Kentsel Dönüşüm Uygulamasında Mülkiyet Yapısının Değerlendirilmesi

Abstract

Ülkemizde arsa ve arazi düzenlemelerinde kentlerimizde yeni ihtiyaçların ortaya çıkmasından dolayı; hukuksal ve teknik olarak bazı yeni imar uygulama araçlarına gereksinme vardır. Yoğun yapılaşma sorunları ve arsa-arazi düzenlemelerindeki uygulamaya ilişkin sorunlara; kentin yoğun yapılaşmış alanlardaki donatı standartlarının yükseltilmesi sağlıklı ve yaşanılabilir kentsel mekân üretimi açısından bakıldığında, kentsel yaşam alanlarının yeniden düzenlenmesi, gerçekte çözümü oldukça acil bir sorunun varlığına işaret etmektedir. Ülkemizde bu sorunun çözümüne yanıt olarak geliştirilecek gerçekçi bir düzenlemenin, sağlıklı ve yaşanılabilir kentsel mekân sorununun sosyal, kültürel, ekonomik ve fiziksel yönleriyle ele alınıp, belirli bir mekânsal bütüne; yerel, bölgesel ve hatta ulusal ölçekte düzenlemeler getirmesi gerekmektedir. Bu kapsamda oluşturulması kaçınılmaz olan bütüncül, sürdürülebilir bir arazi yönetimi paradigması ile uyumlu; imar düzenleme ve uygulama yaklaşımlarına ihtiyaç duyulmaktadır. Çarpık yapılaşmış, köhneleşmiş, altyapısı yetersiz ve niteliksiz, yasal ya da imara aykırı yerlerdeki mülkiyetin, yeni imar planı verilerine uygun olarak düzenlenmesi şeklinde tanımlanan, özellikli bir imar uygulaması olan Kentsel Dönüşüm ülkemiz için önemi her geçen gün artmakta olan bir konu haline gelmektedir. 5366 sayılı "Yıpranan Tarihi ve Kültürel Varlıkların Korunması ve Yaşatılması Hakkında Kanun" ve 5393 sayılı "Belediye Kanunu"nun 73. maddesindeki özel düzenlemeden farklı olarak çok daha kapsamlı ve ayrıntılı bir kentsel dönüşüm uygulamasını öngören 6306 sayılı Afet Riski Altındaki Alanların Dönüştürülmesi Hakkında Kanun 16.05.2012 tarih ile yürürlüğe girmiştir. Yasaya ilişkin eleştiriler özetle; yerel yetkisizleştirmeye karşın, Toplu Konut İdaresi Başkanlığının olağanüstü yetkilendirilmesi, barınma hakkı ve mülkiyet hakkı ihlalleri, hak arama özgürlüğünün engellenmesi, zorlama, kültürel ve tarihi varlıkların korunmasına ilişkin esaslara aykırı düzenlemeler getirilmesi, kamu malları rejiminin değiştirilmesi gibi noktalarda toplanmaktadır. Bu tez çalışması kapsamında, taşınmaz kültür varlıklarının korunması, düzenli, sağlıklı ve estetik kentleşmenin sağlanması, fiziki olumsuzluklar ve afet riskinin önlenmesinde, sosyal, fiziksel ve ekonomik bazlı çalışmalar olarak özetlenebilecek kentsel dönüşümün temel kavramları üzerinde durulmuştur. Türkiye'de kentsel dönüşümün mülkiyet bakışıyla değerlendirilmesi kapsamında incelemeler yapılmıştır ve çeşitli dönüşüm paradigmalarının mülkiyet üzerindeki etkisi irdelenmiştir. Bu tez çalışmasının temel amacı, sürdürülebilir bir arazi yönetimi ile uyumlu kentsel dönüşüm uygulamaları için dönüşümün hukuki ve teknik boyutunun irdelenmesi, mülkiyet, mülkiyet hakkı ve bunların kullanımlarının irdelenerek ülkemize uygun ve modern çözüm altlıkları için önerilerde bulunulmasıdır.

In Turkey, new legal and technical regulations and means of zoning enforcement are needed in land management. Considering the dense housing, difficulties in implementing the land regulations, raising the reinforcement standards in dense housing areas of the city, and creating a healthy and livable urban space, the reorganization of urban living spaces indicates the presence of quite an urgent problem that needs a solution. A realistic regulation is required as a solution to this issue in Turkey by considering all aspects of a healthy and livable urban space, that is to say by considering the social, economic, cultural and physical aspects and by addressing a specific spatial scope at urban, regional and even national scale. In this context, zoning regulation and implementation approaches are needed, consistent with a holistic, sustainable land management paradigm inevitably. Urban areas are complex and dynamic systems. They reflect the many processes that drive physical, social, environmental and economic transition and they themselves are prime generators of many such changes. No town or city is immune from either the external forces that dictate the need to adapt, or the internal pressures that are present within urban areas and which can precipitate growth or decline. Urban regeneration is an outcome of the interplay between these many sources of influence and, more importantly, it is also a response to the opportunities and challenges which are presented by urban degeneration in a particular place at a specific moment in time. This should not be taken to suggest that all urban problems are unique to a particular town or city, or that solutions advocated and attempted in the past have little relevance to the circumstances of the current day, but it is the case that each urban challenge is likely to require the construction and implementation of a specific response. The word regeneration is understood as reforming something spiritually, raising it morally, giving new strength or life to something , restoring lost qualities to something and finally growing again. A regenerated building, a regenerated part of a town. A regenerated city or a regenerated society can be assumed as having the above mentioned qualities. Regeneration is the process of being regeneretaed by the above mentioned aims. Urban regeneration can be defined as a conscious, systematized and planned action concerning a certain section or totality of a town. Land Regeneration is a featured zoning implementation in Turkey that can be defined as the rearrangement of properties in unplanned, slummed, legal or illegal areas that have inadequate and unqualified infrastructure and dense housing, sensitive to disasters and urban risks, according to new development plan data, and it becomes an issue of increased importance. In our country there is a need for new regulations and tools in the legal and technical field of land regulations. Problems related to application of land regulations in land regulations upgrading the equipment standarts in planned or unplanned densely constructed areas of cities, the need of producing structures in the renewal and complete destruction areas due to the risk of eartquake; revive the process of urban regeneration. The problems are determining the development plan application tools legally, providing financial resources, preparing a feasible development plan, applying these plans, distributing the new property and implementing the registrations of deeds. After a decade of confident policy with the support of the engineering lobbies in the retrofitting of individual buildings, it has been observed that reliance on market demands for retrofitting was a mistake. The policy seems to have been reversed very recently to the other extreme of top down imposition of regeneration of the vulnerable urban stock in batches. The Law of Transformation of Areas under the Disaster Risks (Law No. 6306) entered into force on May 16, 2012 due to the need of a legal regulation in order to reconstruction of buildings that pose a zoning risk in particular before the realization of any disaster risk. Primarily the Urban Transformation Law has 2 basic subjects: risky construction and risky area. The owner of the house has to apply to the land analysis companies which have to be entitled by the Ministry of Environmental and Urban Planning. In case the analysis of the building is resulted as risky construction or risky area or reserve area, the final report will be notified to the Municipality and the subject building will be collapsed in 60 days off the written notification. Within the expected context of the Law 7 million buildings will be re-constructed. The first step of the practice started in 35 cities of Turkey concerning around 75 different areas and 3169 buildings on 05.10.2012. The Ministry will start to collapse risky buildings beginning from the first-degree earthquake areas, including the cities Adana, Afyonkarahisar, Ağrı, Amasya, Ankara, Aydın, Balıkesir, Bilecik, Bitlis, Bolu, Bursa, Çanakkale, Denizli, Düzce, Edirne, Elazığ, Erzurum, Gaziantep, Hakkari, Hatay, İstanbul, İzmir, Kahramanmaraş, Kırıkkale, Kırşehir, Kocaeli, Malatya, Nevşehir, Samsun, Sinop, Tekirdağ, Tunceli and Van. The main reasons behind the many new technical and legal debates created along with this law are the lack of any clear definition of the property transformation processes, and paying no attention to the requirement that people should be backed by a law enacted to ensure their participation in the transformation process, which is closely related to them. Within the scope of this thesis, first the basic concepts related to Land Regeneration were discussed, the way of implementation of the regeneration and the development of the regulation in Turkey were addressed, relevant laws were examined and assessed, the regeneration process was schematized and examined step-by-step within the scope of the implementing regulations of the Law No. 6306 enacted for the risky areas, and the professions involved in the transformation process were studied. The Law specifically focuses on these risk areas that are defined as areas that may cause loss of life or assets. These areas are identified by the Ministry, Housing Development Administration or municipalities, by taking the opinions of the Presidency of Management of Disaster and Emergency, and decided by the Council of Ministers upon proposal of the Ministry. According to the Law, the buildings that are at risk are defined as "buildings within or outside risk areas that have completed their economic life, or which are scientifically and technically proven to be at risk of demolition or high damage". This thesis is prepared in order to suggest a new and acceptable model for land regulations and urban regeneration applications that is specific to our country by examining legal basis and technical application extent of urban regeneration in Turkey. In addition, the property issues that may arise in the technical implementation of the law were discussed and some of the Urban Transformation implementation in Turkey was examined to perform several comparisons, and the requirements for a successful land regeneration were uncovered and specified.