Spatial planning is increasingly being considered as an important mechanism in coping with flood risk due to climate change. One of the reasons for this is that engineering approaches are increasingly expensive and cannot provide complete certainty of protection against climate-related floods. The thesis examines whether and how spatial planning is used in urban areas to promote resilience to flood
risk and climate change. In this study, planning is considered as the regulation of physical implementation as well as the process of policy-making that guides spatial development. This process mainly involves the interaction and collaboration between actors (both public and private).
The notion of resilience is being used more and more in discussions of complex issues like the impact of climate-related flood risks on spatial development. The interpretations of resilience can vary significantly depending on the local context,
the focus of spatial development and the interests of the actors involved in decision- making. The study proposes six characteristics of planning decision-making that
can help to promote the resilience of cities. These comprise: (i) considering the current situation, (ii) examining trends and future threats, (iii) learning from previous experience, (iv) setting goals, (v) initiating actions, and (vi) involving the public. The importance of these characteristics over time for policy and practice is examined according to empirical evidence from detailed case study analysis. Six case studies are presented, four in Taiwan and two in the Netherlands. In all of the case studies, the issue of flood risk and spatial development is considered important by policy- makers, but the planning strategies used to tackle climate-related flood risks are often different, as are the experiences of flooding and governance arrangements.
The information gathered is primarily based on interviews and the review of planning policies, government reports and research documents.
Comparative analysis is a central focus of the study. The analysis has both a national and international perspective, comparing cases within Taiwan and between Taiwan and the Netherlands. The national comparison examines the way in which local planning governance is addressed in shaping decisions to deal with flood risks. This can vary among cases which share similar spatial development objectives and national institutional framework. The international comparison between Taiwan and the Netherlands examines the roles of planning to promote urban resilience in the context of flood risk and climate change.
Three conclusions can be drawn. First, the interpretation of resilience is dependent on the views and interests of the actors involved. These change over time and can be seen in different episodes of policy-making. Second, the importance of the different
Spatial planning and urban resilience in the context of flood risk - A comparative study of Kaohsiung, Tainan and Rotterdam
1. Spatial planning and urban resilience in the
context of flood risk
A comparative study of Kaohsiung, Tainan and Rotterdam
Pei-Wen Lu
Delft University of Technology, Faculty of Architecture and The Built Environment , Department of Urbanism
2. has been
increasingly
affective to
urban
development
The
uncertainty
of
Setting of
the study
3. The notion of
resilience is
important. It is
often used in a mix
of mitigation and
adaptation
Setting of
the study
4. Spatial planning
has considered increasingly
important in promoting
cities to become more
resilience for flood risk
One of the reasons for this can be
explained by a fact that the
traditional engineering approach,
such as increasing the height of
dikes, has become insufficient to
provide complete certainty of
protection against the uncertain
disturbance of flooding.
Setting of
the study
5. How spatial planning can promote
resilience in the context of the
uncertainty of flood risks and climate
change?
Sub Q1: what are the characteristics of planning which
can help to promote resilience?
Sub Q2: how has the notion of resilience been absorbed and
become part of the reasoning of planning?
Sub Q3: to what extent can planning policy-making
help to promote the resilience of
spatial development in coping with flood risks?
Research
questions
6. European or International?
[Spatial planning]:
In Europe, scholars have
had a broader
understanding of planning
that involves a conformity
between policies and
physical developments as
well as the process that
stakeholders address
together and initiate a
certain decision for
spatial development (e.g.,
Healey, 1997, 2006, 2007,
Albrechts et al., 2003,
Albrechts, 2004, 2010,
Mastop and Faludi, 1997,
Faludi, 2000, Nadin, 2007,
2010, Nadin and Stead,
2008, Allmendinger and
Haughton, 2010). Studies
of spatial planning often
focus on the importance
of the process of decision-making
that leads to a
consequence of physical
development.
Cross-continental research:
Methodology
7. National com.
International com.
C3: Southern Taiwan Science Park
C4: Tainan city centre
C1: Meinong
C2: Kaohsiung city centre
C5: Nesselende
C6: Rotterdam city centre
to examine whether and
how local policy-making
reflects these
characteristics where
each case study share
the same national
institutional framework
to examine the critical
elements of planning for
flood risk management
Methodology
9. Meinong STSP Nesselande
Collaborative
frameworks
WRAs
Flexible zoning
Local Water approach
planning National authorities
story
NGOs & academics
Economic approach Local authorities
Private enterprise
Integrated approach
Planning
aspects
Discourses
Spatial
developments
Housing
Flood risks
Land use control
(elevation, ditches,
ponds)
WRB
ICT industry
Landscape
ponds
Restricted
development
CEPD
NSC
UDB
Cambridge
project
WRAs
WRB
UDB
Solar city
the end
1990s
the end
2000s
Private enterprises
Zengwen
River levee
New town
development
Flood-resistant
buffer
Plans and
policies
E: water resistance and new town development
Planning
dimensions
Discourses
Water scarcity
Collaborative
frameworks
Spatial
developments
Flood risks
WRASB
Sand mining
WRASB
Reservoir
Dike plan
Local NGOs
Retention
plan
Levees
WRA07
Master Plan of
the Culture
Town Meinong !
Villas &
housing
Water approach
Economic approach Local authorities
NGOs & academics
National authorities
Integrated approach
Private enterprise
Local NGOs Local NGOs
Tourism
Artificial
lakes
WRA07
Urban
expansion
Tai-Sugar cop.
Private developers
Local NGOs
Groundwater
reservoir
Plans and
policies
the end
1990s
E1: water scarcity E3: collaborative
planning
E2: flood risk
management
the end
2000s
WRAP
PWB &HEB
E1: urban regeneration
Planning
aspects
Collaborative
frameworks
Discourses
Spatial
developments
Housing
Flood risks
Kao. Multifunctional
Commerce and Trade Park
UDB & EDB
Kao. Port
Authority
Retention
plan
Retention
ponds
Gov. projects
PWB
Water quality
& pollution
Water approach
Economic approach Local authorities
NGOs & academics
National authorities
Integrated approach
Private enterprise
Trade & logistic
Waterfront landscape
HEB
the end
1990s
the end
2000s
Waterfront
wetlands
Urban
expansion
E2: climate
adaptation
landmarks
Plans and
policies
TBROC
UDB UDB UDB
E: urban regeneration
Collaborative
frameworks
Water approach
Economic approach Local authorities
NGOs & academics
National authorities
Integrated approach
Private enterprise
Planning
aspects
Discourses
Spatial
developments
Old district regeneration
TB
Waterfront
regeneration
Waterfront landscape
CEPD
Sparkling
Tainan Canal
China
Town Haian
Rd.
the end
1990s
the end
2000s
China
Town
Haian Rd.
Tourism
development
Anping Port National
Scenic Area
Landscape
white paper
Bridges
Innovative shops
Plans and
policies
E: new urban fringe
Planning
dimensions
Collaborative
frameworks
Discourses
Spatial
developments
Private
developers
Quality of living
VROM
VINEX
Housing
National authorities NGOs
Water approach
Economic approach Local authorities
Integrated approach
Private enterprise
Enlarged lake
Metro line
the end
1990s
the end
2000s
City of RTM
Recreational
hotspots
Plans and
policies
Case study
Kaohsiung CS Tainan CS Rotterdam CS
10. Meinong STSP Nesselande
Polder landscape
Metro line
Case study
Economic downturn due to the decline of the harbour Monitoring for
Economic development of the city
Support and promote urban wetlands
the end
1990s
E1: urban regeneration
emergency actions
Typhoon Morakot
& Typhoon Fanapi
Economic growth
Climate adaptation
Retention ponds
Rescue plans
International
collaboration
the end
2000s
Waterfront landscape projects
Coastal area regeneration projects
Local authorities
E2: climate
adaptation
NGOs & academics
National authorities
Private enterprise
Considering
the current
situation
Examining
trends and
future
threats
Learning
from
previous
experience
Setting
goals
Initiating
actions
Involving
the public
Considering
the current
situation
Examining
trends and
future
threats
Learning
from
previous
experience
Setting
goals
Initiating
actions
Involving
the public
the end
1990s
E1: water scarcity E3: collaborative
planning
E2: flood risk
management
the end
2000s
Water scarcity
River dike is not
robust for water
safety
Tourism and sand mining
To ensure water supply
Meinong reservoir (abandoned) and artificial
lakes
Flood risk
management
Construction of a
new river levee
Typhoon Morakot
Typhoon Morakot
Minimise flood risks
Minimise flood risks
Implement
integrated strategies
Support Integrated
strategies
Local participation
Local authorities
NGOs & academics
National authorities
Private enterprise
RESILIENCE CHARACTERISTICS
The STSP is located in areas where are vulnerable in flooding
Science park development cannot be damaged by flooding
Flooding experiences in this low-land area
Typhoon Morakot
New town development
To restore river dikes
To promote housing development projects
Local authorities
NGOs & academics
National authorities
Private enterprise
the end
1990s
E: water resistance and new town development
the end
2000s
Water proof for spatial development
The water safety of the ICT industry development need to be ensured
The development of the ICT industry
To build water retention ponds
To implement land use control (zoning, elevation management)
Considering
the current
situation
Examining
trends and
future
threats
Learning
from
previous
experience
Setting
goals
Initiating
actions
Involving
the public
RESILIENCE CHARACTERISTICS
Mistakable implementation of the inner city
Challenge 2008: National development plan 2002-2007 and the Double Tourists Plan
Redevelopment projects of the inner city
Local authorities
NGOs & academics
National authorities
Private enterprise
E: urban regeneration
the end
1990s
the end
2000s
Historical resources (buildings)
Historical resources and cultural atmosphere
Economic/ tourism industry development
Waterfront regeneration projects
Considering
the current
situation
Examining
trends and
future
threats
Learning
from
previous
experience
Setting
goals
Initiating
actions
Involving
the public
RESILIENCE CHARACTERISTICS
Local authorities
NGOs & academics
National authorities
Private enterprise
Double the size of the Zevenhuizerplas
E: new urban fringe
the end
1990s
the end
2000s
Housing development
To compete other VINEX projects
Landscape and recreational activies
Considering
the current
situation
Examining
trends and
future
threats
Learning
from
previous
experience
Setting
goals
Initiating
actions
Involving
the public
RESILIENCE CHARACTERISTICS
Reviewing river dike situation
Scientific scenarios
Flooding may occur more frequent and more severe
Near-flooding experiences in the 1990s
Knowledge for climate
Be waterproof /climateproof
Urban growth
Marketing the expertise of the city
Scientific studies
International network
Experimental practices
Business communities
Scientific research institutes
Local authorities
NGOs & academics
National authorities
Private enterprise
Social segregation
Economic downturn of the harbour
Economic crisis
To promote housing development
The extension of the city centre
the end
1990s
the end
2000s
Urban regeneration
The Erasmus Bridge
Metro system
E2 : E1 : urban regeneration climate adaptation
Considering
the current
situation
Examining
trends and
future
threats
Learning
from
previous
experience
Setting
goals
Initiating
actions
Involving
the public
Planning episodes
Kaohsiung CS Tainan CS Rotterdam CS
11. KAOHSI UNG TAI NAN
Meinong Kaohsiung city centre the STSP Tainan city
Local authorities
centre
NGOs & academics
National authorities
Private enterprise
RESILIENCE CHARACTERISTICS
E1 E2 E3 E1 E2 E1 E1
Considering
the current
situation
Examining
trends and
future
threats
Learning
from
previous
experience
Setting
goals
Initiating
actions
Involvi ng
the public
Different patterns of local
planning governance
Policy-making in Kaohsiung is more open
to public participation, while is also
more sensitive to external factors, such
as the extreme events or political
influences. In Tainan, policy-making is
more restricted to sectors in the
national and local government
Different role of planning in
coping with flood risks
depending on the institutional capacity
and the tradition of planning
collaboration. Flooding issues are not
always on the table.
Similar in relation to a lack
of scientific considerations
in local planning policy-making
to cope with flood
risks and climate change
National com.
Findings
12. the current pattern the transitional pattern
KAOHSIUNG TAINAN ROTTERDAM
Meinong Kaohsiung
city centre
the STSP Tainan city
centre
Nesselande RTM city
centre
RESILIENCE CHARACTERISTICS
Local authorities
NGOs & academics
National authorities
Private enterprise
Considering
the current
situation
Examining
trends and
future
threats
Learning
from
previous
experience
Setting
goals
Initiating
actions
Involving
the public
International com.
Findings
KAOHSIUNG TAINAN ROTTERDAM
Meinong Kaohsiung
city centre
the STSP Tainan city
centre
Nesselande RTM city
centre
RESILIENCE CHARACTERISTICS
Local authorities
NGOs & academics
National authorities
Private enterprise
Considering
the current
situation
Examining
trends and
future
threats
Learning
from
previous
experience
Setting
goals
Initiating
actions
Involving
the public
13. In the Netherlands, the intention
of economic development is often
integrated with other
environmental issues, such as the
issues of water management.
Another lesson gained from the
international comparison is about
the way to support policy-making
in coping with flood risks. In
Taiwan, strategies of flood risk
management are mainly initiated
according to the previous
experiences of disasters. In the
Netherlands, strategies are
initiated by considering both the
previous flooding experiences as
well as the possible floods in the
future.
Two important lessons related to
planning and flood risk management
are gained according to the
international comparison between
Taiwan and the Netherlands. First,
the traditional role of planning is
critical in framing collaboration to
cope with flood risks and climate
change.
!I
n Taiwan, planning has an underlying
principle of economic development.
Collaboration is mainly formed with a
specific intention to promote urban
development. Other issues, such as
flood risks, are seldom addressed in
planning decision-making unless they
may damage the interests of
economic development.
International com.
Findings
14. 14
Preparation actions are more
addressed in the Dutch context
that focuses on assessment,
such as monitoring current
conditions, producing future
simulations and investigating
possible solutions for future
risks.
Actions for performance are
the primarily focus of policy-making
in Taiwan for flood risk
management.These actions are
more related to develop the
capacities of response and
recovery, so a city may react
and retain basic functions,
rearrange key resources, and
propose redevelopment
strategies for recovery.
International com.
Findings
15. Conclusion
Collaboration is critical
to form a framework in
local policy-making that the
notion of resilience is
considered.
The leading actors, are
important for framing local
collaboration to tackle
potential disturbances of
flooding. This reflects a part
of planning tradition, which is
relatively stable and not easy
to change.
16. Conclusion
Taiwan and the Netherlands are also different in terms
of the role of the state in managing flooding issues.
Both Taiwan and the Netherlands are experiencing a transition
in planning governance. The reform in Taiwan is mainly
addressed in the institutions. The institutional reform has a
clear intention of land use redistribution, which is more focus
on physical development.
The reform in the Netherlands is more about the scope of
planning. The reform leads to a more open framework of
cross-actor collaboration and is not necessarily linked to
physical development.
17. 17
Conclusion
Urban resilience is often addressed in combination with
other concepts, such as adaptation and mitigation. The word
resilience has not always appeared in policy-making. In fact, it
appears only rarely.
Spatial planning is as important in the Netherlands as it is in
Taiwan. In this context, it is important for policy-makers in
Taiwan to have a broadened understanding of planning
considering both the process of decision-making and the
implementation in local practices in facing the complex issues
like climate-related flood risks.