KIEM SOAT
PHATTRIENB^ito^n
da chi^u
TS. NGUYEN NGOC HIEU I
Quan 1, TP Ho Chi Minh - Anh: Phi/dng Tti3«r
Kiem soat phat trien dd thj la mot van de Idn trong quan ly xay dUng theo quy hoach d cac dd thj Viet N a m . Bai viet nay nhan manh den khia canh nguon lUc trong bai toan kiem soat phat trien, nhat la tai trung t a m cac dd thj Idn hien nay.
T
rong nen kinh te thj trUdng, trung tam eae dd thj Idn deu gap phai sy tap trung qua muc ve nhu d u dau tu phat trien. Tuy nhien, viee tham dung khdng gian khdng the tang mai va phai ed ngudng gidi han. Viee xae djnh va duy tri cac ngudng gidi han thudng phan anh trong cac chi tieu si/ dyng dat, nhim kiem soat sy phat trien. 0 Viet Nam, cae ehi tieu gidi han chii yeu bao gdm mat dp xay dyng, he sd sQ dung dat, chieu cao, khoang IQi va khdi tfch.NhQng quy dinh nay da dQdc ap dung sau khi chung ta ban hanh quy chuan xay dyng 1997 va mdi day la quy chuan xay dyng 2008.
Tuy nhien, kiem soat phat trien khdng chi la cae ehi tieu trong giay phep xay dQng va han mue sii' dung dat, ma nd cdn la khau thyc thi nhQng yeu d u khde eiia quy hogeh dd thj, nhim dim bao chit lupng mdi trudng nhan tgo nay dupc ben vQng. NhQng vin de nhu giao thdng. ngudn nudc, nha b va mang ludi dich vu cdng cdng, cQng khdng nim ngoai cac pham vi ciia he thdng cdc quy djnh ve kiem sodt phat then.
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.XD 56 39 2009De thye hien dUde mye tieu tdng the tren, he thdng nay ddi hdi ed cac quy djnh mang tfnh ddng bd va td chQc thye hien nhjp nhang. Tren thyc te, he thdng eua chung ta cdn nhieu khiem khuyet qua mdt sd vf du d TP. HCM va Ha Ndi gin day. Nam 2007, hai Sd Quy hogeh Kien true va Ke hoach - Dau tu d TP.HCM da khdng tim dupe can cQ va spi day lien he de phdi hdp quan ly viee ehuyen ddl mye dich s(J dyng eiia mot sd edng trinh cdng cdng thanh trUdng hoc. Dieu dd da gay nen sy tie nghen giao thdng cue bd.
Trach nhiem va pham vi quan ly ve nganh nghe va quIn ly quy hoaeh xay dyng bi phan tach. nen hanh vi ehuyen ddi nganh nghe kinh doanh nhung khdng phat sinh d i tgo xdy dyng se khdng thude pham vi quan ly eua ben xay dyng.
Ben elp phep kinh doanh eung khdng cd cd sd de han che quyen kinh doanh theo quy dinh phdp luat. Tgi Hd Ndi,
V ^ n d ^ b ^ n I u ^ n
tinh hudng nay cd khac ddl chut, nhung van de tic nghen glao thdng cue bd thi khdng thay ddi ddi vdi cum edng trinh Vincom (phd Ba Trieu). Du dap Qng ehi tieu quy hoaeh, nhung cac chuyen gia cho ring nhu d u di Iai dot bien xult phat tQ cum edng trinh da ChQc nang mpc len da vudt qua kha nang chiu til ve ha ting giao thdng. Cho den nay, dudng nhu cac nha quIn ly xay dQng khdng the hien trach nhiem trong vu viec nay.
Mot sd e a c h tiep c a n ve ha tang de giai quyet viec k i e m soat phat trien mot e a c h ben vUng d trung t a m dd thj Idn
Kiem scat khong chi co chi tieu sir dung dat
Tai trung tam dd thj, gia dat ludn bj day len cao va ngudi sQ dyng ludn tim each nang eao he sd sQ dung dat. Day la quy luat da duoc chQng minh bing e l thyc nghiem va md hinh d tren the gidi (Alonso 1964). Tai Viet Nam, hau nhu tit d eae Id dat du Idn cd the xay cao ting; khi cai tao, cac ehii diu tU deu mudn thda thuan dieu ehinh cue bp tung thQa dat de xay vUdt qua cac chi tieu khdng che. Khi khdng thda thuan ndi vdi co quan quan ly, cac cdng trinh danh lieu xay vUdt phep nhieu lin va vi pham nghiem trpng, tieu bleu nhu vy viec Skyline tower d sd 4 Oang Dung (nam 2007) tai Ha Ndi.
Ve mgt kinh te, cae ehii sQ dyng dit deu mudn khai thac ngoai Qng tich cUc sin cd cua khu vyc trung tam va khu vyC cd d n h quan gid trj. Chfnh quyen dd thj, chu the sd hQu eae he thdng nay thudng khdng bao gid ed du kinh phi phat then vd han he thdng ha ting de dap Qng nhu d u , bdi khdng gian la cd han va phIn Idn he thdng nay la "cua chua". Gia dit cung phan anh trong mQc dp hoan thien ve hg ting va cae gia trj khac trong khai thac vj trf dae thu.
Dudi giae dp nay, bai toan kiem soat sQ phat then qua mQc d trung tam, ehinh la de can bang ve mat kinh te giua kha nang dap Qng va nhu d u . Day la ly do kiem soat hoan toan khac vdi cac ehi tieu ky thuat thdng thudng.
bdi chiing duoe xay dyng tren md hinh tfnh hoac thyc nghiem de dam bao tieu chuan ve sinh - sQc khde hogc tham my kien true.
Diem khac biet nay cdn phan anh mot thQc te khac eua vin de phat tnen la sQc chiu tai ciia h^ thdng hg ting dd thi khde nhgu giQa
tQng khu vQc va khac nhau ddi vdi mdi loai edng trinh khai thac chung. Vf dy mdi cdng trinh khai thac he thdng nay theo mQc dp khac nhau, khdng phai luc nao cung tuong Qng vdi mat dp xay dQng hay he sd su dyng khdng gian. Vf dy nhu. cung mot don vi dien tfch. sieu thj se 'Heu f/iy" ngudn lye cua dd thi rat khac vdi khu trudng hpe, trung tam van hda, hay khu d. Dieu nay lam cho qua trinh xem xet kiem soat phai can cu vao d 3 yeu td la: Cac tieu chuan mang tfnh ky thuat - mdi trudng - kien true: kha nang dap Qng cua ha ting trong bdi d n h hien tai va tinh chat tieu thu ngudn luc ciia cdng trinh cu the (xem hinh dudi).
Tieu chuan ky thuat - MT-
kien true
Kha nan dap iifng cua KCHT dja phuong
^ ^ ^ Tfnh chat tieu thu ngudn lUc cua de xuat phat trien
De dap Qng dUpc ba noi dung nay, each tiep can thdng thudng la xem xet cap phep cho tQng edng trinh, thay vi ap dyng mot mat bing ehi tieu chung va khdng cho vUdt khung. Khi xem xet cap giay phep xay dyng rieng, nha quan ly mdi ed the danh gia toan dien mat tieh cyc va tieu eye va lya chon tieu chf rieng de kiem soat theo muc tieu de ra, Tuy nhien, quy trinh cap phep ludn mang nang tfnh tuy bien, de din den tieu cue khi cae danh gia loi - hai mang tinh chii quan.
Mudn giam tinh tuy bien va kiem soat tdt hon sd phat trien d trung tam cac dd thj, cdch tdt nhat la xay dung he thdng eo can cQ ranh mach de kiem soat cac hoat dpng, sQ dung ngudn lye thyc te thay vl ehi dya vao cac chi tieu quy hoaeh theo quy chuan. Tuy nhien, dieu nay ddi hdi phai phan loai cdng trinh theo tinh chit hoat ddng ciia nd,
Kiem soat tinh chat sir dt/ng nguon li/c do thi
Mudn kiem soat dupc tmh chat su dung ngudn lye dd thi hay mQc dd anh hudng xlu den mdi trudng. eae nha quan ly d n chia
loai edng trinh ra theo hoat ddng thQc te thay vi muc dfch sQ dung dit, nhu each kiem sodt chung ta dang lam hien nay.
Tham khao Luat Quy hoach dd thj eua Vudng qudc Anh. mdt bd luat cd anh hudng den hau het cae qude gia theo trudng phai Anglo - Saxon, chung ta nhan thIy he thdng kiem soat phat trien ciia hp da phan loai cac doanh nghiep. ea nhan su dung ngudn lye dd thi theo tinh chat, theo mQc dp su dyng tai nguyen, tiem nang gay "khocto"(nuisance) cho an toan, an ninh cua cae khu d va tieu thu nhieu tai nguyen thanh cac loai va hang (class and order), thay vl phan loai cdng trinh theo muc dieh sQ dung dat (Cullingworth 2001). Nguyen tie cd ban de bd tri khdng gian khi quy hoach va khi d p quyen phat trien trong bp luat nay la: Loai nguy co eao d n bd tri tach biet vdi hang thlp; hang cao va thlp cd the bd tri gin nhau.
Neu mdt chu diu tu mudn chuyen ddi giQa cac hang vdi nhau, vl du tQ loai tieu thy nhieu tai nguyen xudng loai it tai nguyen, thi khdng d n xin phep.
Viee chuyen hang cd the khdng can xin phep, nhung chuyen tu loai nay sang logi khac d n phai xin phep.
Viec chuyen muc dich sQ dyng eiia loai dUde coi la hanh vi "phat trien"va phai xin phep.
Viec bd tri cdng trinh theo loai theo cae khu vyc se giam thieu van de mat an toan va an ninh hoac gay khd chiu cho mot sd chu sQ dung dat khac.
Vi$c phan hang va loai theo bq lu$t ciia Anh quoc cd 11 loai nhu sau:
1. Cac CLia hang (co ciia kinh nhin ra dudng trUng bay hang d tang tret).
2. Cac van phdng cua cong ty tu van.
tai chinh.
3. Cac CL/a hang an va uong.
4. Cac vdn phong doanh nghiep. hang nho (<235nr) va Idn (>235nr).
5. Cac doanh nghiep lam cdng nghiep (phan lam 5 loai hinh tuy theo tinh chat).
6. Cac doanh nghiep lam phan phdi va luu kho. (loai nho va loai Ion)
7. Khach san. nha khach co phuc vu dn udng 8. Cac td Chile nha d theo khdi (chung cU.
nha cho thue td hqp)
9. Cac low nhd d sd huu neng (dan IS).
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10. Cac cdng trinh khong sit dung lam nha d 11. Cac cdng trinh cdng cdng Ikm ndi hqi hqp gap gd va giii tri
Viec phan logi va hang cua de xuat phat trien eung la can cQ phan logi quy hoach khu vQc kinh doanh, khu nghi ngdi, khu d tmh, khu thUdng mai van phdng. Cac de xult phat trien tQc la ehuyen hang, loai la can cQ de giam tfnh tuy bien cua eae quye't djnh kiem soat phat trien. Tham khao md hinh tren, Viet Nam can xay dyng he thdng kiem soat phat trien cd phan loai dUdc tinh chat edng trinh sQ dung vao viec gi, nghTa la tap trung vao danh gia edng trinh dUde su dung nhu the nao, thay vi quan ly muc dfch sQ dung dat hay qua trinh xay dyng cdng trinh. Viec nay cang cd y nghla hdn khi cae dd thi ciia chung ta phat trien ngay cang chin mudi.
Cae khu vUc npi dd sQ dyng dn djnh hdn thi qua trinh kiem soat tap trung vao tfnh chat sQ dung cang quan trong.
Hien nay Ban Quan ly Khu dd thj Nam Sai Gdn dang nghien cu'u ap dung Luat Quy hoaeh eiia Anh Qude (class and order) de quy hoaeh d p phep cho cac doanh nghiep su dung loai cdng trinh thay vl chi xem xet mye dfch sQ dung dit. Trong tUdng Iai gin, nhQng bai hoe tQ kinh nghiem khi thi diem d day se la can cu de the che hda va hoan thien cd sd phap ly de kiem soat phat trien.
Kiem che sd dung xe hdi thong qua c a e bien phap kiem soat phat trien
Viee su dung xe hdi ludn la mdi quan ngai, bdi sQ dyng xe hoi lam mat dl tfnh ben vQng cua dd thj, khi nd su dung tai nguyen giao thdng dd thj qua ldn. Vol viec khu vyc Ha Npi, TP.HCM vugt ngudng thu nhap 1000USD dau ngudi (hien lagan 2000USD/
ngu'di), cae dd thi nay dang chung kien sy bung nd ve sd huu xe hdi ca nhan. Tai Ha Npi, gid budi sang va trua thuong xay ra tic nghen cyc bd tai Lang Ha, Ly Thudng Kiet, hay Ba Trieu vl xe den, dl va dd qua nhieu quanh nhQng cdng trinh cao ting d khu vyc nay. Day la thye te ro rang ve viec kiem soat phat trien cac cdng trinh cao tang van phdng khdng di kem vdi quan ly ve lUu ludng giao thdng di va den,
Hien nay, da sd cae dd thi Ion tren the gidi deu dp dung chfnh saeh kiem che sQ dung xe hoi d trung tam dd thi, thdng qua cac bien
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phap quan ly chat ndi dd xe, ca b tren dQdng phd, lin trong bai dd cdng cpng va tgi cdc cdng trinh cao ting. Kinh nghiem qudc te Id khdng che viec si/ dyng xe hdi va chd dd xe ciia cdc ciia hang Idn, van phdng Idn, thdng qua trin dudi (tdi thieu) va trin tren (tdi da) phll dQpc xay dQng tuy theo mdi loai va mdi vj tri eiia edng trinh.
Trin dudi yeu d u mdi cQa hang hoac trung tam mua sIm, phai dap ung tdi thieu dUp'e bao nhieu chd do xe cho mdi met vudng cQa hang hoac van phdng. 6 London, trin dUdi bien dpng tuy theo tinh chat cua loai cdng trinh: cinema (5 chd ngdi/chd dd xe), cQa hang ban dd an udng (14m%hd dd xe): ndi gill tri khac (22m%hd dd xe). Nhin chung, ndi ed nhu d u dd xe lau phai cd nhieu bai dd xe va ndi dd xe ngin han yeu d u ft hdn.
Ngupe Iai, mdi khu vue Iai bj gidi han bdi sd lupng tdi da (tran tren) dien tfch bai dd xe dupe xay dUng. Tuy theo hien trang ha tang eiia tung khu vyc, neu ha ting tdt, mat dp dan eu thap se ed tran tren eao va ngu'de Iai. Quy djnh dang ap dung d London tai eae quan trung tam la chi cho xay 1 chd dd tren 1000m^ dien tfch mat bing (bat ke la bao nhieu tang), trong khi d ngogi vi la 350m2/1 chd dd xe, tQc la dUdc nhieu xe hdi hdn.
Ngoai ra, viec quan ly nay phai ket hdp vdi viec khdng che sd lUdng chd do xe d trung tam. can cu vao sue chju tai ciia he thdng ha tang trung tam ddi vdi nhu clu di Igi bing xe hoi. Viec su dyng thue, phf de han che sQ dyng xe hoi di vao khu vdc trung tam trong gid cao diem. Md hinh thu phi nay da dUdc ap dung tai Singapore tQ nam 1975 va London da hoc tap kinh nghiem nay de danh thue tic nghen tu nam 2003. Sau 4 nam quan sat d London, thue tic nghen da giup giam 15%
tdng lupng xe lUu thdng trong trung tam vao ban ngay va tang van tde luu thdng len 30%.
Gin day, nhQng van de nay deu dang dUde cac nha quan ly va quy hoach giao thdng d Ha Ndi va TP.HCM thao luan. Van de cdn lgi, chung se dUdc khdp ndi vol cac quy djnh quan ly quy hoach khdng gian nhu the ndo.
Nhd vay, viec kiem soat phat tnen d n cd sy phdi hop ciia rat nhieu nganh va mot bd khung the che mgnh. Cach tiep can ve kiem soat dd thj d n vUdt ra ngoai can cu ehu yeu la kiem soat qua trinh cai tao xay dung va
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chi tieu sir dung dat, ma nen tap trung c l vdo viec kiem soat tinh chit hdnh vi sQ dung ' ngudn lUc ciia dd thi. Mudn Idm dupe dieu nay, chung ta d n xay dung cd sd giam sat dii chi tiet de phdn biet dQdc tinh chat su dyng ngudn lUc va khdng gian dd thj, khdng chi qua hanh vi xay dyng. Dieu nay ddi hdi bd khung kiem sodt phll ddpc the che hda va phai td chQc Igi bd mdy phdi hdp trong viec quIn ly kiem sodt phdt trien dd thj, dim bao sQ lien thdng glQg nggnh xgy dQng vdi ngdnh quIn ly kinh doanh.
Kinh nghiem qudc te cho thay, ehi quan ly viec nay d mot d p va mot diu mdi (vi dy d p quan), de dam bio sy lien thdng va tham quyen de giam sat va xQ ly kip thdi.
Tuy nhien, nhQng van de dam luan tren mdi tiep can den nhQng ndi dung bQe xue va noi trdi gan day. Cung edn nhieu Hnh vQc va van de ve kiem soat phat trien d n dQdc md xe, tham khao va thi/ nghiem de viee kiem soat phat trien dd thi dim bao sQ phat trien hai hda, ben vQng d cac dd thj Idn eua chung ta trong tUdng Iai.
URBAN DEVELOPMENT CONTROL-A MULTI- DIMENSIONAL PROBLEM
Dr Nguyen Ngoc Hieu
Urban development cpntrol Is a big issue in construction management in Vietnamese cities. This paper gives emphasis on the resources aspect in the development control problem, especially for big cities. The control is not just confined in the Indicators in the construction license and land use, e.g. construction density and height, land use coefficient, but also includes fulfillment ot urban planning requirements to ensure its quality and sustainability.
The development control needs coordination from variousgovernmental authorities and a strong instltutiongi frgmework, gnd Its approgch should focus on control the urban resources consumption behavior rather than the construction control based on land use Indicators.
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