A Spatial Growth Strategy for
Quy Nhon, Binh Dinh, Vietnam:
Eco-Urban Regional Planning
Urban Planning Workshop Fall 2010
Columbia University
Graduate School of Architecture, Planning, and Preservation
Instructor: Andrea Kahn
1
Georgia Bullen
Greta Byrum
Christina Ghan
Susana Isabel
Peter Jenkins
Eugenia Manwelyan
Amelia Pears
Nathan Tinclair
Contents
DEFINITION OF TERMS
INTRODUCTION
1. SCOPE OF WORK
2. QUY NHON’S ASSETS
3. QUY NHON’S CHALLENGES
4. THE MASTER PLAN: Insufficient Response to Challenges
PART I: APPROACH
1. CONCEPTUAL FRAMEWORK
2. ECO-URBAN VALUATION GUIDELINES
3. ECO-URBAN VALUATION METHOD: Land Suitability Analysis
PART II: PROPOSAL: LAND USE RECOMMENDATIONS
1. PROPOSED LAND USE PLAN
2. IMPLEMENTATION STRATEGY
3. IMPLEMENTATION CASE STUDY: Nhon Binh Ward
CONCLUSION
APPENDIX: SITE VISIT SUMMARY
2
Thank You
Thai Ngoc Bich
Naomi Darling
Mike DiGregorio
Phu Duong
Philip Giang
Ngo Trung Hai
Georges Jacquemart
Nguyen Huu Ninh
Cao Van Hyunh
Pham Thi Hue Linh
Thao Thu Lu`ong
Mai Nguyen
Nguyen Quang
Jeffrey Raven
Loan Pham Thuy
Stephen Tyler
Special thanks to:
Jim Spencer
Hao Nguyen
ACCCRN
VIAP
UAI
CERED
UN-HABITAT
Department of Commerce and Industry,
Binh Dinh
Department of Construction, Binh Dinh
Department of Natural Resources and
Environment, Binh Dinh
Department of Planning and
Investment, Binh Dinh
People’s Committee of Quy Nhon
People’s Committee of Binh Dinh
* All photos and graphics by the GSAPP Workshop Team
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DEFINITION OF TERMS
ECO-URBAN REGION
Eco-Urban Regions create economic opportunities
for their citizens in an inclusive, sustainable, and
resource-efficient way, while also protecting and
nurturing the local ecology as a global public good
to be protected for future generations. Planning for
an Eco-Urban Region requires working beyond the
familiar political and administrative boundaries of
ward, city, or province. It recognizes and leverages
connections between human settlements and
natural geographies to minimize pressure on
natural systems while achieving socio-economic
development goals.
ECOSYSTEM SERVICES
The term ecosystem services refers to the benefits that
people obtain from ecosystems, such as natural
hazard protection, water quality management,
local climate regulation, food, water, timber and
resource provision, soil formation, and nutrient
cycling. It also refers to the cultural benefits derived
from ecosystems, such as recreation, education, and
aesthetic beauty.
Though they provide benefits
for humans, ecosystems efficiently supply these
services without human intervention.
Therefore,
ecosystem services represent important capital assets:
when properly managed, ecosystems yield a flow of
vital services.
LAYERED LAND USE
Layered Land Use is an analytical tool that integrates
thinking about built and natural environments.
Layered Land Use helps decision makers understand
the value of land in two ways: in terms of the
activity that occurs “on top” of it – such as housing,
commercial and industrial activity, recreation – and
in relation to the ecological services it performs or
provides, such as natural habitat, air purification, or
groundwater recharge.
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INTRODUCTION
1. SCOPE OF WORK
2. QUY NHON’S ASSETS
3. QUY NHON’S CHALLENGES
4. THE MASTER PLAN:
INSUFFICIENT RESPONSE TO CHALLENGES
Aerial of Quy Nhon, December 2010
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INTRODUCTION
The city of Quy Nhon has a vibrant city center
current Master Plan for Quy Nhon, prepared by
with dense housing, active street commerce, and
the Ministry of Construction in Hanoi, has slated
port facilities; it also has a wealth of environmental
the city for growth in both territory and population
resources
within the next decade.
and
systems.
Mountains,
forests,
mangroves, lagoons, lakes, rivers, and beaches
surround the city. In addition to immense natural
Prepared
in
conjunction
with
an
economic
beauty, these provide important ecosystem services
development plan and a community development
such as clean air, water management, flood
strategy led by the Universities of Hawaii and North
protection, and biodiversity. This diverse set of
Carolina respectively, this document was created
assets provides a strong base on which to grow.
by an urban planning practicum at Columbia
University in New York during the fall semester
Our strategy aims to support the city’s growth
of 2010. It offers a spatial strategy to help guide the
targets by providing a means to implement and
direction of urban growth in Quy Nhon along with
finance priorities that address ecological challenges.
associated development investment. Quy Nhon is
We argue that Quy Nhon can grow responsibly,
currently in the process of revising its Master Plan,
preserve the area’s natural assets and cultural
and we hope our proposal will inform this process.
richness, reduce infrastructure costs, and ultimately
To assist in designing the strategy outlined in this
attract tourists and investors by adopting an
report, the eight members of this practicum and
integrated planning process. In this way Quy Nhon
its professor met with government and ministry
can become the center of an ecologically robust
officials, NGOs, and academics during a seven-day
region.
visit to Vietnam in October of 2010 (See Appendix for
complete list of meetings).
Our approach provides Quy Nhon with an
opportunity to set itself apart from other cities
Preliminary research revealed many challenges
by making Quy Nhon more Quy Nhon – that is, a
confronting sustainable growth goals in Vietnam,
lively, vibrant mixed-use city in a beautiful and
including financial and ecological issues. Our very
environmentally rich landscape. At this critical
brief site visit helped shape our understanding of
moment in its development, Quy Nhon has an
the logistical planning challenges in the region,
opportunity to tackle its challenges and become a
including a bureaucratic system in which the goals
leader in sustainable urban development practices
of the national and the local governments do not
in Vietnam.
always align. However, our days on the ground in
1. SCOPE OF WORK
Quy Nhon confirmed that city officials do want to
see their city grow sustainably; they want to prepare
Quy Nhon, capital of Binh Dinh province, is a
Quy Nhon for the effects of climate change, and to
charming city with great potential located on
make it a “modern” Vietnamese city.
the south-central coast of Vietnam. With a lively
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urban core, expanding peri-urban corridors, rural
This report proposes a conceptual framework to
and agricultural lands, industrial sites, mangrove
help Quy Nhon achieve its goals, and outlines
forests, and beaches, it features diverse land use
foundational principles for strategic and flexible
patterns among its natural and built assets. The
planning. We took this approach in light of our
brief time on the ground (only three days in Quy
This document is intended to generate ideas and
Nhon itself), our limited access to statistical data,
conversation about how to assess and achieve
and constraints imposed by translation. Providing
growth goals set for the city of Quy Nhon, as well
a detailed programmatic or prescriptive spatial
as to highlight the characteristics that make Quy
master plan would have required more data
Nhon a unique city. Furthermore, it shows how
and community input than we had available.
ecologically progressive planning principles and
For example, we had insufficient information to
techniques can be applied to mitigate challenges.
reconcile the accelerated rate of population growth
Quy Nhon has a wealth of resources, and this report
predicted by the government with what we found in
aims to help Quy Nhon use these responsibly and
available census data.
sustainably.
For these reasons, instead of a comprehensive plan,
Just as any planning process must begin with an
we present process and method blueprints for
assessment of current assets, so this report begins
responsible growth as applied to Quy Nhon. We
with an evaluation of Quy Nhon’s characteristics. It
have based our recommendations on our assessment
first examines the functions performed by various
of current planning practices in Vietnam, and
built and natural systems, the challenges currently
specifically on our findings that the current Master
facing the city, and government responses to these
Plan offers insufficient and unrealistic responses to
challenges. The report then offers a method-based
Quy Nhon’s needs.
approach to planning for an Eco-Urban Region,
followed by a set of recommendations for land use
In the following sections, this report offers
in
the
region
and
strategies
for implementation.
Quy
Nhon
Master
Plan
Adjustment
recommendations for application of a set of planning
principles designed for 21st-century methods and
challenges. We believe that modern planning does
not degrade the natural environment. It is lowimpact or no-impact, and in some cases can even
Key:
restore degraded ecologies. It respects and draws
from natural ecological processes in order to
conserve resources and services.
These planning principles provide the basis for our
proposed conceptual strategy: Eco-Urban Regional
Planning. Further, this report provides an analytical
tool for implementing this strategy, referred to as
Layered Land Use. To illustrate how the proposed
Eco-Urban Regional strategy can be implemented
in Quy Nhon using this tool, the report will focus
specifically on Nhon Binh Ward as a test case for
implementation throughout the region.
Master Plan Overlay on Aerial of Quy Nhon,
September 2010
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2. QUY NHON’S ASSETS
Quy Nhon is the site of many undervalued assets. Together these offer some of the richest Vietnamese
experiences: lively street markets, sidewalk cafes, pho and bun stalls, ancient architectural landmarks, and a
wealth of ecological treasures in a lush landscape.
Green Areas
Unspoiled ecological features surround the urban
center and stretch across the entire metropolitan
region. Lush, green mountains bound the densest
areas of the city.
Framed by clusters of mangroves, the lagoon
sustains high biodiversity, with nearby wetlands
that support many birds and diverse aquatic species.
In Vietnam, rice fields are an important land use,
especially along rivers and floodplains. Quy Nhon’s
rice paddies can be found primarily to the west of the
lagoon. In addition to producing food, these fields
serve the important ecological function of absorbing
and filtering runoff from the mountains. Quy Nhon
is also home to vibrant street life, with sidewalk
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Urban Areas
cafes and open markets. It is also a center both for
Binh Dinh’s traditional fishing and boatbuilding
culture, and a university-educated population
trained in 21st-century skills and practices.
Peri-urban corridors around Quy Nhon extend the
vibrant urban core and create buffers of mixed-use
development that protect nearby agricultural and
rural areas.
Quy Nhon’s existing industrial areas feature nearby
worker housing in mixed-use neighborhoods and
provide economic engines for the city.
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3. QUY NHON’S CHALLENGES
Quy Nhon faces interrelated challenges as it grows
and develops, putting many of the assets identified
above at risk. The question is not whether this actively
growing and developing city will change, but how.
Following we identify the seven main issues facing
Quy Nhon and describe how they interrelate.
Population Growth
Population growth creates pressure for expansion of
built areas for housing; yet the loss of agricultural
lands and wetlands filled in for development causes
increased problems with flooding and pollution.
Quy Nhon, a First-Tier Provincial City and the
population and economic hub of Binh Dinh province,
has been identified as a potential future First-Tier
National City. Quy Nhon’s municipal government
hopes to reach this next level, as it would mean a
shift in governance from the provincial leadership to
the national leadership and an increase in funding.
In order to achieve First-Tier National status, Quy
Nhon must attain a certain level of population and
Quy Nhon Master Plan
Ministry of Construction
economic contribution.
As the population grows, Quy Nhon expands
reclaiming land. Population is projected to increase
Insufficient Public
Development Funds
from 285,000 to 500,000 in the next decade.
To
Land reclamation and annexation in Vietnamese
accommodate this expansion, four years ago the
cities occurs due to a chronic lack of funds for social
national Ministry of Construction created a Master
services and municipal projects, as taxes do not
Plan for the city. This document pinpoints the exact
represent a significant source of revenue. The city’s
location of future development, and prescribes
small businesses do not pay business taxes since
specific land uses throughout the city. However,
they are not officially on record with government
the Master Plan’s vision for the city in 2020 does
agencies. Because Quy Nhon lacks sufficient tax
not adequately respond to Quy Nhon’s many
revenues to support the social and infrastructural
environmental
Most
services that it must provide to its residents, selling
importantly, the 2004 Master Plan does not provide
off land for piecemeal development becomes a
a plan for flooding, increasingly severe and frequent
necessary form of revenue.
its boundaries, annexing nearby provinces and
and
political
challenges.
storms, and other environmental factors.
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Ad-Hoc Development
While Quy Nhon’s planners and policy makers
One of the piecemeal development projects outlined
indicated to us that environmentally responsible
in the Master Plan is an “Eco-City” housing
city growth is a priority for them, piecemeal
development, for which the government is currently
development practices jeopardize this goal.
looking for an outside developer/investor. Located
in flood-prone Nhon Bihn Ward, this development is
It is impossible to realize a cohesive vision of a city
intended as an environmentally sustainable housing
through ad-hoc development. Quy Nhon currently
project. Yet it is also envisioned as a group of single-
develops on a project-by-project basis within the
family houses functionally disconnected from the
land-use prescriptions of the Master Plan. Investors
rest of the city and located on reclaimed land.
and developers are allocated land for building, but
the city operates without a holistic understanding
The idea that such limited-scale development
of how these separate development efforts work
could create a large impact is flawed. While the
together. The current Master Plan does not support
concept of ecologically responsible development is
an alternative method of growth, instead continuing
progressive, we argue that this concept of an “Eco-
to enable piecemeal development projects financed
City” is a contradiction in terms, as it does not take
by outside investment without consideration for the
into consideration the regional impacts of new
region’s ecology.
development, and isolates the ecological planning
approach to one discrete sector of the city.
Master Plan: Eco-City Site
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Disjointed Planning Process
Vietnam’s disjointed planning process does not
eastward to include the Phuong Mai peninsula.
fully synthesize the expertise that various planning
Since then, the city’s borders have further expanded
stakeholders have to offer.
– to the southwest in 2006 and to the west in 2010.
Future expansion plans call for development into an
Inflexible city-scale Master Plans handed down by
area to the North of Quy Nhon’s city center that is
the national government’s Ministry of Construction
predominately used for agriculture and aquaculture.
take shape with little input from local planning
Yet this area, slated for infill and development, is
authorities. In addition, at the national level each
currently one of the region’s richest in biodiversity.
government ministry drafts separate versions of
It is one of the city’s greatest natural assets for
the plan, even when their jurisdictions overlap.
tourism (birdwatching, mangrove tours) as well as
Thus planning in Vietnam lacks the holistic outlook
stormwater management, as it contains mangrove
required for managing a complex urban region
plantings that absorb and filter water.
containing many different kinds of land. This leads to
inconsistencies and conflicts in the implementation
We
process, and a lack of consideration for ecological
“modernization” of agricultural lands does present
processes.
a source of private investment in the city, it also
argue
that
while
the
annexation
and
represents a loss of value, since such lands have
Hierarchical and sector-driven decision-making
multiple beneficial functions.
disincentivizes collaboration among government
agencies, preempting comprehensive planning. It
is therefore difficult for departments and ministries
to balance development needs, environmental
protection goals, and resource management targets.
In this environment, project-based, investor-driven
development proceeds without sufficient controls.
For these reasons, one of our ultimate planning goals
is to suggest implementation mechanisms that foster
cross-agency and interdepartmental collaboration in
service of a holistic strategy.
Land Annexation
Piecemeal and investor-driven development results
Pollution in Quy Nhon
Loss of Natural Resources
and Flooding
from current planning processes, and depends
“When a large typhoon hits, twenty years of
heavily on creating new land area in the city. When
development can be erased in one night.”
reclaimed by filling in low-lying wetlands, the new
- Nguyen Huu Ninh (CERED), on flooding in Vietnam
land increases flooding risks. When land is annexed
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from nearby rural districts, it adds a variety of land
The lack of holistic planning for ecological as well
uses and types within the city’s boundaries. In the
as economic needs has produced environmental
late 1990s, Quy Nhon experienced its first large
hazards in Quy Nhon. Human activity is causing
urban expansion, extending the old city center
the rapid depletion of scarce resources, including
Past flooding 2002 - 2009
Proposed Future Expansion 2020
Third Expansion 2010 - Class 1 City
First City Expansion 1998 - Class II City
City Expansion 2006
0
5km
Expansion of Quy Nhon with Past Flooding
fish, potable water, and hardwoods. The normative
and severity of storms has been increasing. Quy
prescription of land uses as determined by the
Nhon is a coastal city positioned at the outlet of
national-level Master Plan fails to protect Quy
a regional watershed. Several rivers flow from
Nhon’s resources, among which are its abundance
nearby mountains into the Thi Nai Lagoon, creating
of waterways and wetlands (including those used
significant runoff during periods of rain. Although
for agriculture and aquaculture).
flooding events are part of the natural cycle, the
impact of recent events has been more severe than
Pollution also compromises the marine environment
usual. Currently, during flood events, the water
in Binh Dinh. Businesses and households discard
level exceeds the city’s existing dyke system by 0.5
a large amount of untreated solid wastes and
– 1m. Loss of mangroves and wetlands exacerbates
sewage into the lagoon and ocean, causing severe
flooding, as these work as natural infrastructure to
water quality loss. Additionally, the mangrove
hold and filter excess water.
forest around the Thi Nai Lagoon, once estimated
at 1,000 ha, has experienced rapid degradation in
Climate Change
recent years, and one-third of the lagoon area has
been converted to aquaculture. Increasing discharge
A 2007 World Bank report identifies Vietnam as
of wastes from the city and port of Quy Nhon
second in the world in severity of anticipated
and neighboring areas has accelerated the pace of
impacts from Sea Level Rise; climate scientists also
environmental degradation.
predict that it will be one of the countries most
affected by climate change generally. Effects include
The Vietnamese coast experiences annual flooding
increasing numbers and severity of storms and
and typhoons from October to November as part of
flooding, but also periods of drought, increased rates
the natural ecology. But in recent years the number
of waterborne illness, and saline intrusion into the
13
water table. Storms in November-December of this
many of the effects of climate change, many people
4. THE MASTER PLAN:
Insufficient Response to
Challenges
there do not understand that the increasingly severe
The Ministry of Construction’s 2004 Master Plan
floods and drought conditions they are experiencing
was designed to achieve targets for Vietnam’s
are related to a larger climate effect.
Five-Year Socio-Economic Development Plan. It
year had disastrous effects in Quy Nhon, as many
major roads were flooded, blocking evacuations.
Yet although Quy Nhon is already experiencing
focuses on the growth of both industry and tourism
The destruction of mangroves and agricultural land
as economic drivers, yet these do not call for
due to current planning and development practices
complementary land uses. Contradictions between
is compounding existing ecological challenges by
designated land-uses and intended goals become
degrading the local ecosystem, placing the city at
evident when the Master Plan is examined as a city-
greater risk from the destructive impacts of climate
wide strategy. Overall, the Plan fails to address the
change.
most pertinent issues for Quy Nhon: flooding and
climate change. Lastly, there is little mention of
A responsible and cost-effective way to respond to
strategies for implementation, such as sources of
climate change is to protect and expand the natural
funding for projects.
ecosystems that can mitigate the effects of floods,
Letters A-D refer to sections of the Master Plan (facing
and to limit development in flood-prone areas.
page).
Adjacency of Polluting Port to
Ecological Development (B)
One of the major contradictions evident in the
Master Plan is the intention to build a deep-water
port with an oil refinery adjacent to a proposed ecotourism resort and the nearby eco-city development.
Deep-water ports are polluting, and the extensive
dredging required for the passage of large freighters
will also drastically degrade the lagoon’s water
quality.
Isolated Tower-in-the-Park
Residential Areas (B)
The Master Plan addresses population growth by
designating new residential areas to the north of the
Nhon Hoi Peninsula. To increase the city’s housing
stock, it proposes “tower-in-the-park” skyscraper
The Thi Nai Lagoon is the outlet of the watershed in
the region surrounding Quy Nhon.
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enclaves and upscale villas, designs that ignore the
value in the existing urban fabric.
Master Plan Contradictions
Priority of Industrial Development
in a Flood-Free Zone (B)
The Master Plan calls for a large new special economic and industrial zone, the Nhon Hoi Industrial
Area, designated as a single-use, segregated area.
Privitazation of Public Space for
Tourism (A)
This designation does not optimize use of the site’s
The plan also outlines provisions for a significant
potential as the largest area of flood-free land in
expansion of tourism and related services, with
the city. In addition, plans for the Special Economic
images of Rio de Janeiro as a precedent. With one
Zone have called for the reclamation of Bai Diep
of its greatest assets in its large public beach and
Bay, a potential eco-tourism asset and a site of rich
adjacent promenade, Quy Nhon’s character would
biodiversity.
be damaged by an onslaught of oceanfront condos
Proposed Eco-City (D)
and hotels. While the Master Plan emphasizes ecotourism and industrial development, it does not
go far enough in building on traditional social and
(See Challenges above, page 11, Ad-Hoc Development)
cultural identity.
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PART 1: APPROACH
1.
2.
3.
CONCEPTUAL FRAMEWORK
ECO-URBAN VALUATION GUIDELINES
ECO-URBAN VALUATION METHOD:
LAND SUITABILITY ANALYSIS
Nhon Hoi Peninsula:
Industrial Zone
16
1. CONCEPTUAL FRAMEWORK
Quy Nhon, like cities in developing nations all over
build systems that can continue to provide services
the world, is confronting the pressures of rapid
well into the future.
urbanization. Assuming that Quy Nhon will grow
in the next decade to face the many challenges
III. Smart Financing
associated with climate change and development,
Many transnational development institutions offer
the question becomes: which planning principles
funding opportunities for cities that want to invest
will the city adopt to guide its growth?
in sustainable urban growth.
While
These investment
twentieth-century Western planning principles were
institutions work in partnership with local and
based on unfettered resource availability, modern
national agencies to cut down dependence on short-
twenty-first century planning focuses on responsible
sighted, ad-hoc investment. Our smart financing
resource management. Cities like Quy Nhon have
strategy is based on the criteria of the World Bank
an opportunity to take the lead and move in a more
Country Partnership Strategy for Vietnam and its
sustainable direction.
many support initiatives.
Such programs follow
an integrated approach to urban development,
The following five interrelated principles address the
can generate long-term savings, and include
seven major challenges facing Quy Nhon described
performance benchmarks for success.
in our introduction and provide a framework for
growth and change in the city and broader region.
IV. Intergovernmental Collaboration
Quy Nhon’s planning challenges demand integrated
responses that apply across scales and agencies,
Planning Principles
and consider economic growth in conjunction with
I. Regional Approach
environmental protection. To minimize bureaucratic
A city alone cannot be sustainable. Cities rely on
inefficiencies, government agencies need to find
the rural regions that lie outside their administrative
effective ways of working together. Collaboration
borders
must be inter-departmental, and engage officials at
for
natural
resources
and
waste
management. The only way to create a balanced
the city, provincial, and national levels.
urban system is by planning for an eco-urban
region. This method incorporates land use planning,
V. Resource Valuation
infrastructure systems, and ecological management.
Natural and built systems perform multiple
A regional approach integrates the natural and built
functions, not all of which are accounted for in
environments into a functional whole.
existing appraisals of land value. A proper valuation
model must take into account all the services that
II. Long-Term Outlook
an ecosystem provides and all the ways land
While piecemeal development provides the benefit
performs (cf. “Ecosystem Services” in Definition of
of immediate income and profits, it cannot prepare
Terms above). For example, in addition to providing
cities to face the challenges of the 21st century,
agricultural resources, rice paddies are pervious
because it leads to the destruction of critical
surfaces that mitigate storm surges and flooding.
ecological resources. Long-term planning requires a
Quy Nhon should recognize these values when
commitment from public and private leadership. It
deciding where to direct population growth and
is the only way to use resources strategically and to
industrial development.
17
Conceptual Strategy: Eco-Urban Region
This strategy incorporates a Regional Approach with a Long-Term Outlook. It uses Smart Financing,
Intergovernmental Collaboration, and Resource Valuation to guide responsible growth and development in
Quy Nhon.
By planning at the scale of natural systems such as watersheds, Eco-Urban Regional Planning requires
working beyond the familiar political and administrative boundaries of ward, city, or province. It recognizes
and leverages connections between human settlements and natural geographies to minimize pressure on
natural systems while achieving socio-economic development goals.
Natural resources provide the basis of economic activity and contribute to Vietnam’s cultural identity. For
these reasons, they must be responsibly managed and preserved for use by future generations. Our plan
supports the city’s goal to become a center for environmentally focused industry and eco-tourism, as outlined
in the University of Hawaii’s Preliminary Asset Map and Comparative Advantage Analysis, and the microfinance
strategies outlined in the University of North Carolina’s Community Development Strategy.
18
Transport corridors
Dense mixed-use urban fabric
Industrial patches
Waterways and green areas
Analytical Tool for Valuation: Layered Land Use
Layered Land Use helps decision makers understand land in two ways: in terms of the activity that occurs “on
top” of it – such as housing, commercial and industrial activity, recreation – and in relation to how the land
itself performs or provides ecological services, such as habitat, air purification, or groundwater recharge.
This tool integrates planning of the built and natural environments. Rather than simply categorizing land
according to the functions it supports, we recommend a multi-layered understanding, which prioritizes and
recognizes the varied services that land provides. Our approach determines the potential performance of
land by examining its social, economic, and ecological assets.
Planners in Quy Nhon can use the Layered Land Use tool to understand and address their city’s urban growth
challenges and make better decisions on how and where to locate development.
19
2. ECO-URBAN VALUATION GUIDELINES
Overview and Benefits
Successful planning for an Eco-Urban Region
perform water management functions. The increased
starts with assessing the physical and ecological
value of land filled in for development is offset by
components in the region, and then building to
the cost of flooding damage due to the loss of those
an understanding of how they interact to support
wetlands. Likewise, the decision to allocate land for
ecological systems, economic activity, and human
heavy industry can make that land unsuitable for
wellbeing. Building from a site-based land-use
analysis based on Layered Land Use, Eco-Urban
Valuation recognizes that different forms of land
use overlap throughout the region. Unlike the rigid,
prescriptive, and at times contradictory land-use
designations proposed by the current Master Plan,
the Eco-Urban Valuation method considers how
seemingly distinct assets connect, and how they
perform in relation to one another.
housing and residential development. Given these
opportunity costs, land use decisions should be well
informed, analytical, and as strategic as possible.
As the University of Hawaii’s Preliminary Asset
Map and Comparative Advantage Analysis notes,
the Government of Vietnam has recently created
a number of incentives to attract private, jointventure, and foreign investment, including land
Given the scarcity of available land in Quy Nhon,
use charge exemptions, registration fee exemptions,
and the role that land plays in Vietnamese urban
reduced taxes, and preferential access to credit.
development, a more comprehensive understanding
While our approach does exempt some land from
of land value and land performance enables
development, we believe that doing so will make
more selective and strategic land use decisions.
available land more valuable and desirable. By
All land use decisions bear an opportunity cost.
choosing not to reclaim wetlands, Quy Nhon can
Once developed for a given purpose, land cannot
improve the performance and value of available
easily be adapted for other uses. For example, if a
wetland is reclaimed to provide land for residential
or industrial development, it loses its capacity to
land, and use this value as leverage to attract more
desirable investment.
Institutional Support for Ecologically
Responsible Growth
The World Bank’s Global Environmental Facility
(GEF), in conjunction with the United Nations
Development Program (UNDP), United Nations Environmental Program (UNEP), International Bank for Reconstruction and Development
(IBRD), and the Asian Development Bank (ADB),
provide grant funding for biodiversity protection
and climate change adaptation and mitigation.
Since 1991, the GEF has funded grants totaling
US $30 million in biodiversity projects, leveraged
for a total investment of US $112 million, and US
$43 million for climate change projects, leveraged
for a total investment of US$ 954 million
20
Eco-Urban Valuation Metrics
Ecological value
Short-Term versus Long-Term Value
Conversion
and
development
Left: Rice Paddies; Right: Reclaimed Wetlands
of
ecologically
An expanded understanding of land performance
sensitive land can incur long-term expenses, such
emphasizes the importance of ecosystem services
as damage from erosion, habitat loss, or increased
(See Definition of Terms). Ecosystem services
flooding. These risks can also deter investments,
provided by land in Quy Nhon include natural
due to the potential for environmental damage, or
drainage, temperature and local climate regulation,
the need to provide more costly infrastructure and
flood mitigation, water quality maintenance, and
hazard controls. Eco-Urban Valuation emphasizes
recreational opportunities. In recognition of these
that implications of land use extend to both short-
services, Eco-Urban Valuation reclassifies land
and long-term costs and benefits.
according to the various ecological, economic,
21
and socio-cultural functions it serves. Due to the
Green Areas
prevalence and projected intensification of flooding,
Quy Nhon has a diverse set of Green Areas that should
Quy Nhon must pay particular attention to
be valued for their contribution to an economically
ecological services that relate to water management.
viable Eco-Urban Region. The city’s agricultural
Planning must take into account the role that
land, aquaculture ponds, parks, beaches, wetlands,
individual parcels of land serve for the watershed
and its hydrological flows.
Adjacency value
The proximity of physical assets and land uses can
ecosystem services and directly support human
development and well-being.
While the 2004 Master Plan includes a designation
for open space limited to parks and green spaces
be an important determinant of land value and
within urbanized areas, it does not recognize
performance. By itself, a park may not provide
the ecological contribution of Green Areas to eco-
significant economic benefits. But in the vicinity of a
tourism, flood mitigation, cultural preservation, and
dense urban neighborhood, a park can increase the
natural habitat protection. In particular, the Master
value of neighboring land by providing desirable
Plan does not account for the future infrastructure
recreation space. Similarly, land that supports
investments that will be needed to make up for the
ecosystem services such as flood attenuation can
increase the value of adjacent land by buffering
it from flooding and making it more suitable for
development. By considering proximity, Quy Nhon
can avoid the long-term environmental costs brought
on by the development of ecologically sensitive land,
lost services that Green Areas provided.
Green Areas Type 1: Wetlands
Quy Nhon’s wetlands, which include the Thi Nai
Lagoon’s mangroves, rice paddies, aquaculture
ponds, and the river basin floodplains, provide
a number of important ecosystem services, as
while improving the performance and minimizing
summarized in Table 2 below. According to the
the development costs of more suitable land.
United Nations Millennium Ecosystem Assessment,
Performance-Based Land Use
Categories
We have identified two categories of land based
on how land performs and interacts: Green Areas
and Urban Areas. These categories are not mutually
exclusive. They overlap, and so doing, augment
each other’s value. In many cases, the Layered
Land Uses of Green Areas and Urban Areas work
together in the same geographical location, even at
22
and the Thi Nai lagoon provide irreplaceable
wetlands play a critical role in physically buffering
climate change impacts, including those that
threaten Quy Nhon. They also play a major role
in naturally treating and removing pollution from
the environment, in some cases reducing nitrate
concentrations by 80%.
According to the University of Hawaii’s Preliminary
Asset Map, these Green Areas provide economic and
many other benefits. Vietnam’s overall aquaculture
industry has grown at a steady rate of 12% annually
the parcel or building scale. For example, a dense
since 1990. In Binh Dinh, fisheries exports, comprised
urban neighborhood may feature rain gardens and
mainly of shrimp and catfish, are expected to reach
roadside swales.
US $4 billion in 2010. With 4,500 ha of aquaculture
agriculture/aquaculture
protected natural area
Beach
Lagoon
(marine
protected
area)
Beach
Existing Green Areas
23
in operation, this industry yields nearly US $900,000
Basin of Southern Africa have a net present value of
per hectare. In addition, agricultural land supports
US $3 million in reducing flood-related damage costs,
varied production of rice, maize, cassava, sugar cane,
in addition to providing $16 million in groundwater
soya, pineapple, groundnut, cashew, and coconut,
recharge, and $45 million in water purification and
representing 4% of the Vietnam’s total annual and
treatment.
perennial crops.
In fact, according to the UN Millennium Ecosystem
Several global examples highlight the values
Assessment, the economic value of intact wetlands
that wetlands provide. Generally, the presence of
often exceeds that of converted or otherwise
wetlands in a catchment area provides significant
altered wetlands, since once lost, they are not
flood attenuation, such that if 15% of a catchment
fully recoverable. In Thailand, intact mangrove
is comprised of wetlands, flood peaks will be 60-
forests have a total net present economic value of
65% lower than if no wetlands were present at all.
between US $1,000 and $36,000 per hectare, based
In terms of flood mitigation, wetlands can deliver
on the economic contribution of both marketed
direct economic benefits to cities in the form of
products such as fish and non-marketed services
infrastructure cost savings.
such as protection from storm damage and
carbon sequestration. By comparison, wetlands
24
According to the International Union for the
converted to shrimp farms yield US $200 per
Conservation of Nature, wetlands in the Zambezi
hectare. Furthermore, unconverted mangroves can
Quy Nhon Beach
also support eco-tourism, providing a source of
Nonetheless, government leaders and international
additional economic benefit.
lenders increasingly recognize the vital role of
ecosystem services provided by Green Areas, and
Given the global damage caused by flooding,
wetland conservation can play an important role
in supporting human well-being and development.
According
to
the
UN
Millennium
Ecosystem
Assessment, from the 1950s to the 1990s annual
economic losses from extreme flooding events
have begun to prioritize projects that maintain and
expand Green Areas. In Hanoi, Vietnamese leaders,
including City Chairman Nguyen The Thao,
recognize the need to support Green Areas throughout
the country’s cities. Hanoi’s Master Plan recognizes
increased tenfold. During the decade from 1992 to
the importance of Hanoi’s green corridors of rivers,
2001, flooding was the most frequent and deadly
lakes, and trees; municipal planning calls for trees to
natural disaster in the world, representing 43% of
cover 62 percent of Hanoi’s area.
the 2,257-recorded disasters, killing 95,607 people
and affecting an additional 1.2 billion.
Green Areas Type 2: Urban Parks & Beaches
Quy Nhon’s parks and beaches are important
In Quy Nhon, flooding presents a major concern.
According to the Vietnam Academy for Water
Resources, Binh Dinh’s tourism development
proposals do not consider natural disasters or risks
of flooding. Furthermore, up to this point, urban
planning in Vietnam has not yet begun to address
Green Area assets, providing recreational and
cultural opportunities. According to the University
of North Carolina’s Community Development
Strategy, nearly half of respondents surveyed on its
large urban beach visit the beach on a daily basis.
climate change. The national government lacks
Furthermore, Quy Nhon’s green spaces are clean,
procedures for disaster prevention and mitigation,
well-maintained, and inviting, contributing to
and has not devoted financial resources to upgrade
their vitality, both for local residents and as tourist
critical infrastructure, including dykes, dams,
attractions.
reservoirs, and shelters.
25
urban areas
peri-urban areas
Lagoon
(marine
protected
area)
Existing Urban Areas
Urban Areas
According to UN-HABITAT, 70% of income in
arising from the vertical and horizontal spatial mix
Vietnam comes from the urban sector.
in urban zones, including peri-urban development
Mixed-
use urban clusters and industrial pockets play an
and industrial areas.
important role in the region, providing places of
26
residence and employment as well as entrepreneurial
Urban Areas Type 1: Mixed-Use
and business activity centers for Quy Nhon’s
The high level of density in the city is an important
residents. These pedestrian-friendly areas provide
asset. It reduces the areal footprint of the city,
settings for tourism, recreation, social interaction
which minimizes the spread of development into
and cultural identity. While Urban Areas have many
Green Areas surrounding the city. Density near the
valuable aspects, we focus primarily on the benefits
urban core also decreases the need for extensive
new physical infrastructure projects in outlying
Quy Nhon, due to its connected street network. The
areas, such as roads and sewers. The provision of
location of residences above businesses facilitates
physical infrastructure already poses a problem in
easy access to home- and work-places, and provides
Quy Nhon and will become more difficult in the
a critical source of income for many of the city’s
future as the city grows in size and population.
residents. Retail businesses on the ground floors
The Asian Development Bank recognizes that
of buildings engage pedestrians better than offices,
infrastructure investments will make up a large
factories or housing would, and the informal café
portion of Vietnam’s GDP for the next ten years, and
culture and local vernacular architecture are tourist
that the government’s budget alone will not be able
amenities.
to support such investment.
The current master plan puts this type of mixed,
Growth management tools such as Portland,
dense development at risk when it calls for
Oregon’s Urban Growth Boundary (See text box,
development patterns that do not replicate these
page 30) serve to limit the growth of development
assets, proposing instead isolated single-family
to specific, predetermined areas, reducing the need
homes and skyscrapers. The natural growth of
for extended service coverage in outlying areas.
urban clusters along major transportation and river
Growth boundaries can use regulations or financial
corridors extends this building and neighborhood
incentives to achieve their desired outcome.
typology at a manageable rate. These peri-urban
areas are becoming denser due to infilling of
Quy Nhon is one of the three most densely settled
farmlands and development along roads. Such
cities in the south of Vietnam.
growth and development, if managed strategically,
The network of
streets, alleys and pathways around and between
can help the city grow appropriately.
buildings and blocks creates a walkable, connected
urban environment that fosters social interaction and
mobility. Whether on foot or by bicycle, motorbike
or taxi, it is easy to navigate through downtown
Mix of Uses in Quy Nhon’s Urban Areas
27
Quy Nhon Port & TriTin Furniture Company
Urban Areas Type 2: Industrial Pockets
areas makes transportation easier for workers than
Quy Nhon’s primary industrial area is currently
if these areas were isolated from the urban core,
located southwest of the city center. Although land
thus providing adjacency value (See Table 1 above,
use there is primarily industrial, mixed-use urban
Eco-Urban Valuation). Although industry must be
development surrounds manufacturing sites. The
separated from residential areas to some degree,
main industries are wood and granite processing,
the master plan calls for complete isolation of new
but Quy Nhon also has two major ports, a fish
industry on the Phuong Mai Peninsula.
market, and a few other sites of industry scattered
throughout the city. These industrial areas are
After
50
years
of
designing
valuable in terms of their economic contribution.
neighborhoods
The port facility located on the tip of downtown
completely separate from commercial areas and
Quy Nhon, for example, handles a total of 4 million
each other, planners in the US are now realizing
tons of goods per year.
that dense, mixed use neighborhoods may be
where
for
residential
single-use
areas
are
better suited for economically, environmentally and
Although most of Quy Nhon’s industries have
socially sustainable cities. Worldwide, planners are
nearby mixed-use development, sometimes it is
working to foster the kinds of characteristics already
necessary in land-use planning to set aside certain
present in the Urban Areas of Quy Nhon.
areas of the city for specific industries that may create
safety or security issues. Also, some industries may
Layered Land Use
require parcels of land too large to fit into a normal
Green Areas and Urban Areas are not spatially isolated
city block or lot, so cannot be located within the
from each other. In fact, these performative categories
mixed-urban core.
often work together in the same geographical space.
However, the proximity and placement of certain
28
Because most industry in Quy Nhon is currently
kinds of uses – that is, the way uses are layered – has
located away from floodplains, investors can trust
consequences for the overall function of the region.
that flooding will have a minimal impact on the
In our Proposal section following, we will suggest
function of their businesses. The proximity of
optimum proximity and coordination of multiple
industrial pockets to dense urban and peri-urban
land-use categories that share geographical location.
3. ECO-URBAN VALUATION METHOD: Land Suitability Analysis
We have used a Land Suitability Analysis to identify
appropriate areas for future growth and development
in Quy Nhon. The Eco-Urban Valuation framework
outlined above (Table 1) provides the basis for this
analysis. Our suitability analysis assesses the impact
that development could have on various geographic
areas of Quy Nhon. We use a basic rating scale system
of 1-5 (with 1 as least suitable, and 5 as most suitable)
to describe the appropriateness of development in
each of these places.
Integrating Industry and Urban Development
Eco2 Cities: Ecological Cities as Economic Cities, a new
program from the World Bank’s Urban Development and
Local Government division, provides support for ecologically
and economically integrated urban planning and development.
Emphasizing collaborative design and decision-making, a onesystem approach, and an investment framework that values
sustainability and resiliency, the Eco2 Cities program can
provides cities with technical assistance, capacity building,
investment and policy lending, and funding for climate
change projects.
Ecological Cities as Economic Cities:
www.worldbank.org/eco2
Water bodies: 1
Water bodies such as lakes, rivers, and lagoons
Areas alongside bodies of water, outside the floodplain: 3
provide crucial ecosystem services for the city
We have assigned land outside the floodplain but
and are places of significant hydrological activity.
located near bodies of water a moderate suitability
Reclaiming wetlands is destructive to the ecological
rating. Development in these areas does not directly
integrity of the region and should not be considered
pose risk to investment and lives but could impact
a sustainable option for development.
the quality of nearby water bodies if not done in
ecologically responsible ways.
Protected areas: 1
Designated protected areas with ecological value
Areas adjacent to protected areas: 3
should not be considered for any new development.
Land adjacent to protected areas may be developed
These places are vital for maintaining the region’s
as long as it does not encroach upon or impact the
biodiversity and contribute to water management.
proper functioning of these protected areas.
Steep mountainsides: 2
Areas alongside major transit infrastructure: 3
Because these mountainsides may be subject to
These areas could be considered undesirable for
landslides, we have assigned them a relatively
residential development due to the noise and safety
low rating. In cases where mountains are stable,
risk from busy traffic, but may be considered suitable
development can be encouraged, as the elevation
places for industry to cluster.
may provide some protection from flooding.
Agricultural areas: 4
Land inside the floodplain: 2
Agricultural areas not located in the floodplain were
Flood-prone areas are fundamentally unsuitable
assessed as relatively suitable, as long as they were
for development.
Though some engineering
outside the floodplain and away from protected
interventions could help control the flow of
areas. However, these areas do serve some cultural
water, such solutions are not entirely reliable, so
functions and provide sources of income for a
development in these areas could place people and
portion of the population.
investments at risk.
29
Built-up areas: 4
Because built-up areas already support current
development, we have assigned them a relatively
high rating. Development here can be integrated
into the urban fabric with very little impact on
surrounding natural regions.
Vacant or non-agricultural land: 5
Remaining land in the region that does not fall into
Urban Growth Boundaries (UGBs) place legal limits for
development at a prescribed distance from existing urban
centers.
They are part of regional planning strategies because they
protect green areas on city peripheries and incentivize
development closer to the urban core.
UGBs also reduce infrastructure development costs and
reduce the size of municipal and utility service areas. This
encourages compact development.
any of the lower-rated categories is identified as
at a regional level. The mapping process effectively
most suitable for urban growth. This type of land is
models how the city can appraise its ecological assets
plentiful in Quy Nhon’s region.
and the risks inherent in development. By avoiding
preserved areas and risk-prone sites, the city can
Unlike the Master Plan, this diagram does not
help ensure that development has a long-term focus
propose specific recommendations.
The analysis
with a limited impact on the natural environment,
demonstrates the outcome of a process that decision-
establishing the foundation for growth into an Eco-
makers in Quy Nhon could adopt to plan for growth
Urban Region.
Land Suitability, Quy Nhon Region
30
PART 2: PROPOSAL
LAND USE RECOMMENDATIONS
1. PROPOSED LAND USE PLAN
2. IMPLEMENTATION STRATEGY
3. IMPLEMENTATION CASE STUDY
Quy Nhon Region
31
LAND USE RECOMMENDATIONS
Development of an Eco-Urban Regional Strategy
requires planning across multiple scales. In order to
outline a process for multi-scalar planning, we will
discuss the interrelationships between decisions
1. PROPOSED LAND USE
PLAN FOR QUY NHON
REGION
made at the regional, ward, and building scales. This
enables us to provide region-wide recommendations
We propose a land use plan that strives to achieve Quy
for networking and layering Urban Areas and Green
Nhon’s long-term goals of economic development
Areas. Then, using Nhon Bihn Ward as a case study,
and livability. Because we find value in the existing
we will describe how mixed-use development and
mixed-use urban fabric of the city, we recommend
green infrastructure investments can be layered at the
designating mixed-use in as many areas as possible,
building scale and throughout the ward. A planning
rather than imposing single-use tracts on any city
approach that considers city growth in relation to
sector. We expect future mixed-use areas to contain
the regional scale offers Quy Nhon a real chance to
clusters of diverse types of businesses and activities
grow sustainably. By regional scale we mean an area
fostered by levels of density that will create lively
defined by both economic activity and ecological
neighborhood centers.
processes, such as the scale of a watershed.
Existing Master Plan vs. Proposed Land Use
32
Our choice to promote mixed-use instead of singleuse throughout the Phuong Mai Peninsula, even in
places designated for industry by the Master Plan,
represents our approach. Because the peninsula
does not flood, its value could be maximized with a
mix of uses including housing, as well as industrial
co-location practices.
For example, the Nhon Hoi Special Economic Zone,
already planned for this area, could be combined
with residential areas for workers and commercial
areas. The land on the peninsula is extremely suitable
for development—well connected to the city center,
strategically located on the waterfront, and free
from severe seasonal flooding. As outlined in our
introduction, concentrating solely industrial uses on
the peninsula threatens ecological ecosystems and
undervalues land that could be prime residential,
Phong Mai Peninsula: Master Plan vs.
Proposed Land Use
commercial, or tourism real estate. While there is
The Master Plan concentrates development in areas
an advantage to locating certain industries near
with high risk of flooding. We recommend avoiding
port transport, smaller mixed-use industries could
development in areas that require land reclamation
be incorporated into bottom-floor store-fronts in
and are likely to flood. The shift in approach
mixed-use neighborhoods on the peninsula.
will provide savings in both the short-term (land
reclamation is a costly construction process) and
Eco-Industrial Clusters
Quy Nhon desires industrial growth, and
can attract key industries and create jobs
without giving the majority of its best land
to polluting factories. Quy Nhon can set
an example for energy-efficient industry
by attracting eco-industrial clusters
throughout the city. Eco-industrial parks
co-locate industries to share infrastructure
investments and facilitate resource and
materials recycling and exchange. The
World Bank’s Global Environmental Facility
recently funded a US $7.6 million project
to increase industrial efficiency in Vietnam.
This type of funding could be used to provide
infrastructure incentives for the creation of
eco-industrial parks.
in the long-term (development in flood plains will
likely be destroyed by storms).
One of Quy Nhon’s greatest strengths is the variety
of transit infrastructure in the region. The city’s
proximity to the airport, seaport, and rail links, as
well as its important national highways – which
directly connect with Hanoi, Ho Chi Minh City,
northeastern Cambodia, southern Laos and central
Thailand – are factors that attract investment. The
existing transit network will also be reinforced
by projects such as the upgrading of Highway 19.
Accessibility is one of the key elements of regional
integration. Physically connecting activity centers
by creating a transportation network among them
increases city-wide connectivity.
33
2. IMPLEMENTATION
STRATEGY
We propose a strategy for expansion based on our
eco-urban valuation, land suitability analysis, and
our understanding of the regional context, in order
to help leaders in Quy Nhon transform the city into
the center of an Eco-Urban Region.
Recommendations for locating Green Areas
We determine our recommendations for placement
of Green Areas by the need to protect those highly
valuable natural functions presently
vulnerable
to development pressure (for example, mangrove
Proposed Linked Destinations
forests), to prevent development in unsafe areas
Linking the city to the larger national and
to leverage the eco-system services they provided
international
for the city (flood mitigation).
transportation
network
increases
(like mountains where landslides are frequent), and
opportunities for economic growth, something
Quy Nhon should consider if it wants to become a
As outlined in our Eco-Urban Valuation section, rice
First-Tier National City. Improved transportation
paddies act as sinks for stormwater and perform
networks would also facilitate access to the region
multiple water-management functions. This makes
for investors and tourists.
their preservation one of the most cost-effective
strategies for climate change adaptation. Locating
Green Areas along rivers and the coast and around
natural protected areas allows them to serve as a
transition between built and vulnerable natural
Urban Transport Grants
The World Bank has recognized that improving
transportation infrastructure for Vietnam’s
growing cities is critical. The Bank recently
funded a nearly US $300 million transportation
grant for improvement projects in Hanoi,
including a Bus Rapid Transit (BRT) system
and other road and bus-way improvements. Our
proposed strategy will create neighborhoods in
Quy Nhon where transit is economically viable.
A system such as BRT could move people among
urban areas.
34
environments. As connectors, Green Areas support
ecosystem services, and link outlying assets with
centers of activity.
Identifying appropriate sites for mixed-use Urban Areas
We propose that most new urban development in
Quy Nhon should be designated as mixed-use.
This type of growth reduces infrastructure costs,
simplifies transit needs and reduces industrial waste
generation by promoting co-location practices for
small-scale clean industries.
Restoration of Mangroves to prevent coastal erosion
The government of Bihn Dihn has identified erosion
protection as a development priority. Quy Nhon’s mangrove forests naturally serve the function of protecting
riverbanks from erosion. However, current and proposed
development puts these forests at risk, threatening to
exacerbate land erosion causing damage to new and existing development. Quy Nhon should preserve and restore
its natural mangrove forests as a cost-effective means
for reducing erosion along the region’s many rivers. The
Rockefeller Foundation is currently funding mangrove
restoration efforts in Quy Nhon, and planned development
should strategically utilize and promote these efforts. The
World Bank’s Global Environmental Facility (GEF) also
recently funded a $6.9 million project to study the benefits
of ecosystem services in Southeast Asia, including using
vegetative cover to prevent erosion.
Proposed Green Areas
Quy Nhon’s government estimates that the city’s
population will increase to 500,000 by 2020. Several
policy makers in Quy Nhon expressed concern
that the city does not have enough buildable land
to accommodate the growth it desires, and told us
that as a result, the city has undertaken many land
reclamation projects. Our land suitability assessment
reveals that Quy Nhon does have some large areas of
developable land, particularly to the west of the city,
as well as along much of the Phuong Mai peninsula,
which
are
suitable
for
housing,
commercial
enterprises, and light industry. We propose several
pockets of mixed-use growth in those areas.
Quy
Nhon’s
current
Master
Plan
proposes
accommodating growth using high-rise towers and
suburban villas, whereas we believe new housing
development should reflect existing densities and
building typologies. Quy Nhon’s current Urban
Areas feature very dense neighborhoods, with
approximately 100 dwelling units/ha in the city
core -- similar to some of the densest neighborhoods
in
Western
cities.
By
placing
high-density
development along the Phuong Mai Peninsula, as
well as developing new peri-urban clusters along
Proposed Mixed Use Areas
Encouraging Mixed-Use Development: Small and
Medium-Sized Enterprises (SME) Initiative
Quy Nhon seeks investment on a number of different
housing projects. By developing mixed-use buildings
with space for both dwelling units and small businesses,
Quy Nhon can access multiple sources of funding while
promoting affordable housing and business developments.
Numerous funding organizations, such as the Asian
Development Bank, European Commission, International Finance Corporation, UN Industrial Development
Organization, and USAID provide funding for small- and
medium-sized enterprises. Developing mixed-use areas can
provide Quy Nhon a platform to apply for microfinance
funding programs for tenants to develop income-generating industries.
35
Strategic Locations for Population Growth
the transportation corridor to the west of the city,
and avoid possible costs incurred by unnecessary
Quy Nhon can accommodate housing for the over
infrastructure development.
200,000 new residents it anticipates.
Proposed Industrial Pockets
By developing some 400 ha of the Phuong Mai
We propose two areas for industrial clusters: near
peninsula into mixed-use residential neighborhoods
the new port on the Phuong Mai Peninsula and
at the current density of central Quy Nhon, the city
close to the highway and railroad in the western
could accommodate 135,000 new people. Large-scale
part of the city. These industrial pockets should be
development is also appropriate on the western
surrounded by green buffers in order to increase
periphery of the city, where new development could
safety and security in nearby residential areas, but
connect existing peri-urban areas along the National
whenever possible they should be integrated into
Highway 1 corridor. Development in that area at
the urban grid to maximize the benefits of industrial
75 du/ha could accommodate an additional 90,000
co-location.
people, totaling 225,000 new residents using only
existing suitable land and protecting much of the
As discussed in our Introduction, Quy Nhon plans
city’s agricultural and undeveloped land.
to develop a new deep-water port with 12 million
tons annual shipping capacity. While the port
36
To prepare for expected growth, the city must commit
has the potential to open Quy Nhon to increased
to large investments for infrastructure and services.
international trade and investment, it is likely to
To reduce this initial expense, the city should develop
have significant negative impacts if development
an incremental approach. Incorporating scattered
proceeds as planned. For example, the required
pockets of mixed-use land into to the city gradually
11-meter depth dredging in the Thi Nai Lagoon will
will maximize the flexibility of proposed land use
have a serious impact on regional ecology and water
Wind farm on Phuong Mai peninsula
Quy Nhon has expressed interest in funding a wind power
plant on the Phuong Mai peninsula in order to take advantage of what scientists have determined is ample available
wind. Such a plant could serve as a strategic industrial
patch – a large development creating jobs and serving to
meet the region’s energy needs while not severely affecting the natural ecosystem of the lagoon as opposed to
other proposed development projects. In 2009 the World
Bank approved US $202 million through an IDA credit to
fund renewable energy development Vietnam. Quy Nhon
should approach the World Bank about accessing this
funding.
3. IMPLEMENTATION
CASE STUDY:
Nhon Binh Ward
As we have discussed, the Master Plan calls for
developing parts of Nhon Bihn Ward into an “Ecocity.” Clearly, those planning for Nhon Binh value
ecological
sustainability.
Working
within
our
Layered Land-Use framework, in this section we
will provide more focused recommendations to
achieve ecological and livability goals.
quality, as will reclamation of the Bai Diep Bay. It
is worthwhile for the city to reexamine whether
Development of Nhon Binh as an eco-city requires
the demand for shipping capacity could be met by
the engagement of multiple stakeholders in crafting
expanding existing port infrastructure. Many nearby
a more integrated planning process. Therefore, we
cities already have deep-water ports, but do not
have designed our interventions to work on multiple
have anything like the biodiverse and scenic Thi Nai
scales, to adapt, use resources efficiently, harness
Lagoon, one of the assets that sets Quy Nhon apart.
natural resources, engage multiple stakeholders,
The city’s ecological assets provide a competitive
and attract smart investments.
advantage in the region and should be prioritized.
Following we will present building- and ward-scale
We propose that Quy Nhon use the tariff-free
recommendations using Nhon Binh Ward as a case
strategy to target the location of selected industries
study site. Nhon Binh, located just west of the lagoon
throughout the city instead of targeting growth in a
and north of the existing urban center, is important
certain physical location. Instead of just providing a
for the current development strategy, as evidenced
tariff-free zone on Nhon Hoi Peninsula, Quy Nhon
by the fact that the government has already invested
should offer new firms in these selected industries
in new infrastructure in the area. The ward also
the opportunity to operate tariff-free city-wide.
contains residential areas, a river, heavy industry,
This shift will provide the city with a vehicle for
and agricultural land.
attracting high-value industries without sacrificing
valuable biodiversity and eco-tourism assets such as
the Bai Diep Bay. Selected industries could include
MULTI FUNCTIONAL
MULTI SCALAR
IT, clean energy providers, high tech manufacturing,
Prevents flooding
Building
Residents
and crafts.
Nhon Binh as a Case Study for Implementation
Nhon Binh presents a microcosm of many of the assets
and challenges present throughout Quy Nhon. For this
reason, recommendations effective in Nhon Binh could be
replicated throughout the rest of the city. In this section,
our report will outline a to establish green infrastructure systems in Nhon Binh, as well as give examples of
precedent sustainable development strategies and international funding sources.
MULTI STAKEHOLDER
Connects neighborhoods
Ward
Government
Creates destinations
Region
Private
Investors
Components, Scales, & Stakeholders
37
Nhon Binh
Stakeholders
Innovative Water Treatment Plant in Nhon Binh
Several government agencies and ministries have
The World Bank’s Global Environmental Facility
is currently financing a US $26.6 million project to
improve the health and habitat conditions of marine
and coastal ecosystems in Quy Nhon by reducing the
discharge of pollutants in the Thi Nai lagoon.
stakes in the development of Nhon Binh. The
There are three components to the project:
• The construction of a highly innovative Treatment
Plant in Nhon Binh connected to the sewage system.
• Public communication and replication of the strategy,
including capacity-building for interested parties and
education program for local communities.
• Project management, monitoring and evaluation,
which specifically includes monitoring of the water
quality in the Thi Nai Lagoon to evaluate the reduction
in pollution.
38
Department of Agriculture and Rural Development
oversees agricultural land; the Department of
Commerce and Investment oversees industrial
development; and the Department of Natural
Resources and Environment serves to monitor
environmental impact. Under the Master Plan,
the Department of Construction is responsible for
the proposed eco-city residential development,
which is dependent on outside investment to move
forward. We propose that the People’s Committee
and relevant government agencies should take the
The treatment plant is expected to be operational in
2014. However, this World Bank water treatment plant
is only sufficient to projected demand until the year 2020
– after that, according to ACCCRN, there is a risk that
system performance will be compromised due to sea level
rise and greater flooding.
initiative to identify Green Area and Layered Land
See the World Bank’s Global Environmental Facility
Coastal Cities Project in Vietnam, part of the AsiaPacific Economic Cooperation Initiative.
informed and effective way.
Use potentials for Nhon Binh Ward’s development.
By recognizing each other’s roles in the planning
process and coordinating resources, government
agencies can negotiate with developers in a more
Ward Scale
Green Area components at the building scale can be
As outlined in our Eco-Urban Valuation section, some
networked together at the ward scale to create green
limited industrial pockets can be placed adjacent to
corridors that connect together and layer uses to
mixed-use neighborhoods, providing opportunities
improve water management, mitigate flooding, and
for industrial co-location. Nhon Binh already
buffer natural areas from development.
contains some large manufacturing centers, mostly
surrounded by vacant land. New industrial sites
Walkability is also an important consideration
should be placed in co-located pockets throughout
for Quy Nhon to address on the ward level. By
the ward, surrounded by vertically mixed-use
designing neighborhoods with a central commercial
buildings. Green Areas should surround both the
strip within a 15-minute walk of all housing in the
new and existing industrial pockets in order to
area, Quy Nhon can establish desirable destinations
limit impact on the surrounding neighborhoods.
for tourists and investors and make public
Scattering a limited number of large manufacturing
transportation viable. While the proliferation of
sites throughout the ward makes it more likely that
motorbike use in Quy Nhon (and Vietnam in general)
workers will be able to walk to their jobs.
has allowed for greater personal mobility, large
numbers of two-stroke diesel motorbikes seriously
While we understand it is important to have
threaten air quality in Quy Nhon and cause traffic
delimited places for larger firms to locate, some of
congestion. A dense mixed-use neighborhood such
the economic growth desired for Nhon Binh could
as what we are proposing for Nhon Binh would be
come from small- to medium-sized light industries
the ideal location for a bus rapid transit stop.
located on the ground floor of residential buildings.
Layered Land Use: Ward Scale
39
Layered Land Use: Building Scale
Precedent: The Lloyd Crossing neighborhood development in
Portland, Oregon
From the outset, Lloyd Crossing’s planners worked to identify
green infrastructure opportunities that could be realized at
the neighborhood scale. When completed, Lloyd Crossing will
eventually cover 35 city blocks, and will generate 27,000 tons
less in carbon emissions than conventional developments,
while adding 8 million square feet of new buildings.
To reduce water consumption, for example, the neighborhood
will combine stormwater with greywater systems to recycle
water for non-potable uses. Tree planting and habitat
restoration will provide new connections between the
urban environment and surrounding green zones. The
neighborhood’s tree cover will increase from 14% to 30% by
2050, improving habitat quality.
By adding building- and site-scale infrastructure, Lloyd
Crossing reduces the burden on Portland’s overall
infrastructure systems, bringing down operating costs for
the city. And by taking the lead in developing a four-block
“catalyst” site, City Government is providing a model to
attract investors. Lloyd Crossing shows how layered land use
principles can be implemented on building and neighborhood
scales.
Portland Development Commission. “Lloyd Crossing:
Sustainable Urban Design Plan & Catalyst Project,” 2004.
40
Some potential grant and loan funding sources
for these industries is available through the World
Bank’s SME funding initiative (See text box on page
35, Encouraging Mixed-Use Development).
Lack of access to water and sewer systems poses
one of the biggest concerns currently facing Nhon
Binh Ward. A 2009 study concluded that some 20%
of households in the ward did not have access
to water and sewer systems, primarily because
of the relatively high cost of connecting to those
systems.
Following,
our
green
infrastructure
recommendations for the building scale will suggest
ways to lower infrastructural costs overall and
therefore could help lower the price of basic services
such as piped water. Additionally, as noted above
on page 38, the World Bank’s Global Environmental
Facility is already funding the development of a
new water treatment plant in the ward under its
biodiversity mandate.
Building Scale
Nhon Binh should seek to develop mixed-use
would be able to have a shelter (home), a source of
buildings consistent with the current downtown
income (small ground level business), and a source
area of Quy Nhon. These buildings encourage an
of fresh produce (rooftop garden plot), all within a
active street life, support small and medium ground
small piece of land. Green infrastructure systems in
floor businesses with upper floor residential units,
buildings can be connected to a smart street system,
and can be designed in a very dense pattern.
which controls and channels stormwater through
swales and manages drainage via green patches.
To minimize the need for costly traditional
This type of development typifies the mix of uses
infrastructure, buildings should incorporate green
described by Layered Land Use at the building scale.
infrastructure components, including rain gardens,
rooftop catchment systems, and water cisterns.
Combinations of these interventions at multiple
Properties should be designed to incorporate to
scales (mixed use buildings and neighborhoods,
maximize permeable surfaces in order to allow
industrial
rainwater to replenish aquifers as well as minimize
development) provide an example of what a Layered
runoff on street surfaces. Rooftop water catchment
Land Use approach could look like region-wide.
systems already exist to a certain degree in Quy
This approach can be applied in Nhon Binh, then
Nhon. By placing rain barrels on roofs or under
replicated and networked throughout the region.
gutters, water can reused for irrigation or other non-
Green infrastructure solutions utilized in Nhon Binh
consumption uses.
ward will also help relieve flooding in other parts of
pockets,
and
green
infrastructure
the city, such as downtown and nearby residential
Nhon Binh also offers an optimallocation to
areas. For these reasons, Green Areas should
experiment with the development of green roofs.
eventually be expanded to buffer new development
Many of the buildings in Quy Nhon have flat
on the Nhon Hoi peninsula as well as the Phuoc
roofs—ideal for planting small crops for those who
Thuan and Phuoc Son wards north of the city center.
do not have backyards. By developing vertically
mixed-use buildings with rooftop gardens, a family
Precedent: NYC Green Infrastructure Plan
New York City is currently pursuing many of these
strategies with its recently introduced Green Infrastructure Plan. By incorporating green infrastructure
features such rain gardens, green roofs, and swales,
the city will eliminate 10% of runoff from its combined
sewer system, reducing the need for more costly grey
infrastructure investments. Through the use of green infrastructure as opposed to traditional infrastructure the
city projects that it can save a staggering US $1.5 billion
over 20 years. Similar interventions in Nhon Binh can
help attract investors through reduced infrastructure
costs
41
CONCLUSION
Quy Nhon has tremendous assets with which to
grow, including a lively urban core, productive industrial and agricultural land, and beautiful mountains, beaches, parks, lagoons, and rivers. Yet a number of challenges inhibit Quy Nhon’s development
goals, including insufficient public funding, ad-hoc
and disjointed planning and development processes, the loss of natural resources, flooding, and longterm climate change. These challenges threaten the
city’s assets, and limit the city’s ability to meet its
growth targets.
Though it provides a prescriptive vision for Quy
Nhon’s future, the 2004 Master Plan ignores this
contradiction, and risks compromising the city’s
Everyday Life in Quy Nhon Offers Rich Cultural Experiences
“People come here to go to open markets, to sit
and drink a coffee at a sidewalk café, to eat real
pho, to buy ‘French’ bread from a basket, to visit
smoke-filled temples where people come to pray
every day… Now just think about some other
cities in Southeast Asia. Their tourism promotion boards may say something about ‘experience’ in their campaigns, but all their experiences are in controlled settings – casinos, shopping
malls, resorts… come to [Vietnam] and you will
experience life that overflows.”
- Mike DiGregorio
unique identity. Despite ambitious targets for new
housing, industry, and tourism, the Master Plan also
lacks a realistic implementation strategy.
categories, new development should be dense and
mixed-use to support human needs as efficiently as
In this context, our report proposes Eco-Urban Re-
possible. Urban Areas should also preserve green
gional Planning as a conceptual strategy to help
corridors and harness green infrastructure to mini-
Quy Nhon achieve its goals. This approach recog-
mize infrastructure investment costs and maintain
nizes the value of Quy Nhon’s ecosystem services
well-functioning ecosystems.
and other regional assets, and leverages them to
achieve the city’s growth and development goals in
By employing this strategy, Quy Nhon can ensure
an inclusive, sustainable, and resource-efficient way.
resilience to flooding and climate change, and in-
To help guide this approach to planning, we have
crease its attractiveness to investors. With support
introduced Layered Land Use as an analytical tool for
from the international funding organizations identi-
understanding the connection between built and
fied in this report, Quy Nhon can become an Eco-
natural environments, and the numerous ways in
Urban Region, providing a model process for sus-
which land performs.
tainable urban development both in Vietnam and
worldwide.
Planning for the future of Quy Nhon needs to be
based on the performance and suitability of land. Fu-
Though a new approach to planning, this strategy
ture growth must recognize the value of Green Areas,
is ultimately premised on making Quy Nhon more
and concentrate residential and industrial develop-
Quy Nhon by building on the wealth of assets that
ment in the most suitable Urban Areas. Recognizing
make it such a unique and charming city.
the overlap between these performance-based land
42
APPENDIX
43
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45
Transport corridors
Dense mixed-use urban fabric
Industrial patches
Waterways and green areas