The present spatial structure of Germany is a mirror of historical developments as well as a direct result of prospective spatial planning: the so-called Raumordnung [1]. Generally speaking the term "Raumordnung" describes the coordination of spatially effective human activities and the control of these activities over a longer period of time (Lendi 1995) (see also Glossary about Raumordnung- und Regionalplanung [2]). In a narrow sense Raumordnung covers the spatial principles and planning activities at the federal level. Thereby the planning agencies at the different levels [3] have to attune themselves to each other in all spatially relevant fields (environment, economy, transportation, settlement, etc.). The very beginning of Raumordnung in Germany dates back to the first decades of the 20th century. After World War II, Raumordnung was legally established in the FRG in the 1960s. Since the middle of the 1970s it went through a crisis. But since the 1990s, Raumordnung faces new challenges due to German reunification and European integration. After giving an overview of the history [4], aims, organization and instruments of Raumordnung some direct effects will be discussed based on the example of the state of Thuringia.
The colonization [5] of the eastern parts of Germany in the High Middle Ages and the inner colonization (so-called development of wasteland) in the early modern times are seen as historical precursors of Raumordnung. Nevertheless, the beginning of Raumordnung, in a strict sense, can be dated only in the first decades of the 20th century. The aimless sprawl of the big cities and the development of new agglomerations forced by the growing industry had made necessary the implementation of planning measures reaching across the municipal boundaries. As a result, the first planning associations came into existence such as the Zweckverband Groß-Berlin (the city of Berlin and its neighboring communities) in 1911 and the Siedlungsverband Ruhrkohlenbezirk [6] (communities in the Ruhr Area) in 1920. Preparing general plans, planning non-local transportation systems and coordinating land-use plans of the cities were part of their tasks. At that time this kind of Raumordnung was not seen to be a task of the state, but only as a coordinating task between single communities. The beginning of state wide spatial planning can be set in 1935 when the "Reichsstelle für Raumordnung" (state agency for spatial planning) was established by the National Socialists. However, in the following years it had no powerful effects except planning a German settlement system [7] in Eastern Europe.
In the middle of the 1950s, efforts were set into action to implement spatial planning at the federal level (Raumordnung). In the time period soon after World War II a general skepticism existed against state planning - originated by the experiences of the former National Socialist regime. However, the necessity for non-local, community overlapping planning became more and more apparent due to the steady growth of settlement areas and the increasing regional disparities. Therefore in 1955 an expert committee (Sachverständigenausschuß für Raumordnung (SARO)) was established, which forwarded a proposal in 1961 setting recommendations for establishing spatial planning at the federal level and vested with limited competence. As a result the law for federal regional planning (Bundesraumordnungsgesetzt (ROG)) was passed by the federal parliament in 1965 (it was amended in 1997). In this law the tasks [8] and principles [9] of Raumordnung were also set. The main goals were:
The general guidelines of the ROG were formulated as extremely general statements in order not to restrict the sovereignty of the federal states and the municipalities. On the other side special aims were cemented into the program of federal regional planning (Bundesraumordnungsprogramm (BROP)) in 1975.
The organizational responsibility for Raumordnung, for example the development of the programs of Raumordnung [10] (Raumordnungsprogramme), is carried by the Federal Ministry [11] for Transportation, Construction and Housing (Bundesministerium für Verkehr, Bau- und Wohnungswesen). In 1968, the Minister Conference for Raumordnung (Ministerkonferenz für Raumordnung (MKRO)) was set into action as an authority between the federal and the state level. It is responsible for harmonizing the conceptual ideas of spatial planning at the federal states level [12]. At this level the legal competence is carried by the state parliaments (passing the state planning laws [13], and establishing the state planning programs). The central planning agencies of the federal states have the duty to harmonize the contents of the single regional plans. The main task of regional planning [14] then, is the horizontal harmonization of municipal planning and adjusting the municipal plans towards the targets set by the federal state for spatial planning. The whole planning system is basically orientated along the so-called countercurrent principle [15] (Gegenstromprinzip), which is seen as a distinct characteristic of the spatial planning system of the FRG.
Until the 1970s much effort was put into implementing ideas and contents into the practice of planning at all levels of the planning system. For example, different categories of regions [16] were defined (e.g. urban agglomeration areas [17] (Verdichtungsräume)) and formal instruments of Raumordnung were developed. Important instruments were:
At the middle of the 1970s the development and application of such formal instruments underwent a crisis which lasted up into the 1990s. A decisive reason was the change in general thinking which led to the preference for concrete planning with citizen participation . However, the material instruments of Raumordnung remained important. Examples are the so-called forcing means (direct mandatory regulations due to spatially effective investment projects) or the attracting means (e.g. tax reductions or direct financial support): both can be used to influence the behavior of investors. Direct investments of the public into infrastructure are seen as forming means, which may - that is the hope - produce positive effects of growth. The instrument of information policy directly aims at enterprises and private people, who need secure information in order to make investment decisions.
Only during the 1990s did a renaissance of conceptual contents of Raumordnung arise. Reasons are, for example, the necessity of implementing the concept of a "sustainable spatial development" [20] and the collaboration towards developing a European policy of spatial planning. Different framing concepts were developed in the 1990s and were finally implemented into the "European Spatial Planning Concept" [21] EUREK in 1999. Within this context the concept of city networks [22] has been developed as a new instrument of Raumordnung. Its aim is to solve municipal problems by regional co-operation - e.g. planning of common settlement areas. Only by going this way can the spatial reserves, which will increasingly become a shortage in the future, be used in an optimal way. Such city networks have supra-regional effects of influence and will strengthen the decentralized settlement structure of Germany. It is expected that the resulting positive economic and environmental effects will support the maintenance of the competing capability of the "location Germany" (Standort Deutschland) and that a counter-balance to other European metropolisesand regions will be developed.
As well as these kinds of developments the German reunification has made a revival of spatial planning concepts essential. The regional planning system of the old (West German) federal states have to be transmitted to the new (East German) ones, but in particular a new demand for spatial planning has arisen. Within this context the goal of creating equivalent conditions of living, formulated in the 1960s, was evaluated as extremely critical. Due to the strong disparities between the old and new federal states assisting the growing together of the federal states was taken into the present amendment of the ROG asone of the main responsibilities of Raumordnung. The example of the state of Thuringia may demonstrate some guidelines of the present practice of spatial planning in the new federal states.
When the former GDR joined the Federal Republic of Germany on October, 3, 1990. Thuringia became a federal state [23] of the FRG according to the law of establishing federal states [24] (Ländereinführungsgesetz of July, 22, 1990). Thuringia [25] has an area [26] of 16,171.6 km2 and a population of 2,462,836 (July, 30, 1998). 37,355 people are foreigners, which is only 1.51% of the total population. The state of Thuringia is centrally located within Germany, but it has only a minor ratio of urbanization. Erfurt [27] is the capital, Gera [28] (118.000) and Jena [29] (99.000) are the second and third largest cities. The administrative structure [30] consists of 17 rural counties (Landkreise), six cities, not incorporated into counties, five bigger cities belonging to a county, 128 cities and 1053 municipalities. Since 1991 the principles of Raumordnung are valid in Thuringia as in all other new federal states as well. Thuringia is planned to be developed into a multifarious and healthy region for economy, settlement and living in accordance with its location and opportunities. This means for spatial planning at the federal and the federal state level, the development of a spatially well defined and compulsory frame for agriculture [31], industry [32] with its branches at different locations, tourism [33], education [34], culture [35], transportation and environmental protection. In order to fulfill the goals spatial planning instruments such as the concepts of central places, development axes, priority regions and city networks have been applied with growing success in the last couple of years.
| Top | Content | VGT Home |
){kind=link}