Taiwan's metropolitan areas are being swamped with the serious problems caused by urban congestion. To alleviate pollution, land and housing shortages, and the strain on inadequate public facilities in the cities, the government is once again pursuing the development of new towns. The idea of creating self-sufficient population centers—complete with residential, commercial, and industrial areas, and supported by recreational and educational facilities—had been tried before, but with lackluster results.
Taiwan first attempted new town planning and development in the late 1970s. The idea was derived from the United Kingdom, where new towns were built after World War II to relieve the population pressure on greater London. After three decades of rapid development, Taiwan's two main metropolitan areas—Taipei in the north and Kaohsiung in the south—found themselves in similar straits. Urban migrations and over-concentrated population growth were leading to the fast deterioration of the quality of life in both cities. Thus, in 1977, when the government began implementing a massive development program of twelve major construction projects around the island, five new satellite towns were also part of the plan. They were:
• Linkou, on a 46,330 acre site, was adjacent to the fast-growing western corridor of greater Taipei.
• Tapingting, a 5,560 acre site near Kaohsiung, was supposed to help absorb the influx of migrants that accompanied the emergence of various industrial zones in the area (such as the Linyuan Petrochemical Zone, the center of Taiwan's petrochemical industry).
• Chengching, on a 76,500 acre site around Chengching Lake near Kaohsiung, was a projected residential community that would put to best advantage the lake's green surroundings. It was also supposed to help absorb some of Kaohsiung's expanding population.
• Taichung Harbor New Town, with a designated area of 43,737 acres, was planned on the expectation that the increased economic activity resulting from the opening of the Taichung International Harbor would necessitate the city's expansion.
• Nankan New Town, assigned 8,000 acres, was in response to the emergence of various industries in the area west of Taipei city. It also had convenient access to the North-South Freeway and the Chiang Kai-shek International Airport in Taoyuan county.
For the most part, the new towns were to utilize farmlands, forests, and grasslands with low economic value. First, the government undertook replotting and consolidation of the land, a process whereby landowners yield 45 percent of their land to the government. In return, they enjoy a whopping increase in the value of their remaining property. This comes as a result of the official change in the land's designated use from agricultural to residential (including service establishments), and from the construction of public facilities. The government utilizes land thus acquired to construct basic public facilities, such as roads, water, sewer, and power lines, and telecommunications systems, as well as greenbelts and parks. Public housing units, to be sold to low and middle-income families, were also to be built on the land, and would be a source of government funds.
With the exception of the Chengching Lake project, the new towns were expected to become self-sufficient communities. Supported by their own industries and businesses, they would attract job seekers away from the crowded cities. The work of developing the new towns and other urban planning projects fell on the shoulders of the Taiwan Housing and Urban Development Bureau, which was established in 1979 under the Taiwan Provincial Government. Over a decade has passed since then, but the achievements in new town development have generally been disappointing.
In Nankan and Chengching Lake, rapid population growth and the proliferation of buildings took place even while the new town plans were still on the drafting board. Thus, the plans were forsaken because they were already superseded and infeasible. Tapingting saw little progress because the government shifted its priorities to developing residential communities nearer Kaohsiung. The Taichung Harbor New Town project was suspended after the first-phase of the plan, which included the development of a residential area covering 368 acres and an industrial zone of 346 acres. The international harbor did not bring the expected prosperity to the surrounding area. Linkou remains as the only new town where substantial progress is evident.
Linkou New Town has impressive wide roads, high-quality residential buildings, open green spaces, and clean air. Even the factories in the industrial zones contribute to the serene atmosphere: they occupy two-story buildings set against landscaped surroundings. The new town's proximity to Taipei, and strict and clear regulations on building and landscaping have contributed to Linkou's progress. Says Chen Hung-chen, an official at the Taiwan Housing and Urban Development Bureau, "In developing Linkou New Town, we put a great deal of emphasis on the landscape of the entire area. We developed many parks, planted lots of trees, and reserved large tracts of land for greenbelts. And every building, even a factory, has to have a front and rear yard with a minimum number of trees."
So far, the Taiwan Housing and Urban Development Bureau has completed the first and second phases of the development plan for Linkou, altogether encompassing 870 acres. By replotting and purchasing land, the bureau acquired 50 acres on which it has built over 900 public housing units. The bureau has contracted private builders to build another 1,458 units soon, and has made plans for 3,000 more units in the coming years. Thousands of private homes have also been completed, and several thousands more are under way. Rigidly enforced regulations on building height and lot coverage ratios have encouraged the private construction of high-quality buildings. Three out of the planned four industrial zones have been completed and are now fully occupied by electronics and computer factories. The fourth is halfway done.
The peaceful and green environment led to the building of many noted establishments in the area, among them the central unit of Chang Gung Memorial Hospital and the National Chungcheng Gymnasium, where the island's major sports events are held. Highways and a ramp off the North-South Freeway provide access to Taipei, about 20 kilometers away. In fact, Linkou is now considered a satellite city of greater Taipei, since many of its residents commute to their Taipei offices daily. And for relaxation on weekends and holidays, the north coast is a convenient 5-kilometer drive away.
The third and fourth phases of the development, covering a total of 1,243 acres, will soon begin and are expected to be completed within the next five years. At present, Linkou New Town has a population of 70,000. The plans are to accommodate a population of 200,000 soon after its completion, and ultimately 450,000.
Although it is a pleasant contrast to Taiwan's polluted, congested cities, for many specialists, Linkou remains unsatisfactory as a new town. Citing the examples of the new towns in the U.K., critics note that up to now, building in Linkou is confined to housing. The town still lacks facilities to meet the needs of residents, particularly in the area of educational, cultural, and recreational activities. Even basic utilities can be a problem; water shortages in the dry summer season are made even more serious because of the town's slightly elevated land area. Another major defect is insufficient road links to surrounding counties, which causes immense traffic jams on the ramp to the North-South Freeway during rush hours.
Chen Bor-yea, director for development planning and programming at the Taiwan Housing and Urban Development Bureau, reports that to expand Linkou's external road links, the bureau is building more highways that will pass through the new town. The highway connecting Linkou and the industrial town of Hsinchuang (west of Taipei county) is near completion. It is also working on improving the water supply. But Chen attributes the many shortcomings of new town development to the lack of a comprehensive new town act and a centralized authority to carry out development plans. "In the U.K.," says Chen, "a new town act was passed right from the start. In Taiwan, new town development is based on stipulations in various laws and regulations, and often they provide inadequate support in executing development plans."
The bureau is responsible for engineering work, but land replotting and consolidation is a function of the local governments, which often lack the budget or the will to do the job. Says Chen: "We were set back two precious years in developing Linkou New Town because land consolidation was suspended. The Taipei county government was having budget problems."
The development bureau is also having its own share of problems, chief among them is the lack of personnel. Its staff of 780 cannot cope with new town developments, the construction of public housing, and urban development programs. Nevertheless, given the existing conditions, Chen indicates that he is satisfied with Taiwan's new town projects. "The U.K. government's socialist policies allowed it to appropriate a huge budget for new towns," he says. "In Taiwan, our new town projects are financially self-reliant, with a large part of the budget coming from the land acquired by the government through replotting."
With the further deterioration of the quality of life in Taiwan's urban areas and the worsening housing situation, new town projects are expected to occupy an even more prominent role in the government's urban development policy. Taipei already has a population density of 9,949 persons per square kilometer, and Kaohsiung 8,947 persons. There is a surging demand for housing, but rampant real estate speculation has boosted housing prices in urban areas to the sky.
The housing situation has also become a serious social problem, because owning a home is now beyond the reach of most salary earners. Although the government has planned to build large amounts of public housing units, it cannot obtain sufficient land because of high land prices. The most feasible solution, according to government planners, is to develop new towns. The Kaohsiung county government and the Taichung city government have already requested the Taiwan Provincial Government to resume the development of Tapingting and Taichung Harbor. The Taiwan Housing and Urban Development Bureau is currently reviewing the feasibility of the projects. So far, the most ambitious plan of the government is the Tamsui Coastal New Town. Located 16 kilometers to the north of Taipei and near Tamsui town (population: 70,000), the new town will cover 4,200 acres of farmland and pastures.
The new town will have residential, business, industrial, recreational, educational and cultural districts, as well as a site for government offices. A boulevard, 50 meters wide, will run along the coast. On one side will be a recreational area along the beach, and on the other, a commercial area dotted with restaurants, hotels, and shopping centers. Nearby is the Tamsui Golf Course, built in 1969. The business district will be developed into an international commercial and financial center, in line with the plan to develop Tamsui into an international harbor. The industrial district will accommodate hi-tech industries.
In view of the high profits the landowners will reap from the development of the new town, the government will adopt the method of "area acquisition," instead of replotting and consolidation. Landowners will have to yield 60 percent of their land to the government, rather than 45 percent. Of the 60 percent, the government will utilize 25 percent, estimated at 740 acres, to build 29,000 public housing units; the remaining 35 percent will be used to build roads, parking lots, greenbelts, parks, playgrounds, schools, government offices, and bus terminals.
The new town will be connected to Taipei via the Taipei mass rapid transit system. Several additional highways may also be built to serve as external links. The central government has already promised to raise the huge budget required for the project. Previous projects were supported by the provincial government and local governments. Development is scheduled for completion by 2014, when the new town is expected to accommodate 200,000 people.
In addition to Tamsui New Town, the government has decided to develop nineteen other residential communities throughout Taiwan, each covering about 100 to 250 acres. The new towns are part of the Six-Year National Development Plan (1991-1996). A total of 105,000 public housing units will be built in these communities and in Tamsui Coastal New Town. The ultimate goal is to enable 80 percent of the population to live in their own homes.
Because of overpopulation and soaring real estate prices, having a home of one's own has become an unrealistic goal for many low to middle-income families. The lack of affordable housing has become a major social issue that is clamoring for solutions. The new town is the best answer so far, since public housing units are integral to its design. Moreover, its emphasis on harmonious landscaping and self-sufficiency should nurture a civic spirit that is often lost in Taiwan's overcrowded cities.
—Philip Liu (劉柏登) is the editor-in-chief of Business Taiwan, an economic weekly newspaper published in Taipei.