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THE STUDY ON CITY MASTER PLAN AND URBAN DEVELOPMENT PROGRAM OF ULAANBAATAR CITY (UBMPS)
Final Report
Volume 1: Summary
March 2009
Tugrug (Tg.) 1 = 0.081 Yen US$ 1 = 95.37 Yen US$ 1 = 1,177 Tg. (exchange rate of December 2008)
PREFACE
In response to a request from the Government of Mongolia, the Government of Japan decided to conduct a study on The Study on City Master Plan and Urban Development Program of Ulaanbaatar City in Mongolia International Cooperation Agency(JICA). and entrusted to the study to the Japan
JICA selected and dispatched a study team headed by Dr. Shizuo IWATA of ALMEC Corporation and consist of ALMEC Corporation, Oriental Consultants Co., Ltd. and Aero Asahi Corporation between February, 2007 and March, 2009.
The team held discussions with the officials concerned of the Government of Mongolia, and conducted field surveys at the study area. Upon returning to Japan, the team conducted further studies and prepared this final report.
I hope that this report will contribute to the promotion of this project and to the enhancement of friendly relationship between our two countries.
Finally, I wish to express my sincere appreciation to the officials concerned of the Government of Mongolia for their close cooperation extended to the study.
March 2009
March 2009
Eiji HASHIMOTO Deputy Vice President Japan International Cooperation Agency Tokyo
We are pleased to formally submit herewith the final report of the Study on City Master Plan and Urban Development Program of Ulaanbaatar City. This report compiles he results of the study which was undertaken both in Mongolia and Japan from February 2007 to March 2009 by the Team comprising ALMEC Corporation, Oriental Consultants Co., Ltd., and Aero Asahi Corporation. We owe a lot to many people for the accomplishment of this report. First, we would like to express our sincere appreciation and deep gratitude to all those who extended their extensive assistance and cooperation to the Team, in particular Ministry of Roads, Transportation, Construction and Urban Development in Mongolia and Ulaanbaatar City Government. We also acknowledge the officials of your agency, and the Embassy of Japan in Mongolia for their support and valuable advice in the course of the Study. We hope the report would contribute to the sustainable development of Ulaanbaatar City.
IWATA Shizuo Team Leader Study on City Master Plan and Urban Development Program of Ulaanbaatar City (UBMPS)
UB Central Area
Satellite City
Administrative Boundary
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The Study on City Master Plan and Urban Development Program of Ulaanbaatar City (UBMPS) Final Report Volume 1: Summary Table of Contents
INTRODUCTION 1.1 1.2 1.3 1.4 Background .................................................................................. 1 Objectives .................................................................................... 2 Overall Schedule of the Study ........................................................ 2 Structure of the Report .................................................................. 3
VISION AND OBJECTIVES 2.1 2.2 Urban Development Visions ........................................................... 4 Planning Objectives ....................................................................... 5
SOCIAL AND ECONOMIC PERFORMANCE& DEVELOPMENT FRAMEWORK 3.1 3.2 3.3 3.4 Socio-economic Conditions in Mongolia and Ulaanbaatar .................. 7 Long-term Prospects of Socio-economic Development of Mongolia .. 15 Socio-economic Framework 2020 and 2030 for Ulaanbaatar City ..... 17 Potential Industries to Lead Ulaanbaatars Economic Growth........... 21
REGIONAL DEVELOPMENT STRUCTURE 4.1 4.2 4.3 Existing Regional Framework ....................................................... 24 Conceptual Scheme of the UB Metropolitan Area ........................... 25 Economic Functions of Remote Districts ........................................ 26
LAND USE AND ZONING 5.1 5.2 5.3 5.4 Proposed Land Use Concepts ....................................................... 28 Proposed Institutional Framework for Land use Management .......... 29 Overall Land Evaluation ............................................................... 31 Enacted and Proposed Zoning Systems ......................................... 34
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5.5 5.6 6
Proposed Zoning System for Ulaanbaatar City................................ 38 Development of a Compact City ................................................... 41
URBAN TRANSPORTATION SYSTEM 6.1 6.2 6.3 6.4 6.5 Worsening Traffic Conditions ........................................................ 49 Prospects on Traffic Congestion.................................................... 54 Urban Transportation Network Development ................................. 56 Traffic Management and Safety .................................................... 67 Comprehensive Urban Transportation Development ....................... 71
HOUSING POLICY 7.1 Housing Development Issues ....................................................... 76 7.2 History of Government Housing Development Strategies and Programs. 76 7.3 Current Housing Policies and Institutions ...................................... 79 7.4 Proposed Housing Policies and Institutions .................................... 80 7.5 Housing Demand Forecast ........................................................... 88 7.6 Affordable Housing Model ............................................................ 94 LIVING CONDITION IMPROVEMENT 8.1 Planning Issues, Visions and Strategies ......................................... 97 8.2 Planning Methodologies for Living Condition Improvement ............. 99 8.3 Proposed Community-driven Implementation Mechanism ............. 103 8.4 Proposed Detailed Plans of Model Ger Areas in Unur and Dambadarjaa.... 109 URBAN UTILITIES & ENVIRONMENT 9.1 Common Issues on Urban Utilities .............................................. 111 9.2 Water Supply ............................................................................ 112 9.3 Sewerage ................................................................................. 115 9.4 Power Supply............................................................................ 117 9.5 Heating System ........................................................................ 119 9.6 Solid Waste Management........................................................... 121 9.7 Air Pollution Control .................................................................. 122 9.8 Disaster Management ................................................................ 124 DEVELOPMENT FINANCING MECHANISM 10.1 Weak Capacities of Development Funds and Municipal Financing .. 127 10.2 Strengthening of Municipal Financing Capacity ............................ 129
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IMPROVEMENT OF INSTITUTIONAL AND LEGAL FRAMEWORK 11.1 Planning Issues......................................................................... 137 11.2 Enhancement of the Urban Development Law ............................. 138 11.3 Legal System to Realize Housing Policies ..................................... 139 11.4 Legalization of Development-Related Laws .................................. 140 11.5 New Legal Framework for Urban Planning Projects ...................... 141 CITY DEVELOPMENT PROGRAM 12.1 General .................................................................................... 142 12.2 Overall Program until 2030 (Long List) ........................................ 142 12.3 Priority Projects (Short List) and Profiles ..................................... 166 12.4 Financial Affordability Assessment .............................................. 177 ACTIONS FOR IMPLEMENTATION OF THE MASTER PLAN 13.1 General .................................................................................... 178 13.2 Institutionalization Process for Revision and Approval of the New Master Plan ................ 179 13.3 Organizational Restructuring for Urban Planning Administration .... 179 STEP FORWARD
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List of Figures
Figure 1.1 Figure 2.1 Figure 3.1 Figure 3.2 Figure 3.3 Figure 3.4 Figure 3.5 Figure 3.6 Figure 3.7 Figure 3.8 Figure 3.9 Figure 3.10 Figure 3.11 Figure 4.1 Figure 4.2 Figure 5.1 Figure 5.2 Figure 5.3 Figure 5.4 Figure 5.5 Figure 5.6 Figure 5.7 Figure 5.8 Figure 5.9 Figure 5.10 Figure 5.11 Figure 5.12 Figure 5.13 Figure 5.14 Figure 6.1 Figure 6.2 Figure 6.3 Figure 6.4 Figure 6.5 Figure 6.6 Figure 6.7 Figure 6.8 Figure 6.9 Figure 6.10 Figure 6.11 Figure 6.12 Figure 6.13 Figure 7.1 Figure 7.2 Figure 7.3 Figure 7.4 Figure 7.5 Figure 7.6 Figure 7.7 Figure 7.8 Overall Schedule of the Study .............................................................................. 2 UB Vision 2020 and Refined UB Vision 2030 ...................................................... 6 Changes in the Population of Mongolia and Ulaanbaatar City ............................ 8 Distribution of Population by Age Groups in 2000................................................ 9 In-migration and Out-migration Patterns .............................................................. 9 Population Changes in Ulaanbaatar City by District .......................................... 10 Changes in Economic Activities and Per-capita Products.................................. 11 Contribution of Industries to GDP Growth .......................................................... 11 Distribution of GRDP by Industry ....................................................................... 12 Number of Business Enterprises by Industry ..................................................... 13 Economic Projections for Mongolia and UB City................................................ 18 Population Growth of Ulaanbaatar City .............................................................. 20 Necessary Government Support for Leading Industries .................................... 23 Conceptual Scheme of the Ulaanbaatar Metropolitan Area ............................... 25 Proposed Development Structure for Ulaanbaatar Metropolitan Area ............... 27 Basic Strategy for Land Use & Urban Expansion in Ulaanbaatar City ............... 29 Overall Structure of Planning System and City Master Plan .............................. 30 Legal Framework for Land-use Management .................................................... 31 GIS-based System for Evaluating Land Development Suitability ...................... 32 Land Development Suitability based on Natural Conditions (UB Metropolitan Area) ................................. 33 Development Potential of Ulaanbaatar City based on Adequate Land Utilization (Ulaanbaatar City) .............. 35 Proposed Zoning System for Ulaanbaatar City .................................................. 40 From Urban Sprawl to a Compact City ............................................................... 42 Comparison of Population between Trend and Compact City Scenarios .......... 43 Comparison of Population Density between Trend and Compact City Scenarios ..... 44 Population Distribution under a Compact City Concept by 2030 ....................... 44 Concept of a Compact Ulaanbaatar City ............................................................ 46 Image of Underground Malls at Railway Stations .............................................. 47 Proposed Green Network in Ulaanbaatar City ................................................... 48 Travel Demand by Purpose ................................................................................ 49 Travel Demand by Mode .................................................................................... 49 Hourly Distribution of Travel Demand................................................................. 51 Assumed Daily Traffic Congestion on Existing Road Network in 2007 (Full Link Capacity) ...................................................................... 53 Assumed Daily Traffic Congestion on Existing Road Network in 2007 (80% of Link Capacity)................................................................. 53 Traffic Congestion by 2030 under a Do-nothing Scenario ................................. 54 Concept of the Future Transportation Network .................................................. 60 Proposed Road Types ........................................................................................ 60 Preliminary Mass Transit Location Plan ............................................................. 64 Preliminary Estimate of Line 1 Ridership and Most Efficient Operation............. 64 Road Network in Ulaanbaatar City by Number of Lanes ................................... 66 Existing Signalized Intersections ........................................................................ 68 Proposed Urban Transportation Network Development Plan for 2030 .............. 72 History of Housing Policies, Strategies, and Programs in Mongolia .................. 77 Physical Development Plan Proposed by UB City ............................................. 78 Current Housing Policy Framework in Mongolia ................................................ 79 Social Housing Corporation Model ..................................................................... 82 Interest/Down Payment Subsidy Model ............................................................. 84 Proposed Housing Policy Framework ................................................................ 87 Analytical Flow of Housing Demand Forecasts for 2020 and 2030 ................... 89 Forecast of Housing Stocks by Type in 2020 & 2030......................................... 92 x
Figure 7.9 Figure 7.10 Figure 7.11 Figure 7.12 Figure 7.13 Figure 8.1 Figure 8.2 Figure 8.3 Figure 8.4 Figure 8.5 Figure 8.6 Figure 8.7 Figure 8.8 Figure 8.9 Figure 8.10 Figure 8.11 Figure 8.12 Figure 8.13 Figure 9.1 Figure 9.2 Figure 9.3 Figure 9.4 Figure 9.5 Figure 9.6 Figure 9.7 Figure 9.8 Figure 10.1 Figure 10.2 Figure 10.3 Figure 10.4 Figure 10.5 Figure 10.6 Figure 10.7 Figure 11.1 Figure 12.1 Figure 12.2 Figure 12.3 Figure 13.1 Figure 13.2
Change in Housing Unit by Type ........................................................................ 92 Anticipated Housing Gap between Demand and Supply ................................... 93 Apartment Unit Sales Prices in 2007 (US$/m2) .................................................. 94 Household Income Distribution Pattern in Ulaanbaatar City in 2007 ................. 94 Affordable Housing Models for Average Households in Ulaanbaatar City ......... 95 Important Aspects of Basic Urban Services in Ger Area .................................... 97 Basic Strategy for Ger Area Improvement.......................................................... 99 Development Orientations of Residential Areas in UB City.............................. 100 Basic Concepts of Living Conditions Standards ............................................... 101 Image of a Neighborhood Residential Unit ...................................................... 102 Images of Future Housing Types ..................................................................... 103 Planning Process and Stakeholders of the NADEP ......................................... 104 Planning Process of NADEP and Project Implementation for Ger Area Development ............... 105 Basic Concepts and Approaches of Land Readjustment ................................. 107 Processes of Land Adjustment and Land Pooling............................................ 107 Weighting and Rating System for Land and Asset Valuation ........................... 108 Proposed Concept Plan for Dambadarjaa ....................................................... 109 Proposed Concept Plan for Unur ..................................................................... 110 Concept of Cluster System............................................................................... 111 Overall Coverage of Infrastructure and Utilities ............................................... 112 Demand-Supply Balance in Water Supply ....................................................... 114 Concept of a Collective Industrial Wastewater Treatment System .................. 117 Electric Power Demand-Supply Gap ................................................................ 119 Demand-Supply Gaps in Heating for Residential Use ..................................... 120 Citizens Opinion on Most Important Public Service ...................................... 122 Integrated Measures to Combat Air Pollution................................................... 123 Composition of Tax Revenue between the Central and Local Governments of Various Countries .............................. 128 Strategic Framework for Financing Public Services ......................................... 129 Matching of Cost Payments and Benefits with Public Services ...................... 131 Operation and Maintenance Financing Strategies ........................................... 132 Capital Financing Strategy 1 ............................................................................ 133 Proposed Community-based Financing System .............................................. 134 Summary of Proposed Strategies for Financing Capacity Enhancement ........ 136 Legal Integration of Three Urban Planning Laws ............................................. 137 Overall Framework for Formulating Development Programs ........................... 143 Inter-linkages between Development Visions and Issues ................................ 144 Mutual Relations among Development Programs............................................ 144 Enhancement of Urban Planning Administration in Ulaanbaatar City .............. 180 Organizational Framework with External Affiliated Entities .............................. 181
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List of Tables
Table 3.1 Table 3.2 Table 3.3 Table 3.4 Table 3.5 Table 3.6 Table 3.7 Table 3.8 Table 3.9 Table 3.10 Table 3.11 Table 4.1 Table 5.1 Table 5.2 Table 5.3 Table 5.4 Table 5.5 Table 6.1 Table 6.2 Table 6.3 Table 6.4 Table 6.5 Table 6.6 Table 6.7 Table 6.8 Table 7.1 Table 7.2 Table 7.3 Table 7.4 Table 7.5 Table 7.6 Table 7.7 Table 7.8 Table 7.9 Table 8.1 Table 8.2 Table 9.1 Table 9.2 Table 9.3 Table 9.4 Table 9.5 Table 9.6 Table 10.1 Table 10.2 Table 10.3 Table 11.1 Table 12.1 Table 12.2 Table 12.3 Table 12.4 Table 12.5 Table 12.6 Changes in the Population of Mongolia and Ulaanbaatar since 1998 ................. 8 Major Export and Import Items ........................................................................... 14 Foreign Direct Investment by Industry................................................................ 14 Foreign Direct Investment by Country ................................................................ 15 Target Average Growth Rates in MDG-based NDS and IMF Report 2006 ........ 15 Population Scenarios Prepared by NSO-UNFPA ............................................... 16 Average Annual Growth Rates in UBMP-2020 and MP 2015 ............................ 17 Assumed Growth Rates of Mongolias GDP and Ulaanbaatars GRDP ............ 18 Existing Population Forecasts for Ulaanbaatar City ........................................... 19 New Population Forecasts for Ulaanbaatar City until 2030................................ 19 Household Characteristics in Ulaanbaatar City from 2007 to 2030 ................... 20 Development Directions for Three Remote Districts in Ulaanbaatar City .......... 26 Development Suitability Scores of Land Types .................................................. 32 Proposed Model for a Zoning System ................................................................ 37 Proposed Special Policy-based Zoning System................................................. 38 Designated Areas in the Draft Zoning Map ........................................................ 39 Comparison of Urbanization between Trend and Compact City Scenarios ....... 43 Transportation Demand by Mode and Purpose ................................................. 49 Accessibility of Urban Transportation in Ulaanbaatar City ................................. 51 Impact Analysis of Urban Growth on Transportation by Scenario ...................... 55 Basic Strategies for Urban Transportation Development ................................... 58 Bus Performance Indicators in Ulaanbaatar City, 2007 ..................................... 61 Road Length by Classification ............................................................................ 65 Comparison of Travel Speeds in 1998 and 2007 ............................................... 67 Traffic Impact Analysis ........................................................................................ 73 Planning Profiles for the Physical Development Plan Proposed by UB City ..... 78 Percentage of Imported and Homemade Construction Materials ...................... 81 Expected Roles of Proposed Organizations for Housing Development............. 83 Roles and Functions of Proposed Housing Financing Organizations ................ 86 Current Structure of Housing Stocks by Type in 2007........................................ 88 Peoples Preference to Move, Rebuild or Improve Current Houses .................. 90 Desired Housing Pattern for Rebuilding and New Construction upto 2030 ....... 90 Housing Units to be Rebuilt and Constructed by Housing Type ........................ 91 Projections of Housing Stocks by Housing Type in 2020 and 2030 ................... 91 Proposed Policy Targets and Standards .......................................................... 101 Contents of the NADEP .................................................................................... 104 Assumed Per-capita Water Consumption Volume ........................................... 113 Projection of Wastewater Volume to be Treated .............................................. 116 Projection of Future Demand for Electric Power .............................................. 118 Current Supply Capacities of Electric Power Plants (June 2008) .................... 118 Projection of Residential Heating Demand from 2007 ..................................... 120 Projections on Solid Waste Generation for 2010, 2020 and 2030 ................... 122 Government Budgetary Structure ..................................................................... 127 Municipal Revenue Sources of Ulaanbaatar City (2006 and 2007) ................. 128 Sectoral Financing Framework for Infrastructure Development and O&M ...... 135 Legal Framework to be Studied for Land and Housing Development.............. 141 Summary of Project Investment Costs ............................................................. 147 Program Categories and Project Codes .......................................................... 148 Proposed Ulaanbaatar City Development Program for UBMPS 2020 and 2030.. 149 Concept of Priority Subsectors for Planning Issues ......................................... 168 Priority Scoring Evaluation for Proposed Projects ........................................... 170 Summary of the Priority Programs/Projects ..................................................... 175
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Abbreviations
ADB AH ATC BCR BPO BRT CBD CBO CCTV CDM CF CODI CO2 ECOSAN FA FAR FDI FIDP FIRR Gcal GDP GIS GRDP GOM GTZ HDF HDFI HIS HRD ICT IMF JICA kWh LLC LP LR MC MCUD MDF MDG MECS MET MFALI MFE MHFC MIK MME MNE MNT MOF MOSA MRT MRTCUD Asian Development Bank Asian Highway Area Traffic Control Building Coverage Ratio Business Process Outsourcing Bus Rapid Transit Central Business District Community Based Organization Closed-circuit Television Clean Development Mechanism Community Finance Community Organizations Development Institute Carbon Dioxide Ecological Sanitation System Financial Assistance Floor Area Ratio Foreign Direct Investment Fiscal Investment& Loans Program Financial Internal Rate of Return Giga calorie Gross Domestic Product Geographic Information System Gross Regional Domestic Product Government of Mongolia Deutsche Gesellschaft fur Technische Zusammenarbeit (German Technical Cooperation) Housing Development Fund Housing Development Financing Institute Household Interview Survey Human Resource Development Information Communication Technology International Monetary Fund Japan International Cooperation Agency Kilowatt hour Limited Liability Company Land Pooling Land Readjustment Mortgage Corporation Ministry of Construction and Urban Development Mongolian Development Fund Millennium Development Goal Ministry of Education, Culture and Science Ministry of Environment and Tourism Ministry of Food, Agriculture and Light Industry Ministry of Fuel and Energy (then) Mongolian Housing Finance Corporation Mongolian Mortgage Corporation Ministry of Minerals and Energy Ministry of Nature and Environment (then) Mongolian National Tugrug / Tg. Ministry of Finance Mongolia Software Industry Association Mass Rapid Transit Ministry of Road, Transport, Construction and Urban Development xiii
MRTT MW NADEP NDS NGO NHA NOx NSO-UNFPA ODA OECD O&M PCU PFI PPP R&D SFC SWM TA TPS UB UB-METS UBIFC UBMP-2020 UBMPS UCA UK UN-HABITAT UPA UPRDI USA USAID USUG UTS VOC WWTP WWWMP
Ministry of Road, Transport and Tourism (then) Megawatt Neighborhood Area Development Plan National Development Strategy Non-Governmental Organization National Housing Authority (in Thailand) Nitrogen Oxide National Statistical Office and United Nations Population Fund Official Development Assistance Organization for Economic Co-operation and Development Operation & Maintenance Passenger Car Unit Private Finance Initiative Public Private Partnership Research and Development Social Housing Corporation Solid Waste Management Master Plan Technical Assistance Thermal Power Station Ulaanbaatar Ulaanbaatar Metro-Transit System Ulaanbaatar Infrastructure Financing Corporation Exiting Ulaanbaatar Master Plan targeting the year 2020 Study on City Master Plan and Urban Development Program of Ulaanbaatar City in Mongolia Urban Control Area United Kingdom United Nations Human Settlements Program Urban Promotion Area Urban Planning, Research and Design Institute United States of America United States Agency for International Development Ulaanbaatar Water and Sewerage Authority Ulaanbaatar Transit System Volatile Organic Compounds Wastewater Treatment Plant Water & Wastewater Master Plan
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Model Project on Ger Area Improvement Residential Meeting in Unur (June 2008)
Model Project on Ger Area Improvement Residential Meeting in Dambadarjaa (Feb. 2009)
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This Summary Report compiles only essences of outcomes of the Final Report with a purpose to facilitate constructive discussions among all officials and stakeholders concerned. Viewing the target years 2020 and 2030, basic concepts on structuring Ulaanbaatar City are comprehensively presented in this report, covering key planning issues. Further technical aspects may be referred to Volume 2: Main Text and Volume 4: Technical Appendices.
The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
1. INTRODUCTION
1.1
Background
Mongolia has been witnessing a rapid reform toward market economy and this has brought a huge change in the structure of the Ulaanbaatar Capital Region since the collapse of the socialist regime in 1992. For one, the population of Ulaanbaatar City has grown rapidly. In 1935 it was around 10,000; in 1944 after World War II it reached about 30,000; and in 1998 it was 650,000. At present the population has grown to more than 1 million at an average growth rate of more than 4.0% p.a. during the period between 2000 and 2007. The Master Plan for Ulaanbaatar City was officially launched in 2001 with the target year 2020 (often referred to as UBMP-2020 in this Report). The Master Plan is well organized and adopts international planning methodologies. It also provides a clear insight into the causes and effects of rapid urbanization in Ulaanbaatar City toward the year 2020 and offers appropriate vision on physical urban development based on a rational projection of rapid motorization and on environmental measures to reserve watershed and water resources. However, overall urban growth management and land-use control remain to be issues that need further study. Various donors and nongovernmental organizations (NGOs) have cooperated with Ulaanbaatar in terms of individual infrastructure and housing programs and projects including Ger area improvement. However, it seems that the Ulaanbaatar City government, as well as the ministries concerned, has not made the best use of these assets, know-how, and experiences gained from these projects/programs to carry out their daily administrative services. Although the coordination of donor contributions is inherently a task of the Mongolian side, a common insight into urban planning issues should be shared among donor organizations. Under such circumstances, the Mongolian government requested the Japanese government to conduct The Study on City Master Plan and Urban Development Program of Ulaanbaatar City. In response to its request, the Japan International Cooperation Agency (JICA) selected a consultant team, led by ALMEC Corporation under JICAs procurement regulations. The consultant team, or JICA Study Team, headed by Dr. Shizuo Iwata, was dispatched to Mongolia to commence the study in March 2007.
The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
1.2
Objectives
The objectives of the study, which were mentioned in the Scope of Work agreed upon by both governments, are threefold, as follows: To revise the current master plan (i.e., UBMP-2020) for the target years of 2020 and 2030 to include measures against expanding Ger areas in response to rapid socio-economic changes; To prepare action plans and make recommendations to agencies in implementing the revised master plan; and To transfer technology to improve the capacity for city planning of implementing agencies.
1.3
2007 .. 12
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At the beginning of the Study, the Household Interview Survey was conducted. A total of 4,500 households and their members were interviewed to determine their socio-economic characteristics and opinions on existing urban services, such as access to urban services, transport conditions, and others, as well as future development orientations. The results of analysis were utilized to identify current situation, problems and issues, as well as to develop future vision and plans of Ulaanbaatar City.
The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
In the course of the Study, the Study Team conducted a Learning Session, entitled Urban Planning Theory and Technologies and Japanese Experiences during the summer holiday season 2007, as intensive workshops for counterpart personnel and all those responsible for urban planning. The JICA Study Team provided more opportunities to discuss the studys draft proposals with local experts, relevant key informants, and international donors, who were deeply interested in improving Ulaanbaatar City. As a result, sectoral workshops on issues, such as land use and zoning policy; housing policy; transportation sector strategies; infrastructure, environment and Ger improvement, were occasionally conducted during planning. The Final Report is expected to be fully utilized in revising the existing Master Plan 2020 along with the legal process stipulated in the Urban Development Law.
1.4
Vol.4 Technical Appendices includes: (1) Data-book on the result of the Household Interview Survey HIS), (2) Technical Findings on Transport Analysis in use of STRADA , a JICA-tailored transport analytical model, and (3) Learning Session Materials.
The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
2.1
2.
3. 4.
5.
These visions addressed in the UBMP-2020 are all appropriate and appreciated. Therefore, this JICA study is looking at the same visions over the same planning horizon and is pursuing very similar goals. Two weak points, however, appear in the planning visions of the UBMP-2020: one is the insights into financing capability. A new concept needs to be employed to encourage the private sector to participate in the provision of public services and infrastructures through a public-private partnership (PPP) scheme. Another point to be noted is the development of the legal framework to materialize these visions.
The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
2.2
Planning Objectives
The UBMP-2020 stipulates several planning objectives, as follows: 1. To determine the basic approach to establish comfortable living conditions for the present or future residents and support sustainable city development in new socio-economic situations; To maintain the equilibrium within natural beautiful places, national parks and the ecological system of the fauna and flora; To create a comprehensive environment in conformity with territorial boundaries, space, and characteristics through traditional methods of urban planning; To meet the safety requirements of transportation and engineering infrastructure; To re-develop Ger areas and residential districts and increase housing supply; To enhance industrial zoning structures and improve land use; and To establish interconnected community centers and improve social infrastructure.
2. 3. 4. 5. 6. 7.
No doubt these objectives are all relevant and appropriate for urban planning, and the same have been adopted in this JICA study. But in addition to these, the following have been further examined in the JICA study: 8. To build new urban agglomerations or towns in a planned manner to accommodate increasing housing demand and economic requirements including those of the industrial and service sectors, and looking beyond 2020; To vitalize commerce, recreation/tourism and urban services in the central business district (CBD) even in winter season; To improve peoples mobility with more energy- and time-efficient public transportation systems along significant corridors; To develop an effective urban planning legal framework in conformity with the Civil Law, Land Law, and other relevant acts/regulations; and To develop a comprehensive housing financing system to help improve the housing conditions of low- and middle-income households.
The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
Figure 2.1
UB Vision 2020 1: World-class business city, providing with knowledge-based business opportunities
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Two more insights need to be addressed: Financing Capability should be enhanced, encouraging the private sectors participation in provision of public services and infrastructures through a PPP scheme. Legal framework: as the tool for growth management and materialization of the Master Plan.
The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
3.1
1)
The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
Figure 3.1
000 persons 3,000
2,500
% of UB
2,000
40%
1,500
1,000
20%
500
0 1989 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007
0%
Year
Source: Mongolian Statistical Yearbook 2006 and 2005, Mongolia in a Market System Statistical Yearbook 1989 - 2002
Table 3.1
1998 1999 2000 2001 2002 2003 2004 2005 2006 2007
2,340 2,374 2,408 2,443 2,475 2,504 2,533 2,562 2,595 2,635
30.5 32.0 32.7 33.3 34.2 35.7 36.7 37.7 38.3 39.1
The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
Looking at the 2000 population, as shown in Figure 3.2, shows that the percentages of working age population (i.e., from 15 to 40 years old) in Ulaanbaatar City were higher than those in Mongolia. It can be said that Ulaanbaatar City had younger populations. Figure 3.2
16.0% 14.0% 12.0% 10.0% 8.0% 6.0% 4.0% 2.0% 0.0% Under 1 1-4 5-9 10-14 15-19 20-24 25-29 30-34 35-39 40-44 45-49 50-54 55-59 60-64 65-69 70+ Mongolia UB City
Source: Mongolian Statistical Yearbook 2006, Mongolia in a Market System Statistical Yearbook 1989 - 2002, Statistical Handbook Ulaanbaatar
Such a rapid population growth in Ulaanbaatar is influenced by a momentum of immigration. Figure 3.3 shows the changes in migration patterns in Ulaanbaatar City. In the first half of the 1990s, as migration was basically controlled, the numbers of in-migrants stayed within a limit. However, after the introduction of free migration in 1997, the number jumped to 15,000 in 1998, and reached 69,000 in 2004. Figure 3.3
80,000 70,000 60,000 50,000 persons 40,000 30,000 20,000 10,000 0 1989 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005
Year
The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
Looking into population changes by district, although the population steadily increased in all six (6) districts in the city, Songinokhairkhan (5.2%) and Bayanzurkh (5.5%) posted higher rates than the average (4.2%) over the last five years. The two districts are the located west and east, respectively, of Ulaanbaatar City. The growth rate in Bayangol, or the central district, was 2.6% in the same period. Figure 3.4
250.0 200.0 000 persons 150.0
100.0 50.0
0.0
19 92 19 93 19 94 19 95 19 96 19 97 19 98 19 99 20 00 20 01 20 02 20 03 20 04 20 05
Year
Source: Mongolian Statistical Yearbook 2006 and 2005, Mongolia in a Market System Statistical Yearbook 1989 - 2002, Statistical Handbook Ulaanbaatar 3rd Edition
2)
The nominal GDP of Mongolia in the Mongolian Statistical Yearbook was revised in the 2006 and 2007 editions, and each edition shows the GDP in the recent four years. This is why it is difficult to get the medium and long-term time-series data on GDP now.
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The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
In the last four (4) years, the average annual growth rate of GDP per capita of Mongolia was 7.7%, but that of Ulaanbaatar City was only 1.3%. Increased number of migrants into Ulaanbaatar City resulted in such a low growth rate. Figure 3.5
Tg Million 1,800,000 1,600,000 1,400,000 1,200,000 1,000,000 800,000 600,000 400,000 200,000 0 1999 2000 2001 2002 2003 2004 2005 2006 2007
Source: Mongolian Statistical Yearbook 2006 and 2005, Mongolia in a Market System Statistical Yearbook 1989 - 2002
The contributions of industries to GDP growth are shown in Figure 3.6. The share of the tertiary sector is the most predominant and constant, ranging from 3.6% to 4.6%. The share of the secondary sector is also constant, ranging from 1.6% to 2.1%. In 2007, the primary sector recorded a 3.4% contribution to the GDP. This is the reason why the real GDP growth rate recorded as high as 9.9%. Figure 3.6
12.0% 10.0% 8.0% 6.0% 4.0% 2.0% 0.0% -2.0% 2005 2006 2007 Net Taxes FISM Tertialy Secondary Primary GDP Growth Rate
Source: Mongolian Statistical Yearbook 2006 and 2005, Mongolia in a Market System Statistical Yearbook 1989 - 2002
Figure 3.7 shows the distribution of Ulaanbaatar Citys GRDP by industry from 2002 to 2005. In 2005, the percentage of the primary sector was marginal, and that of the manufacturing sector increased to 30% from 20% in 2002. The combined shares of
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The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
the trade and transport-related sectors show more than 50% of the GRDP in four (4) years. Figure 3.7
100% 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% 2002 2003 2004 2005
Manufacturing Primary
(2) Business Enterprises Figure 3.8 shows the changes in the number of business enterprises in Ulaanbaatar City. The number of enterprises in the trading sector increased by 4.8 times from 2,697 in 1997 to 13,025 in 2005, and its percentage increased from 36% to 51%. While the percentage of the manufacturing sector decreased by 8 points, from 16% to 8% of the total. The development of the wholesale and retail trade and repair industry is supported by individual consumption. Rapid inflow of foreign direct investment (FDI) to the mining industry and remittances from overseas workers 2 seem to stimulate household spending in the automobile and housing markets. In fact, industries such as wholesale and retail trade, as well as construction, are stimulating the economy of Ulaanbaatar City. Since these industries will not be an engine of the citys economy in the long term, it will be necessary to promote productive industries which will lead the national economy and earn foreign currency.
2 According to the Mongolian Statistical Yearbook 2007, the net amount of overseas workers remittances was US$ 83.9 million (credit: US$174.3 million and debit: US$90.3 million) in 2007. However, since every urban household has on average one member working abroad, real spending in the automobile and housing markets is believed to be bigger than official statistics.
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Figure 3.8
60%
50% M ining 40% M anufacturing 30% Construction 20% 10% 0% 1997 1998 1999 2000 2001 2002 2003 2004 2005 Trade and repair Other Services
(3) Unemployment According to Mongolia Statistics Yearbook 2007, the national unemployment rate is only 2.8%. Although in the past, it recorded a high of 9.0%, it has continuously dropped. The unemployment rate of Ulaanbaatar City is only 1.7% in 2006. These unemployment rates were calculated from registered unemployment or official unemployment rates. Actual unemployment rates, however, seem to be higher than this figure; it is pegged at more than 30% in remote districts, based on interviews done in these areas. Also, according to an interview at a garment factory, the number of employees in the garment industry decreased from 30,000 to 5,000 workers in the last five (5) years due to termination of quotas to China. (4) Foreign Trade Table 3.2 shows the export and import activities in Mongolia. The exported amount increased 2.2 times from US$ 870 million to US$ 1,942 million in the last four (4) years. Copper and gold, which are the major export items from Mongolia, accounted for 54% of the total in 2007. On the other hand, the imported amount increased by 2.1 times from US$ 1,021 million to US$ 2,170 million in the same period, resulting in a trade imbalance of US$ 228 million in 2007. Major import items were mineral fuels (29%), machinery and transport equipment (28%), and manufactured goods (15%). Thus, Mongolia is a typical resource-based country, exporting raw materials, while importing processed and manufactured ones.
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Table 3.2
Commodity group 2005 Total (US$ million) Food and live animals Beverages and tobacco Crude materials, inedible, except fuels of which: Copper concentrate Mineral fuels, lubricants and related materials Animal and vegetable oils, fats and waxes Chemicals and related products Manufactured goods classified chiefly by material Machinery and transport equipment Miscellaneous manufactured articles Not classified elsewhere in the SITC of which: Gold unwrought or in semi-manufactured forms 1,065 1.2% 0.0% 48.5% 30.6% 3.8% 0.0% 0.1% 4.4% 0.7% 10.2% 31.1% 31.1% 2006 1,543 1.7% 0.0% 64.6% 41.2% 4.6% 0.0% 0.1% 4.3% 1.1% 6.0% 17.5% 17.5%
(5) Foreign Direct Investment Tables 3.3 and 3.4 indicate FDI by industry and country, respectively. In 2006, almost half of FDI was invested in the mining industry, followed by the trading industry (wholesale and retail trade), sharing 18%. This was reflected by a consumption boom in recent years. Looking into FDI source by country, China ranks first, sharing 47% of the total. Chinese FDI seems to be invested in a wide range of industries, while investment from Canada and the United States is for the mining industry. They made large investments in 2006. Table 3.3 Foreign Direct Investment by Industry
(Unit: US$ 000)
Industry Geology, Mining, Prospecting, Oil Sector Trade, Public Catering Engineering Facilities, Construction Materials Production Banking, Financing Activity Light Industry Others Total 1990-2004 493,973 162,764 55,238 67,105 85,002 256,813 1,120,895 2005 183,962 53,377 773 9,671 1,792 67,265 316,839 2006 195,390 103,388 1,792 11,983 1,454 52,536 366,544 Total (1990 - 2006) 873,325 319,529 57.802 88,759 88,248 376,614 1,804,278 Share (%) 48.4 17.7 3.2 4.9 4.9 20.9 100.0
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Table 3.4
Total (1990 2006) 841,578 247,929 120,619 88,455 76,777 428,920 1,804,278
3.2
1)
Source: Millennium Development Goal Based National Development Strategy, Staff Report for the 2006 Article IV Consultation
The economic development described in the MDG-based NDS targets an average GDP growth rate of no less than 14% and a GDP per capita at US$ 5,000 until 2015. Moreover, the average growth rate between 2015 and 2021 would be no less than 12%, and the GDP per capita would be no less than US$ 12,000, thereby leading Mongolia to becoming a middle-income country by 2021. Meanwhile, the IMF Staff Report, which was based on the economic performance of Mongolia since 2002, predicts that a strong economic performance (i.e., 7% growth)
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will continue until 2009 and by 2010 record an 11% growth due to the development of a new mining site (i.e., Oyu Tologoi Mine). After 2010, the GDP growth rate will go down gradually from 6 to 5.5% between 2011 and 2014, and reach 5% by 2015. As a result, the average GDP growth rate will be 7.5% from 2007 to 2011. After 2015, service industries will provide a major role in the national economy. That is why the average GDP growth rate after 2015 will be at 5.1% per annum.
2)
As of 2005, the population of Mongolia was 2,562 thousand, following the medium scenario until 2008; thus, the medium scenario will be appropriate for the national population forecast.
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3.3
1)
The JICA Study Team projected the average annual GDP growth rates for Mongolia and Ulaanbaatar until 2030, as indicated in Table 3.8. Since prices of copper and gold are higher and more stable than the IMF report estimated, the JICA Study Team projected a 7% GDP growth for Mongolia which will continue for a longer period. However, the development of new mining sites was not considered due to its high uncertainty. The JICA Study Team expects the benefit from the mining industry will take place in the diversification of the Mongolian economy, stimulating other industries which will also contribute to national economic growth after 2011. In the short term, the growth rate of Ulaanbaatar City is expected to be lower than that of the national GDP due to recent activities in the mining industry and the agriculture sector. However, in the middle and long term, the growth rate of Ulaanbaatar City will exceed that of the country, because the urban economy in Ulaanbaatar will lead the national economic development after 2011. The percentage of Ulaanbaatars GRDP to the national GDP will decrease from 49.7% in 2007 to 47.9% by 2010; but it will start to increase again afterwards, hitting 49.7% by 2030.
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Table 3.8
2008-2010
8.3%
7.0%
Economic development scenario prepared by the IMF Staff Report 2006 is applied to this period. GDP growth rates will record 7% in 2008 and 2009, and increase to 11% due to the operation of a new mining site (Oyu Tolgoi) by 2010. However, the impact of national economic development on Ulaanbaatars GRDP will be limited, and it will follow the recent growth rates (7%). That is why the average growth rate of Ulaanbaatar will be lower than the average growth rate of Mongolia. Mining industry will continue contributing to GDP growth. On the other hand, GRDP growth rate of Ulaanbaatar will accelerate due to development of urban industries and urban economy. The growth rate of Ulaanbaatar City will exceed that of Mongolia. GDP/GRDP growth rates will follow the same trend in 2011-2015. Growth rates of Mongolia and Ulaanbaatar will slow down due to a decrease in population growth and maturing of the economy. Growth rate of Ulaanbaatar City will still be higher than that of Mongolia because of a concentration in population and industries.
2011-2015
7.0%
7.5%
2015-2020
7.0%
7.5%
2027-2030
6.4%
6.8%
Figure 3.9
8,000 7,000 6,000 GDO Mill. Tg.(2000) 5,000 4,000 3,000 2,000
1,500.0
1,000.0
500.0 1,000 0
2007 2009 2011 2013 2015 2017 2025 2027 2029 2019 2021 2023
2,000.0
2007~2030
0.0
National GDP
UB GDP
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2)
Table 3.10
Population (000 persons) Central UB (6 Districts) 3 Remote Districts Ave. Annual Growth Rate (%) Proportion to National Population (%) Note: Source:
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Figure 3.10
000 persons 2000 1750
2010
2015
2020
2025
2030
Year
As for the size of households in Ulaanbaatar City, it dropped from 5.4 persons per household in 1989 to 4.6 persons in 2006. This trend will continue up to a certain level until 2030, due to the trend toward the nuclear family. As a result, the number of households will increase more than twice from 224,000 in 2007 to 480,000 by 2030, as shown in Table 3.11. Table 3.11
Year Number of Households (000) Size of Household
Source: JICA Study Team
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3.4
1)
Promising Industries
Five (5) leading industries, which are endowed with great potential to make a mark in the global market, are tentatively identified, as follows: Mining and related industries; Tourism and related service industries; Cassimere production; Information and communications technology (ICT) and business process outsourcing (BPO); and Agricultural products and food processing industries. The mining industry is important to the Mongolian economy now and in the future. Currently, it shares 12% of the GDP and 60% of exports, and employs 4% of the labor force. Although copper and gold mines are located outside of Ulaanbaatar City (Erdenet and South Gobi), supporting services such as logistics, administration, insurance, spare parts procurement, etc. are provided in Ulaanbaatar City. Tourism is already an important industry for Mongolia. During summer, large numbers of foreign tourists visit the country. Tourist arrivals to Mongolia more than doubled in 6 years (from 158,000 in 2000 to 395,000 in 2006) with an average length of stay of 12 nights and an average spending of US$ 106 per day per person. Based on these factors, the total earnings accounted for about US$ 572 million (Tg.670 billion). Assuming that about 60% of the total earnings circulated within the Mongolian economy, local earnings are calculated at about Tg. 400 billion which is equivalent to 25% of the national GDP. Thus, the tourism sector contributes significantly to foreign currency earnings. It is necessary for Ulaanbaatar City to enhance its gateway function through the development of tourist sites, the development of tourism routes, and the improvement of services. Tourism as a seasonal income earner is an issue that has to be tackled to ensure a stable income from this sector. Tourism products need to be developed in collaboration with both private and public sectors. The value-added production of cassimere is also a promising industry for Ulaanbaatar City from the point of value-added earnings and employment generation. This industry has been supported by its long-term tradition. Although at present this business is still unstable, it has a big potential because Mongolia is and can be the biggest raw material supplier in the world. The industry merely needs a boost in terms of contemporary design development, quality management, and aggressive marketing,.
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ICT and BPO are newly developing businesses in the country. There are 30 companies belonging to the Mongolia Software Industry Association (MOSA), and 5 to 6 companies work as BPOs. These companies provide outsourcing services to Japanese companies and businesses from other countries. Since many Mongolians are well-educated, have good foreign language fluency, and easily adapt to foreign cultures, characteristics which bode well for working in BPOs, these businesses will provide a big employment potential to younger generations. Agricultural products and food processing industries should be strongly supported by the government under an import substitution policy. Fresh and safe perishable foods are highly in demand by people who have become more health conscious. Agricultural activities should be encouraged in suburban areas in Ulaanbaatar City, with farming business being given tax incentives and subsidies for seeds procurement. Processing industries for agricultural products, such as meats and dairy products, may be located in designated industrial zones in Ulaanbaatar City. Through market forces, the development and growth of these promising industries will affect and stimulate other industries and services, which will in turn spur new businesses and services. This is the process to vertically deepen and horizontally widen the urban economy, thereby leading to a robust urban economy in Ulaanbaatar City. Related and/or derived industries are: (1) Commercial activities for wholesale, retail, and trading; (2) Banking and insurance; (3) Construction and construction materials manufacturing; and (4) research and development (R&D).
2)
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Figure 3.11
Spillover effect
Common Government Support: - Human resource development - Technical and financial support to start-up firms
Special support for Leading Industry: Improvement of tourist information provision and -- Improvement of tourist information provision and beatification of tourist sites (Tourism) beatification of tourist sites (Tourism) Consolidation of land use and improvement of -- Consolidation of land use and improvement of infrastructure (Cashmere and leather processing) infrastructure (Cashmere) - Provision of of ICT service projects(ICT and BPO) Provision ICT service projects (ICT and BPO)
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4.1
Communications and utilities were planned to be developed in satellite cities together with the development of small and medium enterprises, thereby leading to the creation of satellite cities in integrated settlement clusters. Meanwhile, the National Development Strategy addressed the priority outcomes of regional development in the Phase I period of 20072015 as follows: Establish industrial and technological parks in regional pillar centers and free economic and trade zones in the regions and make them operational, and Create the foundation for a knowledge-based economy.3
To this end, the implementation strategy for Ulaanbaatar Region includes industrial development in its three remote districts. Ulaanbaatar Region Development Program (20052015) 4 provides the basic principle to develop satellite cities and villages around Ulaanbaatar City to reduce the over-concentration of population and migration to Ulaanbaatar City. In pursuit of this, the development of satellite cities was expected as a result of the relocation of industries from Ulaanbaatar Region.
3 4
The Government of Mongolia, Millennium Development Goals Based Comprehensive National Development Strategy (CNDS) of Mongolia (Draft), Ulaanbaatar City, 2007, p. 95. This program was approved under the Resolution of the Government of Mongolia, No. 197, dated 16 August 2006.
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4.2
Ulaanbaatar
Nalaih Industry Development Zone Central Recreation and Natural Conservation Area
Airport city
Bypass
Source: JICA Study Team
Major urban activity centers are needed to be linked with functional trunk roads such as AH-3, Airport Access, and Railway. The New Airport Access Highway should be developed along with the opening schedule of the New International Airport whose construction has been committed by the Mongolian government with Japanese official development assistance (ODA). Some public-private partnership (PPP) model needs to be explored for the development and operation of this airport access. Given a scheme to combine the construction of the Airport Access Highway with the development of the Airport City, the scheme must be attractive to the private sector. The Airport City should accommodate new economic and business activities to be strengthened by locational advantages, i.e. the area faces the international gateway, based on a long-term perspective. Three types of business opportunities are promising in the airport city. These are: Tourism and related businesses; Aviation businesses such as maintenance workshops for aircraft, air-cargo logistics center, aircraft-parts distribution center, catering centers, etc.; and ICT and knowledge-based businesses.
The Railway Bypass will be developed so as to pass through the new international airport and will function as an international freight line to connect to China and Russia. Regional Logistics Centers are proposed to be located near the divergent
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points of the railway bypass, or Nalaikh in the east and Tolgoit in the west. Ulaanbaatar City will be served by a well-functioning urban transport system which will be connected to regional and international transport facilities.
4.3
Table 4.1
Remote Districts
Direction of Development
New Industrial Promotion Park & Logistic Center UB Metropolitan Industrial and Energy Center Agro-industrial Center
Total
30 Km 140 Km 90 Km
Nalaikh will be able to become part of the Ulaanbaatar Metropolitan Area, inducing a variety of industrial activities. This district will be an industrial incubator where new industrial and technological undertakings and tests will be encouraged. To facilitate the economic development of this satellite city, domestic and foreign investments need to be attracted. The Logistic Center is another important function to be attached to this town. The population of Nalaikh District is forecast to be 78,500 by 2030, or 2.8 times the 2007 population of about 28,000,. Baganuur is rich in mineral resources, such as coal, and is close to Herlen River where water is plentiful. Based on these characteristics, Baganuur has a great potential of becoming an Energy Production Center as well as a resource-based industrial center. District population is expected to reach 45,800 by 2030, compared to the present 26,000 level. However, should industrial location be promoted, the future population will easily surpass this projection. Bagakhangai is located at the railway junction and can be regarded as the southern gateway to the Ulaanbaatar Metropolitan Area. Because of such a locational advantage, this district has a potential for attracting agro-processing industries in the future,
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targeting at the Ulaanbaatar market. The government should exert its best effort to induce such development of agro-related industries and business by providing incentives for investments in such sectors. Otherwise, this small township would not be able to realize its potential. Figure 4.2 Proposed Development Structure for Ulaanbaatar Metropolitan Area
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5.1
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Figure 5.1 Basic Strategy for Land Use & Urban Expansion in Ulaanbaatar City
Selbe River Water Basin Preservation Tuul River Water Basin Preservation
5.2
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Residual areas, or those not categorized as conservation areas, will thus be considered suitable for urban development. Therefore, parts of the residual areas will be designated as UPAs, where urban development activities should be encouraged provided they comply with land-use rules and regulations. For instance, a Zoning System will be applied within designated UPAs. In this process, the most important factor is the institutionalization of the separation of territories into UCAs and UPAs under the Urban Development Law or a related sub-law; otherwise, the concept of boundary will not have any sense in enforcing land-use controls. Because there is normally a great difference in value of land inside and outside the boundary, its designation must be politically sensitive and needs a transparent procedure under the legal system.
Figure 5.2
National Development National Development Plan (National-Level Plan) Plan (National-Level Plan)
Regional Development Regional Development Plan (Capital Region) Plan (Capital Region) Land Use Plan ( Ulaanbaatar Capital Regional)
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Figure 5.3
Forest-reserved Area Nature Park Area Nature Conservation Area Disaster-prone Area Water Resource Prevention Area Agricultural Area Urbanization Promotion Area (UPA) Urbanization Control Area (UCA): Urban development and urban landuse are prohibited or less-prioritized
Urbanization Control Area (UCA) Urban Promotion Area (UPA) Urbanization Promotion Area (UPA)
5.3
1)
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Figure 5.4
OVERALL EVALUATION
Socioeconomic Conditions
Infrastructure Conditions
Natural Conditions
Water Resources Preservation Area Steep Area
Table 5.1
Land Type Steep Land Watershed Water Cultivation Area Groundwater Contamination-prone Area Natural Reserves (Legally Designated) Fertile Land Suitable for Agriculture Forest Land Flood-prone Area Inside
-5 13 - 16 Buffer of Riverbed
-4 10 - 13
-3 7 - 10
-2
-1
Other Areas Other Areas Above Groundwater Stream Buffer of Ground water Stream Other Areas
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Figure 5.5
Suitable Unsuitable
Most Unsuitable
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2)
5.4
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Figure 5.6 Development Potential based on Adequate Land Utilization (Ulaanbaatar City)
The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
Box
In May 2008, the revised Law on Urban Development was passed by the parliament. According to the amended Law, a Zoning System has been stipulated in Article No. 13: Zone Categories of Cities of Towns, and Article N0.14: Requirements for Territorial Zoning, as described below. *** Article 13: Zone Categories of Cities and Towns 13.1. Following zones of cities and towns shall be planned in accordance with the urban development norms, rules and regulations: 13.1.1. residential housing and public zone; 13.1.2. industrial zone; 13.1.3. engineering network and road and transportation zone; 13.1.4. greenery area, recreation and tourism zone; 13.1.5. agricultural zone; 13.1.6. summer housing zone; 13.1.7. special purpose zone. Article 14: Requirements for Territorial Zoning 14.1. Ensuring basic requirements to create healthy and safe requirement any residential buildings, which are planned in accordance with norms and rules relevant to the natural lighting and buildings and structures used for the purposes as training, cultural event, entertainment, science, hospital, sanatorium, recreation, sports, trade, public catering, public services, transport and communications shall be planned, but other buildings and structures, which might influence negatively in ensuring safe living environment shall be prohibited to be planned in the housing and public zones. 14.2. Buildings and structures used for the purpose of industry, public utilities and warehouses and infrastructural structures of engineering, road and transport, which ensure their activities, shall be planned in the industrial zone. 14.3. Buildings and structures of railroad, water and auto transport, air transport and engineering and supply network buildings /drinking and sewage water network, heating supply, communications and power supply network/ and structures shall be planned in the engineering network, road and transport zone. 14.4. Open spaces used for organizing recreational activities involving the public such as suburban forest area, protective strip of forest land, holiday camp, sanatorium, swimming pool, park, sports complex and solarium, strictly protected areas, natural beautiful places shall be included in the green space, recreational and tourist zone. 14.5. Land for running farming, intensified animal husbandry and territory to be used for locating agricultural-purpose buildings and structures and hay-field shall be planned in the agricultural zone. 14.6. Settlement territory without any central infrastructure that is located far from the city center and where the people are able to live temporary in the summer season shall be planned in the summer housing zone. 14.7. Buildings and structures used for civil defense and defense purposes, solid waste dumping site, and cemetery and corpse cremation except governmental reserved lands shall be planned in the special-purpose zone.
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Table 5.2
Major Land Use Zoning System in Amended Mongolian Urban Development Law
Housing & Public Mix Zone High-density and High-rise Housing Zone Neighborhood Commercial Zone Commercial & Business Zone
Exclusive Industrial Zone Green, Open Space & Preservation Zone Park, Recreation and Tourism Zone Agricultural Zone Special-purpose Zone Utility Zone Environmental Conservation Zone Water Preservation Area
Agricultural Zone Special-purpose Zone Engineering Network, Road and Transportation Zone Summer Housing zone -
Others
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Table 5.3
Special Policy Zone High-rise and Intensive Land-use Promotion Zone
S1
S2 S3 S4 S5
Beautification Promotion Zone Historical and Cultural Conservation Zone Parking Management & Control Zone Airport City Development Zone
Historical and Cultural Assets Preservation Law Traffic Management Law Building Code Urban Development Law
5.5
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Table 5.4
Major Land Use
Proposed Zoning Categories Area (ha) Low-density and Low-rise Housing Zone 5,902 2,879 1,473 648 1,655 1,529 461 3,645 671 867 443 5,559 1,943 27,676 18,472 9,204 Share (%) 21.3% 10.4% 5.3% 2.3% 6.0% 5.5% 1.7% 13.2% 2.4% 3.1% 1.6% 20.1% 7.0% 100.0% 66.7% 33.3%
Residential
Housing & Public Mix Zone High-density and High-rise Housing Zone
10,255
37.1%
Neighborhood Commercial Zone Commercial & Business Zone Industrial and Housing Mix Zone Exclusive Industrial Zone Green, Open Space & Preservation Zone Park, Recreation and Tourism Zone Agricultural Zone Special-purpose Zone
2,303
8.3%
1,990
7.2%
Green
4,316
15.6%
Others
Utility Zone Environmental Conservation Zone Water Preservation Area New Town Development Zone
8,812
31.8%
Total Area Urbanization Promotion Area Water Preservation Area and Environmentally Protected Area
Source: JICA Study Team
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Figure 5.7
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5.6
1)
2)
In addition, the following planning issues should be addressed to materialize a compact city: Quality Mass Transit Corridors: An efficient public transportation system, comprising mass transit as backbone and effective feeder systems, is established. Integrated Urban and/or Land-use Development and Revitalization of Inner City: High-dense habitation and intensive land use for commercial and business activities
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The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
need to be promoted. Efficient Supply of Social Infrastructure and Public Services: Energy-saving/efficient and resource recycling-oriented urban systems are pursued. Adequate Institutional Framework for Private Sector Investment: Properly managed and active private sector participation in developing a compact city is essential. Figure 5.8 From Urban Sprawl to a Compact City
Urban Sprawl
Source: JICA Study Team
Compact City
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A comparison in area distributions of population and density are as shown in Figures 5.9 and 5.10. The Compact City tends to facilitate more densification in the central area with controlling urban sprawl over sub-urban areas, therefore benefits from the Compact City will lead to more efficient transportation, higher peoples mobility, more efficient infrastructure network and cost-performance and less environmental load on the entire city. Figure 5.11 shows a geographical pattern of population distribution examined as a development framework in 2030. Table 5.5 Comparison of Urbanization between Trend and Compact City Scenarios
(C) Population Density (A/B) (A) Population Present 2007 CBD Central Urban Sub-urban Total 77,800 469,100 243,200 155,600 945,700 Trend 2030 107,200 588,100 394,800 648,900 1,739,000 Compact 2030 134,900 657,400 547,800 398,900 1,739,000 (B) Urbanized Area (ha) (persons/ha) Present 2007 540 4,490 4,300 6,590 15,920 Trend 2030 570 5,690 6,130 12,670 25,060 Compact 2030 570 4,800 5,950 8,010 19,330 Present 2007 144.1 104.5 56.6 23.6 59.4 Trend 2030 188.1 103.4 64.4 51.2 69.4 Compact 2030 236.7 137.0 92.1 49.8 90.0
Note: Urbanized Area for Compact City Scenario includes urbanized area in the outside of Urbanization Promotion Area (UPA). Total area of UPA of Zoning Map is about 18,500 ha. Source: JICA Study Team
Figure 5.9
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Figure 5.10 Comparison of Population Density between Trend and Compact City Scenarios
250.0
200.0
150.0
100.0
50.0
0.0
CBD
Sub-urban
Figure 5.11
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4)
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The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
Figure 5.12
The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
Restructuring and Improvement of Ger Areas/Ger Settlements: Several measures/programs should be explored to improve Ger areas. Under a resettlement program, those who currently reside in flood-prone and hazardous areas in the northern hills should be relocated to urbanization promotion areas. A land readjustment program should also be introduced to improve community infrastructure and housing conditions. These programs need to be combined with the development of affordable social housing. Protection from Floods and Landslides: Roads on the northern hills will serve as boundaries of the urban promotion area. As such, road sections will be designed with the prevention of floods and landslides in mind. Development of Green Belts: Green belts will be developed between the existing urbanized areas and new towns. It will be integrated into a network of natural environment at the regional level. Figure 5.13 Image of Underground Malls at Railway Stations
5)
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Figure 5.14
The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
6.1
1)
Figure 6.2
To Home 42.2%
Bus 33.4%
Private 29.4%
Source: JICA Study Team
Taxi 9.2%
Car 24.2%
When walking is excluded, the total demand is 2.3 million trips/day, comprising 34.8% for car, 13.3% for taxi, 48.1% for bus, and 3.8% for other vehicles, as shown in Table 6.1.
Table 6.1
Mode Walking Car Taxi Bus Others Total Source: To Work 15.7 31.7 10.1 38.9 3.9 100.0 To School 41.9 9.6 5.0 42.9 0.6 100.0
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Meanwhile, road traffic has constantly increased along with population growth and increase in vehicle numbers. During the period 1998 to 2007, traffic volume in the city center doubled. Travel speeds of cars decreased from about 40km/h to 2530km/h on main roads between 2001 and 2007. In 2007, the number of registered vehicles in the city was only about 92,700 which is still low, but it increased by 11.6% between 2001 and 2007. The transportation sector in Ulaanbaatar City is confronted with various problems and concerns. Although current mobility and accessibility may still be tolerable to most people in the city, the situation will quickly worsen if urban population further increases, urban areas expand, and transportation demand intensifies without a corresponding provision of infrastructure and services. The citys main problems and concerns on the current traffic/ transportation situation are as follows: Increasing traffic congestion; Decreasing level of safety and amenity of road transportation; Unsatisfactory level of public transportation; Low awareness of road users; Lack of traffic management capacity; and Deficient road transportation infrastructure/ facilities.
The causes of these problems are complex and interrelated, requiring both short-term and long-term attention, as well as an integrated approach covering infrastructure management and user awareness; transportation and land use; and economic, social, and environmental aspects, among others.
2)
The trip rates of Ho Chi Minh City (Vietnam), Manila (Philippines), and Chengdu (China) are 3.0, 2.2 and 2.6 including walking and 2.5, 1.8 and 1.8 excluding walking, respectively.
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or school buses, is not popular. Taxis are commonly used by all households. c) The choice of transportation modes varies by travel purpose. For to work purpose, bus (38.9%) and car (31.7%) are mainly used, while for to school trips, bus (42.9%) and walking (4.5%), for business purpose, car (41.1%), for private purpose, walking (36.0%), car (26.5%) and bus (26.2%) are mainly used. There are peak travel periods, i.e. 7-8 a.m., 12 noon-1 p.m., and 5-6 p.m., as shown in Figure 6.3.
Figure 6.3
Private Business To School To Work To Home
d)
10
11
12
13
14
15
16
17
18
19
20
21
22
23
24
Started Time
Note: Number of trips by time started and purpose. Source: JICA Study Team
While travel speeds on roads, queue length at intersections, and volume-capacity ratio at road links are common indicators in urban transportation planning, the study also analyzed average travel time of a trip as an indicator of accessibility in the city regardless of the quantity and quality of infrastructure services. Results show that average distance of and time spent on a trip from an origin to a destination in the city are 29 minutes and 3.9km, respectively (see Table 6.2).
Table 6.2
Trip purpose To work To school Business Private To home Total
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While traffic congestion is a common problem in most of the worlds medium to large cities, although the situation and causes often differ, there are still no universal indicators to aid a common understanding by all of what constitutes traffic congestion. However, the JICA Study Teams analysis of traffic congestion in Ulaanbaatar has resulted in the following observations: In general, the level of traffic congestion in the city is not so serious based on a number of indicators, such as average travel speeds of vehicles on major roads (2030 km/h), average travel time of to work trips (about 30 minutes), and a comparison with other cities in Asia as observed by the JICA Study Team; Traffic congestion is limited to certain sections during peak hours (morning, lunch time, and evening) and do not last long. Traffic congestion is largely due to three (3) major factors, namely: 1) poor behavior of road users, including drivers and pedestrians, who often do not observe traffic rules, 2) poor traffic control and management by enforcers, 3) inefficient use of available engineering measures at intersections to manage traffic lanes, etc.
An analysis based on STRADA was conducted in the study indicating that the capacity of existing roads is underutilized and that it could be increased by as much as 20% by merely implementing the traffic management measures mentioned above without putting in substantial funding. Therefore, if the city can formulate an effective mechanism based on this, costly infrastructure investments in the future can be avoided and higher economic returns can be generated (see Figures 6.4 and 6.5).
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Figure 6.4
Assumed Daily Traffic Congestion on Existing Road Network in 2007 (Full Link Capacity)
Congested
Source:
Figure 6.5
Assumed Daily Traffic Congestion on Existing Road Network in 2007 (80% of Link Capacity)
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6.2
1)
Congested
Source:
Mitigating, if not removing, future traffic congestion in the city will be a big challenge and will require much more comprehensive and strategic interventions than relatively simple measures which are only effective in improving the current situation. The basic factors which affect traffic and congestion include the following:
The JICA Study Team simulated the future traffic situation on roads under different scenarios using the STRADA model. The Do-nothing Scenario, meaning no projects are implemented, shows the traffic situation when future demand is assigned onto the existing road network.
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Urban structure and land-use pattern, specifically the size of the urban area as well as the density of population and activities; Modal policy on public and private transportation, specifically the provision of mass transit system and management of car use; and Provision and management of transportation infrastructure, specifically road network development, traffic management measures, as well as provision of parking and other transportation facilities.
2)
An explicit conclusion from this simple analysis is that the development of a compact city with an effective mass transit system can contribute greatly to the reduction in traffic congestion and savings in infrastructure provision. Table 6.3 Impact Analysis of Urban Growth on Transportation by Scenario
2030 Scenario 2007 Trend No. of trips Passenger-km Average Trip Length (km) Private transportation Public transportation 1.0 1.0 5.0 4.9 2.0 3.3 7.2 6.0 Compact City 2.0 2.7 5.9 5.0
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6.3
1)
The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
order to achieve smooth interface and synergy. Stage 5 - Enhance transportation environment and disaster preparedness: The transportation sector is expected to become a major contributor to future air quality as vehicular traffic increases and the pollution from ger housing areas and that from power plants are eliminated. The sector must also improve the transportation environment for pedestrians and the physically challenged, while at the same time attending to various environmental issues such as flood protection and urban landscape enhancement. Strategy 6 - Provide adequate institutional arrangements to support improved urban transportation development and management: Urban transportation development requires strong financial, social, and institutional backing. To support the funding requirements for capital and recurrent investments, a more active involvement of the private sector as well as the imposition of user charges need to be promoted. In addition, communities and stakeholders must participate in the process of planning and project development. Moreover, effective and efficient development and use of transportation infrastructure and system require a pool of qualified human resources and a capable organization, as well as modern planning and management tools. Strategy 7 - Promote social awareness of urban transportation problems and issues: As it was clearly shown in preceding discussions, the current traffic situation and problems can largely be attributed to low awareness and understanding among the people of traffic rules and regulations as well as the consequences of not following them. The society as a whole must thus be engaged in order to promote an efficient and pleasant transportation environment in the city.
The above strategies are further elaborated into a number of planning directions as shown in Table 6.4.
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Table 6.4
Strategy 1. Establish competitive public transportation system to promote public-transportationbased urban development
Immediately improve road maintenance and rehabilitate existing network, including removal of bottlenecks and construction of missing links. Strengthen the hierarchy of road network comprising primary, secondary, and tertiary roads. Develop/improve community roads.
Integrate inter-city and urban transportation network and services as well as intermodal functions among road, rail, and air transportation but segregate inter-city and urban traffic in urban areas. Develop/relocate inter-city goods distribution/logistics facilities in/to strategic locations of the above integrated transportation system. Improve road space and facilities to provide safe, pleasant, and barrier-free environment for pedestrians, including the physically challenged and non-motorized transportation. Enhance traffic safety for all road users throughout the year by way of expanding education and campaign on traffic safety, strengthening enforcement, and improving safety facilities/equipment. Develop roads in integration with preventing disasters such as flood.
6. Provide adequate institutional arrangements to support improved urban transportation development and management 7. Promote social awareness on urban transportation problems and issues Source: JICA Study Team
Establish improved mechanism to better develop roads including land acquisition, while minimizing negative impacts such as involuntary resettlement and excessively high compensation costs. Develop sustainable funding mechanism for roads development and maintenance, including increase in road user charges, among others. Strengthen capacities in transportation planning and management through expanded trainings and improvement of related universities. Develop practical rules and regulations. Expand traffic education and campaigns on transportation problems and issues. Develop indicators and monitoring system on urban transportation problems.
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2)
The proposed network plan also includes new types of urban road such as urban expressways and buffer roads. The urban expressway, which will be located along the existing Mongolian railway right of way7, intends to further improve vehicular traffic in the city. It will be a toll road and a self-financing project. On the other hand, buffer roads will be constructed to protect main urban areas from flashfloods caused by the fragile natural conditions, as shown in Figure 6.7.
The right of way of the Mongolian Railway is so wide that it can accommodate an expressway. 59
The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
Figure 6.7
LRT (Light rail transit) BRT (Bus Rapid Transit ) Bus Minibus Taxi/car Walking
Figure 6.8
Urban Expressway
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3)
Bus Type
Total transportation demand in the city is 3.4 million a day including 1 million (31% of the total) walking trips. 61
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(2) Peoples Expectation on Public Transportation Improvement Peoples expectation on public transportation improvement is remarkably high. The types of public transportation modes which people desire in the future include standard bus (28.8%), underground rail (24%), elevated rail (13%), rapid bus (12%), and others, according to HIS results. (3) Opportunities for Mass Transit Development in Ulaanbaatar City Since Ulaanbaatar is relatively small and the income level is low, it would be costly to develop a rail-based mass transit system, especially one with an underground arrangement, judging from the experiences of other Asian cities. At the same time, however, there are a number of factors favoring such a project for Ulaanbaatar City, as follows: Fitting Urban Structure: The linear form of the citys main urban area, wherein business and commercial activities concentrate along Peace Avenue, enables it to become a catchment area for a mass transit line. With good feeder/ access transportation services, one line can cover most of the main urban area9 which is sandwiched by Ard Ayush Avenue on the north and Narny Zam on the south, both running parallel to Peace Avenue. This area can be within walking distances to a mass transit station, if ever one is developed. Good Public Transportation Ridership: At present 48% of the total demand for motorized urban transportation is met by buses; the figure increases to 61% if taxis are included. The high rate of public transportation demand is the potential main market for a modern mass transit system. If the system is attractive enough, it can also encourage car users to shift. Availability of Construction Space: In many cities, finding good construction space with minimal land acquisition and relocation of buildings/ facilities has always been a costly and problematic issue. However, in Ulaanbaatar City, the right of way for a mass transit system along Peace Avenue is already available due to its wide road space including the median and sidewalks. Consensus of the People: As is explicitly seen from the results of the HIS, the people expect much improvement in public transportation services through the introduction of a mass rapid transit system, such as an LRT/ MRT.
A preliminary study was thus carried out on the possible location of the LRT/MRT, and two (2) lines are proposed as follows (see Figure 6.8): Line 1 (Red Line): Line 1 will be constructed in an east-west direction along Peace Avenue. It will have a total length of 26.6km including a 5.0km underground section in the CBD and the remaining length as at-grade or elevated sections. A total of 17 stations are needed to be located, and Line 2 (Blue Line): Line 2 will be constructed in a north-south direction in the urban area and farther to connect to the airport. It will have a total length of 20.6km including
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a 3.8km underground section intersecting Line 1. A total of 12 stations are planned, including the central station, which is the interchange to/from Line 1. It is expected that further technical and developmental studies will be made on these two (2) lines. The initial findings on the viability of an LRT system are briefly explained below. There are no serious technical constraints in construction, engineering, and operation of the system; Future demand is affected by a number of factors including fare level, competition and complementation with bus services, as well as traffic congestion on mass transit corridors, among others. Fare is particularly crucial in terms of ridership and fare revenue. As is seen in Figure 6.10, if Line 1 is free, it is estimated that demand will reach 700,000 a day by 2030; demand will shrink to less than 100,000 when the fare is 500 Tg. or higher.10 The revenue-maximizing fare level is about 300 Tg. which will attract about 300,000 passengers a day; Line 1 will attract more passengers than Line 2, even if all proposed urban development projects are realized by 2030. Line 2 is estimated to have a ridership of roughly 65% that of Line 1; In order to enhance the effects of the LRT services, there is a need to undertake associated improvements such as: (a) Restructuring bus/minibus routes to enhance the overall public transportation network; (b) Improving connectivity between LRT and other modes including BRT, bus, minibus, taxi, car, and walking; (c) Establishing an equitable fare policy and efficient collection system (giving due consideration to affordability, use of smart cards, etc.); and (d) Effectively controlling traffic and managing cars and other vehicles along the LRT corridor. Considering the high investment needed for the mass transit system, the study will further carry out the following: (a) Survey of the areas along the proposed two (2) main LRT corridors (in terms of land use, main facilities, available space, related roads, etc.); (b) Demand analysis and forecast; (c) Selection of adequate mode/systems; (d) Determination of opportunities for integrated urban development; (e) Preliminary economic and financial evaluation; (f) Environmental impact analysis; and (g) Formulation of development strategies and investment program.
10
This analysis is still tentative but can provide a basis for discussion on the relationship between fare and ridership. 63
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Figure 6.9
Section At grade Length (km) Elevated Underground Total No. of Stations Source: JICA Study Team
Figure 6.10
700,000 600,000 No. of Pax 500,000 400,000 300,000 200,000 100,000 0 Free 50 100 150 200 250 300 350 400 450 500 550 600 tg tg tg tg tg tg tg tg tg tg tg tg Flat Fare
Source: JICA Study Team
50,000 45,000 40,000 35,000 30,000 25,000 20,000 15,000 10,000 5,000 0
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Revenue ($US)
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4)
Road Development
(1) Current Situation In 2007, Ulaanbaatar City had a total of 439km of roads including 55km of state roads, 203km of city roads, 104km of district/special roads, and 78km of roads to satellite town/villages. In addition, there were about 100km of roads in residential areas and earth roads. Between 2000 and 2006, the road length increased by only 21km, as shown in Table 6.6.
Table 6.6 Road Length by Classification
(km) Classification State Road City Road District and Special Road Road to Satellite Towns and Villages Residential Area Road Earth Road Total Length Source: 2000 76.5 168.8 94.9 78.0 (67.3) (35.5) 418.2 2006 54.5 202.7 104.0 78.0 (67.3) (35.5) 439.1
JICA Study Team based on data from the MRTT and Ulaanbaatar City
Road development varies by area but faces a number of common problems which are briefly as follows: Although the basic arterial structure exists, especially in the city center which is provided with a well-articulated network with wide space and basic facilities, the quality of pavements and facilities is substandard, and missing links/ bottlenecks exist; Roads in suburban areas are poorly developed in terms of network connectivity, pavement quality, design standards, and facilities, including sidewalks and various traffic management facilities; and Commune roads both in the city center and elsewhere are not satisfactory; vis--vis the main roads and within areas/ blocks, they lack the appropriate configuration and proper facilities, such as smooth sidewalk, street lights, and parking space. Roads and facilities are also not adequately maintained.
In the long term, the strategy taken to develop roads and road transportation services will determine the urban structure. Therefore, the following strategies need to be duly taken into account: Develop roads as an integrated/ coordinated network with clear hierarchy and connectivity as well as adequate spacing; Improve the quality of road construction and maintenance to ensure smooth and safe travel and to help reduce vehicle operating cost and traffic accidents; and
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Provide adequate traffic management facilities and measures, including traffic signals, flyovers, pedestrian and safety facilities, parking, public transportation facilities, street/ traffic lights, among others.
Figure 6.11 Road Network in Ulaanbaatar City by Number of Lanes
(2) Road Development Strategies The road development strategy delineated in the 2030 plan aims to undertake short-term measures with a long-term perspective. They are more specifically as follows: Short-term Measures: 1. Mitigate traffic congestion through improved traffic management; 2. Eliminate traffic bottlenecks; 3. Rehabilitate/ Restore deteriorated road sections/ facilities; and 4. Improve traffic safety through better enforcement, campaign, and education, as well as provision of safety facilities. Medium-term Measures: 1. Strengthen road network through widening and new construction in compliance with the long-term network plan; 2. Improve traffic mobility along key corridors through comprehensive measures,
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including traffic management and facilities development; 3. Control roadside activities and land use; and 4. Provide adequate parking facilities and rules on parking, especially in the city center.
6.4
1)
Peace Avenue Khovagakchid-Ihk Toiruu Car IKH Toiruu Naray Zam UBIS-Yarmag Bus IBIS-Chingehei Source: JICA Study Team
(2) Traffic Signals Ulaanbaatar City has 48 signalized intersections, 22 of which have old signals, having been installed in the 1970s and 1980s. A study of the existing signals shows that they are not efficient. All are isolated fixed-time signals and there is no coordination between adjacent signals. Moreover, signal phase design and signal timing are not optimized, causing unnecessary delays to vehicles. The fundamental reason for the inefficient signal operation is the lack of signal design standards including signal warrant, phase sequence design, and calculation of signal timing parameters. There is a great room therefore to improve the traffic signaling system as a whole.
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Figure 6.12
10 13 22
Meanwhile, the problem of inadequate intersection geometry is aggravated by the lack of pavement markings which are virtually nonexistent in Ulaanbaatar City, with few exceptions like on Narny Zam, where markings are still visible and function to some extent. It is understandable that severe winter conditions are detrimental to pavement markings. Nonetheless, the improvement of pavement markings is urgent as with relatively small fund, it greatly helps regulate traffic flow particularly at intersections. (3) One-way Traffic, Turning Restrictions, and Other Regulations A one-way traffic system is applied to several streets in the CBD. The most effective is the one-way pair on the east and west sides of Sukhbaatar Square, wherein Sukhbaatar Street is one-way southbound from Juulchin to Peace Avenue, while Ikh Surguuli is one-way northbound from Peace Avenue to Zaluuchuud Street. This one-way pair has reduced congestion at the staggered intersection of Peace Avenue-Ikh Surguuli, although traffic jams still occur at the Peace Avenue-Sukhbaatar Street intersection. (4) Traffic Information Currently, no real-time traffic information and congestion information are available to road users. The introduction of an area traffic control (ATC) system to Ulaanbaatar City is being planned. The system will have vehicle detectors at 22 locations to collect traffic information. In addition, 26 sets of closed circuit television (CCTV) cameras will be installed to monitor traffic flow. The data and image from the detectors and cameras will serve as valuable traffic information. Once these devices are installed, real-time traffic surveillance can be done and the information can be fed to road users through two variable message signs (VMSs) to be installed at East Cross and West Cross intersections.
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(5) Traffic Discipline A no-priority rule exists at unsignalized intersections, and stop signs are not installed to indicate lower priority for crossing the road. Vehicles enter intersections on a first-come, first-served basis, compromising both efficiency and safety. At roundabouts, it is a common rule that vehicles already circulating inside have higher priority over vehicles entering them. The latter must give way to the former so that vehicles will not accumulate inside roundabouts and no congestion occurs. This rule is not observed at such locations as the Sapporo Roundabout. Another high-priority problem is the lack of protection for pedestrians who are not given priority at intersections and pedestrian crossings. Vehicles do not stop at pedestrian crossings even when there are pedestrians trying to cross them. At the same time, jaywalking is common among pedestrians. (6) Parking Management A rapid increase in the number of vehicles is expected to continue in the next several years. Such being the case, parking problems will persist or worsen unless radical parking management policies, strategies, and measures in the city are taken to address both parking demand and supply.
2)
Recommended Strategies
(1) Basic Strategies The importance of traffic management cannot be overemphasized, since without it costly projects would not generate the expected benefits. And while it is likely that the provision of infrastructure will not meet the fast-growing demand, traffic management strategies such as the following can greatly improve the situation: Strengthen traffic management and improve traffic flow by enforcing traffic rules/ regulations on road parking and use of road space, installing traffic signals for vehicles and pedestrians, etc.; Improve management of main transportation corridors by developing infrastructure/ facilities, managing traffic, and improving public transportation services to ensure smooth traffic flow and safety along the corridors; and Improve traffic management in the CBD by developing infrastructure, improving traffic circulation/ and parking control, improving pedestrian environment, etc.
In the medium- to long-term perspective, the city must introduce car demand management measures. Car ownership has been increasing and should not be discouraged because the people are also entitled to use cars during off-peak hours and weekends/ holidays. However, if the trend in car use continues as is seen today, it is certain that future congestion will become serious. Car users must therefore be made to shoulder the social, economic, and environmental costs that come with using cars in order to generate funds to counteract its negative effects and to facilitate a shift to public transportation. Car restraint measures include the following:
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Physical restrictions including on-road parking control, requirement for a garage certificate11, car use ban such as number coding and car-less days, and vehicle inspection; and Economic restrictions, including increased prices for purchasing and registering cars, expansion of pay parking areas, introduction of congestion pricing such as road pricing, area licensing scheme12, etc.
The undisciplined behavior of drivers and pedestrians is another main cause of traffic accidents, although poor road surface and the lack of traffic management measures/ facilities are also major contributors. At the same time, accident reporting is not systematically done. Hence the first important steps to improve the situation include the following: Strengthen the accident reporting system based on an improved accident database; Establish an analysis system available to all interested stakeholders; and Build capacities of related agencies for handling an accident data management system.
(2) Establishment of a Transportation Research Center Knowledge and experience in transportation and traffic engineering have not been accumulated in the country. Government staff both at the national and local levels have little opportunity to acquire knowledge in these fields. Seminars, workshops, and learning sessions are held on an ad hoc basis only and there is no systematic way to increase ones knowledge of and develop skills in traffic management. It is therefore proposed that a research institute be established to become the center of knowledge and experience in transportation technologies and traffic engineering. The main objectives of the research institute will be to engage in the following activities: Construct and maintain a transportation database, conduct modeling and planning; Undertake traffic engineering studies and design; and Promote human resource development.
11 12
Car ownership will not be permitted unless owners certify that they have parking spaces for them. Vehicle users who want to pass through congested road sections or designated areas, such as the CBD, have to pay for it.
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6.5
1)
Rationales for Introducing Mass Transit System under a Compact City Scenario
The future traffic demand in the city is large. Total demand in terms of number of trips will increase by 2.4 times from 2.3 million to 5.5 million from 2007 to 2030, respectively. While the demand will increase only by 2.4 times, the impact on road traffic is large. The traffic analysis using STRADA indicates that the future traffic in terms of PCU-km and PCU-hour will increase by five (5) times and more then 10 times, respectively. This will reduce the average travel speed from 27 km/h in 2007 to 12 km/h by 2030. Similarly, the increase in transportation costs and emissions of pollutants will also be significant (see Table 6.8). In order to meet the transportation demand, an analysis was made on the impact of urban growth on urban transportation under the Trend and Compact City scenarios wherein the former represents a land-use pattern that follows the current development trend up to 2030, while the latter represents a compact land-use pattern proposed by the JICA Study Team. The results of the analysis are as follows (see Table 6.8): The Compact City Scenario shows a 15% increase in PCU-km and a 22% increase in PCU-hours. With this average travel speeds are faster by 10%; With regard to economic indicators, the Compact City Scenario shows about 20% reduction in transportation cost which comprise vehicle operating cost and travel time cost; and The effects on the environment of the Compact City Scenario are better compared to those of the Trend Scenario, i.e. about 17% and 18% lower NOX and CO2 emissions, respectively.
Further analysis was made on the impact of transportation network development with particular regard to LRT/BRT and expressway. The results are briefly as follows: The development of at-grade roads alone will not be able to accommodate future traffic demand because there is not much room for developing new roads or widening existing roads in urban centers and built-up areas where traffic demand concentrates; The development of two grade-separated mass transit lines, comprising LRT and BRT, can contribute to the improvement of the traffic situation significantly in the citys most critical areas. However, traffic congestion will remain on many sections of primary roads. This implies that while the introduction of the LRT and BRT will significantly improve the mobility of public transportation passengers, it will not contribute much to improving traffic congestion on roads, thereby requiring the enforcement of car restraint measures;
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Figure 6.13
The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) FINAL REPORT Vol.1 Summary
The development of expressways provides an opportunity to greatly improve the traffic situation. Under this scenario, both public and private transportation users can enjoy a high level of mobility and accessibility.
Table 6.8
Indicators No. of Trips/day (000) Pcu-km (000) Mobility Pcu-hr (000) Ave.speed (kph) VOC ($000/day) Economic TTC ($000/day) Total costs CO2 (ton/day) Source: JICA Study Team Environment NOx (ton/day)
"Trend" "Compact" 5,486 25,929 2,189 12 6,689 2,886 9,575 46 2,074 5,454 22,049 1,700 13 5,350 2,239 7,590 39 1,685
2)
Development of Mass Transit Corridors: Ulaanbaatar City, especially along Peace Avenue, is suited for the development of mass transit corridors in an effective manner with high cost-benefit performance,. Urban areas with relatively high density devel-
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oped in an east-west liner form can be effectively served by a mass transit line. If the urban areas are farther developed and redeveloped in integration with the mass transit system, performance of the system can be farther enhanced. A choice of a system between LRT and BRT depends on the level and features of demand. The study indicates that the demand along the corridor is sufficiently large to justify longer system, say LRT, particularly in the central and heavily developed areas, while the other areas need less capacity. It is concluded that a combination of LRT and BRT can best form the mass-transit function along the Peace Avenue. The second corridor is important in two ways : one to integrate central urban areas with the first corridor and two to integrate growing urban areas in the south-west and the north. Needless to say, urban development must be closely coordinated with the mass-transit development. The second corridor can also be a combination of LRT in the central area and BRT in other areas. As to type of structure, it is a view of the study team the system must be either elevated or underground in city centre and density developed urban areas due to following reasons: Although space is available along Peace Avenue, future traffic demand on this road will be much larger including private transport numbers. There are also a number of main roads which intersect with Peace Avenue; Segregated at-grade LRT/BRT will separate urban areas at both sides; A grade-separated mass transit system can significantly increase overall transport capacities of the corridor; A grade-separated mass transit system whether elevated or underground can facilitate integrated urban development at and around the stations. Especially underground system in the central part of the city can provide attractive opportunities for underground space development; and A grade-separated system can enhance the citys image.
Immediate Undertaking of Short-term Programs: Prior to any heavy investment in transport infrastructure, the city must attend to unfinished work in many areas such as the following: Strengthening of Road Network Management: This includes improved maintenance, rehabilitation of damaged infrastructure, removal of bottlenecks, and construction of missing links to improve connectivity and performance of the network; Strengthening of Traffic Management: This includes improvement of traffic circulation, parking control, and pedestrian environment to maximize available traffic capacity and enhance road transport environment. Inspection of road vehicles must be gradually strengthened to reduce emissions. Traffic safety must also be addressed through comprehensive measures; Improvement of Public Transport Services: Current public transport users must be provided with improved services through the introduction of new buses, rationalization of bus routes, improvement of bus operation and bus facilities, and
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provision of affordable fares, especially to the poor; and Enhancement of Public Awareness on Urban Transport Issues: Many existing transport problems facing the city can be attributed to low awareness among transport service providers and users. The city must thus take the initiative to enhance public awareness through formal education, regular campaign, and improved enforcement, among others.
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7.
7.1
7.2
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materials production. These five strategies are all necessary and appropriate to develop the housing sector under a market economy. However, definite guidelines that would materialize these strategies have yet to be developed. In 2007, the Parliament passed a special resolution on air pollution mitigation, encouraging the construction of apartments for Ger area residents. In line with the same policy, the Ulaanbaatar City government officially presented in 2008 a detailed physical development plan highlighting four (4) new town projects, one (1) central area redevelopment project, and seven (7) Ger area improvement projects. These are shown in Figure 7.2 and Table 7.1. As of April 2008, the Government drafted the Program for developing the Ger Areas into apartment residential areas with priority given to three (3) areas for Phase I (20082012) and plans to provide about 24,500 housing units. Phase 2 targets the construction of 19,900 housing units between 2013 and 2015. Figure 7.1 History of Housing Policies, Strategies, and Programs in Mongolia
2002
2006 40,000 Housing Units Program Strategy 1: New town development Strategy 2: Densification of urban center Strategy 3: Ger area improvement Strategy 4: Housing market and finance Strategy 5: Construction materials and capacity devt
2008 Detailed Development Plans 4 New Towns 1 central area 7 Ger areas Resolutions for mitigating air pollution from Ger areas (No. 27, No. 46, No. 218)
Program for Developing UB Ger Areas into Residential Apartment Area Phase 1 (2008-2012) 3 areas, 24,500 housing units, 89,400 population Phase 2 (2013-2015) 5 areas, 19,900 housing units, 103,000 population Phase 3 (2016-2020) 14 areas (not planned)
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Figure 7.2
Table 7.1
Residential area around Radio& TV Authority 3 7th Micro district 10 Dari Ekh Residential area Ger Area 8 14th Khoroolol Redevelopment 7 7th Khoroolol 9 Denjiin 1000 6 Zaisan Sub total Buyant-Ukhaa residential 5 area (Nisekh) Residential area of Bayangoliin 1 Am New Town Development 2 New City Center Urgah Naran Residential area 12 (Nogoon Zoori) Sub total TOTAL Source: UB City Government 4
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7.3
High Income (700,000TG/M~) Mongolian Housing Finance Corporation (MHFC) + Private Sector
Self-Help (Partially Supported by Donor, NGO and Community Based Organizations (CBO))
NGO Fund
Less attention has been paid to the housing provision for low-income groups. The following are findings that underlie this fact: ADB and NGOs provide financial assistance to vulnerable groups through housing development funds and micro-credit finance; but these activities are not part of mainstream housing policies. ADBs Housing Finance Project was completed in 2007; The central government tries to help private developers in promoting housing development through such actions as exemptions on consumption of and import taxes on construction materials. However, these benefits dont filter down to the vulnerable groups which suffer from increases in housing prices;
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On the other hand, the central government obliges private developers to provide 20% of housing stock to war veterans without gain and to donate 2% to the same group. However, even with such policy riders, there are no housing policies for low-income groups; Due to financial problems, the MHFC, which is expected to function as a provider of public housing and finance provider, it has little to boast in terms of achievements in mass housing. The MHFC is eligible to get benefits in the development of national and city-owned lands gratis and to use national bonds pooled in commercial banks as financial resources for both housing construction and housing loans. Compared with private developers, the MHFC is obliged to provide low-priced houses to households with incomes of over 450,000 TG/month (middle-income class). However, the recent increases in construction costs make it difficult to supply low-cost houses amounting to just US$ 350, which is the regulated construction cost by the MHFC. Enhancement of its institutional capacity as a public corporation is inevitable to help realize housing supply for low-income groups; Mongolian Mortgage Corporation (MIK) was established in 2007 by the Bank of Mongolia and 10 commercial banks to set up a long-term framework on housing loan resources and to develop a housing market and stabilize long-term financial resources. The impact of the MIK has yet to be felt, but the legal enhancement of this mortgage system is, at present, a major issue in the current housing policies in Mongolia; and Most low-income groups living in Ger areas are forced to build their own houses and improve their living conditions by themselves. They have no access to housing loans. The ADB and NGOs assist them in formulating community-based organizations (CBOs) and in providing community mortgage loans for community development. So far, seven (7) CBOs have been created in UB City but this approach is not yet enough. Therefore, it is important to promote community-led efforts at improving the living environment.
7.4
The national government has enacted several basic laws related to housing and apartment housing development as described in the Housing Law of Mongolia, such as the Housing Privatization Law and Law on the property of shared ownership of residential buildings and the legal status of the Condominium Association. However, various other relevant laws and regulations have to be established or amended to make them realistic with current socio-economic conditions. For example, there is no legal system for the promotion of housing development in the Ger areas, as well as the rebuilding of old apartments and new town development in a planned manner. Guidelines for community improvement and housing provision for low income groups are particularly important. This issue will be further discussed in
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Chapter 11. (2) Promotion of Domestic Construction Industries and Materials Production
The increasing cost of construction materials is a vital factor that influences housing policies. The prices of imported construction materials are stable except for cement and reinforced iron rods. The percentage of imported and homemade construction materials is shown in Table 7.2. Table 7.2 Percentage of Imported and Homemade Construction Materials
Construction materials Wall materials Glass Window frame and door Roof materials Water pipeline Paint Concrete and brick Electric cable Precast concrete Percentage of imported and homemade 100% homemade 100% imported 100% homemade 10% homemade, 90% imported 30% produced by Chinese and Korean plants in Mongolia. 100% imported for joint material of pipeline 100% imported 100% homemade 100% imported In the past, produced, but the plant is closed at present.
To attain price stability, the necessary policies needed to stabilize construction costs are summarized as follows: Policy level support for the private sector is required to construct plants for cement and reinforced iron rods which influence construction costs. Special incentives should be provided for start-ups. An economical way of transporting and supplying construction materials, such as cement and bricks, etc., has to be studied and introduced. The distribution system should be rationalized through governmental intervention, if necessary. A production system that will make the cost of construction materials cheaper has to be developed. For instance, while processed cement and insulation materials are manufactured together as one insulation block, the production of precast concrete is needed. Encourage the growth of construction materials industries and stabilize the domestic supply market (this is being currently supported by the GTZ).
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(3)
The Social Housing Corporation (SHC) not only provides houses for low- and middle-income groups, but is also an agency that promotes comprehensive housing development projects through land and infrastructure development, the redevelopment of old apartment houses, land readjustment of Ger areas, and the cross-subsidy of development incomes from the middle to the low income groups, etc. Another of its important functions is to intervene in market distortions due to speculations on materials costs and profits. This is significant since the housing and real estate markets are not always perfect and suffer distortion due to disinformation and speculations. Governmental intervention through the provision of housing units at proper market prices is an effective market remedy, (see Figure 7.4). The provision of social housing is a public duty that is not incumbent only upon the private sector. Taking into account its objectives and mandate, the MHFC could be reorganized into a Social Housing Corporation, or a national agency, because its stocks are held by UB City (51%), MCUD (24.5%), and MOF (24.5%). As one of its targets, the role of SHC is to provide at least 10% of the total housing stock for low-cost housing, and this has reference to the housing policies in other east or south Asian countries. The provision of rental houses is also expected to act as temporary accommodations for immigrants and students in UB City and for seasonal workers. Financial sources for the SHC could be the Mongolia Development Fund, Housing Development Fund, and National Pension Fund, besides the National Bond Fund pooled in commercial banks. Figure 7.4 Social Housing Corporation Model
Speculative Price
Speculative Profit
Market Distortion
Market Price
Profit
Speculative Cost Increase
Profit
Cost
Normal Market
Source: JICA Study Team
Speculative Market
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(4)
To aid self-help housing construction among low income households and the poor who dont have access to housing loans, a Community & Local Partnership Housing Association is recommended as a joint initiative of MRTCUD (then MCUD), UB City, Building Material Manufacturers Association of Mongolia, Architect and Construction Companys Association, NGO, and Community Representatives. This organization is an advisory institution that will assist the poor in the construction of self-help housing through community mortgage programs. A good model in this regard would be the Community Organizations Development Institute (CODI) program of Thailand. (5) Enhancement of Peoples House Purchasing Capacity
Without stable employment opportunities, the poors ability to purchase houses cannot improve, so they remain in Ger settlements even though living conditions there are bad. Needless to say, the housing policy should address housing affordability. Table 7.3 summarizes major recommended policies focusing on the enhancement of the supply side of the housing market. Table 7.3 Expected Roles of Proposed Organizations for Housing Development
Roles and Functions To construct low-cost houses to cover 10% of total housing units To perform a land development function for new towns and Ger areas, through land acquisition, land readjustment and urban redevelopment Social Housing Corporation To sale housing units for low income group with financial arrangement To provide rental housing for a variety of housing demands To arrange internal cross subsidy for low income group To introduce house purchasers formal Job-opportunities Community and Local Partnership Housing Association To facilitate self-help housing construction and improvement of living Conditions such as sanitation and utilities To provide appropriate technical advice and introduce low price and environment-friendly construction materials To construct quality housing units for high and middle income groups Private Sector To participate in Social Housing Development in a PPP scheme, with public sectors special incentives such as provision of land areas with basic infrastructures, permission of utility connection, etc.
Organization
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A long-term financing system providing housing loans with low interest rates needs to be developed for all middle- and low-income households whose monthly income is over 300,000Tg./month. This can be done through the following aspects: Legalization of the Mortgage Lawand provision of escrow account (down payment subsidy) in commercial banks, and Enhancement of a Secondary Mortgage Market through the MIKs functions. A government subsidy system should also be considered to fulfill the gaps between prevailing financial conditions and the affordability levels of the target groups. For this purpose, two (2) schemes are possible: subsidy on interest or subsidy on down payments, as shown in Figure 7.5. Since interest rates are variable, they affect borrowers repayment schedules. The interest subsidy scheme could be more preferable for middle and low-income households. Figure 7.5 Interest/Down Payment Subsidy Model
Subsidy Interest Payment Market Price Interest Payment Interest Payment
Affordable Price for Low Income HH
Profit
Housing Loan Principal Payment
Principal Payment
Principal Payment
Cost
Own Fund Own Fund Own Fund Own Fund Subsidy
Purchase Price
Finance
Repayment
(Market Level)
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(2)
With the importance of promoting housing development especially for the low and middle income groups in Mongolia, the establishment of a Housing Development Financing Institute (HDFI), as a financing institution for managing not only the Housing Development Fund1 but also other financial resources, should urgently be studied. The HDFI itself has a financial function as a mortgage corporation and will have an important role in the provision of long-term and low-interest rate loans for low and middle income groups. For the moment, the commercial bank and the MIK will handle this role, but it would be difficult if they will function as a substitute to the HDFI in meeting housing demand for low income groups. The following are the possible funding sources in the operation of the HDFI: Mongolian Development Fund: based on the tax revenue from the mining industry; National Pension Fund: its legally prohibited to utilize this Tg.100 billion fund for other purposes in Mongolia; however, it could be utilized for to meet the goals of socialized housing and for housing development in general; and Housing Development Mutual Fund is a membership system or public association that provides housing funds for its members. This system is popular in the Philippines and other Asian countries, and its one of the possibilities that could be examined in Mongolia. The financing department of the MHFC will be incorporated into the HDFI as a national agency and expected to take an important role for the finance of low cost houses. (3) Introduction of Community Organizations Development Initiatives
In order to provide community mortgage finance to help the poor who avail themselves of housing loans, a Community Organization Development Institute (CODI) should be introduced, with reference to the Thai model. Thailand established a CODI network in 2000 to promote community development in the slum areas. CODI takes a community network-driven bottom-up approach by providing community mortgage loans and subsidies to aid self-help housing construction, improve living environments, and train informal workers to engage in formal jobs. This approach has been effective in fulfilling shortages in the traditional top-down approach by the National Housing Authority (NHA) of Thailand. The following are the major achievements of CODI: Enabled the poor to build self-help housing and promote the improvement of their living environment through the organization of community groups and cooperatives; Enabled communities to influence city development through the enhancement of community networks, which resulted in the establishment of support systems for the national and local governments; and
1
In the Housing Law of Mongolia, the article to enable the establishment of Housing Development Fund (HDF) had been incorporated for the purpose of housing and infrastructure development, and the financial resources and the disbursement procedure was precisely stipulated. However, the national government declared th this article invalid by the Law on Government Ad Hoc Fund approved on 29 June 2006.
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Enabled community organizations to keep up with every phase of development dynamically by taking a major pro-active role. (4) Utilization of CDM (Clean Development Mechanism) for Ger Area Environmental Improvement At present, ambient air pollution during the winter season is one of the most serious problems. It has been studied that the major source of air pollution are the individual houses located in Ger areas, and this form of pollution constitutes 90% of the total ambient pollution. Although the central government has placed importance in facilitating apartment provision for Ger residents, a short-term program should be explored to mitigate the pollution. In this sense, three (3) measures need to attain an integrated solution: (a) Fuel innovation, (b) Improved stove dissemination; and (c) Energy-efficient housing materials (insulations) provision for self-help housing. A model CDM may be utilized to implement these three measures, simply because these policies will be effective in mitigating total CO2 emissions which otherwise would increase if not properly addressed. Table 7.4 Roles and Functions of Proposed Housing Financing Organizations
Organization Housing Development Financing Institution Roles and Functions To finance with long-term and low interest rate housing loan for low income group by raising Housing Construction Fund by the Government To function as a Secondary Mortgage Corporation To be established jointly with Ministry of Social Welfare and Labor Community Organizations Development Institute (CODI) To formulate Saving Groups based on community development plans To support to make Self-Help Housing Development Plan, with small infrastructure development and job opportunity development. To provide with subsidies or community mortgage loans to Improve living environment as well as housing construction. To provide long-term housing loans for middle and high income groups in cooperation with MIK (Secondary Mortgage Cooperation) To establish escrow account (for down-payment subsidy or buy-down system), focusing on all middle income households over 300,000TG/Month To enable commercial banks to provide secured long-term housing loans by improving investment environment and market exploitation of secondary mortgage bond under forth-coming Mortgage Law
Commercial Bank
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7.5
A look into the housing structure shows that 39.2% of total housing stock comprises apartment houses. Substandard houses, including simple houses without infrastructure (33.8%), Ger houses (25.5%), and Homeless (0.7%), account for about 132,000 units with a share of 60% of the total stock (see Table 7.5). Table 7.5 Current Structure of Housing Stocks by Type in 2007
Existing Units Apartment Mid-rise High-rise Detached with Infra Simple house w/o infra Ger Homeless Total
Source: UB City
(2)
Preferences among residents showed that a total of 54% of apartment residents prefer to move (7.4%), rebuild (3.1%) or improve (42.1%) their residential apartments. On the other hand, 67% of Ger residents answered they will move (9.2%), rebuild (16.8%) and/or improve (40.8%) their Ger houses. Only a third of Ger residents were satisfied with their current living conditions (see Table 7.6).
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Figure 7.7 Analytical Flow of Housing Demand Forecasts for 2020 and 2030
Natural Increase
Social Increase
Ger Settlements
Ratio Desiring to
Based on Household Interview Survey Source: JICA Study Team Existing Stock of Houses by Type
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Table 7.6
Notes: Based on Home Interview Survey (HIS) conducted by JICA Study Team in 2007.
(3)
Table 7.7 indicates the peoples future changes in their housing conditions by housing type. For those living in mid-rise apartments, 35% of them prefer transferring to other mid-rise apartments, 25% to high-rise apartments, and 40% to detached houses with infrastructure and utilities. This assumption was used as basis for the housing demand forecast by housing type. Table 7.7 Desired Housing Pattern for Rebuilding and New Construction upto 2030
g g
Apartment Mid-rise Apartment (Mid-rise) Apartment (High-rise) Detached w Infra Present Simple house w/o Infra. Ger Homeless Immigarat Househod (2008-2020) Immigarat Househod (2021-2030) 35% 25% 45% 40% 40% 40% 35% 40% Apartment High-rise 25% 25% 10% 20% 15% 15% 15% 20%
p
Future Detached with Infra 40% 50% 45% 40% 45% 45% 40% 40% Simple house w/o Infra. 0% 0% 0% 0% 0% 0% 5% 0% Ger 0% 0% 0% 0% 0% 0% 5% 0% Total 100% 100% 100% 100% 100% 100% 100% 100%
Notes: Based on Home Interview Survey (HIS) conducted by JICA Study Team in 2007.
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Table 7.8
( g
2007 - 2030
Newly Constructed Total
Apartment
Apartment (Mid-rise) Apartment (High-rise)
45,505
30,856 14,649
64,337
45,036 19,301
109,842
75,891 33,950
96,574
65,409 31,165
102,532
69,856 32,676
199,106
135,265 63,841
33,656 0 0 79,160
72,243 0 0 168,817
2030
Total 184,442
127,191 57,250
Unchanged 74,600
51,300 23,300
Unchanged 65,600
43,400 22,200
Total 264,706
178,665 86,041
86,091
60,264 25,827
Detached with Infra Simple house w/o infra Ger Others Total
Source: JICA Study Team
Figures 7.8 and 7.9 indicate changes in housing stock by type from 2007 up to 2020 and 2030. Ger houses accounted for about 56,100 as of 2007, and the number will dramatically decrease to about 29,300 by 2020 and 4,500 by2030. The trend can be regarded as a definite housing policy target.
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Figure 7.8
450,000 400,000 350,000 300,000 250,000
29,330 47,730
147,800
86,720
200,000 150,000
86,040
100,000 50,000 0
178,670
2007
2020
2030
Figure 7.9
200,000 180,000 160,000 140,000 120,000 100,000 80,000 60,000 40,000 20,000 0 2007
Source: JICA Study Team
Apartment (Mid-rise) Apartment (High-rise) Detached with Infra Simple house w/o infra Ger
2020
2030
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Accum. Supply Balance Capacity 6.7 14.1 22.1 30.6 39.8 49.5 60.0 71.1 83.0 95.8 109.4 124.0 139.5 156.2 174.0 193.0 213.3 235.0 258.1 282.8 309.0 336.9 366.7
Construction Sector 8.8% 6.9% 6.9% 6.9% 6.5%
2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024 2025 2026 2027 2028 2029 2030
-7.0 -14.5 -27.0 -31.2 -36.5 -41.4 -45.9 -49.9 -55.0 -59.6 -63.8 -67.5 -68.3 -62.9 -58.5 -53.0 -46.5 -38.8 -29.9 -19.8 -8.3 4.6 19.0
400.0 400.0 350.0 350.0 300.0 300.0 250.0 250.0 200.0 200.0 150.0 150.0 100.0 100.0 50.0 50.0 0.0 0.0 -50.0 -50.0 -100.0 -100.0 Accum. Housing Demand Accum. Housing Demand Accum. Supply Capacity Accum. Supply Capacity Balance Balance
2008 2008
2009 2009
2010 2010
2011 2011
2012 2012
2013 2013
2014 2014
2015 2015
2017 2017
2018 2018
2019 2019
2020 2020
2021 2021
2022 2022
2023 2023
2024 2024
2025 2025
2026 2026
2027 2027
2028 2028
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2030 2030
2016 2016
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7.6
Average Level
Source: Quoted from market information and data at Web-sites and arranged by JICA Study Team
Figure 7.12
Ho us eI
No. of HHs
Percentile
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House B
35 m2 400 US$/m2
35 m2 550 US$/m2
21,175,000 Tg 6,352,000 Tg (30%) 14,823,000 Tg (70%) 1.0% per Month 10 yrs 129,000 Tg/Month 322,500 Tg/Month
15,400,000 Tg 4,620,000 Tg (30%) 10,780,000 Tg (70%) 0.70% per Month 15 yrs 106,000 Tg/Month 265,000 Tg/Month
3)
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Based on the foregoing housing analysis, it is clear that the provision of low cost houses is extremely important so that the majority of the middle and low income households can be provided with housing. To this end, some crucial measures should be taken with a particular focus on the importance of government intervention. Organizational measures, such as the establishment of the Social Housing Corporation and Housing Development Financing Institution (HDFI), and social measures to enhance community-based activities are proposed in Figure7.6. In addition to the measures proposed in Section 7.4, the following government interventions should be further explored:
Encourage the growth of construction industries and construction materials production, by providing further incentives for FDIs and soft loans for start-ups; Appropriate special budgets to subsidize R&D activities to invent new locally made construction materials and low-cost housing structures; Guide and work jointly with the private sector to develop affordable low cost housing units and to facilitate housing area development with social housing units; Establish the Social Housing Corporation and prepare a 20,000 housing units construction program for lower middle and low income groups; and Encourage the Social Housing Corporation to provide rental houses.
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8.
8.1
20.0%
15.0%
10.0%
5.0%
0.0%
at er
In general, present resettlement into apartment areas lack feasibility and affordability among Ger residents. In addition, various ongoing projects in the Ger areas mainly aim at short-term improvements of living conditions and lack long-term strategies and planning. To improve the urban environments in the Ger areas in a comprehensive and sustainable manner, it is necessary to develop a holistic vision and strategy applicable through feasible measures. The following is a summary of the main issues prevailing in Ger areas: Mitigation of negative environmental impacts: Uncontrolled expansion of Ger areas cause negative environmental impacts such as air pollution, smog from the burning of coal during winter, soil pollution from pit latrines without sewerage treatment, etc. These negative impacts affect not only the Ger areas but also the whole Ulaanbaatar City. They also cause diseases. Land use: Extensive and inefficient land use, which occurs when Ger areas expand, spoil and damage the natural environment. Settlements in dangerous areas such as riverbeds and hilly terrain both threaten lives and properties. Infrastructure and public services: There are few infrastructure and utility services in the Ger areas. Though water supply through kiosks has been improved by donors, these improvements are just symptomatic and short-term treatments. A long-term fundamental solution on infrastructure development for the Ger areas is lacking.
er ag e El ec tr ic ity H ea lth Ed uc at io n G ar ba ge
Se w
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Living conditions: Due the lack of basic housing necessities, insufficient and inconvenient access to public facilities, degraded environment, etc. the living conditions in the Ger areas do not allow residents to enjoy urban living. This is being exacerbated by the lack of effective policy support from the government. Though residents in the Ger areas worry about their living conditions and other concerns such as their financial conditions, safety, their childrens future, etc., they cannot afford to improve their plight through their own initiatives. Housing: Of the 60% of Ulaanbaatar residents who live in the Ger areas, half of them (30% of total) live inside Gers and the other half (30% of total) live in simple houses, mostly self-built wooden houses lacking the necessary utilities. Both Gers and simple houses are inadequate urban dwellings in terms of environment, sanitation, safety, and an ideal townscape.
Promote appropriate land use and mitigate environmental damages; Ensure effective development of infrastructure and urban utilities; Comprehensive improvement of living conditions; Develop legal and institutional mechanisms to improve living conditions and housing development; and Raise peoples awareness of urban lifestyles, conditions, initiative, and community participation.
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8.2
Low-rise Residential Area (Middle and peri-urban Ger area): Comprehensive living condition improvement (land readjustment, cluster infrastructure development, social housing provision, etc.)
Central network
Water
Heating / Sewerage
High& Mid-rise Residential Area (Central& middle Ger area): high-mid rise apartment and Urban redevelopment connected with central infrastructure networks
The basic requisites or orientations for the improvement and development of a number of residential areas, including the Ger areas, are proposed in Figure 8.3. Projects are categorized into three (3) types: (a) Urban redevelopment for on-site improvement in central apartment areas; (b) Land readjustment for on-site improvement in the Ger areas; and (c) New town development for the creation of new settlements.
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Figure 8.3
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Figure 8.4
Level of living condition
Planning Standard
Civil minimum
Minimum Standard
Table 8.1
Facilities Housing Housing type Water supply
Sewerage
Utilities
Electricity Heating
All households have shelters. All households have access to tap water at the same cost. Domestic and industrial wastewater is discharged after treatment complying with environmental standards. All households have access to electricity. All households can use clean heating system. All households can dispose of solid waste after treatment.
Facilities
Clinics and/or hospitals for primary health care Parks & green areas Source: JICA Study Team
All households can access these facilities within the service catchment area designated for each service.
Houses with access to central water pipeline: 200 2 m /person/day 1. Connect to central sewerage network. Use shield-type pit latrines 2. Connect to local cluster 2 (ECOSAN) sewerage network. 3. Treated by septic tanks. All households are connected to the electric power distribution network. 1. Connect to central heatUse improved stoves or ing pipeline. briquettes 2. Connect to local cluster heating network. Establish a garbage colTreatment and recycling syslection system per comtem munity. Size: 100 children per 1000 persons Service catchment area: r = 300-500m 2 Area: 30-40 m /child Size: 200 pupils per 1000 persons Service catchment area: r = 500-750m Area: 18-50 m2/pupil Size: 9 beds per 1000 persons Service catchment area: r = 1-2km Area: 60-300 m2/bed 5 m2/person 20 m2/person Houses without tap water: 25 m2/person/day
In terms of costs and customs, it is not realistic to treat solid waste onsite through latrine pits. The establishment of a solid waste collection system, wherein solid waste is utilized as fertilizer, or treated and disposed of at garbage dumps, etc., is proposed.
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Pedestrian road
Childrens park
Community center
Commercial center
Trunk road
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In terms of economic and environmental efficiency, the collective housing model such as the townhouse is recommended (see Figure 8.6). Townhouses are low-rise houses in a row. Several homes (10 - 20) can be planned as such and developed into a community. The land is either shared by homeowners or owned by each household. The advantages of a townhouse are: (a) land, infrastructure, and utilities are integrated; (b) construction and maintenance costs are cheaper than in detached houses; and (c) and they attain heat efficiency since walls are common. Figure 8.6 Images of Future Housing Types
8.3
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Figure 8.7
Residents
Governments
Private Sectors
3. Approval Stage
Plan Vision Future conceptual zoning plan Land-use plan Road network Arterial road, distributor road, colplan lector road Urban utility Water, sewerage, heating, electricplan ity, solid waste Public facility School, kindergarten, hospital, plan clinic, community center, park, etc. Housing plan Apartment, townhouse, detached house, etc. Other guidelines/regulations
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Figure 8.8 Planning Process of NADEP and Project Implementation for Ger Area Development (1) Preparatory (2) Planning (3) Approval (4) Budgeting (5) Implementation
Planning of NADEP
Phasing of Projects
Management
Project Fund
Development
Subsidy
SPV
UB City Government
Budget allocation
Development Contribution (land or finance) & Development Permission under Urban Development Law
Finance
Donors fund for planning (fees for survey, personnel, etc.) under Ger Area Development Program by MRTCUD and UB City
Budget for project Implementation from 2) (a) sales fee of reserved land of LR project , (b) subsidy from governments, (c) development contribution
Note: 1) UB City government, MRTCUD, consultants, lawyers, etc. Source: JICA Study Team
2) UB City commits purchase reserved lands which are unsold for a certain period.
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It establishes a land and asset valuation committee that includes experts, lawyers, the land management department of UB City, and representatives of residents; It defines assessment indicators through clear common standards; and It establishes an assessment system relative to each project area to build consensus among affected stakeholders especially land and asset owners in the area.
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Figure 8.9
Figure 8.10
Land Readjustment
Land Pooling
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Figure 8.11
STEP 1: Weighting of land value relative to other land values in the project area
Area5 (x0.7)
Area2 (x0.8)
Categorize homogeneous land lots for relative land value assessment Give advantage to land lots in front of trunk road or intersection Define weighting by each land lot (1.0 is the maximum)
Area1 (x1.0)
Allocate score to each land of households by multiplying weighting and share of present land area Area3
Define indicators for housing and other asset assessment among stakeholders Define rank (weighting) of indicators, and score/ point for each indicator (Maximum points of rank: A=20, B=10, C=5)
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8.4
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Figure 8.13
Residents expect that the government will develop infrastructure and construct apartments, which explains their inherent passive attitude; Residents understand the basic concept of land readjustment and land pooling, but they dont fully trust that the value of their land would increase after the project. They expect to monitor pilot LR projects in other areas and apply their finding to their areas; Most of the residents have no financial capacities to build new houses by themselves; so they expect that a housing development project is integrated with the LR project; and Residents welcome government officials to participate in the planning process and expect further studies on urban planning through practical methods.
In general, it is necessary to identify stakeholders and relevant agencies to facilitate and implement the NADEP and other urban development projects (e.g. LR project) with financial and institutional feasibilities. Community meetings are a good opportunity for consensus- building and role sharing. They help achieve expected outcomes and create consensus about the next developmental step.
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9.
9.1
Technical System: The centralized services of utilities, especially for heating system and sewerage system, will be hard in reaching residents in suburban areas during rapid urbanization or continued urban sprawling. The expansion of the capacity of the centralized system will become less feasible both technically and financially. Therefore, it is proposed that a number of local cluster sub-systems should back up the central system and be incorporated into the overall integrated system in Ulaanbaatar City (see Figure 9.1). Environmental Issues: Ambient air pollution during winter is a recurrent environmental problem. Short-term solutions should be sought through a multi-sector approach. Likewise, disaster management needs the enlistment of the 3 Es, i.e., Environmental measures, Enforcement measures and Engineering measures. This is the case for solid waste management as well. Overall Coverage and Spatial Structure: In consideration of spatial urbanization toward 2030, an overall coverage concept of infrastructures and utility services is proposed as shown in Figure 9.2.
Cluster system
Merits of Local Cluster Network System Small initial cost Time-saving implementation Possible management by private sector
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Figure 9.2
9.2
Water Supply
Water is a key lifeline that Ulaanbaatar City needs for it to continuously function as a capital city through another millennium. Water resources should be conserved with the highest priority. Its importance is not comparable with other resources. The planning issues on water are summarized in the following:
1) Planning Issues
Water capacity enhancement; New water source development; Improvement and/or rehabilitation of water supply facilities and equipment; and Demand-side management to water saving.
2) Planning Target
The planning target is laid forth in the goal: That all Ulaanbaatar citizens can readily access potable piped water for the long term.
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3) Demand-Supply Balance
Water demand projections were made based on consumption assumptions of two housing type cases, as shown in Table 9.1. The future housing demand by type is forecasted in Chapter 7. Case 1 involves a higher demand case wherein 230 liters/person/day (l/prs/d) is employed, as in the Water and Wastewater Master Plan 2020. Case 2 is a lower demand case through strong demand management aimed at 150 l/prs/d for apartment dwellers, which is the per-capita demand target of the water authority. Table 9.1
Case 1 (higher case) Apartment Detached with central system Ger and simple house Total demand Case 2 (lower case) Apartment Detached with central system Ger and simple house Total demand Source: USUG and JICA Study Team
(litters/person/day) (litters/person/day) (litters/person/day) (m3/day) (litters/person/day) (litters/person/day) (litters/person/day) (m3/day)
Figure 9.3 shows the demand-supply gap in water supply in the long term. Water demand will increase along with urbanization and the improvement of housing conditions. It will reach 351,300 m3/day by2020 and 510,700 m3/day by 2030 for the higher demand case, and 294,900 m3/day by 2020 and 367,700 m3/day by 2030 for the lower demand case. Obviously, the current capacity of 241,000 m3/day will be reached sooner than 2012 and will mean a shortage by 2015. By 2030, the gap between capacity and demand will account for 269,700 m3/day. This means that additional capacity should be developed up to 2030 for the higher case, and by 126,700 m3/day for the lower case. A well-thought out demand management may defer the critical point by some years; however it is crucial that new water resources should be developed as soon as possible to address future demand.
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500,000
400,000
Water Demand
351,300
285,800 257,800
294,900
200,000
Three areas of development should be carried out to stave off a future water crisis in Ulaanbaatar City, These are: capacity expansion, system improvement, and water tariff reforms:
Capacity Expansion: Two measures should be taken at once, i.e. expansion of existing water sources and new source development. There are three options on new source development, as shown below. However, despite its historical argument a decision has yet to be made on this. On volume of demand, the issue is not a matter of selection but the pursuit of all options in the long term.
Biokombinat, Lower Biokombinat (90,000 m3/day) (WWWMP 2020); Lower Nalaikh (40,000 m3/day) (Gachuurt) (1995 JICA Study); and Dam at Tuul and Terelj River (45,000~225,000 m3/day).
System Improvement: Demand management needs to be encouraged in association with the rehabilitation of aging pumps, reservoirs, and distribution pipelines. Water leakage should be minimized. The ongoing metering project should be further expanded to include an additional 55,000 households. It has been shown that once a water meter is installed a subscribers consumption drastically drops to 180 l/pax/day. This project also substantially contributes to revenue increases. Water Tariff Reform: The current tariff structure needs to be reformed on the following aspects: 1) The standard of fairness, and 2) The feasibility of the entire water business.
At present, there is a large difference in water charges between kiosk water and
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piped water. Charges on kiosk water should be lessened and piped water charges could be raised. A cross-subsidy system can be formulated by taking both these measures into consideration. It is ideal for the entire water business to be financially feasible in the long run. Even though the recovery of initial investments through tariff revenue could be difficult, operation and maintenance costs should at least be recoverable through revenues. Based on this concept, the current tariff structure should be re-assessed and reformed. Otherwise, the water business will deteriorate and its operations will be adversely affected by business downturns. Investment Requirements
(2)
At least a total of US$ 326 million will be required, out of which the Water Master Plan 2020 (WWWMP), including new water source development, is proposed at about US$ 290 million up to 2020. In addition, the following important projects should be financed: Lower Nalaikh: US$ 29 million; Metering: US$ 6.5 million; and Development of other water sources and administrative improvements.
9.3
Sewerage
The existing sewerage system has deteriorated, and urgent improvement is urgently required to keep Ulaanbaatar City environmentally sound and healthy. A well-functioning sewerage system is needed to protect underground water sources from possible contamination. Three (3) issues should be considered in this sense: Enhancement of treatment capacity Proper treatment of industrial wastewater Improvement of sanitation in Ger areas, summer house areas and tourist camps
1) Planning Issues
2) Planning Target
The planning target is for domestic and industrial wastewater to be treated 100% before being discharged into rivers. A new industrial wastewater treatment system, through a cluster pattern, should be developed and separated from the domestic system.
3) Demand-Supply Balance
It is assumed that the volume of wastewater for treatment is almost equal to the water supplied, as shown in Table 9.2.
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Table 9.2
Wastewater to be treated (Higher case) Wastewater to be treated (Lower case) Source: JICA Study Team
154.5 154.5
Existing treatment capacities of domestic wastewater in the central wastewater treatment plant (WWTP) are the following:
In practice, the central WWTP cannot be operated to its full capacity without rehabilitating or improving the entire system. The balance between operating capacity and demand will almost be 173,000 m3/day by 2020 and 333,200 m3/day by 2030 for the higher case, and 117,400 m3/day by 2020 and 190,200 m3/day by 2030 for the lower case. Which means that in the higher case, the capacity needs to be doubled by 2020. On industrial wastewater treatment, it has been noted that all treatment plants have been privatized, which means almost un-functional in the treatment.
Capacity expansion of the total treatment system: The total treatment capacity needs to be enlarged to cover the entire urbanized area. The central WWTP alone cannot cover this requirement. Therefore, the following components should be developed in an integrated manner:
Rehabilitation and expansion of the central WWTP; Development of several new medium-scale wastewater treatment plants to form a local cluster wastewater treatment system; and, Expansion of existing collectors and development of new collectors to create a total system.
Individual Treatment Systems: In suburban areas, including summer house areas and tourist camps, where a sewerage system is not provided, the introduction of individual local sanitation systems should be promoted, such as:
Septic tanks (individual to groups of households); and Shield-type pit latrines.
Development of an Industrial Wastewater Treatment System: There are four (4) in-
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dustrial promotion zones in Ulaanbaatar City. The Environmental Law should stipulate that each factory should be responsible for the primary treatment of its discharged wastewater. Then a secondary treatment plant should be developed in each zone, while a tertiary (or final) treatment plant should be connected to the secondary plants, as conceptualized in Figure 9.4. Structural Reform: Rules and regulations related to wastewater treatment needs to be reviewed, and this should include the review of the Environmental Law, privatization of industrial wastewater treatment, and delineation of the responsibilities of the Ulaanbaatar Water Supply and Sewerage Authority (USUG). The examination of a regulation imposing charges on wastewater treatment service as a form of water surcharge is likewise proposed. (2) Investment Requirements
The rehabilitation and capacity improvement of the existing central WWTP and collector systems will cost US$320 million, while the industrial wastewater treatment system will require US$120 million. Figure 9.4 Concept of a Collective Industrial Wastewater Treatment System
C D
Domes tic Sewerage Plant Domes tic Sewerage Line (Ex isting and P Industrial Was tewater Treatm ent Plant (Final Treatm ent) Industrial Was tewater Treatm ent Plant (Intermediate Treatment) Industrial Was tewater Pipe Line
9.4
Power Supply
To meet future demand the electricity supply system needs to be improved along with the distribution network from the sub-stations. A new power generation plant is required as well to increase capacities and enhance the heating system. A suitable location of the new plant (the 5th plant) is turning out to be a great issue, because of its corresponding environmental impacts. The introduction of new power sources other than coal is another planning concern in the long
1) Planning Issues
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term. Nuclear power deserves to be looked into in terms of its technical and financial feasibilities. However, human resources in the area of nuclear science and engineering will have to be developed for the long term in consideration of such energy innovation.
2) Planning Target
Since electric power is an indispensable commodity for social and economic activities, connection to a central power system by 100% of the households, businesses, and industries should be the target. Another strategy to do this is the introduction of environment-friendly power sources through PPP schemes.
3) Demand-Supply Balance
Based on economic and population forecasts as well as Ulaanbaatars GRDP, electric power demand was projected for 2020 and 2030. The results are summarized in Table 9.3. Current power supply capacities are tabulated in Table 9.4. Current total working capacity in UB is about the 555 MW. If the current capacity is maintained for a while, capacity will be reached by 2016. On paper, Thermal Power Station-2 (TPS-2) is due for retirement in several years time while TPS-3 will retire by 2015. Taking into account the retirement schedules of these aging plants, a new power plant is required even before 2015. Table 9.3 Projection of Future Demand for Electric Power
2007 Total (mill. kWh/yr) Load (MW) Source: JICA Study Team 1,321 274 2010 1,649 334 2020 3,462 702 2030 6,551 1,328
A capacity of 896 MW is expected to be installed up to 2030. This means that two more TPS-4s should be developed by that year. Table 9.4 Current Supply Capacities of Electric Power Plants (June 2008)
Design Capacity (MWt) 21.5* 148.0 540.0 709.5 48.0 28.8* 786.3 Working Capacity (MWt) 17.6 105.1 432.0 554.7 38.6 21.0 614.3
Thermal Power Station UB TPS-2 UB TPS3 UB TPS-4 UB Total Darkhan Erdenet Total Source: JICA Study Team
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Figure 9.5
1,400 1,328 1,200 1,000 800 702 600 482 400 274 200 2007 2010 2015 2020 2025 2030 334
Existing Working Capacity Working Capacity with retirement of PTS 2 & 3 Power Demand
986
9.5
Heating System
Development of the heating system involves crucial planning issues relevant to issues on air pollution, as well as electric power generation. Due to the spread of urbanization, or urban sprawl, the supply of heating will become more difficult in reaching residents in the suburban areas. From an engineering standpoint, capacity expansion is also a crucial issue that should be addressed. The following is a summary of the issues involved in heating system development:
1) Planning Issues
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Capacity expansion; Expansion of heating pipelines; Development of a local cluster system to supplement the centralized system; and Air pollution reduction.
2) Planning Target
The planning target is to form an integrated Clean Heating System for all with the following aspects: (a) A central heating system connected to power plants, (b) local cluster systems, and (c) individual heating systems.
3) Demand-Supply Balance
Additional residential demand from 2007 was projected, as shown in Table 9.5. Table 9.5 Projection of Residential Heating Demand from 2007
(Unit: Gcal/h) 2007 Additional Demand Source: JICA Study Team 0 2010 287 2015 749 2020 1,178 2025 1,590 2030 1,979
The difference between the projected demand and existing reserve refers to the additional heat load that would be needed in the future. The result is illustrated in Figure 9.6. Heating calorie with about 1,733 Gcal/h will be an additional requirement by 2030. Figure 9.6 Demand-Supply Gaps in Heating for Residential Use
Net increase of Heat Load for Residents
(Gcal/h)
2,200 2,000 1,800 1,600 1,400 1,200 1,000 800 600 400 200 0 0 2007 2010 2015 2020 2025 2030 287 744 1,979
Additional Demand
1,178
1,590
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Constructing heat-efficient buildings and houses; Improving stoves used in Ger areas; and, Improving fuel quality used in Ger areas (briquettes, etc.).
Tariff Structural Reform: A flat charge is imposed on households that receive heating services from the central system. However, since the charge is so cheap, the overall collection is not enough to cover operating and maintenance costs, thereby resulting in poor maintenance. The tariff structure should thus be reformed from the standpoint of both consumer affordability and sustainable provision of quality services.
9.6
1) Planning Issues
Poor waste collection network; Inadequate self-treatment and illegal dumping of wastes; Limited capacity of existing disposal sites; and, No medical and toxic industrial waste treatment system.
2) Planning Target
The SWM Master Plan targets the establishment of an adequate solid waste management system that complies by 2020 with environmental conservation.
3) Demand-Supply Balance
The volume of solid waste generated by Ulaanbaatar City will constantly increase along with the urbanization process and high economic growth. The total volume will account for 2,000 tons/day (winter) by 2030, or 2.6 times as much as that in 2006, as shown in Table 9.6.
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Unit: ton/day 2006 2010 2020 2030 Household and Multiple Winter 593.6 681.9 894.5 1,454.0 Waste Summer 276.9 375.2 708.4 1,151.5 Winter 146.1 179.9 298.6 475.0 Others Summer 208.5 257.1 430.6 690.0 Total Winter 739.7 861.8 1,193.1 1,929.0 Summer 485.4 632.2 1,139.0 1,841.5 Winter 372.0 752.0 997.8 Total Disposal Ammount Summer 530.7 553.0 1,001.4 Source: JICA Solid Waste Management Master Plan in Ulaanbaatar City (2007)
Table 9.6 Projections on Solid Waste Generation for 2010, 2020 and 2030
Construction of sanitary disposal sites and recycling plants; Strengthening of the waste collection network; Promotion of recycling business to the private sector; and Public awareness raising.
The total investment cost for to implement the above measures up to 2020 was estimated at Tg. 21.8 billion (US$ 18.6 million).
9.7
1) Planning Issues
Demand Projektion
Public information Telecommunication Traffic management City administration and services Sewerage/Drainage Land and housing Electricity Road infrastructure and facilities Public transport Garbage collection Recreation and sports facilities Water Supply Neighbourhood security Education Health/welfare services
2,000
2,500
3,000
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2) Planning Target
By shifting from traditional household practices to an effective heating system, the reduction of pollution levels to 70% of the 2007 levels is a practical and achievable planning target.
Thermal Efficiency
Fuel
Household Stove
Combustion Efficiency
Quality of House
Conduct of a public awareness campaign to fight air pollution and create a healthy city; Introduction of new energy sources such as biomass and coal-based fuel products, e.g. briquettes, etc.; Facilitation of an improved-stove distribution program (a World Bank-funded program); Housing improvement and heating network extension to develop local cluster heating networks; Promotion of energy-efficient housing construction with financial support such as subsi-
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There exist a remarkable number of aging boilers low on combustion-efficiency in the utility plants. These heat-only boilers should be replaced or rehabilitated. The central government may provide a subsidy program or a credit provision scheme in line with the SME enhancement policy. Fuel innovation through coal improvement projects should also be encouraged through government initiative, or through PPP schemes.
Notes:
A few models of innovative stoves have been invented and tested through World Bank and GTZ programs. These stoves demonstrate considerable combustion efficiency, which translated to more than 40% saving on coal consumption. A financial viability of the installation of such stoves is examined below. Assumptions: One household consumes approximately 5 tons of coal in one season. Using the improved stove, 40% of coal consumption can be saved. The cost of the new stove is Tg.100,000, compared to around Tg.28,000 for the traditional stove. Expected Savings = = = (Unit coal cost) x (Saved coal amount in one winter) Tg.50/kg x 5,000 kg X 40% Tg.100,000
Thus, the purchase cost can be recovered from savings obtained in one season alone. In order to facilitate the increased use of the improved stoves, financial support is key. Initial payment for the stoves can be done through a micro credit, community finance, or government subsidies. A trade-in program is also feasible and would bring down the prices of new stoves, i.e. the depreciated value of old stoves can be deducted from those of new ones.
9.8
Disaster Management
Flooding is one of the disaster issues which Ulaanbaatar City should tackle. Flooding often takes place due to the degradation of the water-retaining capacities of land caused by the urbanization of hilly and steep areas as well as the deforestation of watershed areas.
The northern hilly areas, where numerous houses have encroached on, are especially problematic. Since flood-prone areas are identifiable from past records, the continued urbanization in these areas should be prohibited. The occurrence of an earthquake is another potential disaster, especially because Ulaanbaatar City is not located on an earthquake-free zone. Since it is impossible to predict and mitigate an earthquakes occurrence, action should focus on minimizing anticipated human and structural
1) Planning Issues
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2) Planning Targets
The plan targets the following:
To mitigate damages caused by flooding; To prohibit residential occupation of flood-prone areas; and To minimize human and structural damages in the event of an earthquake.
The continued urbanization of the northern hilly areas should be prohibited; instead, these areas should be preserved; Deforestation and any form of tree trimming should be stopped in the northern mountainous areas to mitigate flood damages; Environmental conservation should be the first priority in land use management and control; and Community organizations should be promoted to facilitate peoples awareness and preparedness. Enforcement measures: All environmental measures should have inherent enforcement powers to help guide citizens behavior toward the appropriate direction. Designation of conservation areas for flood protection; Prohibition of building construction in designated areas; and Facilitation of resettlement programs for residents located in designated areas.
Engineering measures:
Local roads should be designed and constructed in a way that they function as dikes for disaster prevention; Improvement of drainage canals should be facilitated along with the construction of disaster prevention roads; and A technical and information center should be established to provide adequate technical advice on land development and disaster management to citizens and related authorities. Monitoring should be mandated to this center and linked up to universities and the Meteorological Office.
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(2)
Earthquake Preparedness
Since data on and scientific analyses of the potential occurrence of an earthquake are currently few, further research on the subject should be further encouraged. An Ulaanbaatar hazard map should be delineated, based on local scientific and engineering information and knowledge. In the meantime, preparedness on earthquake disaster management and relief should be enhanced in both the government and community levels. A vital element is the community-based activities that increase disaster preparedness and awareness. It should focus on the following aspects:
Areas for evacuation in the occurrence of a large-scale earthquake; Escape routes for evacuees; Provision of information network; Emergency activities; and, Sufficient stocks of survival food, medicine, etc.
These community-based preparedness activities should be promoted by the local government and international NGOs that are experienced and knowledgeable in disaster preparedness and rescue.
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The combined share of tax revenue of the local governments in the total revenue of Mongolia is 8.5% with 91.5% going to the central government. Mongolias tax revenue allocation system, as shown in Figure 10.1, is centralized, comparable with that of the UK. Since UB City accounts for more than half of the economic activities in Mongolia, the system could restrict the current autonomy UB City is enjoying in funding its public service provision based on potential tax revenue. Figure 10.1 Composition of Tax Revenue between the Central and Local Governments of Various Countries
Share of Tax Revenue
120% 100%
22.9% 8.5% 18.5% 33.1% 47.7% 49.7% 43.9% 42.4% 4.6%
Local G
95.4% 81.5% 66.9% 52.3% 50.3% 56.1% 57.6%
Central G
Canada*
France
Germany*
Japan
Sweden
UK
USA*
Source: Mongolian Statistical Year Book 2005 and OECD Statistics 2002 Note: Countries with * mark adopt federal government system.
The revenue size (tax and non-tax revenue) of Ulaanbaatar City in 2005 was 1.9% of its GRDP, which is far smaller than those of Fukuoka City (3.6%) and Sendai City (3.5%) both in Japan with a similar population size as UB Citys. The combined property tax (12%) and personal income tax (19%) of UB City was 31% of its total revenue for 2007, as shown in Table 10.2. Table 10.2 Municipal Revenue Sources of Ulaanbaatar City (2006 and 2007)
/thousand tugrugs/ 2006 No Revenue type Total revenue and grants Total without transfer Personal income tax Property taxes Taxes on goods and services Other taxes Non-tax revenue Revenue from transfers Capital revenue Plan 39,858,178.5 33,861,947.8 6,036,108.4 3,983,618.9 3,032,000.0 11,744,522.4 6,424,204.1 5,996,230.7 2,641,494.0 Actual (expected) 40,518,599.4 34,522,368.7 6,653,686.9 3,983,820.3 3,032,000.0 11,746,610.1 6,685,234.5 5,996,230.7 2,421,016.9 % 100% 19% 12% 9% 34% 19% NA 7% 2007 draft 41,321,452.8 36,906,648.7 2,954,101.7 5,000,613.5 3,212,000.0 16,137,515.4 6,868,468.1 4,414,804.1 2,733,950.0
1 2 3 4 5 6 7
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Beneficiary pays in proportion to the amount of benefit of public services he/she receives; Tax imposition in proportion to the amount of economic value that the tax payer creates or owns; Matching of service cost payment and benefit in terms of both amount and time; Best mix of three funding sources of public funding, user charge and beneficiary charge; Utilization of capital markets; and, Facilitation of stakeholder and private sector participation.
These are examined in the line with a strategic framework that employs the three strategies of: Common Strategy; O&M Financing Strategy and Capital Financing Strategy, as shown in Figure 10.2. Figure 10.2
PUBLIC SERVICE
PROPOSED STRATEGY
+
4: Capital Financing Strategy 2
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1) Common Strategy
The common strategy has four components: (1) Broaden Tax Revenue Base; (2) Matching of service cost payment and benefit in terms of both amount and time; (3) Best mix of three funding sources of public funding, user charge and beneficiary charge; and (4) Efficient Finance Management System. (1) Broaden Tax Revenue Base
In order for UB City to have an adequate revenue size to meet its development needs in terms of infrastructure development and economic activities, it is essential to reform the current centralized revenue allocation system in which the City does not enjoy the freedom of attaining budget revenue size relative to its scale of economic activities. Within the framework of the current fiscal system, it is recommended that the improvement and expansion of property-related taxation should be considered to broaden the current revenue base of UB City. The following measures are proposed and at the same time the registration system of property asset should be upgraded for the effective imposition of these taxes. Application of property-related taxes: Such as Real Estate Tax to apartment owners and Immovable Property (building) Tax to detached houses and apartment owners. Application of urban planning tax: Imposed on property owners within the urbanized zone. Revenues from this urban planning tax shall be earmarked for facility development and improvement of urban planning facilities such as roads, urban rail, bus terminals, parks, utilities, waste disposal, etc. which are designated in the UB Master Plan. In Japan, the tax rate is 0.3% of the property value (land and building) while the rate of property tax is 1.4% of the property value. The tax rate should be determined very carefully after a thorough assessment of the affordability of households and through different income levels. It should also start at the minimal level of the tax rate. (2) Matching Costs and Benefits
Majority of public service provision need large initial capital investments to construct facilities for the provision of services. The beneficiary should pay, through the tax payment, the cost of constructing a facility in proportion to the service the beneficiary receives. The operation and maintenance cost of service provision may be covered through a user charge on a full cost recovery basis. In order to distribute the construction cost evenly throughout the long economic life of the facility, the service provider may borrow the construction cost in the long term to match the long economic life of the facility so that tax payments from beneficiaries in a particular period could cover the fair distributed cost of construction. This is the matching of cost and benefit strategy of public service provision, as illustrated in Figure 10.3. This strategy should be applied to the fiscal management of UB City.
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Figure 10.3
Capital Cost
Infrastructure Investment
Share of Investment Cost by Long-term Borrowing Operation and Maintenance Costs 0 Economic Service Life of Infrastructure
Source: JICA Study Team
(3)
There are three (3) funding sources in financing public service provision:
Public Funding (tax bond and loan); User Charge (toll, fare, service charge, etc.); and, Beneficiary charge (development contribution, etc.).
UB City needs to use these three funding sources and mixed them appropriately whenever possible. Public funding includes tax revenues and market borrowing through such means as loans, bond issues, and so forth. A user charge is a charge imposed on such services as the use of water, power, transportation, road, parking and so on. A beneficiary charge is an imposition of charges for development. Beneficiaries such as residents, companies and other relevant organizations who will benefit from the construction of large infrastructures such as mass transit system, expressway, integrate urban development, housing complex, etc., shall share part of construction cost at a certain time and rule. (4) Efficient Finance Management System
UB City needs to improve its current finance management system in the terms of the following: Transparent budget system, Credible accounting system, Independent audits, Rational pricing policies, Monitoring performance criteria for monopoly services, and Predictable fiscal relations with the central government. An efficient finance management system would help UB City to improve its creditworthiness in the capital market which is essential condition for UB City to borrow funds for the construction of infrastructure in the long term from the market.
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Service
OPERATION & MAINTENANCE Funding Body Service Comm GOM UB User Private Quality
unity
- -
- -
C C C D D
D D D D D
Service
OPERATION & MAINTENANCE Funding Body Service Comm GOM UB User Private Quality
unity
- -
A A A A A
A A A A A
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Figure 10.5
(1)
Special account of earmarked taxes and budgets: The road fund is an example of earmarking a user charge on beneficiaries for the provision of road services. The fund earmarks proceeds from vehicle registration fees or entry fees from car users entering UB City. A similar earmarking of funds should be practiced more comprehensively. One such example is the systematic parking fee collection to develop parking facilities in the citys CBD. Leveraging ODA funding: One of the major funding sources for the development of infrastructure is through ODA donors funding. However, Mongolias current use of donor funding is fragmented and is not utilized in a concentrated manner. UB City should orchestrate the usage of potential donor funding by streamlining and coordinating various interests presented by different donors and agencies based on the recommendations made by the UBMPS. Application of Community-based Financing System: As a part of self-help mechanism for the improvement of the Ger areas, a community fund system may be developed as illustrated in Figure 10.6. This system is characterized through the following mechanisms:
A community fund will be created with funding from the Government of Mongolia on the basis of ODA grant money, or an ODA loan, to be granted to Ulaanbaatar City together with periodical savings deposit from landowners in the community. A cooperative among the landowners will be formed as a legal implementing body of the system. A NGO that is capable of managing such funds will be the fund manager of the community fund with assistance from a commercial bank. An escrow account will preferably be used for the management of the community fund. A tripartite agreement will be signed by Ulaanbaatar City, the landowners cooperative, and the NGO. Using the grant and the deposited savings from the landowners as its own funding3, the cooperative will borrow bridge financing from the MHFC to construct a mix of mid-rise condominium buildings and apartments to house the landowners in the community.
3 The loan to value ratio should be less than 80%, in other words, more than 20% of the own funding will be required.
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Surplus floor area, or apartment units, shall be created in the development and sold to the market to supplement investments for necessary infrastructure provision and community facilities. It will also form as a repayment of the bridge financing from public financing institutions. Subsidized mortgage loans shall be provided to middle- and lower-income households who wish to buy apartment units, as well as households who wish to move into the community.
Figure 10.6
ODA Donor
Grant
GOM
Grant
UB City
Tripartite Agreement
Land Owners
NGO
Construction Company
Purchasers
Construction
(2)
The value capture method should be widely applied to ensnare funding for beneficiaries of positive economic influence generated by the construction of large infrastructures. Facilitation of the value capture methods should be carried out in the following manner:
Development Charge: Charges on infrastructure costs and development permit. Developer Contribution: Sharing on cost of roads, utilities, park, school, hospital, community facilities, and other infrastructures. Betterment Charge: To compensate for the improved value accrued to the property owners through the provision of public facilities. Infrastructure Service Fund: In-lieu-payment of necessary infrastructure provision.
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With a variety of funding sources, a sectoral financing framework for infrastructure development and their operation and maintenance is depicted in Table 10.3. Table 10.3 Sectoral Financing Framework for Infrastructure Development and O&M
PUBLIC SERVICE Tax 1. Transport 1) Bus 2) MRT 4) Road 3) Toll Road 2. Utilities 1) Power 2) Heating 3) Water Supply 4) Sewerage 5) Solid Waste 3. Social Infra/Living Environ 1) Public School 2) Public Hospital 3) Community Facilities 4) Park 4. Housing 1) Middle-Income 2) Low-Income 5. Urban Development FUNDING SOURCES CONSTRUCTION OPERATION & MAINTENANCE Donor
Value Capture
Private Tax
Donor -
Notes: Source:
Major Funding Source; Minor Funding Source/Subsidy; - Not applicable; Shaded: to be facilitated JICA Study Team
Establishment of a financing intermediary that specializes in financing infrastructure development could allow UB City to have an efficient vehicle to tap the Central Governments financial resources (through revenues from the mining sector), multilateral and bilateral financial institutions, and ultimately from the domestic and foreign capital markets. Although it may need central government guarantee in the beginning phase, it will be worthwhile for UB City to examine the possibility of establishing the UB Infrastructure Financing Corporation (UBIFC) which will play a role as a financing intermediary in initiating infrastructure projects by public service entities as well as the UB City government. In the long run, it could be able to borrow long-term funds from capital markets or leverage its equity capital based on its own creditworthiness.
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Common Strategy
1.
Broaden Tax Revenue Base Improvement and expansion of property related taxation Introduction of Urban Planning Tax
2.
Efficient Finance Management System Matching of service cost payment and benefit Beneficiaries-Pay-Principle based on Value Capture Mechanism
3.
4.
Best-mix of three funding sources = public funding, user charge and beneficiary charge
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Construction Permission Construction Permission Land Expropriation for Pubic Use Land Expropriation for Pubic Use
Housing Development Guidelines Housing Development Guidelines and Standards and Standards
Right of Land Ownership, Right of Land Ownership, Possession or Usage Possession or Usage
In addition, new regulations and/or guidelines should be created to meet current requirements on urban development and the improvement of the ger areas. The following elements should be employed to enhance the general legal function:
To review the Urban Development Law as a tool of development control and promotion, as well as stipulate and address requirements of the following:
Legal functions of the Master Plan and governmental responsibilities; Zoning system; and Development guidelines.
To review Housing Law for the establishment of a Social Housing Corporation and
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Housing guidelines and standards; and Realization of the Housing Development Fund.
Review of the Land Law and Law on Allocation of Land to Mongolian Citizens for Ownership for appropriate land management and land value assessment systems, based on the need to rationalize the following items:
Land registration system; Newly amended ownership allowance: 700m2/HH to 700m2/person, and Land use permission.
To build new laws to guide the requisite urban development and Ger area improvement through the following items:
Land Readjustment Law; Urban Redevelopment Law; New Town Development Law; and Land Compulsory Expropriation Law.
Sub-procedures, rules of administrative operation, enforcement regulations and ordinances have not been definitely established under the Law yet, and these issues are still being formulated. It will also employ extensive research and include discussion on such issues as: codes and criteria for zoning system, basic planning process for city master plans, integrated standards and formats for urban development documents, guidelines for city design and landscape, Ger area redevelopment planning, and other related regulations in order to establish appropriate legal environment in the conduct of urban development and administrative interventions on the construction sector.
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Such an integrated regulatory framework is crucial in the building and development of modern Mongolian cities. They should also be explored for suitableness and for the uniqueness of this country, with professional advice and reference from the experiences of developed countries. Another important legal aspect is the regulation of physical and spatial limits on building and land use with respect to designated zones. This regulation, which is popular in progressive countries, will determine the environmental quality, spatial structure and the economic efficiency of land use. Useful indicators for regulation are as follows:
Floor area ratio (FAR = total floor area of the building/land area); Building coverage ratio (BCR = building area/land area); Building height limit; and/or, Building setback (requirement of distance from the right of way to the building surface line).
Law on Housing Development Financing Institution (HDFI) Law on Community Organizations Development Institute (CODI) Law on Social Housing Corporation (SHC)
The financial resources of Housing Development Fund (HDF) stipulated in the Housing Law is not sufficient to meet the present housing needs, and new financial resources have to be incorporated into HDF. To this end, the following resources are expected to be introduced for housing finance and development along with the necessary legal amendments on financial arrangements.
Mongolian Development Fund National Pension Fund Housing Development Mutual Fund
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Construction Law Land Law Environmental Protection Law / Environmental Impact Assessment Law
Construction Law regulates all aspects of development, engineering drawings, activities related to the development of the construction material industry, the norms and standards of construction works, and the normative technological and engineering criteria. It prescribes the rules of maintenance in construction sites and of technical supervision and safety of the compounds. However, currently the Construction Law is not applied in Ger areas. Therefore, some measures that will control construction and urban development activities in those areas have to be introduced. Land Law stipulates the extent of land tenure, such as ownership, possession and using right of land. The land ownership of Mongolian people was approved in 2002 through the Law of Allocation of lands to Mongolian Citizens for Ownership. More uniquely, there is a land fee decision system for land possession using the Law of Mongolia on Land Fee. It should also be noted that there is no land value assessment system which is an essential element that facilitates market-driven urban development. A rational system for land value assessment has to be introduced in such a way that economically rational land use is facilitated in line with the urban development law and land use regulations. Another planning issue is that the newly amended land ownership allowance from 700 m2 per household to 700 m2 per capita in 2008 will affect the efficiency of housing land use and make the improvement of Ger areas difficult. As it is obvious that within the current urban area, no sufficient land remains to respond to requirements under the new allowance of land ownership, urbanization will tend to be expanded outward, thereby leading to an inefficient urban structure against the concept of Compact City. Environmental Protection Law and Environmental Assessment Law prescribe basic policies for preserving the urban and natural environments and the technical standards for the environment impact assessment. These laws have to be operated together with urban growth management and the review of the surveillance system.
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To be revised
Community Development Networking System Land Readjustment Law Law for Land Development New Town Development Law Land Compulsory Expropriation Law Law for Housing Development
Housing Law
To be revised
To be revised
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12.1 General
Based on the revised City Master Plan and the proposed city planning system, a draft of the Ulaanbaatar City Development Program, with 2020 and 2030 as its targets periods, has been compiled. It addresses a strategic framework to achieve the citys development goals and objectives. In the process of the formulation of the program, the close discussion and coordination with the Mongolian Side and other donors were made to make the program as the most common base for the development of Ulaanbaatar City. Nevertheless, the program as presented herewith is still subject to changes based on the further elaboration of processes and procedures. The Ulaanbaatar City Development Program consists of three components, that is hardware, software, and human capital. The hardware shall include the improvement and/or development of social and economic infrastructures. In particular, two projects are provisionally given high priority: one is transportation to enhance peoples mobility with well-functioning public transportation system, road network and comprehensive traffic management measures; and the other is a water-related program to supply fresh water to all citizens and improve the sewerage capacity against degradation of the urban environment Meanwhile, the software component includes the improvement and/or development of legal system and financial mechanism to support efficient growth management and implement the programs proposed in the new Master Plan 2020 and 2030. The most vital and urgent issue is to prepare the supplemental institutional and administrative system in a comprehensive legal framework for the Urban Development Law which was recently amended in May 2008. The human capital component includes capacity building program in urban planning administration of both the central and city governments. This component should be incorporated into both the hardware and software components.
Urban Economic Enhancement Urban Transportation Infrastructures and Utilities (Urban Water & Sanitation; Electric Power; Heating System; Solid Waste Management) Housing and Housing Policy Enhancement; Urban Environment (Living Environment Improvement; Environmental Management;
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Urban Amenity & Disaster Management) Social Service Improvement; Institutional & Legal-base Development; and Development Financing System
Figure 12.1
Current Problems Current Problems Disorderly Land Use Disorderly Land Use Traffic Congestions Traffic Congestions Insufficient utility services Insufficient utility services Substandard Ger settlements Substandard Ger settlements Poor public services provision Poor public services provision Legislative and Institutional Legislative and Institutional deficiency deficiency
Development Issues Development Issues A) Urban Economic Enhancement A) Urban Economic Enhancement B) Comprehensive Urban Transportation System B) Comprehensive Urban Transportation System C) Infrastructures and Utilities Improvement C) Infrastructures and Utilities Improvement D) Housing and Housing Policy Enhancement D) Housing and Housing Policy Enhancement E) Urban Environment Management E) Urban Environment Management F) Social Service Improvement F) Social Service Improvement G) Institutional & Legal-base Development and Governance G) Institutional & Legal-base Development and Governance H) Development Financing System H) Development Financing System
Source: JICA Study Team
Since development issues were identified in consideration of how to achieve the development visions, there are close interrelations between both as shown in Figure 12.2. One vision cannot be achieved only with the solution of one issue, but needs composite solutions through their direct and indirect effects. On the same way, one program to solve one issue often brings multiple impacts on the achievement of multiple visions. There are also inter-linkages among the development issues, as shown in Figure 12.3 and such mutual relations should be considered to formulate development programs. None of programs cannot be standing alone, but every program has explicit and implicit impacts to others.
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Figure 12.2
Development Issues
D: Housing and Housing D: Housing and Housing Policy Enhancement Policy Enhancement
Development Visions
1. Competitive world class business center 2. Livable city with sufficient infrastructures and housing 3. Healthy and safe city 4. Democratic city with good governance with peoples participation 5. Reputable international tourism center in Asia Notes: Direct interrelation Indirect interrelation
Figure 12.3
B: Comprehensive Urban B: Comprehensive Urban Transportation System Transportation System Program Program
D: Housing and Housing D: Housing and Housing Policy Enhancement Policy Enhancement Program Program
C: Infrastructures and C: Infrastructures and Utilities Improvement Utilities Improvement Program Program
144
G: Institutional & LegalG: Institutional & Legalbase Development base Development and Governance and Governance Program Program
The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) Final Report Vol.1: Summary
A total of 115 projects/programs, which are all essential to materialize the Master Plan 2020 and 2030, have been listed for the Ulaanbaatar City Development Program, as shown in Table 12.3. The following attributes of each project are presented in the table:
Support scheme: types of support to be required are presented: Technical Assistance (TA), Financial Assistance (FA) and/or Private Participation under a Public Private Partnership (PPP). Project Priority is represented in the time framework such as:
the short-tem: the medium-term: the long-term: to be completed or in service by 2015; to be completed or in service by 2020; and to be completed or in service by 2030 and/or beyond.
Some projects have long life on a long-term perspective. The volume and intensity of inputs are represented in this timeframe by X.
Investment cost for each project is provisionally estimated. These costs are subject to further clarification. This cost indicates initial investment costs to be prepared by the public sector, or under a PPP scheme, including the private sector. Since some projects are of cost-recovery type, the total cost of the cash flow may be different from this cost. Related projects are presented in the last column. This means that the project should be prepared, or designed, in consideration with related ones.
The total cost of the proposed 115 projects/programs accounts for US$9,894 million, as shown in Table 12.1. This investment needs to be allocated during the time period of 23 years up to 2030. Looking into the sector allocation of the investment cost, the largest share of 43.3% is appropriated for the transport sector, followed by the infrastructure and utilities services (20.5%), the Living Environment and Social Services Improvement (15.1%), and Housing Development (14.2%). The transport sector requires US$ 4,283 million, out of which about US$ 2,249.3 million (52.5%) shall be allocated for the Public Transport System, and US$ 1,901.1 million (44.4%) for Road Improvement. Almost equal distribution is made for both. Also important is the investment on Traffic Management. Although it shares only 3% of the transport sector, it will bring great impacts on alleviation of traffic congestion in the short-tem. The sector of Infrastructure and Utilities requires about US$ 2,032.7 million in total, out of which US$ 661.5 shall be allocated for Heating System Program, and US$ 480 million, for Electric Power Supply, US$ 440.0 million for Sewerage System and US$ 413.0 for Water Supply System. As for the Housing Sector, a total of US$ 1,407 million of public investment shall be necessary, out of which US$ 730 million is assumed to be allocated for the land development of two (2) new towns; and US$ 410 million, for social housing development of 20,000 units which shall be initiated by the Social Housing Public Corporation (to be newly established) until 2020. This cost will be recovered by selling housing units, and revenues may be reinvested for additional social housing development.
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For the Living Environment and Social Services Improvement, a total of US$ 1,498.2 million will be needed up to 2030. The largest amount of public investment, or US$ 600 million, is assumed to be appropriated for the Rehabilitation of Degraded Apartments and Public Service Facilities, including approximately 65,800 units. This cost shall be recovered through the payment of individual owners and private real estate agents. The revenues may be utilized for additional rehabilitation projects as a revolving fund. The second largest investment, or US$ 230 million, should be allocated for Enforcement of Relocation from Flood Prone Areas which aims to move high risky settlements (about 15,000 households) to safer land areas, or new town areas. In order to uplift the level of social services, a total of US$ 400 million of public investment is necessary to be allocated for development of a sufficient number of educational and health facilities in communities, under a planning and design norm/standard to be newly reviewed. In order to strengthen the institutional, legal basis, and financial structure, a great amount of the investment is not required, but the impacts of the development will be extremely large and important. The necessary budget will be only US$28 million, out of which US$ 8.0 shall be used for a training program for urban planning administration and capacity building for the realization of the Master Plan, and US$10.0 million shall be allocated to facilitate technologies and the skills of the construction sector through a capacity development program.
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No. of Projects
6 17 5 3 7 7 6 9 8 9 7 4 6 4 10 7
Share (%)
6.5%
4,283.0
43.3%
2,032.7
20.5%
1,407.0
14.2%
15.1%
0.3%
Total
115
9,893.9
100.0%
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Table 12.2
Sector/Program Sector Code Sub-sector Sub-center Development Urban Economic Enhancement UED Business & Commercial Industrial Tourism Road Urban Transportation UTR Public Transportation Traffic Management Safety Improvement Water Resource Urban Water & Sanitation UWS Water Supply Sewage System Electric Supply Electric Power EPW Electric Network Institutional Mechanism Heating Supply Heating System HTS Heating Network Heating Efficiency Institutional Mechanism Garbage Collection Solid Waste Management Telecommunication Housing and Housing Policy Enhancement SWM TCM HSG Recycle system Institutional Mechanism Capacity Enhancement Low-cost Housing Social Housing
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Table 12.3
Proposed Ulaanbaatar City Development Program for UBMPS 2020 and 2030
Project Description Implementing Agencies Support Scheme TA FA PPP Priority S M ~2015 ~2020 L ~2030 Cost (mil. US$) Related Projects
Code
Project
Beneficiaries
UED-Id-01
XXX
XX
XX
80.0
UED-Bc-01
UED-Bc-01
XXX
XX
20.0
UED-Id-01 UED-Sc-02
UED-Sc-01
XX
XXX
150.0
UED-Sc-03
UED-Sc-02
To develop one sub-center as a center for incoming industries for Ulaanbaatar city such as the ICT industry and those involving higher education.
XXX
XX
50.0
UED-Bc-01
UED-Sc-03
To develop UB Underground Shopping Arcade as a new urban attraction in the central district in association with development of stations of the MRT system. Relocation of current Tourism Information Center in Ulaanbaatar and improvement information provision functions to visitors. Development city circuit tour program and improvement of signage. Beautification of surroundings of tourist sites.
XXX
XX
340.0
UED-Sc-01 UED-Tm-01
UED-Tm-01
XXX
5.0
UED-Sc-03
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Code
Project
Beneficiaries
UTR-Rd-02
XXX
164.9
UTR-Pt-01
UTR-Rd-03
XXX
37.6
UTR-Rd-04
XXX
12.3
UTR-Rd-05
XXX
57.5
UTR-Rd-06
XXX
90.0
UTR-Rd-07
XXX
86.4
UTR-Rd-01
UTR-Rd-08
XXX
109.6
UTR-Rd-07
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Code
Project
Beneficiaries
Project Description Implementing Agencies Construction of a new road along the western dike of the Selbe River to strengthen the road network in UB-CBD. Improvement of north-south arterial road to strengthen mobility in Ulaanbaatar City, as well as to secure land and space for infrastructure development and public transport. Improvement of the north-south transport corridor to strengthen mobility in Ulaanbaatar City, as well as to secure land and space for infrastructure development and urban rapid transit. Improvement of the north-south arterial road to strengthen mobility in Ulaanbaatar City, as well as to secure land and space for infrastructure development and public transport. Improvement of the north-south arterial road to strengthen mobility in Ulaanbaatar City, as well as to secure land and space for infrastructure development and public transport. Improvement of the north-south arterial road to strengthen mobility in Ulaanbaatar City, as well as to secure land and space for infrastructure development and public transport. Development of full-control access road to secure mobility in Ulaanbaatar City. Development of Asian Highway to an international standard to complete international highway network. A comprehensive program to enhance the overall road maintenance capacity for UB city and the nation as a whole, including updating road inventories, technical improvement for betterment and upgrading works, restructuring of institutional and organizational systems. Modernization of machines and equipment for road maintenance is also facilitated.
UTR-Rd-09
Network Development of NS-3: Western dyke road of the Selbe River Network Development of NS-4: from Ikh Surguul Street to Olympic Street Network Development of NS-5: (from Sukhbaatar Street to Chinggis Avenue) Network Development of NS-9: from Chinggis Avenue to Tolgoit Road through Sonsgolon Road Network Development of NS-1: from Dari Ekhiin Ovoo to Narny Zam Network Development of NS-8: from Trade Union Street to Chinggis Avenue Development of Urban Expressway Development of Asian Highway No. 3
XXX
7.9
UTR-Rd-10
XXX
67.3
UTR-Rd-11
XXX
102.5
UTR-Rd-01
UTR-Rd-12
XXX
87.6
UTR-Rd-13
XXX
25.1
UTR-Rd-14
XXX
107.3
UTR-Rd-15
XXX
500.0
UTR-Rd-16
XXX
93.9
UTR-Pt-02
UTR-Rd-17
XXX
XX
XX
166.0
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Code
Project
Beneficiaries
UTR-Pt-02
Public transport passengers Railway cargo consignors, consignees, and forwarders of rail cargo, and passengers Railway cargo consignors, consignees, and forwarders of rail cargo
XX
XXX
792.0
UTR-Pt-01 UTR-Pt-03
UTR-Pt-03
Development of new railway line bypassing UB in the south of Bogd Khan Mountain.
XXX
200.0
UTR-Pt-04
UTR-Pt-04
Development of cargo terminal and logistic center in the suburbs of Ulaanbaatar. Improvement of Smart Bus Stops: Replace 77 bus stops with newly designed better bus stop. Bus Location Information System: Provide bus location information at bus stop and through Internet. Installment of Transit Signal Priority System: Reduce delay of bus at signal by transit signal priority.
XXX
80.0
UTR-Pt-02
XXX
XXX
XXX 70.0
UTR-Pt-05
Bus passengers
Bus Route and Operation Schedule Rationalization Project: Develop mechanism to review and revise bus routes and schedules and implement them. Modernization Program of Bus Operators Fleet Renewal Program: Develop financial mechanism to introduce new bus fleets and study bus operating costs, impacts of bus fare hikes and other factors and revise bus fares.
XXX
XXX
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Code
Project
Beneficiaries
UTR-Tm-02
Construction of 4 Flyovers: at Sapporo; Bayanburd, Tuul Jin Pan, and Eastcross. Construction of 3 New Primary Links: Western Dike of Selbe River, Unur; Ajilchin to Chinggis.
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Establishment of Mongolian National Transportation Research Center (MoNTREC) A center of knowledge and experience in traffic and transportation. Human Resource Development: Develop training curriculum and conduct training for both road administrators and enforcers. Establishment of a Traffic Management Coordination Committee for: UTR-Tm-03 Capacity Development of Traffic Management and Traffic Safety Promotion Program General public & road users; transport-related officials & agencies Coordination among the agencies concerned for better traffic management. Education and upgrading social norms on general public and drivers, etc. Formulation of a Traffic safety program, including: Accident analysis Development of Road safety audit and improvement measures. Road amenity green space: Improve sidewalk and provide green spaces to make walking and NMV more attractive and pleasant. X XXX XX XX X XXX 20.0 UTR-Tm-01 UTR-Tm-02 X XXX
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Code
Project
Beneficiaries
UWS-Ws-01
UWS-Ws-04
UWS-Ws-06
XXX
25.0
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Code
Project
Beneficiaries
UWS-Ss-02
XX
XXX
110.0
UWS-Ss-01
UWS-Ss-03
XX
XXX
60.0
UWS-Ss-02
UWS-Ss-04
UB City citizen
XX
XXX
XX
40.0
UWS-Ss-05
UB City citizen
XX
XXX
50.0
UWS-Ss-06
XXX
40.0
UWS-Ss-07
UB City citizen
XX
XXX
XX
20.0
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Code
Project
Beneficiaries
Priority S M ~2015 ~2020 XXX XX L ~2030 XX Cost (mil. US$) Related Projects
EPW-En-02
Construction and Rehabilitation of Power Substations Installation of Solar System to Governmental Facilities Electric Demand Management Program
UB City citizen
To construct and rehabilitate power substations. To save power by installing solar system devices, to begin with government buildings. To conduct a pilot project to introduce solar system. To reform the tariff structure, and promote a campaign for citizens to conserve water.
14.5
EPW-En-01
EPW-En-03
UB City citizen
XXX
XX
2.0
EPW-Es-02
EPW-Im-01
UB City citizen
XXX
XX
2.0
EPW-En-03
HTS-Hs-02
UB City citizen
XXX
XX
HTS-Hs-03
HTS-Hn-01 HTS-Hn-02
Rehabilitation of Old Pipelines for Heating Heating Distribution network Enhancement Improvement of Heat-efficiency of Buildings
HTS-He-01
XXX
2.0
XXX
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Code
Project
Beneficiaries
HTS-He-03
To standardize coal quality. To promote improved coal including financial supporting system. To reform existing heating tariff structures to improve financial status of the heating company.
XXX
3.5
HTS-Im-01
UB City citizen
XXX
SWM-Gc-01
SWM-Gc-02
UB City citizen
XX
XXX
9.0
SWM-Gc-03
UB City citizen
XXX
XX
XX
15.0
SWM-Rs-01
UB City citizen
XXX
XX
SWM-Rs-02
UB City citizen
XX
XXX
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Code
Project
Beneficiaries
Project Description Implementing Agencies To establish guideline on education and campaign program. To provide education materials.
Priority S M ~2015 ~2020 XXX L ~2030 Cost (mil. US$) Related Projects
SWM-Im-01
UB City citizen
2.0
HSG-Lh-02
XXX
XXX
730.0
HSG-Sh-01
UB citizens, particularly low and middle income groups and migrants Low income households, students and single families Migrants, resettled households
XX
XXX
410.0
HSG-Lh-02, HSG-Sh-03
HSG-Sh-02
Provision of Rental Apartments Temporary Housing Area Development for Resettled Households
XX
XX
180.0
HSG-Sh-02
XXX
84.0
HSG-Sh-03
XXX
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Code
Project
Beneficiaries
Project Description Implementing Agencies To reform the existing building code and update modern standards to apply present building structure and materials, in consideration of anti-earthquake structures. To introduce design and supervision system to monitor and improve construction process. To improve heat insulation material and construction techniques for air condition improvement of buildings. To strengthen and enhance capacity and activities of apartment management bodies to maintain and improve buildings, facilities and communities.
HSG-Ts-01
XXX
HSG-Lh-01 HSG-Ts-02 LEV-Hq-01 LEV-Ep-01 HSG-Lh-01 HSG-Ts-01 LEV-Hq-02 LEV-Ep-01 HSG-Sh-02 LEV-Hq-01
HSG-Ts-02
XXX
3.0
HSG-Cd-01
LEV-Hq-02
LEV-Ep-01
UB City citizen
XXX
2.0
LEV-Pf-01
XX
40.0
ADM-Go-01
LEV-Pf-02
XX
50.0
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Code
Project
Beneficiaries
LEV-Ce-01
Establishment of Support to Community-based Organizations for Environmental Improvement and Social Activities Establishment of A Participatory Land and Immovable Asset Assessment System
XXX
XX
XX
10
LEV-Ce-02
To formulate an agreeable system for land and immovable assets value assessment to facilitate Community-driven Ger area improvement activities
XXX
0.2
XXX
XX
EVM-Pc-01
EVM-Pc-02
EVM-Ea-01
XX
XX
XX
1.0
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Code
Project
Beneficiaries
ADM-Df-02
UB City citizen
XXX
XX
60.0
UTR-Rd-08
ADM-Df-03
UB City citizen
XXX
3.0
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Code
Project
Beneficiaries
Project Description Implementing Agencies To improve road network and widen roads for emergency vehicles in the Ger areas. To reform and strengthen regulations on land use and maintain adequate roads and open space. To facilitate development of city parks, community parks, green areas and open space to be reserved.
ADM-Df-04
XX
XX
XX
60.0
ADM-Go-01
To develop a green network in UB City with these parks and green areas, based on the Master Plan. UB City citizen To monitor Land Use Zoning with enforcement against illegal construction and development activities. To regulate green area development by construction permission, development permission, etc. X XXX XX 40.0
ADM-Go-02
UB City citizen
To study appropriate greening technique to meet UBs natural climate and environment. To promote green building and street techniques. To establish a financial support system.
XX
XXX
XX
2.0
SSI-Ed-02
Students
XX
XX
XX
200.0
SSI-He-01
UB City citizen
XX
0.5
SSI-He-02
XX
XX
XX
200.0
SSI-He-01
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Code
Project
Beneficiaries
ILG-Ud-01
MRTCUD, UB City
XXX
1.5
ILG-Ud-02
MRTCUD, UB City
XXX
3.0
ILG-Ud-03
ILD-Ud-04
XX
XX
ILD-Ud-05
Development of Neighborhood Area Development Plan (NADEP) for Ger Area Improvement
XXX
XX
HSG-Sh-02, ADM-Df-01
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Code
Project
Beneficiaries
Project Description Implementing Agencies To formulate institutional guidelines encouraging a Community-driven Ger Area improvement Projects based on a concept of Land Readjustment though Pilot Projects. To assist related ministries and agencies in establishing:
ILD-Ud-06
XXX
XX
HSG-Sh-02, ADM-Df-01
ILG-Hs-01
Housing Development Financing Institution (HDFI); Social Housing Corporation (SHC); and, Community Organizations Development Institute (CODI).
XXX
XX
1.0
ILG-Hs-02
MRTCUD, MOF, Bank of Mongolia MRTCUD, UB City, Building Material Manufacturers Association and other construction-related business sector
To develop a framework on Financial Resources for Housing Development Fund to be utilized for social housing for low income households. To develop a self-help housing construction system for poor households. To facilitate R & D activities in the universities for affordable and energy-efficient construction materials. To provide a number of model houses to replace the Ger settlements. To establish basic policies fostering the construction business sector in Mongolia. To encourage the production of basic construction materials such as cement & iron through the provision of incentives for the investment. To provide vocational education programs for the construction sector.
XXX
2.0
ILG-Hs-03
XXX
XX
XX
6.0
ILG-Cs-01
XXX
xx
10.0-
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Code
Project
Beneficiaries
DFS-Fs-01
DFS-Fs-02
Ger Area residents, UB City residents in general UB City, General tax payers
XXX
XX
DFS-Fs-07
DFS-Fs-01 X X XX XXX XX DFS-Fs-08 DF-Fs-09 X DFS-Fs-01 DFS-Fs-07 DFS-Fs-01 X XX XXX 1.5 DFS-Fs-02 DFS-Fs-05 DFS-Fs-06
DFS-Fs-05
Formulation of Value Capture Methods for UB City Exploration of Long-term City Bond Issuance by UB City Establishment of the UB Infrastructure Financing Public Corporation
DFS-Fs-06
XXX
DFS-Fs-07
DFS-Fs-08
XXX
1.0
DFS-Fs-01 DFS-Fs-05
DF-Fs-09
XXX
XXX
XXX
.0
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treatment to serve the designated industrial zones are being developed. In addition, a peoples movement for 3Rs (reduction, recycling, reuse) is proactive. (5) Some practical models for improvement of Ger areas, which are based on a community-driven approach, have been built and a number of projects using the models are being carried out in collaboration with communities and Ulaanbaatar City. Priority projects need to contribute to attainment the status as described above.
ILG
3) Criteria of Prioritization
The prioritization process is important to envision a rational phased development under limited budgets and capacities. In general, the most crucial criterion is economic feasibility of the investment, based on a cost/benefit analysis. However, it is not easy to economically evaluate all projects over different sectors. Instead, an implicit evaluation is carried out based on five (5) criteria, as follows:
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Coherence with Visions; Urgency; Necessity (needs); Implicit Feasibility; and Social Acceptance.
Coherence with Visions: Although all proposed projects must be relevant to the visions for Ulaanbaatar City, which were envisaged in the first stage of the planning process, the more relevant projects to achieve the visions should be given higher priority. Urgency: Needless to say, projects that are expected to contribute to more urgent issues should be given higher priority. Necessity: All proposed projects are considered based on the needs of Ulaanbaatar citizens which were indentified through the household interview survey and a series of technical working group meetings and community consultation meetings. However, projects that can more widely and more greatly respond to peoples needs may be given higher priority. Implicit Feasibility: Technical and institutional feasibilities need to be considered for prioritization, because these factors are closely related to the implementability and sustainability of a project. This criterion is not necessarily tangible but implicit. Social Acceptance: Projects which are accepted by all may be given a higher priority. However, there are projects that are highly necessary for society, but are not welcome by the public. The restructuring of tariff structures for public services, such as bus fares or electric bills, is a case in point. Priority shall be considered in balancing both sides of these needs. Each project proposed in the long list (Table 12.3) was evaluated through a scoring method, referring to these five (5) criteria, as shown in Table 12.5. Projects that are the most relevant to the respective criteria are given the highest score, 3. On the contrary, those whose impacts are not necessarily expected are given the lowest score, 1. In cases where neither 3, nor 1, is given a middle score, 2, applied. Thus, each project has a total score when summed up. However, the score of Urgency is counted double in consideration of the importance of the time factor in the priority.
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Table 12.5
Schedule
Social Acceptance Total Weighted Score
Sector
Code
Project
Environt'l Impact
2)
Urgency
Needs
Feasibility
Short ~2015
Medium ~2020
Long ~2030
Relocation and Collectivization Project Id-01 for Local Processing Industries (Industrial Park Development) Bc-01 Improvement of Incubation Facility Project Commercial & Business Sub-centers Development Development of ICT and Knowledge Industry Center Development of Underground Shopping Arcade Improvement of Tourism Information Provision Project
17
Sc-01
11
Sc-02
16
Sc-03
13
Tm-01
18
UTR: Urban Network Development of EW-1 (from Transportation Rd-01 Gachuurt to 22Km-post through (Road) Peace Avenue) Network Development of EW-3 Rd-02 (Bayanzurkh to Road to Thermal Power Station No.4 through Narny Zam) Network Development of NS-2 Rd-03 (Eastern section of Middle Ring Road) Rd-04 Network Development of NS-6 (from Ikh Toyruu to Engels Street)
14
14
14
14
Network development of NS-7 (from Rd-05 Chinggis Avenu to Ard Ayush Avenue through Ajilchin Street) Development of Highway to Connect Rd-06 Ulaanbaatar City to New Airport and Zuunmod Network Development of EW-2 (from B. Rd-07 Dorj Street to Tolgoit Road through Ard Ayush Avenue) Rd-08 Network Development of Disaster Prevention Roads Network Development of NS-3 (Western dyke road of the Selbe River) Network Development of NS-4 (from Ikh Surguul Street to Olympic Street) Network Development of NS-5 (from Sukhbaatar Street to Chinggis Avenue)
14
16
10
10
Rd-09
10
Rd-10
10
Rd-11
10
Network Development of NS-9 (from Rd-12 Chinggis Avenue to Tolgoit Road through Sonsgolon Road) Rd-13 Network Development of NS-1 (from Dari Ekhiin Ovoo to Narny Zam) Network Development of NS-8 (from Trade Union Street to Chinggis Avenue)
10
10
Rd-14
10
11
10
Rd-17
3 3 2 1 PP P n N NN
18
Most relevant and/or suitable Modarately relevant and/or suitable Fairly relevant and/or suitable Greatly positive impact or improved Positive impact or improved None Slightly negative impact anticipated Negative impact anticipated Cruicially negative impact anticipated
2) Environmental Impact:
3) Those writen in bold letters with shaded cell stand for selected "Priority Projects/Programs"
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Schedule
Social Acceptance Total Weighted Score
Environt'l Impact
2)
Feasibility
Short ~2015
Medium ~2020
Long ~2030
UTR: Urban LRT/BRT Development of the EastTransportation Pt-01 West Line (Phase 1) (Public Transport) LRT/BRT Development of North-South Pt-02 Line (Phase 2)
17
PP
11
PP
11
Pt-04
15
Pt-05 Bus Service Improvement Program UTR: Urban Traffic Congestion Reduction Transportation Tm-01 Program (Comprehensive Traffic (Traffic Management Improvement Project) Management and Others) Removal of Traffic Bottlenecks and Tm-02 Construction of Missing Links Capacity Development of Traffic Tm-03 Management and Traffic Safety Promotion Program UWS: Urban Water & Sanitation (Water) Wr-01 Water Resource Protection
18
18
PP
18
18
16
PP
Wr-02
New Water Supply Source Development Improvement of Water Supply Capacity Water Quality Monitoring and Management Water Supply Distribution Network Rehabilitation & Enhancement Project
18
Ws-01
18
Ws-02
14
Ws-03
15
16
Ws-05 Provision of Water in Ger areas UWS: Urban Water & Sanitation (Sewerage System)
16
Ss-01
Central Wastewater Treatment Plant (CWWTP) Capacity Enhancement New Wastewater Treatment Facility Development Industrial Wastewater Facility Improvement Sludge Treatment and Bio-energy Facility Development Rehabilitation of old pipelines of sewerage Household-based sewerage treatment
16
PP
Ss-02
12
Ss-03
14
PP
Ss-04
11
Ss-05
16
PP
Ss-06
14
3 3 2 1 PP P n N NN
11
PP
Most relevant and/or suitable Modarately relevant and/or suitable Fairly relevant and/or suitable Greatly positive impact or improved Positive impact or improved None Slightly negative impact anticipated Negative impact anticipated Cruicially negative impact anticipated
2) Environmental Impact:
3) Those writen in bold letters with shaded cell stand for selected "Priority Projects/Programs"
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Schedule
Social Acceptance Total Weighted Score
Environt'l Impact
2)
Feasibility
Short ~2015
Medium ~2020
Long ~2030
16
Es-02
New Power Supply System Development Electric Distribution Network Enhancement Construction and Rehabilitation of Power Substations Installation of Solar System to Governmental Facilities
17
NN
En-01
14
En-02
14
En-03
12
16
13
NN
14
Hs-03
Local Cluster Heating System Development Rehabilitation of Old Pipelines for Heating Heating Distribution network Enhancement Improvement of Heat-efficiency of Buildings
11
Hn-01
16
Hn-02
14
He-01
11
PP
15
He-03
14
Im-01 Heating Tariff Structure Reform SWM: Solid Waste Management Improvement of Solid Waste Gc-01 Dumping Sites and Enhancement of Management Gc-02 Construction of Solid Waste Separation Facilities Garbage Collection System Improvement Solid Waste Recycling System Development
15
13
13
Gc-03
17
Rs-01
15
10
10
11
Im-01
2 3 2 1 PP P n N NN
15
PP
Most relevant and/or suitable Modarately relevant and/or suitable Fairly relevant and/or suitable Greatly positive impact or improved Positive impact or improved None Slightly negative impact anticipated Negative impact anticipated Cruicially negative impact anticipated
2) Environmental Impact:
3) Those writen in bold letters with shaded cell stand for selected "Priority Projects/Programs"
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Schedule
Social Acceptance Total Weighted Score
Environt'l Impact
2)
Feasibility
Short ~2015
Medium ~2020
Long ~2030
HSG: Housing Guideline Development of Low-cost and Housing Lh-01 Housing Policy Enhancement New Town Development by a Public Lh-02 Entity Social Housing Development Project (20,000 units)
17
12
Sh-01
15
Sh-02 Provision of Rental Apartments Temporary Housing Area Sh-02 Development for Resettled Households Sh-03 Reform/Restructure of Mongolian Housing Financing Company (MHFC) Reform of Building Code and Construction Supervision System Improvement of Heat efficiency of Housing Buildings
14
14
16
Ts-01
13
Ts-02
13
12
Hq-01 Rehabilitation of Old Apartments Promotion of New Technologies for Hq-02 Energy-saving and Eco-housing Development Ep-01 Raising Awareness of Environmental and Living Condition Improvement Community & City Parks and Open Space Development Promotion of Community-based School Facilities
15
10
PP
18
Pf-01
15
Pf-02
13
Establishment of Support to Ce-01 Community-based Organizations for Environmental Improvement and Social Activities Establishment of Participatory Land Ce-02 and Immovable Asset Assessment System EVM: Development of Forest Protection Environmental Ne-01 Management and Monitoring System Management Pc-01 Development of Air Quality Management and Monitoring System Development of Water Quality Management and Monitoring System Capacity Development on Management of the EIA System Enforcement of Relocation from Flood Prone Areas Rehabilitation of Storm Water Drainage Canals and the Entire System Promotion Program of Communitybased Preparedness against Disaster Road Improvement and Emergency Vehicles Procurement Program
17
14
14
PP
17
PP
Pc-02
15
15
Df-01
11
Df-02
12
Df-03
13
Df-04
2 3 2 1 PP P n N NN
14
Most relevant and/or suitable Modarately relevant and/or suitable Fairly relevant and/or suitable Greatly positive impact or improved Positive impact or improved None Slightly negative impact anticipated Negative impact anticipated Cruicially negative impact anticipated
2) Environmental Impact:
3) Those writen in bold letters with shaded cell stand for selected "Priority Projects/Programs"
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Schedule
Social Acceptance Total Weighted Score
Environt'l Impact
2)
Feasibility
Short ~2015
Medium ~2020
Long ~2030
ANM: Urban City Parks and Green Network Go-01 Amenity & Development Project Disaster Management Promotion of a Campaign for Greening (cont'd) Go-02 Buildings and Streets SSI: Social Service Improvement Development of Planning Standard Ed-01 and Guidelines of Educational Facilities Ed-02 Acceleration Program for Pre-school and School Facility Development
15
13
PP
17
13
Development of Planning Standard He-01 and Guidelines of Health Care Facilities He-02 Acceleration Program for Health Care Facility Development
17
14
ILG: Legal Enhancement of Urban Institutional & Ud-01 Planning and Urban DevelopmentLegal-base related administration Development Ud-02 Introduction of Property Assessment Land Valuation Systems
16
16
Training Program for Urban Planning Ud-03 Administration and Capacity Building for Realizing the UB Master Plan 2030 Ud-04 Development of Resettlement Policy and Plan
18
10
Development of "Neighborhood Area Ud-05 Development Plan (NADEP)" for Ger area improvement Establishment of Institutional System for Ud-06 Land Readjustment/ Land Pooling (by Implementing of Pilot Projects) Hs-01 Institutional Development for Social Housing Policies and Programs Financial Capacity Building Related to Social Housing Development Facilitation of a Self-Help Housing Construction System
15
15
17
Hs-02
17
Hs-03
Business Development Policy to Cs-01 Strengthen the Construction-related Sector DFS: Development Financing System Fs-01 Financial Basis Enhancement Program of UB City Government Formulation of Community-based Financing System Formulation of Value Capture Methods for UB City Exploration of Long-term City Bond Issuance by UB City Establishment of the UB Infrastructure Financing Public Corporation Comprehensive Policy Reform of Public Service Tariff Structure Preparation of Implementation Framework for PPP-based Public Service and Urban Development Projects
14
12
Fs-02
15
Fs-03
12
Fs-04
13
Fs-05
14
Fs-06
15
Fs-07
18
3 2 1 PP P n N NN
Most relevant and/or suitable Modarately relevant and/or suitable Fairly relevant and/or suitable Greatly positive impact or improved Positive impact or improved None Slightly negative impact anticipated Negative impact anticipated Cruicially negative impact anticipated
2) Environmental Impact:
3) Those writen in bold letters with shaded cell stand for selected "Priority Projects/Programs"
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Table 12.6
Project Improvement of Incubation Facility Project Development of ICT and Knowledge Industry Center Improvement of Tourism Information Provision Project Network Development of EW-1 (from Gachuurt to 22Kmpost through Peace Avenue) Network Development of EW-3 (Bayanzurkh to Road to Thermal Power Station No.4 through Narny Zam) Network Development of NS-2 (Eastern section of Middle Ring Road) Network Development of NS-6 (from Ikh Toyruu to Engels Street) Network development of NS-7 (from Chinggis Avenu to Ard Ayush Avenue through Ajilchin Street) Development of Highway to Connect Ulaanbaatar City to New Airport and Zuunmod Capacity Development of Road Maintenance LRT/BRT Development of the East-West Line (Phase 1) Bus Service Improvement Program Traffic Congestion Reduction Program (Comprehensive Traffic Management Improvement Project) Removal of Traffic Bottlenecks and Construction of Missing Links Capacity Development of Traffic Management and Traffic Safety Promotion Program New Water Supply Source Development
Executing Schedule Cost Short Mediu Long Estimate ~2015 m ~2030 (US$ mill.) 20.0 50.0 5.0 185.8 164.9 37.6 12.3 57.5 90.0 166.0 300.0 70.0 30.0 82.0 20.0 290.0 30.0 10.0 120.0 30.0 30.0 40.0 250.0 100.0 0.0 40.0 6.0
UTR: Urban Transportation (Public Transport) UTR: Urban Transportation (Traffic Management and Others)
Wr-02
Ws-01 Improvement of Water Supply Capacity Ws-04 Water Demand Management Program
Central Wastewater Treatment Plant (CWWTP) Capacity Enhancement Industrial Wastewater Facility Improvement Rehabilitation of old pipelines of sewerage Household-based sewerage treatment New Power Supply System Development New Heating Source Development Rehabilitation of Heat-only -Boiler Heating Distribution network Enhancement Coal Quality Improvement Project
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(2/2)
Sector SWM: Solid Waste Management Code Gc-01 Gc-03 Rs-01 HSG: Housing and Housing Policy Enhancement Sh-01 Sh-02 Sh-03 LEV: Living Environment Improvement Ep-01 Project Improvement of Solid Waste Dumping Sites and Enhancement of Management Garbage Collection System Improvement Solid Waste Recycling System Development Social Housing Development Project (20,000 units) Temporary Housing Area Development for Resettled Households Reform/Restructure of Mongolian Housing Financing Company (MHFC) Raising Awareness of Environmental and Living Condition Improvement Establishment of Support to Community-based Organizations for Environmental Improvement and Social Activities Establishment of Participatory Land and Immovable Asset Assessment System Development of Forest Protection Management and Monitoring System Development of Air Quality Management and Monitoring System Development of Water Quality Management and Monitoring System Enforcement of Relocation from Flood Prone Areas City Parks and Green Network Development Project Development of Planning Standard and Guidelines of Educational Facilities Acceleration Program for Pre-school and School Facility Development Development of Planning Standard and Guidelines of Health Care Facilities Acceleration Program for Health Care Facility Development Legal Enhancement of Urban Planning and Urban Development-related administration Training Program for Urban Planning Administration and Capacity Buildingfor Realizing the UB Master Plan 2030 Development of "Neighborhood Area Development Plan (NADEP)" for Ger Area Improvement Institutional Development for Social Housing Policies and Programs Financial Capacity Building Related to Social Housing Development Formulation of Community-based Financing System Comprehensive Policy Reform of Public Service Tariff Structure Preparation of Implementation Framework for PPP-based Public Service and Urban Development Projects Total Executing Schedule Cost Short Mediu Long Estimate ~2015 m ~2030 (US$ mill.) 5.7 10.0 0.0 150.0 84.0 0.0 2.0 10.0 0.2 4.0 3.0 2.0 50.0 30.0 0.5 50.0 0.5 50.0 1.5 4.0 0.0 1.0 2.0 0.0 1.0 1.0 2,700
Ce-01
Ce-02 EVM: Environmental Management Ne-01 Pc-01 Pc-02 ANM: Urban Amenity & Disaster Management SSI: Social Service Improvement Df-01 Go-01 Ed-01 Ed-02 He-01 He-02 ILG: Institutional & Legal-base Development Ud-01 Ud-03 Ud-05 Hs-01 Hs-02 DFS: Development Financing System Fs-02 Fs-06 Fs-07
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13.1 General
Necessary actions should be taken for the realization of the Master Plan, which includes legal and institutional processes by such agencies as Ministry of Road, Transport, Construction and Urban Development, and the Ulaanbaatar City Government. (a) Institutionalization of the Newly Revised Master Plan of Ulaanbaatar City: Although this Study was carried out in a highly comprehensive and technical manner, it has not been conducted in accordance with the institutionalized processes stipulated in the Urban Development Law. But since this Study presents a number of recommendations and proposals that will revise the current Master Plan 2020, the Ulaanbaatar City government has acted on these recommendations to prepare a new Ulaanbaatar Master Plan for the target year 2030 with technical and financial support from the national government. (b) Organizational Restructuring: The administrative and technical capacities of city planning are too weak to cope with actual development management needs in Ulaanbaatar City. The public entity technically responsible for Urban Planning is the Urban Planning, Research and Design Institute (UPRDI), an important organization for city planning administration. However, UPRDI is an external organ with financial constrains, always facing difficulties in staffing and working capacities. A well-functional organizational system on urban planning administration should be structured; otherwise, Ulaanbaatar City will not be able to properly perform urban growth management and actually implement the designed Master Plan. (c) Formulation of District Plans with a Hierarchical Planning Structures: The Ulaanbaatar Master Plan shall provide a general framework for spatial structure and land use, as well as orientations on social and economic infrastructures. Based on the framework delineated by the Master Plan, local or District Plans, shall be formulated based on local realities. District Plans should present more detailed land use and spatial structures in proper consultation with community leaders and relevant stakeholders. This planning process should be initiated and facilitated by the Ulaanbaatar City in accordance with the Urban Development Law. (d) Donors Coordination: The common concerns of many donors are on urban development, environmental improvement, and the uplifting of social services such as education and health. The improvement of the Ger areas is a focal agendum in the donor community. Since technical and financial support from the donor community is
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an indispensable part of turning Ulaanbaatar City into a more livable and competitive city, a well-coordinated assistance among donors is highly required. Among the four (4) actions cited above, two key actions are briefly examined herein: (a) Institutionalization of the Newly Revised Master Plan of Ulaanbaatar City; and (b) Organizational Restructuring.
13.2 Institutionalization Process for Revision and Approval of the New Master Plan
As mentioned above, the most important action is to facilitate the institutionalization process of a new Ulaanbaatar Master Plan, based on this JICA Study. The official procedure in the formulation of a new, or a revised, master plan, in compliance with the Urban Development Law, is as follows: First, Based on Article 9, the Mayor of Ulaanbaatar City shall organize and initiate action leading to the revision and reform of the Master Plan. For this purpose, a working team (or Task force) shall be organized, headed by the Chief Architect (Article 10). The working team shall be organized with representatives from the relevant authorities of Ulaanbaatar City. This includes the economic and social affairs-related authorities; urban development-related authorities, such as Construction and Urban Development Department, Urban Policy Department, Land Management Department and Transportation Department, Road Department, and other concerned agencies or departments. Due to the important mandate given to the ministry, in accordance with Articles 7 and 18, MRTCUD shall dispatch qualified officials and technically proficient personnel to the working team. At the same time, based on Article 15, the Central Government shall arrange a budget to cover financial requirements for the working team. Ulaanbaatar City should also prepare a special budget to support comprehensive planning activities. The working team shall start by reviewing this JICA UBMPS in a manner where the planning will coincide with the requirements in Article 12. For this technical work, technical sub-groups may be organized with full involvement of academic experts. In the review process, public participation should be facilitated based on the elements of Article 17. The revised documents of the New Master Plan shall be approved by the parliament. Before that, projects and programs incorporated in the Master Plan shall be approved by the Citizens Representatives Khurals, based on Article 8. This will be a crucial but time-consuming part of the process.
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tion actions of the overall urban development project based on the Master Plan. To this end, a more functional organizational system should be established, with the following measures: The Mayor, and other high-ranking decision-makers, shall take strong leadership with a clear grasp and vision of the future development of Ulaanbaatar. Line agencies related to urban planning should be further strengthened. There are three functions on the administrative system: One is the policy building & planning function represented by the Urban Policy Department, since the physical and spatial planning capacity is generally weak. Another is the project and policy implementing function, represented by the sector department. The third is the registration and permission function rendered by Land Management Department. The most powerful authority is the Construction and Urban Development Department, headed by the Chief Architect, which covers the three functions in accordance with the Urban Development Law. In the administrative structure, the policy building and planning function needs to be further strengthened. Urban Policy Departments mandate is to study and formulate overall policy for development, but does not cover physical and spatial development policies. A new organization, provisionally called Urban Planning Department, which is independently responsible for the implementing, monitoring, revising and managing the City Mater Plan, is recommended for establishment, as shown in Figure 13.1. This department shall function as the base office of Deputy Mayor (newly assigned in December 2008) who is in charge of urban development policy. Figure 13.1 Enhancement of Urban Planning Administration in Ulaanbaatar City
Policy Building & Planning Function Project and policy Implementing Function Registration & Permission Issuing Function
Construction and Urban Development Department (Chief Architect Office) Road Department Land Management Department Information Department Solid Waste Department
Transport Department
Affiliated organizations, which are responsible for planning and project implementations of specific strategic projects and programs, also should be established, or reorganized, as the Mayors control organs, this is conceptualized in Figure 13.2.
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Establishment of City Planning Institute, which can be reorganized by strengthening the Urban Planning, Research and Design Institute (UPRDI) in terms of financial and staff capacities. The City Planning Institute shall have various functions, among which are the following: 1) Prepare the city master planning; 2) Provide technical and professional support in the formulation of the District Plans; 3) Conduct research for master planning and continuous monitoring of urban development; 4) Verify related policies and laws; 5) Review and develop the organizational environment in conformity with the dynamic change of the city; 6) Supervise works and duties related to urban development projects; and 7) Compile statistical and mapping data/information. Financially, the current operation cost of the institute may be managed through investment profits born from a special fund to be allocated from Mongolian Development Fund. Establishment of Social Housing Corporation as an independent public Corporation to provide affordable housings for low income class groups and to manage and operate comprehensive policies and planning in relation to the social housings, including the effective participation of the private sector. Rental housing provision is also part of this corporations task. The MHFC deserves to be functionally converted into a Social Housing Corporation. Establishment of New Town Development Corporation as an independent public corporation that will take responsibility for the constrution of infrasrturcures (roads, utilities, parks and recreational facilties) and the preparation of locations for new town project, as well as new housing area development. This organization may carry out joint venture projects with the private sector, but should take the intiative in project implementation through strong management roles. The financial source will come from Mongolian Developemnt Fund, National Pension Fund, bond issuance, and/or the new financial organization FILP (Fiscal Investment & Loans Program). Figure 13.2 Organizational Framework with External Affiliated Entities
Mayor
External Affiliated OrganiCity Planning Institute Social Housing Corporation New Town Development Public Corporation Other Public Interest Organization
Management Group
Private Sectors
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The Study on City Master Plan and Urban Development of Ulaanbaatar City (UBMPS) Final Report Vol.1: Summary
A number of substantial arguments, proposals, and ideas were involved in this draft plan. Among these were the terms of enhancement for the legal and financial system in the urban planning administration as well as land use and zoning, new town development, and new urban transport systems with two public transit corridors under a compact city concept. In order to realize these concepts and strategies, the Study shows that a total of 115 projects/programs in the Development Program should be implemented up to the target year 2030, which cover almost all important sectors with a total cost of US$9,894 million. The result of the priority evaluation showed that a total of 50 projects are considered as urgent action projects which means that they are recommended for commencement as soon as practicable. These projects hopefully should be completed by 2015. The study outcomes are all subject to further elaboration and/or clarification among the relevant agencies and stakeholders. The most important action that should be taken soon after, or along with, the clarification process is that based on this Study, Ulaanbaatar City should commence revising the existing UBMP-2020 and prepare the New Ulaanbaatar City Master Plan 2030 in accordance with the Urban Development Law. This act of institutionalization is extremely important in turning Ulaanbaatar City into a well-governed, modern city where a fair and normative system ensures an orderly land use and development under a functional growth management mechanism. Donors are all welcome to join the above process and to support Ulaanbaatar City to become more competitive, livable, environmentally sustainable, financially bankable and governed well. On the other hand, model projects for Ger area improvement are still being planned in Dambadarjaa and Unur, with strong involvement of all stakeholders such as district and Khoroo governments and the community residents. Through these model projects, a community-driven Ger area improvement mechanism is being explored through a simple but ideal form of land readjustment. These project need to be technically and financially supported by JICA, other donors such as UN-HABITAT and NGOs as well as the Ulaanbaatar City government. The Study Team was often asked a question why the existing Master Plan 2020 cannot be materialized and what faults are existing, despite that the master plan has been approved by the Government. Even though the master plan is well-designed and technically correct, the plan could never be realized, given three (3) conditions, i.e., (a) legal and institutional systems to ensure the implementation; (b) government commitment for budgeting toward the implementation; and (c) strong support and advocacy of the general
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public and stakeholders. The JICA Study Team really hopes that this report will be fully utilized to guide such an institutional process of the Central Government as well as the Ulaanbaatar City Government towards establishment of the proudly prosperous city, Ulaanbaatar.
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