A Study of the Improvement of Planning Systems for Land Use Control in Agricultural Heritage Sites

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1 May, 2016 Journal of Resources and Ecology Vol. 7 No.3 J. Resour. Ecol (3) DOI: /j.issn x A Study of the Improvement of Planning Systems for Land Use Control in Agricultural Heritage Sites PARK Yoon-Ho 1,*, YOON Won-Keun 2, DABINETT Gordon 3 1. Rural Research Institute, Korea Rural Community Corporation, Ansan-si, Korea; 2. Department of Regional Development, Hyup Sung University, Hwaseong-si, Korea; 3. Department of Town and Regional Planning, Sheffield University, S10 2TN Sheffield, UK Abstract: The number of GIAHS sites is increasing these days and will continue to do so gradually in East Asian countries including Korea, China and Japan. As a result, conservation of heritage sites is more and more important, especially in Korea. Dealing with issues surrounding land use conflicts are important for conservation of heritages in order to harmonize between conservation and development to prevent reckless development. This study aims to identify measures for land use management and control to allow for sustainable development around agricultural heritage system sites. The results point to the importance of public-private partnerships and local ordinance systems or comprehensive planning of land use controls for agricultural heritage system sites. Key words: land use management and control; Globally Important Agricultural Heritage Systems (GIAHS); heritage conservation; land use ordinance; agricultural heritage system; sustainable development. 1 Introduction The term agricultural heritage, which is part of the GIAHS acronym is sometimes misunderstood to be something found in museums. In fact, these programs are not museum pieces, nor do they aim to maintain unchanged existing landscapes and natural resource management methods. On the contrary, the GIAHS program supports enhancement and capacity development of local communities and indigenous peoples so that they can react to ecological, economic, social, and cultural changes using endogenous mechanisms. Agricultural heritage sites including GIAHS can also be encouraged to develop as tourism destinations to support the regeneration of rural regions. They are, however, subject to considerable pressure because of their attractiveness. As a result, agricultural heritage sites are prone to land-use tensions or even conflicts, especially in Korea. Because Korea has relatively relaxed land use control systems compared to other developed countries, it s agricultural heritage sites can be deployed in order to develop heritage tourism or rural tourism. GIAHS have been identified as land utilization systems that contain abundant biodiversity on a global scale and represent a local environment, an outstanding landscape and a land system deserving sustainable development (FAO 2002). The number of agricultural heritage sites is increasing these days and will continue to do so gradually in East Asian countries including Korea, China and Japan (Table 1). The Korean government (Ministry of Agriculture, Food and Rural Affairs, MAFRA) established the KIAHS (Korea Important Agricultural Heritage Systems) system in March In Korea nine sites have been designated as KIAHS so far. There are also two sites designated as GIAHS. The Chinese government (Ministry of Agriculture of China, MOA) established the China NIAHS (Nationally Important Agricultural Heritage Systems) in March 2012 at nearly the same time as Korea. Up to now there are 62 sites designated as China-NIAHS. 11 of them are also designated as GIAHS. Received: Accepted: *Corresponding author: PARK Yoon Ho. pakyoonho@naver.com Citation: PARK Yoon-Ho, YOON Won-Keun, DABINETT Gordon. A Study of the Improvement of Planning Systems for Land use Control in Agricultural Heritage Sites. Journal of Resources and Ecology. 7(3):

2 PARK Yoon-Ho, et al.: A Study of the Improvement of Planning Systems for Land use Control in Agricultural Heritage Sites 181 Table 1 The development of Globally Important Agricultural Heritage System sites during the past five years GIAHS Korea 2 2 China Japan sub Total world Fig.1 The development of agricultural heritage system (GIAHS + KIAHS + China NIAHS) sites during the past five years The Japanese government has not established a national agricultural system, but has eight GIAHS sites. As of this writing, there are 35 GIAHS sites located in 14 countries and about 60% of these are in China, Japan, and Korea. Currently, dynamic conservation of agricultural heritage sites is more and more crucial as a means to safeguard and promote regional development of the heritage sites. It is therefore important for agricultural heritage systems to find a balance between development and preservation. This study aims to identify conflicts between development and preservation as they impact heritage sites. The goal of managing a continuing landscape should not be to preserve the landscape without change; instead, management should first consider the opinions of local people because they are the real owners of the heritage and the land that makes up the heritage site. The development of an agricultural heritage which gives them tangible benefits can motivate them to be conscious and passionate about heritage conservation. Land use management of heritage sites is supposed to take into account these multiple factors in order to conserve heritage sites and to allow for regional development, especially in the rural regions. In this context, conflicts between conservation and tourism development and other kinds of land use conflicts may emerge at heritage sites. This paper examines the current status of land use management and control systems at GIAHS sites in Korea. In addition, this paper will try to identify land use management methods that are compatible with conservation and allow for sustainable development. 2 Study sites and methods 2.1 Study sites We could develop an analysis in terms of land use management and control from the point of view of agricultural heritage systems. Many efforts have been made to achieve an equilibrium between preservation and development in sensitive rural areas. However, land use management systems are very complicated and vary from country to country. Management systems can also vary from plot to plot according to the land use patterns and characteristics; the type of system and the methods used depend on land use conditions and circumstances. Our main study areas are two agricultural heritage sites (Cheongsando and Jejudo) and several counties which have tried to control rural land use in Korea. We have also drawn on information from good case studies in Japan and the UK. The first main study area is Jejudo. Jeju Special Self- Governing Province is an island accessible by boat or aircraft, and the southernmost administrative district in Korea. Jeju is a volcanic island located 90km south of the southern tip of the Korean Peninsula. The second main study area is Cheongsando. Cheongsando Island is located approximately 19km from Wando-gun County, Jeollanam-do, Korea. Cheongsando Island occupies a total area of 42.7 km 2, and Cheongsando Island is one of a group of 5 inhabited and 9 uninhabited islands. Cheongsando Island has land use classifications of 72% forest and 21% arable land which is used for rice and dry-field farming; the climate is a warm, humid temperate climate. Cheongsando Island was designated as the first Korea Important Agricultural Heritage systems (KIAHS) in January 2013 and it was also designated as a Globally Important Agricultural Heritage Systems (GIAHS) in April Methods We used case studies about land use management that looked at controls for managing conflicts between preservation and development in Korea. We took into consideration institutional and statutory factors regarding land use and, based on this, we examined the different kinds of land use conflicts that occur and the conditions under which they appear. Our paper does not attempt to cover all aspects of conservation efforts. We focus primarily on those aspects that affect land use management and, in particular, on policies put in place by local governments and residents groups to restrict property rights as a way to promote protection. We used a combination of research methods, a literature review, in-depth interviews, case investigations, and group discussions with experts. Our principal research method was a comparison of case studies of land use management and control in different rural regions. This study was performed using the following procedure: First, the existing literature about land use management

3 182 Journal of Resources and Ecology Vol. 7 No. 3, 2016 in rural areas was examined. Second, various methods were verified by comparing cases of the land use management and control measures at different heritage sites. Third, a comparison was made of the land use management and control measures of agricultural heritage sites and general heritage sites. Fourth, our examination led to a conclusion for this study regarding land use management and control measures for agricultural heritage sites. 3 Case study We surveyed five case studies of land use management and control measures in Korea, including two for GIAHS sites and we also investigated two case studies of land use management and control methods for rural areas in Japan and the UK. This paper examines the land use management currently in use at agricultural heritage sites and other cases of land use control measures for rural areas. As a result of our examination of these case studies, finally we suggest measures to improve planning systems for land use control of agricultural heritage sites in Korea. 3.1 Jeju batdam Jeju Special Self-Governing Province has natural assets that were recognized as part of UNESCO World Biosphere Reserve, World Natural Heritage (Jeju Volcanic Island and Lava Tubes), Ramsar Wetlands and Global Geoparks network before the area was designated as a GIAHS. As a result, prior to the GIAHS designation, land use management systems were in place to preserve these assets. Jeju Province has its own system of ordinances that allow it to consult and manage environmental impacts affecting these assets. In particular, conservation areas, such as the Absolute/Relative Conservation Area and View Conservation zone, have been demarcated and managed specially to control spatial development. Furthermore, Jeju Special Self-Governing Province has a plan to enact agricultural heritage conservation management ordinances to prevent ill-advised development or increases in fallow farmland. In the designated conservation areas, subsidies will be provided to farmers to maintain and manage the Batdam Agricultural System. Jeju Batdam adapted a zoning scheme for the conservation of agricultural heritage systems in order to manage these systems efficiently. The area is classified into three groups: a core zone, a buffer zone and special management zones (Fig. 2). The core zone of the Jeju Batdam area is km2 and most of this core zone overlaps the World Natural Heritage sites. The majority of the core zone area is owned by public sector entities and, therefore, is relatively easy to manage for conservation. The buffer zone area is 561km2 most of Fig.2 Zoning of the Jeju Batdam conservation areas which is located in the mid-mountainous area of Mt. Halla. In addition, some well-preserved Jeju Batdam Agricultural System areas will be designated as a special management zone. However, specific land use regulations for each of the zones have yet to be established and the special management zones have yet to be designated. 3.2 Traditional Gudeuljang Irrigated rice terraces in Cheongsando Cheongsando Gudeuljangnon was designated as Korea s first KIAHS in January 2013 and also listed as a GIAHS in April The gross area of Cheongsando Island is 42km2. Gudeuljangnon is a unique irrigated farming system that is distributed over the whole island. Land use management and controls in Cheongsando have already experienced some troubles after the area was designated as a GIAHS (Fig. 3). There have been pressures to develop Cheongsando Island and there has been some reckless development, including the building of accommodations to house the increased number of visitors. This could result in negative externalities that harm the landscape identity of Cheongsando Island. Fig.3 Reckless development near Gudeuljangnon in Cheongsando

4 PARK Yoon-Ho, et al.: A Study of the Improvement of Planning Systems for Land use Control in Agricultural Heritage Sites 183 as land use management and conservation tools for the areas around agricultural heritage sites but these are not in place because the county lacks legal expertise and has not been able to experiment to determine which measures would be most effective. 3.3 Hoeryongpo in Yecheon-gun Fig.4 Landscape of Hoeryongpo Wando-gun county has tried to establish regulations for the conservation of agricultural heritage sites, but these are not yet in place. Wan-do county could use landscape ordinances Yecheon-gun is located in Gyeongsangbuk-do Province. Hoeryongpo Village is surrounded by the winding Naeseongcheon River, a tributary of the Nakdonggang River. The village offers views of the beautiful landscapes created by the twists and turns of the river. Hoeryongpo was designated as a National Scenic Site by the Cultural Heritage Administration of Korea in Because of this designation, construction within a 500 meter radius of the boundary of Hoeryongpo is strictly regulated by the National Land Planning and Utilization Act (Table 2). As a result, the land use management and control have been successful in this area, but this could constitute an obstacle to regional development. Table 2 Criteria for building permits in areas surrounding Hoeryongpo Criteria for permission Flat slab Pitched roof (over 3:10 degree) Zone 1 Reconstruction or renovation under the current size Zone 2 Reconstruction or renovation under the current size Maximum two stories (less than 12 meters in height) Zone 3 Maximum two stories (less than eight meters in height) Maximum two stories (less than 12 meters in height) Zone 4 Dealt with in accordance with relevant laws and ordinances Fig.5 Regulation zones for areas surrounding Hoeryongpo

5 184 Journal of Resources and Ecology Vol. 7 No. 3, Landscape ordinance of Jecheon-si The landscape ordinance for Jecheon-si was enacted in January 2002 and was designed to prevent reckless development in the areas surrounding Cheongpung Lake. This landscape ordinance has its legal basis in the Natural Environment Conservation Act. It regulates the construction of buildings more strictly than is the case in common regions. The landscape ordinance of Jecheon-si was applied to an area within 200 meters of the projected design flood line of Cheongpung Lake. The total area covered by the ordnance is about 189 km 2 and this area is classified into two zones (Table 3). This ordinance is orientated towards a planned development system that includes a landscape jury system at the local government level. The construction of buildings within the designated areas may be permitted after a process of deliberations concerning the landscape. The use of the jury system as part of the landscape ordinance in Jecheon-si has resulted in the modification or rejection of 71 project plans in the course of deliberation over a period of six years. This demonstrates that the landscape jury system has been successful to some extent in preventing reckless development. However, in 2009, seven years after the landscape ordinance had been enacted in Jecheon si, it was overturned due to the opposition of landlords and a development oriented policy was put in place by a newly elected mayor. 3.5 Urban planning ordinance of Gimhae-si Gimhae-si is a city in South Gyeongsang Provinceone and located adjacent to Pusan Metropolitan City, the second largest city in Korea. In fact, Gimhae-si has had serious problems with urban sprawl. The Gimhae-si government revised its urban planning ordinance in 2010 to strengthen land use regulations in es- pecially mountainous territory. Slope use regulations were tightened through the revision of the urban planning ordinance. The maximum slope degree allowed for development was changed from 25 to 11 degrees in the mountainous areas in Gimha-si. As a result, development in the mountainous areas has decreased considerably. 3.6 Uirimji Reservoir in Jecheon-Si The application for the Jecheon Uirimji Reservoir was submitted to KIAHS in However, Jecheon city suddenly withdrew the proposal for KIAHS designation during jury deliberations in January 2014 because some landlords were opposed to their land being designated as a KIAHS site. There was strong opposition to the KIAHS program for due to the restrictions designation would place on land use. However, Jecheon Uirimji Reservoir was designated as a National Scenic Site by Cultural Heritage Administration of Korea in Therefore, the area surrounding Uirimji Reservoir was already controlled by a strict laws and a land use management system. In Korea, land use management and control is mainly regulated by the National Land Planning and Utilization Act (2002). It seems that there is some misunderstanding concerning the relationship of agricultural heritage systems to other heritage preserve systems in Korea. Designation as a KIAHS site may be unacceptable or disliked by some local people because it limits the ways in which land can be used. This is an area of concern that needs to be addressed in the development of agricultural heritage systems in Korea in the future. 3.7 Landscape Covenant system in Nagano Prefecture, Japan Japan has a different land use management system with Korea. Japan has a stronger and more robust land use management Table 3 Spatial scope for the landscape ordinance of Jecheon-Si Zones Subjects to be regulated Grade 1 zone Within 50 m from projected design flood line All activities Grade 2 zone Between 51~200 m from projected design flood line - Tourism and sports facilities district - Change of land shape and quality for areas greater than 1000 m 2 - For building permits under the building act Table 4 Results of landscape jury system in Jecheon-si Year Total plans Original plan approved Modifications approved Rejected plans Re-examines & on hold Voluntary withdrawals, etc Total

6 PARK Yoon-Ho, et al.: A Study of the Improvement of Planning Systems for Land use Control in Agricultural Heritage Sites 185 system for conservation in rural areas. This is because rural areas in Japan, including paddy fields, are under the control of the Agricultural Land Act and dealt with separately from urban areas. Japan also has more clearly defined legal basis for establishing ordinances allowing for some form of covenant system at the local government level. About 10 percent of rural regions in Japan have adopted covenant systems among residents (MAFF, 2011). Nagano prefecture adapted a covenant system for land use management and control especially in rural areas. This covenant system needed to be approved by more than 80 percent of residents affected by the system. 164 covenants had been established in Nagano prefecture by April The contents of covenants include criteria for 1) location, size and design of buildings and facilities, 2) for the size, color, and materials used for advertising structures, 3) green spaces for housing lots, roads and conservation of woods, and 4) the installation of vending machines. 3.8 Good Practice Advice Notes in Historic England England has a comprehensive and robust spatial planning system. Policies to protect historic environments are included in the National Planning Policy Framework (NPPF) and there is a section specifically about conserving and enhancing historical environments. Local planning authorities are normally responsible for deciding on developments or changes to historic buildings and places in their areas, although there is also a role for Historic England. The purpose of English Heritage Good Practice Advice notes is to provide information on good practices to assist local authorities, planners and other consultants, owners, applicants and other interested parties in implementing historic environment policy in compliance with the NPPF and related guidelines given in the National Planning Practice Guide (PPG). There are three Good Practice Advice (GPA) Notes 1-3. These were issued on 25 March GPA 1 concerns historic environments in local plans, GPA 2 concerns decision making with regards to historic environments, and GPA 3 concerns the designation of heritage assets. GPAs provide supporting information on good practices, particularly looking at principles for putting national policy and guidelines into practice. The notes set forth the main themes of the planning system - plan formulation and decision making - and other significant issues concerning the making of good decisions affecting heritage assets. GPAs are the result of collaborative work between heritage and property groups in historical environment forums and were only issued following public consultation. 4 Concluding remarks The National Territory Planning Act of Korea establishes restrictions or free administrative projects that take into consideration land for use, development and conservation on a nationwide scale, and restrictions and permission requirements for development actions or transaction contracts. But it has limited ability to manage reckless development in rural areas and to conserve the agricultural heritage systems in Korea. This is because agricultural heritage has different characteristic than general heritage (Table 5). Land use management and control operations in Korea can be described as examples of successful commitments to overcome the limitations of the National Territory Planning Act at a local government level. The landscape covenant system in Japan could be a suitable as an alternative for land use management and control at agricultural heritage sites in Korea. In addition, the Comprehensive Planning System and Neighbourhood Planning System used at UK heritage sites could serve as an appropriate alternative for land use planning measures to manage and control agricultural heritage sites. Land use management systems take into account contingency allowances for landscape, and the capacity for developing the surrounding agricultural heritage system sites. Also, policies for land use controls of heritage sites rely on public-private partnership in order to make operations sustainable. This paper presents an analysis of land use control and management cases to in order to identify solutions to conflicts at agricultural heritage system sites. We consider the importance of heritage conservation and the need to protect landscapes from reckless development. Results from our study showed that some agricultural heritage sites are in danger as a result of land use conflicts. We find that spatial management systems are crucial for conservation of agricultural heritage systems because these systems can provide a means of coordinating the conflict between preservation and development. Our survey also indicated that comprehensive rural land use planning systems can manage and control development in the rural regions. These are tools that have the potential to integrate and coordinate the delivery of agricultural heritage conservation policy. In addition, this paper suggests that rural land use management systems should be changed to become more flexible and comprehensive planning systems that include local ordinance systems. Table 5 Comparison of the differences between general heritage and agricultural heritage systems in Korea General heritage Agricultural heritage Purpose preservation conservation Control means legal regulation - Spatial range narrow wide Control intensity strict looser Relevant regulatory law National Land Planning and Utilization Act -

7 186 Journal of Resources and Ecology Vol. 7 No. 3, 2016 Comprehensive spatial planning could manage and control development in agricultural heritage sites and other countryside areas. The Korean government (MAFRA) began adopting a new comprehensive planning system for rural regions in This could be linked with land use management and control of agricultural heritage systems in Korea. Spatial planning and land use management and control systems should be different from place to place because countries and regions have different legal systems, institutional structures and statutory regimes, and are subject to different development pressures. However, the various types of land use conflicts must be taken into consideration in order to establish appropriate land use management and control systems for successful conservation of agricultural heritage systems. Also, systems require flexibility if they are to manage and control unique and various local pressures and problems. The concept of systematic conservation planning provides methods for land use management and control in situations where land use is subject to competing interests. Furthermore, the cases used to illustrate land use management and control systems could contribute to a better understanding of land use management and contribute ideas to the establishment of appropriate land use control tools for agricultural heritage sites. However, it has to be stressed that, although a legal basis for ordinance and covenant systems is crucial, it is not a guarantee for successful land use management and control of agricultural heritage sites. For land use management and control of agricultural heritage system sites to be successful, a holistic approach is necessary. This should include comprehensive land use planning and covenant systems that encourage the participation of residents. References Anka Lisec and Samo Drobne The Influence of protected Natural and cultural heritage on land management /market the case of Slovenian natural protected areas. SPATIUM International Review, 20: Cho Eun-Il and Hu Chul-Goo A Case Study on the Application of Conservation First Development Later Principle for the Development Projects in Jeju Area. Journal of Environmental Science International, 23(1): Clarisse Cazals, Jeanne Dachary-bernard and Marie Lemarie Land uses and environmental conflicts in the Arcachon bay coastal area: an analysis in terms of heritage. European Planning Studies, 23(4): Dominic Stead & Evert Meijers Spatial planning and policy integration: concepts, facilitators and inhibitors. Planning theory & Practice, 10(3): FAO Procedures for application and designation of a Globally Important Agricultural Heritage Systems. Rome, FAO. Jeju special self-governing province Jeju Batdam(black stone fences) Agricultural System. Ministry of Agriculture, Food and Rural Affairs (MAFRA) Korea agricultural/fishery heritage system. MAFRA. (in Korean) Mauro Agnoletti Guidelines for the assessment and management of landscape in the GIAHS sites. Nick Gallent, Meri Juntti, Sue Kidd and David Shaw Introduction to rural planning. London, New York :Routledge. Nick Gallent and Steve Ribinson Neighbourhood planning communities, networks and governance. Bristol, UK: Policy Press. Park. Yoon-Ho, Yoon. Won-Keun, Choi Sik-In, et al A study on the establishment of designation criteria for agricultural heritage and management system. Ministry of Agriculture, Food and Rural Affairs & Rural Research Institute. (in Korean) Park. Yoon-Ho, Lee Jung-Hwan, Yoon Won-Keun, et al A study on the evaluation of pilot plan and improvement measures for comprehensive rural development plan in rural region. Ministry of Agriculture, Food and Rural Affairs & Rural Research Institute. (in Korean) Simon Ricketts & Duncan Field Localism and Planning. West Sussex, UK: Bloomsbury professional limited. Yoon Won-Keun and Choi Sik-In Establishment of the Agriculture and Fisheries Heritage System in Korea. Journal of Korean Society of Agricultural Extension, 19(2): (in Korean) Yoon Won-Keun, Choi Sik-In, Park Yoon-Ho, et al Understanding of the Agricultural Heritage Systems. Seoul, Korea: Cheongmok press. (in Korean) Wando County, Jellanam-do Provincial Government Traditional Gudeuljang Irrigated rice terraces in Cheongsando - GIAHS Initiative Action plan. Park Yoon-Ho 1, Yoon Won-Keun 2, Gordon Dabinett 3 1 韩国乡村社区法人团体乡村研究所, 安山市 15634, 韩国 ; 2 协成大学地域开发系, 华城市 18330, 韩国 ; 3 谢菲尔德大学城镇与区域规划系, 谢菲尔德 S102TN, 英国 摘要 : 近年来, 包括韩国 中国 日本在内的东亚地区的全球重要农业文化遗产数量不断增加, 且未来仍将会呈持续增加态势 因此, 对遗产地尤其是韩国境内遗产地的保护工作变得尤为重要 为避免农业文化遗产地粗放式开发 有效协调保护与开发的关系, 解决土地利用冲突问题非常关键 本研究旨在确定农业文化遗产地可持续发展型土地利用管控措施 结果表明, 公私合营 地方性法规及综合性计划对农业文化遗产地开展土地利用控制具有重要作用 关键词 : 土地利用管控, 全球重要农业文化遗产 (GIAHS), 遗产保护, 土地利用条例, 农业遗产系统, 可持续发展