florida. She has been a planning and urban design. His projects were mainly
professional planner for two years. located in Pearl Delta and Circum-Bohai-Sea, which
REVIEW 10 281
ABOUT THE AUTHORS
allowed him to participate and observe the urban Architecture from CEPT University and her Masters of
development in both northern and southern part of Architecture in Urban Design from Bartlett School, Uni-
China. He has been a project manager of multiple key versity College London. She lived and worked in London
planning projects in Dongguan Eco-industrial Park, for a few years before returning to India in 2011.
with continuous attention to Chinese eco-district With a focus on creating livable, sustainable and
development. inclusive cities, her most recent work is geared towards
improving the quality of the public realm and built
HU, XIANLI environment. While working as a design consultant
Xianli Hu was born in China in 1963. with HCPDPM, she has done a wide range of projects
She is the Director of Dalian Urban in urban design and regeneration which includes Race
Planning & Design Institute; a Course Park Master Plan for Rajkot, Bridge Underspace
senior engineer; national regis- Redevelopment for various bridges in Ahmedabad,
tered urban planner (first batch) Bhuj Lake Precinct Redevelopment, among many
and Hong Kong registered planner in mainland (first others. She is a visiting faculty at School of Architecture,
batch), as well as the master of the Dalian University of CEPT University and is currently settled and working
Technology. independently in Ahmedabad.
She has been engaged in urban planning work for
30 years, and in charge of a number of major urban LEE, RAYMOND KW
planning and design projects, including several which Raymond Lee was the Head of
have won prizes. She has published three papers in Energizing Kowloon East Office from
the international journals. In 1997, she authored the late October 2012 to May 2014.
subject report for the urban planning research confer- The Office is set up to facilitate the
ence between China and Japan, held by the United transformation of Kowloon East into
Nations Regional Development Center. In 1999, she another core business district of Hong Kong.
was involved in programming of “Dalian Urban Plan- Mr. Lee is now the Deputy Director of the Planning De-
ning in 100 Years”. In 2007, she also served as an editor partment, Government of HKSAR. He is a professional
for ‘Ideal Space’ magazine. town planner with extensive experience including
planning for the old airport site at Kai Tak, review of
WANGQUAN, KANG the Town Planning Ordinance, harbor-front planning
Kang Wangxuan was born in China and development, boundary closed area and cross-
in 1977. He is the Chief of Depart- boundary planning, and planning for new develop-
ment One in Dalian Urban Planning ment areas in the New Territories.
& Design Institute; a senior engin-
eer; national registered urban plan- SCHUBERT, DIRK
ner; the master of Shenyang Construction University. Dirk Schubert is professor for Urban
Planning, Comparative Plan-
LIN, LIN ning History, Housing and Urban
Lin Lin was born in China in 1983. Renewal at the HafenCity University
She is an engineer in Dalian Urban Hamburg. His research focuses on
Planning & Design Institute; Urban History, Planning History, History of Housing
national registered urban planner; and Urban Renewal, also Studies on Revitalization of
Bachelor of Tongji University. Harbour and Waterfront Areas in Seaport Regions,
City/Port Interface Areas. His latest books are “History
of Urban Renewal in Hamburg and London” (1997),
JOSHI, APARNA “Changes in Port and Waterfront Areas Worldwide”
Aparna Joshi is an architect and (2001, 3rd. ed. 2008), “Housing in Hamburg – A Guide-
urban designer with nearly a decade book” (2005), (with Uwe Altrock) “Hamburg- Growing
of varied work experience in Ah- City” (2005) and (with Axel Schildt) “Cities between
medabad, Dubai and London since Growing and Shrinking” (2005), “Contemporary
2004. She received her Bachelors of Perspectives on Jane Jacobs. Reassessing the Impacts
282 ISOCARP
ABOUT THE AUTHORS
of an Urban Visionary” (Ashgate 2014). He is the Vice- WONG, MERCY

President of the International Planning History Society Mercy Wong is a researcher at the
(IPHS) and has published in English, French, Turkish, Centre for Liveable Cities (CLC),
Spanish, Italian and Chinese journals and is the (co-) a division under the Ministry of
editor of periodicals like Yearbook of Urban Renewal, National Development, Singapore.
Planning Perspectives, Portus and Urban. Contact: Her interests are in urban planning
dirk.schubert@hcu-hamburg.de and policy-making, and how these can strengthen and
promote communities.
SERGI, GIOVANNI
Giovanni Sergi was born in Genoa VAGIONNE, PABLO
and nowadays lives with his family Pablo Vaggione is a spatial plan-
in Senigallia. Until March 1st, 2011 ning, development and man-
he was aggregate professor and agement specialist with over 18
university researcher of Town Plan- years of experience principally
ning at the Polytechnic University of Ancona. in emerging markets. He brings
Since June 2011 freelance architect and owner of together practical experience in the preparation of
architectural and town planning office in Senigallia. In strategic and action plans, a results-driven approach
June 2011 he submitted to the municipal administra- to the design of institutional frameworks and an
tion of Falconara Marittima a feasibility study for the extensive portfolio of operationally useful knowledge
realization of a technological park which is located management activities. He has worked in consultan-
very close to the regional airport. cies for most major International Financial Institu-
In 2013-14 academic year contract professor for a tions, including the Asian Development Bank, the
Town Planning course in the school of architecture of Inter-American Development Bank, the World Bank
Genoa and a Town Planning workshop in the school of and the Banco de Desarrollo de América Latina (CAF)
engineering of Ancona. in project leadership roles on the field as well as on
Since 1972 he has been working on issues related with research, facilitation and training. He is the author
the protection of historical centers and the relation of UN-HABITAT’s Urban Planning for City Leaders, a
between Plan and Project in planning procedures in guide for emerging cities intending to fill the gap
Italy, the Balkans and the USA. between the technical and the policy aspects of urban
Together with F. Begliomini, he curated Planning planning, one of the most consulted UN-HABITAT
Genoa. History, architecture, plan and town (1989). In publications worldwide. He served as Secretary
1996 Albania, ex-Yugoslavia. Urban growth, cultural General and Chair of the Scientific Committee of the
identities, sustainable development. Togheter with International Society of City and Regional Planners
L.Lagomarsino he curated Philadelphia, PA. Plans and (ISOCARP). In 2004 he founded Design Convergence
projects: 1960-1990 with preface by Joseph Rykwert Urbanism, a collaborative platform of independent
(1996). In 2010 Tirana, an emerging town. Urban experts which has provided technical assistance to cit-
policies, plans and projects.In 2012 he published with ies in Brazil, China, Kenya, Laos, Mexico, Mozambique
L.Lagomarsino “Problems of soil consumption”. In 2013 and Vietnam. He was the lead consultant to the bid of
“A study for the Old Town of Corinaldo”. the city of Madrid that received the World Leadership
Award in 2007 in the urban renewal category. He has
SHAN, LAU YING collaborated with the Economist Intelligence Unit in
Lau Ying Shan’s interests are in the preparation of the Green City Index comparing 54
the environment, and how people cities in Africa, Asia and Latin America. To these skills
interact with the natural environ- he adds familiarity in project partnerships with the pri-
ment. She is a Senior Engineer at vate sector. He has been appointed to the Urban Land
the Sustainability Office in PUB, Institute’s Content Advisory Group. He was one of the
Singapore’s national water agency. Rapid Urbanization thought leaders convened at the
Rockefeller Foundation’s Bellagio Center in 2012. He
has advised international investment consortiums in
emerging markets, as well as leading infrastructure
REVIEW 10 283
ABOUT THE AUTHORS
technology and energy companies, including Siemens 2001-2005 he was one of the lead-authors at the
AG and GDF Suez. Earlier in his career he was an Asso- European Commission for developing the European
ciate at Gensler, where he worked in the London office Marine Strategy Directive. In 2007 he was appointed
in assignments for leading property developers and as Secretary General of the International Commission
Fortune 500 corporations. for the Protection of the Rhine.
CANDIRACCI, SARA SCHULTE-WÜLWER-LEIDIG, ANNE

Sara Candiracci has 12 years of Anne Schulte-Wülwer-Leidig is
experience in the design, manage- limnologist and since 1988 Deputy
ment and implementation of urban Head of the International Commis-
and environment programmes in sion for the Protection of the Rhine
Africa and Latin America, in the (ICPR). In this position she has been
areas of urban planning and regeneration, environ- organizing, supporting and coordinating the trans-
ment management and conservation, informal settle- boundary co-operation processes within the Rhine
ments upgrading, urban cultural heritage manage- Commission. She is member of several working groups
ment and conservation, community development concentrating on different problems of water manage-
and poverty alleviation. She is currently working at ment. Since 2001 she is coordinating the implementa-
the Municipality of Maputo, Mozambique, as Urban tion of European directives in the international Rhine
Planning Advisor for the World Bank funded Municipal basin (Water Framework Directive, Directive on Floods).
Development Programme (ProMaputo), where she Since 1998 she is closely involved in preparing different
coordinates the development and implementation UNECE Guidelines on floods and monitoring issues and
of the urban and environment programme portfolio. since 2012 she is member of the Implementation Com-
She has previously worked with UN-Habitat (Kenya, mittee of the UNECE Water Convention.
Ethiopia, Uganda and Nicaragua), Inter-American
Development Bank (Ecuador) and various NGOs WENNERSTEN, RONALD
(Angola, Ecuador, Brazil, Russia). She holds a university Professor Ronald Wennersten is
degree in Architecture and Urban Heritage Conserva- from 2013 Chair professor in Indus-
tion and a Master Degree in Urban Planning from the trial Ecology and head of Division
University Institute of Architecture of Venice, Italy. She of Industrial Ecology, Institute of
is now conducting her PhD research on the evaluation Thermal Science and Technology,
of urban heritage cultural significance in the Global Shandong University, Jinan, China. He was 2002-2012
South and its application in urban regeneration and head of Department of Industrial Ecology at Royal
planning with the University of Naples Federico II, Institute of Technology (KTH) in Stockholm, Sweden.
Italy, in co-tutorship with the School of Design at the His research is focusing on models for transitions
University of Pennsylvania, U.S.A. and scenarios for more resource efficient cities. He is
engaged in several Eco City projects in China together
VAN DE WETERING, BEN with architects and urban planners. The aim with his
Following his graduation as research is to combine the ideas in Industrial Ecology
chemical engineer at the Tech- around material and energy efficiency with architec-
nical University Enschede in the ture design and urban planning.
Netherlands in 1975, Mr Ben van de He is guest Professor at School of Architecture, South-
Wetering started his career at the east University, Nanjing, China. Email: rw@kth.se
National Institute for Public Water Supply, followed
by a position at the National Institute for Inland Water
Management and Waste Water Treatment. At this
institute, he started his international career in 1984
as national delegate in several international fora. In
1995, he was appointed as Executive Secretary of the
OSPAR Commission on the Protection of the Marine
Environment of the North East Atlantic. In the period
284 ISOCARP
ABOUT THE AUTHORS
LIU, HONGLING East, Poland). In these projects he created a special

Hongling Liu is a PhD student at interest for the integration of water management in
the Division of Industrial Ecology, urban planning.
Royal Institute of Technology (KTH) Mark is currently responsible for the execution of stra-
in Stockholm, Sweden. Her research tegic plans and advices on water orientated planning
is about Low Carbon Eco-City plan- and design in The Netherlands, Poland, India and China.
ning in China with focus on resource efficiency.
Email: hongling@kth.se YU, KONGJIAN
Kongjian Yu received his Doctor
WISNIEWSKA, EDYTA of Design at the Harvard GSD. He
Edyta Wisniewska (MSc Archi- is the founder of the College of
tect and Urban Planner) - born in Architecture and Landscape at
Poland, 1979. Her studies were Peking University and Turenscape,
undertaken in both Poland and the an internationally awarded firm of architecture,
Netherlands, in both countries and landscape architecture and urbanism. Yu’s projects
she has professional accreditation with the Bureau received numerous international awards, including
Architectenregister in Holland. the 2009 ULI Global Award for Excellence, the 2010
In 2007 Edyta joined the oldest, multidisciplinary and 2012 ASLA award of Excellence, and 9 other
design studio in the Netherlands, KuiperCompagnons. ASLA Honor Awards (American Society of Landscape
She has worked extensively in the European Commis- Architects) , three time winner of the “Landscape of
sion and for several local governments of Dutch cities the Year” Award in the World Architecture Festival in
as a town planner. 2009, 2010 and 2011. Yu publishes widely; his current
Edyta has a passionate interest in the future of cities publications include The Beautiful Big Foot, Landscape
and in particular in the future of Polish cities. In her as Ecological Infrastructure and The Art of Survival.
current role she is fortunate enough to be able to Through his works, Yu tries to reconstruct ecological
combine these interests. Exploring the possibilities of infrastructure across scales and to define a new aes-
urban development in Europe and Asia she is focussing thetics based on environmental ethic. Yu was keynote
on the directions of the environmental, economic and speaker for the 40th, 43rd, 46th and 48th IFLA World
social development of cities. Her recent research work Congress, the 2006 and 2008 ASLA annual conference,
focusses on Central European cities located alongside and has lectured worldwide. Yu served the Master
rivers and how these urban areas can develop in the Jury for the Aga Kahn Architecture Award in 2010, and
future using the power of water as their natural engine. the Super Jury for 2011 World Architecture Festival,
Edyta has won many awards in the field of water he is currently teaching at Harvard Graduate School
oriented urban regeneration strategies including the of Design as visiting professor. The most recent book:
EO-Wijers prize in the Netherlands, Xinda Masterplan - Designed Ecologies: The Landscape Architecture of
Longqi Bay Shenzhen, China and Revitatilsation of the Kongjian Yu (William Saunders ed., Birkhauser, 2012)
City island – Srodka in Poland. explores Yu’s work in eleven essays by noted authors
and extensively documents 22 of selected projects.
NIESTEN, MARK Email: kjyu@urban.pku.edu.cn
Mark Niesten (The Netherlands,
1976) was trained as a landscape
architect at Wageningen University
and Research Center in The Neth-
erlands. He specialized in regional
and urban planning, with a focus on combining the de-
velopment of strong conceptual ideas with the actual
implementation of plans.
In recent years Mark has been assigned to a variety
of complex spatial planning and design projects in
The Netherlands and abroad (China, India, Middle-
REVIEW 10 285
ABOUT THE EDITORS
ABOUT THE EDITORS
SHI NAN
As ISOCARP VP Publications, Dr Shi Nan is the first re-
sponsible EXCO member in the area of producing and
distributing ISOCARP publications in different formats.
He has been the editor for Review 07 to 10. At home
he is the Secretary General of the Urban Planning Soci-
ety of China. His voluntary roles include Vice Director
for 3 national commissions on planning education,
professors at universities including Renmin University
of China, Harbin Institute of Technology, etc.
A productive author in China, Dr Shi Nan’s monthly
column for the respected academic journal CITY
PLANNING REVIEW, of which he is the chief editor, is
the most popular planning literature in China. Focused
on policy analysis and city comprehensive planning,
Dr. Shi Nan’s 32-year professional background includes
Senior Planner at China Academy of Urban Planning
& Design, advisory services to Madrid, Moscow, Sao
Paulo, Beijing, Shanghai, Guangzhou, Nanjing and
other Chinese Cities.
286 ISOCARP
ABOUT THE EDITORS
JIM REILLY FRAN KLASS

Jim Reilly began his planning career with the award- Fran Klass has been editing professionally for more
winning firm of Wallace, McHarg, Roberts and Todd, than 40 years, including stints with medical publish-
where he worked for nine years. His major assignments ers, a not-for-profit enterprise in the pharmaceutical
included portions of the Plan for the Inner Harbor, in arena, and a brief time spent in the world of “vanity,” or
Baltimore, MD; and elements of the Metro Systems in self- publishing. A graduate of The Pennsylvania State
Washington, DC and Baltimore, MD. Eventually Jim was University, now known as “Penn State,” Fran was an
a Senior Project manager for the Plans for Abuja, the English major with a minor in Secondary Education.
New Federal Capital of Nigeria. He then started his own After a few ill-spent years teaching high school
(but not financially successful) company developing English, Fran moved into publishing, where she has
computer programs to assess economic impacts from held positions ranging from proofreader to managing
planned improvements. Later, he worked for over 20 editor. Fran has been the managing editor of a medical
years as a senior planner and regional scientist for journal since its inception 30 years ago and continues
the State of New Jersey (USA) Office of State Planning to serve in this capacity to the present day.
and for the State of Maryland (USA) Department of Along with her husband, Jim Reilly, and their very
Planning. While at these state agencies, Jim conducted assertive Wheaten Terrier, Maggie, Fran spends her
statistical research about land use change and various non-editing moments scuba diving, playing tennis,
impacts associated with change. and catering to the aforementioned Maggie.
He is the author of numerous articles in various
refereed journals as well as the author of GAMe, a
computer model to predict future small area forecasts
of land consumption, population, and jobs.
Jim is a disabled veteran, having served in the US Army
(Reserves) Medical Corp for 25 years as well as two
wars. He is the recipient of 35 medals for his service.
Jim is now retired, happily married to Fran (see Associ-
ate Editor), scuba dives, fly fishes, and travels.
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ISOCARP WATER

No part of this publication may be

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6 ISOCARP President’s Foreword

RESTORING DISTURBED WATERWAYS

WATER AS AN AMENITY AND SETTING

156 A PARTICIPATORY PLAN FOR THE HISTORIC

HISTORIC RESTORATION AND RE-USE RELATED

190 THE WILLAMETTE FALLS LEGACY PROJECT:

RESTORATION OF WATER RESOURCES TO SUPPORT

212 INVENTORY OF ENVIRONMENTAL FEATURES IN MUMBAI, INDIA

PRESERVATION OF WATER-RELATED RESOURCES

242 WATER AND CITIES: THE SINGAPORE STORY

PLANNING FOR WATER-RELATED DISASTERS

280 ABOUT THE AUTHORS

ISOCARP President’s Foreword

Local Organizing Committee’s Foreword

From the Editors

DESIGNED ECOLOGIES FOR AN URBAN

Figure 1: In this summer enhancement. The working

THE CONCEPT sink of energy and services, rather than a source.

Figure 2: Design of New Flood

Figure 3: Regeneration of the river is designed hand-in-hand

Figure 4: North Development

Figure 5: Typical Development of

Figure 6: Pilot Project

Figure 7 (top): Liupanhsi: The Figure 8 (bottom): Liupanhsi:

WATER FRONT GREEN

Figure 9 (top): Liupanhsi: The Figure 10 (bottom): Master

Figure 11 (top): Figure 12 (bottom):

The site plan of Minghu Wetland

Figure 13: Site scale: design pedestrian connectivity. The

Figure 14: This scene, looking

Figure 15: A rainbow bridge city, the beauty of which has

Central Area of DEIP: with “lake islands” were shaped, and

growth, this fast urbanization led to severe en-

Energy Consumption/GDP Electricity consumption/GDP Energy Consumption

Figure 2: The location of DEIP.

Figure 3: Photos of original condition. Source: author

Figure 4: Regional Structure Proposal

Pragmatic Eco-values program reorganized the regional drainage sys-

Figure 5: Drainage and water quality improvement schemes.

Figure 6: Ecological regulation areas of DEIP.

and improvement. A new drainage operational human intervention. According to preliminary

Figure 7: Typical design of the

During past seven years, DEIP has been getting

Figure 11: The Water Scape

With the adoption of ecological methods and

CAUPD, 2006, Urban Hierarchical Planning of Dongguan (2005-

CAUPD, 2008, Comprehensive Plan of Dongguan Eco-Industrial

CAUPD, 2012, The Central Area Urban Design of Dongguan

CAUPD, 2013, Research on Low-Carbon and Ecological

Chinadialogue, 2011, Report on Environmental Health in the

Circular Economy Promotion Center of DEIP, 2012, The Policy

Jesse Dillard, 2009, Understanding the Social Dimension of

Ministry of housing and Urban Rural Development, 2010, China