Potential Conflicts in the Land-Use Planning Process: A Case Study of the Rural Commune of Oleśnica (Poland)

Land use conflict is a complex problem following countless risk factors as a result of rapid socio-economic development and urbanisation (Allen 2003; Antrop 2004; Zhou et al. 2019). The dynamic socio-economic growth observed in Poland after its accession to the EU in 2004 affected intensive changes in the spatial development of the country. The results are an increase in incompatibility between the functions of adjacent zones and the related emergent threats of spatial conflicts. In particular, this concerns grounds located in the metropolitan systems of the largest cities in the country, especially those connected with rural areas (Lisowski, Grochowski 2009). Grounds located along administrative borders of communes are particularly exposed to this phenomenon, as they are a meeting area of various, and not always coherent, local spatial policies. Land-use planning decisions have potential for generating conflicts due to negative impacts on the environment and community (Kaya, Erol 2016).

This phenomenon has not been sufficiently investigated, particularly from the perspective of identifying the scale and nature of the existing incompatibilities. The scale and nature of the existing compatabilities is also very important in the context of a coherent spatial policy and prevention of spatial conflicts, which cause negative social, economic and environmental consequences (cf.Furmankiewicz, Potocki 2004; Głogowski et al. 2013; Gołąb-Korzeniowska 2008; Gonda-Soroczyńska 2009; Hajduk 2010; Hibszer, Partyka 2005; Jabłoński, Mazurkiewicz 2014; Kistowski 2008; Tokajuk 2011). Land use conflict occurs whenever land-use stakeholders have incompatible interests related to land areas that result in negative effects (von der Dunk et al. 2011).

The purpose of this study was to identify the compatibilities of land-use patterns resulting from adjacent functions that were specified during field studies. The research focused on spatial aspects – mapping hot spots of potential land-use conflicts. Mechanisms for coordinating local spatial policies do not prevent the emergence of spatial conflicts at municipal borders. The identification method is important to better understand the types of actions in the field of planning and competing stakeholder values.

The time frame of the study includes the status as of the end of 2016, when field-inventory-related works were completed. The spatial scope encompasses areas along the administrative borders of the rural communes of Oleśnica.

Sustainable development and spatial order as intended by the legislature are, for the authorities’ elusive goal of efficient and comprehensive spatial policy. Once achieved, this goal affects the quality of the residents’ life and the protection of valuable natural resources, while leading to economic development. Moreover, efficient spatial policy tools may contribute to new investments, which will bring numerous benefits to a commune and the adjacent regions (Gwiazdowicz et al. 2008). Local governments frequently fail to adhere to the basic premises connected with the proper operation of a spatial policy, thus generating spatial chaos. In Poland, there has recently been an increasing number of incompatible land-use patterns, collisions of functions and spatial conflicts. According to Ułańska and Borkowska (2013), functional incompatibility occurs whenever adjacent lands have different purposes. In turn, conflicts occur when ‘one side wants to retain a specific function of the given territory (place) and the other intends to change it, or when both sides want to change the specific status (function), but the purposes or means of the change are understood differently’ (Furmankiewicz, Potocki 2004: 7). The aim of spatial planning is to meet current and future societal needs while keeping land-use conflict contained and functional (Brown, Raymond 2013).

Jędraszko (2008) emphasised that the Polish planning law favours the fast development of undeveloped and peripheral lands without accounting for the general interest of the urban area, which increases spatial chaos. The existing functional incompatibilities and spatial conflicts raise grave reservations of numerous scientists and authors; therefore, they are often the object of research, with numerous publications focusing on naturally-valuable areas.

Another sizable group consists of works concerning areas related to the phenomena of urban-isation and suburbanisation. As mentioned before, Grochowska (2016) as well as Ułańska and Borkowska (2012) analysed conflicts which occur in metropolitan areas. At the same time, they determined that in order to restrict adverse phenomena occurring in space and to improve the quality of spatial planning it is necessary to improve the qualifications of public authorities and planners. The authors emphasised that the existing functional collisions and spatial conflicts result from the faulty functioning of the spatial planning system as demonstrated by inconsistencies in legal regulations and planning procedures, low awareness of residents in the scope of a spatial economy, and the frequent incompetence of local government bodies (cfFurmankiewicz, Potocki 2004; Przewoźniak 2007; Puk 2011; Wdowicka, Mierzejewska 2012).

The analysis was made for land-use patterns present along the border of the nine pairs of adjacent communes. As a result, a total of 255 sections with different land-use patterns were identified, including: based on the land purpose specified in the studies of conditions and directions of spatial planning, 79 sections were defined as incompatible, whereas a field inventory disclosed only 18 incompatible sections (Table 2). The identified sections with incompatible land-use patterns may become the sites of potential spatial conflicts. It is also worth noting that ‘the land functions which are deemed incompatible may become conflicts, but not necessarily. Whereas compatibilities between land-use patterns are not tantamount to the lack and impossibility of conflicts. It may happen that apparently compatible functions come into conflict with each other’ (Grochowska 2016: 14). The current incompatibilities demonstrated that the investigated area suffers from problems with coordination of the local spatial policies.

The biggest share of incompatibilities was found in the border between the commune of Oleśnica and the town of Oleśnica. The area was characterised by a high intensity of urbanisation and investment processes, hence the large diversity of designation of areas with potential incompatibilities. The town of Oleśnica is distinguished by its diversified land development. There are both production and agricultural areas, as well as intensive housing and forest development.

Both the study and field studies found no incompatibilities at the border between Oleśnica and Dziadowa Kłoda. On the remaining borders the sum of incompatibilities ranged from 1 to 15, the smallest share of them concerned the communes: Jelcz-Laskowice and Czernica. It is worth noting that much more incompatibilities were determined on the basis of allocations included in the studies of conditions and directions of development of communes than in the real dimension. This may be due to the fact that not all the provisions of the study have been implemented. Analysing the border for each commune, 115 sections with different actual development were determined separately from the results of the analysed planning documents (Table 3).

The differences concerned mainly the areas used for agricultural purposes, while in the study the area was intended for single-family housing and there was afforestation instead of arable land.

When studying the incompatibilities determined on the basis of the studies, the most frequent incompatibilities (55%) concerned the areas of housing function (multi-family, single-family or/and homestead), housing and service function with the area of agricultural and forest function (Fig. 2). Subsequent incompatibilities appeared in the combination of patterns: areas of production facilities, areas of deposit exploitation also with the area of a natural function (14 occurrences); housing functions with the area of service functions (5 occurrences); areas of service development with allotment gardens and arable areas (5 occurrences) and areas of housing development (service, single-family and/or homestead) with the areas of production facilities (4 occurrences). The ‘other’ category included the following colliding functions: homestead development with single-family housing, housing and service development and surface water areas; housing and service development with closed areas, areas of production facilities with sports and recreation areas and allotment gardens and mining areas with housing and service areas.

Fig. 2

When analysing the incompatibilities determined by the field inventory, a similar proportion of individual incomaptibilities can be observed. The largest number of incompatibilities, i.e. as much as 56% in total, constitute incompatibilities resulting from the neighbouring functions: housing development (single-family housing) with afforestation and with areas used for agricultural purposes. The largest share was held by incompatibilities resulting from neighbouring areas: production facilities, warehouses, mining areas and agricultural areas (4 occurrences) (Fig. 3). The ‘other’ category accounted for a significant share, which already included one case of adjacent areas: the area of housing development with the area of: large commercial buildings and mining function; the area of civil airport with the area of greenery; homestead development with the area of surface waters.

Fig. 3

The studies of spatial development conditions and directions for nine communes were the basic research material. Their scale and quality differed significantly, which made it more difficult to determine the exact lengths of incompatible sections; therefore, individual sections were analysed using general descriptive terms. The incompatibilities concerned short, single fragments of communal boundaries based on the planning documents and field inventory. Longer, incompatible fragments were observed at the junction of the commune and the town of Oleśnica.

This research shows that there are some spatial dependencies in the occurrence of incompatibilities. To a large extent, areas designated as incompatible appear where incompatibilities have been designated on the basis of studies. It simultaneously indicates that actual development incompatibilities are due to spatial planning incompatibilities. This is a premise for the critical assessment of a planning system that could potentially generate a number of problems (e.g. planning incompatibilities, spatial conflicts), while, in line with the principles of spatial order and sustainable development, it should prevent them.

The effect of spatial policies at the local level is the incompatibility of land use allocations, constituting an area of mutual interactions. It is worth noting that space is limited; therefore, in the case of a lack of space with certain characteristics, the appearance of incompatibilities is unavoidable. The analysis showed that the highest concentration of inconsistencies was related to characteristic phenomena of suburbanisation processes (spreading of housing, commercial and service buildings, and road infrastructure).

As a consequence, urban chaos and reduced functional system activity that appear in spatial development lead to the destruction of the natural environment and lower the inhabitants’ quality of life. Currently, the intensive development of some functions (housing, services, industry) contributes to the weakening of other functions (arable area, afforestation). Additionally, we can observe the phenomenon of the so-called ‘fight for space’, i.e. gaining as much space as possible to meet our needs.

The obligatory study of conditions and directions of spatial development creates spatial policy, covering the administrative area of the whole commune. When drawing up the documents, there is no obligation to adapt the land use to the neighbouring administrative unit; therefore, the boundaries of communes become particularly vulnerable to incompatibilities and spatial conflicts. On the other hand, according to the Act of 27 March 2003

Spatial Planning and Land Development Act of 27 March 2003 (Journal of Laws 2003, No 80, item 717).

The records of land use allocation in the analysed planning studies became the source of incompatibilities occurring in reality. The consequence of this is the inhibition of the proper shaping of space and the disturbance of spatial order. When drawing up planning documents, authorities should ensure that the space forms a structured, harmonious whole, which can be achieved through the appropriate cooperation of local spatial policies. It can be stated that a study which is not a local law is not a very effective document, and ‘the reason for spatial conflicts is the imprecision of legal regulations’ (Grochowska 2016: 120). Constructing high-quality studies and local plans will allow in the future accommodating spatial chaos, which is becoming a critical planning issue.