How Does a Masterplan Facilitate the aim to “build back better”?
A master plan is a carefully developed document that outlines the data and conceptual framework necessary to
guide future growth and development. It is essential for the successful design of buildings, sites, and entire
cities, ensuring that the connections between the environment, social settings, and buildings are thoughtfully
integrated. Master plans encompass recommendations, analyses, and proposals for various elements such as
housing, economy, population, community facilities, transportation, and land use. They ensure growth is
economically viable, environmentally sustainable, and socially beneficial, aligning physical layouts with
economic and social policies for long-term resilience and vitality.
In the context of Ukrainian cities impacted by the ongoing conflict, master planning is crucial. It can effectively
address the multifaceted challenges of building back better, such as housing requirements, employment needs, and
the creation of essential community facilities like schools, health centers, and public transport systems. A
well-crafted master plan can unlock previously under-developed land, engage local communities in the rebuilding
process, and help build consensus on the future direction of the area. By providing a clear and structured
approach to redevelopment, master plans can ensure that cities are not only functional and sustainable but also
vibrant and resilient, enhancing the quality of life for their residents.
Setting clear objectives and goals for a masterplan
This step provides essential direction and focus, aligning with Ukraine's urgent need to build back better.
Understanding the purpose behind developing a masterplan is fundamental. Key objectives should be identified
within the planning process, whether the goal is to create a new strategic spatial plan, update an existing
land-use plan, or integrate specific components such as stakeholder participation and climate action. Defining
the challenges to be addressed is equally important. These might include rebuilding infrastructure, ensuring
economic recovery, providing adequate housing, and enhancing security. The objectives should resonate with the
community's immediate and long-term aspirations, addressing critical issues and aligning with international
urban planning frameworks. By clearly defining these goals, it becomes possible to ensure that all stakeholders
are working towards a common purpose, thereby contributing to the comprehensive recovery and future development
of the affected areas.
To support this process, a template is available that helps gather basic information and guide the development
of clear objectives and goals.
Explore the following videos to hear directly from Mykolaiv's Chief Architect about the city's approach to
developing a masterplan and its underlying objectives (videos can be auto-translated into English):
VIDEO
What Impact Do National Objectives Have on Urban Master Plans?
In master planning, it is crucial to take national-level objectives into consideration because they provide a
unified framework that aligns local development with broader national priorities. National objectives encompass
economic goals, social policies, environmental sustainability targets, and infrastructure planning that affect
regions and cities nationwide. By integrating these objectives into master plans, planners ensure coherence and
synergy between local development initiatives and national strategies. This alignment enhances efficiency in
resource allocation, promotes equitable growth across regions, and supports sustainable development practices.
Additionally, considering national objectives supports master plans anticipate future challenges and
opportunities on a larger scale, fostering resilience and long-term viability for cities and regions within the
broader national context. By incorporating national-level objectives, master planning not only supports local
prosperity and livability but also contributes to the overall economic and social advancement of the country as
a whole.
How to take into account the national and regional priorities/ interests while developing the planning
documentation at the local/ municipal level?
Most countries have more than one level of government. In all such cases, there is a clear separation between
the
authority of local governments to provide for the needs of local population and businesses and the national and
regional governments to address the issues common to the population of the entire country such as national
security,
environmental protection, etc. However, when it comes to the spatial planning, interests of local community and
of the
national government have to coexist in one space.
The legal requirements to incorporate the national interests into the local planning documentation in Ukraine
are
stipulated by the Law “On Regulation of Urban Planning Activities”. In particular, Article 17 states that the
general
plan of a settlement should be developed and approved in the interests of the relevant territorial community,
taking
into account state, public and private interests. Similar provisions are made for other levels of planning
documentation.
The state interests in Ukraine are defined by the General Planning Scheme of the territory of Ukraine adopted
in law
in 2002, and other planning documents of the state and regional level, which stipulate the requirements for the
predominant functional use of certain territories, protection of the natural environment, ecological safety,
restoration and sustainable use of natural resources, the need for placement of objects of national and/or
regional
importance. The legislation stipulates also that when developing and making changes to the planning
documentation at
the local level, the interests of adjacent territorial communities have to be considered. Such interests can be
presented in the form of relevant concepts, strategies, projects, programs, urban planning documentation, other
data
on the current state and development plans of the relevant territories, including civil protection issues. The
Cabinet
of Ministers of Ukraine Resolution No. 926 of 01/09/2021 stipulates the procedure of how such interests have to
be
incorporated into the local level planning documentation.
The national interests could take two forms:
Reservation of land parcels for particular national-level projects;
Regulations and restrictions on the use of privately and publicly owned land (e.g. the height of buildings
in
proximity to the airports, restrictions for land use in proximity to in-land water objects).
The procedure for obtaining information about the state interests and interests of adjacent communities
stipulates
that the local government involved with planning should submit requests to respective authorities regarding the
statement of interests. State interests are provided in the form of official letters from the relevant executive
authorities with informational materials on state interests – extracts from the General Planning Scheme of the
Territory of Ukraine, the corresponding scheme of territory planning at the state and/or regional level, which
are
supplemented with information from other state planning documents (concepts, strategies, target programs). Such
extracts stay valid for three years from the date of their receipt.
As an input to the local planning, local authority should develop a “Situation plan” which contains information
on:
the networks of state-wide communication, engineering and transport infrastructure, which affect the
territory of
community under consideration;
objects of state interest, located on the community territory and are determined by the General Scheme of
Planning
of the Territory of Ukraine or the regional schemes of territory.
Determining the Geographical Limits and Focus Areas of a Masterplan
Defining the scope of a masterplan involves determining its geographical boundaries, key focus areas, and the
extent of developmental activities. It is important to identify specific neighborhoods, districts, or regions to
be included in the plan and to outline thematic areas such as emergency response, infrastructure rehabilitation,
public services, and environmental sustainability. Clearly defining the scope helps manage resources effectively
and sets realistic expectations for the plan’s deliverables.
What are the challenges of defining spatial boundaries for planning decisions in Ukraine?
In Ukraine, as in majority of former Soviet countries, the planning process is tightly regulated and involves
multiple levels of territorial plans: national, regional (oblast and rayon) and local. At the local level,
various planning documents may be utilized. These include comprehensive plans for spatial development of a
territorial community, which identify designated land use for both rural and urban areas. Additionally, General
(Master) plans for urban settlements are developed, stipulating planning decisions for current and prospective
use of territory, including the definition of areas for future development (functional zones). The Master plan
and comprehensive plan may coincide when a territorial community includes only an urban settlement (e.g. the
City of Mykolaiv) or may be developed only for an urban part of the territorial community. There is yet another
level of planning documentation – detailed plan – which may be developed for a part or entire territory of urban
settlement and is included in the General plan. The detailed plan defines the areas for different types of land
use within the functional zones and respective restrictions for construction and land use. According to
Ukrainian legislation, the detailed plan stipulates the spatial organisation of territory, the limits (red
lines) for placing permanent build-up structures, placement of social and transportation infrastructure, etc.
More information about the different planning documents is provided in the chapter “Navigating Regulations:
Studying the Legal Framework for Masterplan Implementation” of the Toolbox.
Respectively, the areas for planning decisions are defined by national, regional (oblast, rayon), and local
territorial community limits, as well as urban settlement extents or their parts. While the specific areas for
detailed plans are defined by the local governments which initiate their development, higher levels of planning
documentation rely on administrative divisions.
A recent administrative reform in Ukraine significantly reduced the number of sub-regional units from 490 rural
rayons and 183 cities to 140 new rayons (districts) and created 1,469 (amalgamated) territorial communities
within these districts, 381 of which are urban. This reorganisation has led to a redistribution of state and
community-owned real property, tax base and responsibilities for spatial planning.
However, the process of demarcating and registering these administrative areas has been slow and costly. By
June 2024, only 37% of settlements, 3% of territorial communities, and no rayons (districts) or oblasts
(regions) had officially established and registered their limits in the Land Cadastre. This slow progress in
registration has negative implications for urban planning, as it requires the establishment of new
administrative areas before the development of comprehensive or General (Master) plan can begin. Ukrainian
legislation stipulates three options for the local government to consider:
Request registration of administrative areas based on new planning documentation (which must be agreed upon
with adjacent communities);
Request registration based on historical areas, using official planning documentation effective as of 2003
(if applicable);
Recognise the technical limits shown in the index-cadastral map as official.
The responsibility for initiating such registration lies with the local government.
