HANOI’S GENERAL PLANNING THROUGHOUT DIFFERENT PERIODS OF TIME:
OPPORTUNITIES AND CHALLENGES
At the national symposium themed ‘New vision, new opportunities to transform Hanoi into a cultured-civilized-modern capital, a globally connected city’ which was held in Hanoi on October 7, 2024, architect Tran Ngoc Chinh delivered a speech titled 'Hanoi’s general planning through different periods of time: Opportunities and challenges'. Nhan Dan Newspaper introduces to readers the speech.
The Liberation Day of the Hanoi Capital (October 10, 1954) opened a new period of development for Hanoi and the country. In that context, the Party Central Committee and Hanoi City’s authorities affirmed the need to soon develop a general planning for the capital which provides guidance to the construction and development of the capital in the new period. Looking back at the history, the construction and development of Hanoi has always been placed as the top concern of the Party, State and people.
Important milestones of Hanoi’s general planning through different periods of time
The adjustment of the administrative boundaries of Hanoi City and some related provinces in 2008 (Resolution No. 15/2008/QH12) has turned Hanoi into the largest urban area in the country and one of the 17 capitals with the largest area in the world. It has created conditions for Hanoi to develop in a more comprehensive manner, fully meeting the functions and position of a modern capital, deserving as the political, cultural, scientific and technical, economic and international transaction centre of the whole country in the integration process; in line with the planning orientation for Hanoi, in line with the natural-historical-traditional cultural conditions, while ensuring the area and population size for Hanoi to develop sustainably in the immediate and future periods.
In that context, once again, the need to adjust the planning of the Hanoi capital was raised. On July 26, 2011, the Prime Minister approved the general planning for the construction of Hanoi capital to 2030, with a vision to 2050 (Decision No. 1259/QD-TTg) with the goal of turning Hanoi into a “green, cultured, civilized, and modern city”, thus enhancing the position of Hanoi in the Asia-Pacific region, and developing Hanoi into a dynamic and effective urban area. Hanoi is expected to become a driving force to promote the socio-economic development of other regions in the country, with high competitiveness domestically, regionally, and internationally, meeting the requirements of integration and investment attraction.
Following the time-honoured and heroic tradition of history and culture, with the position and role as the national political and administrative centre, a major centre of culture, science, education, economy and international transactions, a driving force for the development of the Red River Delta and the whole country, since Hanoi’s general plan until 2030 with a vision to 2050 was approved, Hanoi has implemented many zoning plans, detailed plans, investment projects as well as plans for specialised systems such as transportation, water supply, electricity supply, drainage, and housing. As a result, the urban space has been expanded and the urban landscape has been improved. Fundamental orientations have been made, including the formation of green corridors, green belts, green wedges and the Red River axis as the central landscape axis of the city. The urban framework has been developed to connect with districts and the capital region. In the central urban area, the urban appearance has changed positively. Many new urban areas such as Royal City, Time City, Vinhomes Riverside, and Ecopark have been built as liveable areas.
In terms of socio-economics, Hanoi has gained many outstanding achievements. In 2023 alone, Hanoi's GRDP increased by 6.27%, 1.24 times higher than the national growth rate (5.05%);
GRDP per capita reached 151.1 million VND, exceeding the plan (150 million VND). The scale and economic structure have shifted in a positive direction. The investment and business environment has been improved. Economic and social infrastructure has been raised to a new level, in which the building of new rural construction has seen remarkable results.
The development of culture, education and training, science and technology, care and protection of people's health, social security, job creation, and sustainable poverty reduction have achieved many positive outcomes; the quality of life of people in the capital has been constantly improved; while the appearance of the city has changed a lot, becoming more civilised and modern.
Some suburban districts have recorded a rapid urbanisation rate. Technical infrastructure and social infrastructure have received due investment; waste treatment, wastewater, and pond and lake pollution have improved significantly. Planning, construction and land management, urban areas, order, social order, and discipline have been strengthened. Urban lifestyle has changed positively. Rural construction has achieved remarkable results.
It can be said that during its 70-year journey of construction and development, Hanoi’s urban planning has made significant progress, enhancing its status as a central urban area and a megacity aimed at sustainable development.
With seven times of building and adjusting the general plan of the capital and four expansions of administrative boundaries in the years 1960, 1978, 1991, and 2008, Hanoi has made strong advancements, overcoming challenges, seizing opportunities, and maximising its advantages to achieve remarkable accomplishments. The goal is to build Hanoi as a “Green – Civilised – Smart – Modern” capital, as determined in the spirit of the Politburo’s Resolution 15-NQ/TW, dated May 5, 2022, which considers this a critically important political task in the strategy for building and protecting the nation, with the mindset of “The whole country for Hanoi, Hanoi for the whole country.” These decisions show that the Politburo and the National Assembly have high expectations for the role and position of the capital to align with the requirements and aspirations of the nation’s development, envisioning a future for a capital city of 100 million people.
Resolution 06-NQ/TW on planning, construction, management, and sustainable urban development in Vietnam to 2030, with a vision to 2045, was issued by the Politburo on January 24, 2022. This was the Party’s first specialised resolution on urban development, highlighting the crucial task of perfecting the institutional framework for urban planning and improving the quality of urban planning efforts.
This legal foundation led to the National Assembly’s approval of the amended Capital Law in June 2024. In this revised Capital Law, several new and groundbreaking regulations were introduced. The law focuses on concentrating resources and prioritising the implementation of the subdivision planning for the Red River and Duong River, in line with the Capital’s general plan and development strategy. Hanoi will develop a cultural industry hub along the riverbanks, utilising areas with spatial advantages suitable for cultural planning. The law also allows for the application of the Transit-Oriented Development (TOD) model to ensure modern, synchronised, and sustainable development.
However, after 13 years of implementing the 1259 planning scheme, it has been shown that the urban plan has not fully realised the role, position, potential, and strengths of Hanoi within the capital region. The population size has exceeded forecasts, the urbanisation rate remains low, and the quality of urban development is uneven, leading to difficulties in distribution, regulation, management, and control of the population. The progress in developing satellite cities according to the plan has been slow, and urban infrastructure development has not kept pace with the demands of urban growth, resulting in a lack of synchronisation. Establishing 70% of the city’s land area as a ‘green corridor’ has also set limits on urban development.
Therefore, it is essential to conduct a comprehensive review and adjustment of the overall master plan for the development of Hanoi to align with the current situation of the capital and its short-term and long-term socio-economic development orientation. On June 16, 2023, the Prime Minister issued Decision No. 700/QĐ-TTg to approve the task of adjusting the general master plan of Hanoi until 2045, with a vision to 2065.
Additionally, according to the provisions of the 2017 Planning Law, the Prime Minister approved the task of preparing the Hanoi Capital Plan for the 2021-2030 period, with a vision to 2050 (Decision No. 313/QĐ-TTg, dated March 7, 2022). Both planning projects are currently being refined for submission to the relevant authorities for approval. Conclusion No. 80-KL/TW, dated May 24, 2024, on the Hanoi Capital Plan for the 2021-2030 period, with a vision to 2050, and the project to adjust the general master plan of Hanoi until 2045, with a vision to 2065, emphasised the need to “continue to review and clearly define the functions, positions, and roles of Thang Long-Hanoi throughout its more than 1,000-year history, as well as its unique potential, advantages, and characteristics, to maximise their exploitation for the development of the capital.” Once again, the goal of building Hanoi as a “Cultural – Civilised – Modern” capital has been reiterated.
To achieve these objectives in both planning projects, consistent with the vision of the capital city of a nation of over 100 million people, Hanoi faces many opportunities and challenges. This requires a visionary approach and innovative thinking in urban planning to build a more dynamic Hanoi with improved governance.
The characteristic of the 36 old streets of Hanoi is the architecture of ancient houses in the shape of tubes, sloping tiled roofs, and shop fronts. These houses were mainly built in the 19th and 20th centuries. Hanoians have cleverly arranged the system of rooms, mezzanines, and courtyards to meet the needs of life, so although the houses are not large, each old house in Hanoi still has enough space for trading, living, and receiving guests.
The characteristic of the 36 old streets of Hanoi is the architecture of ancient houses in the shape of tubes, sloping tiled roofs, and shop fronts. These houses were mainly built in the 19th and 20th centuries. Hanoians have cleverly arranged the system of rooms, mezzanines, and courtyards to meet the needs of life, so although the houses are not large, each old house in Hanoi still has enough space for trading, living, and receiving guests.
Opportunities and challenges for the planning work of Hanoi
Regarding opportunities: As a capital with a thousand-year history and the centre of national politics and administration, a centre of culture, economy, education, science, and international transactions with quintessential cultural values, symbols of civilization and culture of the capital, Hanoi today is still a place that fully converges the conditions to inherit, maintain, and promote traditions and history — a particularly important resource for the development of the capital in the present and the future.
After more than 10 years of implementing the master plan, many zoning plans, detailed plans, and specialised plans have been approved, meeting the requirements of urban investment, construction, and management, creating momentum for the socio-economic development of the capital. Thanks to that, the urban appearance has changed a lot, becoming more spacious and modern. The position of the capital has been increasingly enhanced.
According to Plan No.1259, in terms of space, Hanoi will revolve around urban clusters. This model includes the urban core next to small and medium-sized satellite cities, connected by a dense system of belt roads, inter-provincial roads, national highways, and railways. This strategy is expected to bring opportunities to help restructure the city, changing the state from one pole to multi-pole by relocating some functions of the central area, such as industry, services, trade, education, etc., to satellite cities, while building further new centres and expanding the development limit.
In addition, the Red River civilisation with the Red River landscape axis will create a space characterised by green trees, water, historical culture, and the main landscape for the central urban area, with the main functions: public works, green parks, culture, tourism services, entertainment — symbols of the Capital combined with the preservation of historical relics and architectural works.
Hoan Kiem Lake as seen from above. (Photo: Le Viet)
Hoan Kiem Lake as seen from above. (Photo: Le Viet)
The overall adjustment project of the Hanoi Capital Construction Master Plan to 2045, with a vision to 2065 and the Hanoi Capital Planning for the period 2021-2030, with a vision to 2050, both set the goal of developing Hanoi Capital into a modern, smart urban area, leading and creating a spillover effect for the entire Red River Delta and the Northern Key Economic Zone; with a high standard of living and quality of life; comprehensive, unique and harmonious economic, cultural and social development. The spatial development model according to urban clusters, including satellite cities, has been maintained, but is focused on developing a city to the north of the Red River (Me Linh, Soc Son, Dong Anh) and a city to the west of Hanoi (Hoa Lac-Xuan Mai) under the capital as the driving force for the development of the northern and western regions, both will act as new growth poles helping to expand the population density in the inner city; at the same time, 5 development axes are identified, in which the Red River is the green axis, the central landscape...
In addition, the promulgation of the Law on the Capital (amended) has brought practical value, removing bottlenecks and obstacles to create new momentum for the capital, including decentralization and delegation of authority to Hanoi to decide on public investment, projects in the form of public-private partnership (PPP), creating a mechanism for Hanoi in site clearance. This is an opportunity for Hanoi to make breakthroughs in the construction and development of the capital.
Regarding challenges: Based on the current status of urban development in the capital, compared with the characteristics of urban development of "Cultural-Civilized-Modern", Hanoi is still facing many difficulties in terms of institutions, infrastructure, environment and spatial factors, limitations in planning, capacity and management.
Although there is a Law on the Capital, there is a lack of outstanding regulations on institutions, the approach is still in the traditional top-down style, and there is a lack of institutions for management according to planning. Hanoi's institutions and governance models are not complete and not suitable for the specific requirements of the capital. Many resources, such as cultural heritage, natural landscapes, river and lake water surfaces, etc., have not been effectively exploited, and their potential and advantages have not been promoted to become driving forces nor breakthroughs. Science and technology; healthcare, high-quality education and training; human resources, digital transformation and innovation have not met requirements and are not truly sustainable.
Satellite cities such as Hoa Lac, Soc Son, Phu Xuyen, Xuan Mai and Son Tay along with Hoa Lac High-Tech Park are also facing many difficulties in the implementation process due to slow progress in construction of key projects, and inadequate development of transport infrastructure. The model of urban cluster development has not met requirements, has not linked new rural development with urbanisation, and lacks policies and mechanisms to facilitate and attract businesses for this development.
Poor transport and logistics are the biggest problems of Hanoi. Although Hanoi has prioritised the development of public transport systems to minimise the negative impacts of the current traffic overload, financial and technical difficulties are causing some projects to be behind schedule, lacking connectivity and synchronisation with existing transport hubs. Meanwhile, the problem of exploiting underground space, especially underground public space, and transit-oriented development (TOD) are becoming the inevitable development trend of modern urban areas.
Traffic volume is dense on the gateway routes to and from the capital.
Traffic volume is dense on the gateway routes to and from the capital.
Population management and control in the central urban area and population dispersion in the inner-city area still face many difficulties, leading to urban infrastructure overload, frequent traffic jams, dust, and air pollution. One of the notable new points of this adjustment to the Capital's Master Plan is the special emphasis on the requirement to orient the population size.
This is both an opportunity and a huge challenge for Hanoi. According to the average population statistics updated by the General Statistics Office, the population of Hanoi in 2024 is about 8.5 million people, with a population density of 2,398 people/km2, 8.2 times higher than the median population density of the whole country. Compared with the master plan according to Decision No. 1259/QD-TTg, the urbanisation rate has not reached the target but the population size has exceeded the forecast threshold.
Like many other cities in Asia in the process of explosive development, Hanoi is witnessing the rapid growth of the real estate market, especially in the low-income housing segment — where the participation and increasingly important role of private enterprises has brought Hanoi into the list of global cities. However, these new urban areas also put a lot of pressure on land and infrastructure.
More seriously, the risks of conflicts from land reclamation, conversion of land use purposes and land compensation policies are increasingly appearing in all urban areas. In addition, the indicators on social infrastructure and infrastructure in the capital are still low compared to current regulations. The construction, renovation and conversion of inner-city land use purposes to develop high-rise buildings is a necessary process, but at the same time, it is also adding more load to the existing inner-city infrastructure system.
Although the management of space and landscape architecture has been carried out in accordance with regulations and management rules according to planning and design projects, the implementation process still has many loopholes and lacks sanctions, resulting in the impact of space, architecture and urban landscape; illegal and unlicensed construction works; super-thin, super-distorted houses; old and outdated infrastructure and urban utilities, affecting the living and aesthetic needs of people living in modern and civilized urban areas.
The relocation of some headquarters of ministries, branches, industrial establishments, some universities; the commercial service system (commercial centres, supermarkets, markets) is an issue that has been lingering for a long time due to the lack of a suitable roadmap and specific policy and financial mechanisms for Hanoi.
There have been many innovations in urban planning, planning management and development, but they have not yet met the requirements nor created positive changes in the appearance of the capital according to the requirements of a green, clean, beautiful, spacious, civilized and modern urban area. The progress of implementing some projects is slow, especially the planning of satellite cities. Some plans have not accurately updated the current status of land use and approved projects. Some forecast plans are not close to the practical requirements and development of the locality, leading to adjustments during the investment project preparation process.
Necessary innovations
"The approval of the Red River sub-zone planning will help to accelerate the general adjustment to the Hanoi construction plan so as to soon make the city develop in a synchronous, civilised, modern and sustainable manner.”
As Hanoi is completing its Capital Plan, which was drawn up under the Law on Planning, and the Capital General Plan Adjustment under the Law on Urban Planning and Law on Construction, it is necessary to ensure heredity, consistency and synchronicity without overlapping and contradicting with the overall national plan, regional plan and national sectoral plan, while also having a breakthrough mindset and strategic vision to create new values in both plans. At the same time, the plans must closely follow and concretise the resolutions of the 13th National Party Congress and the 17th Municipal Party Congress, as well as the guidelines, resolutions and conclusions of the Party Central Committee, Secretariat, Politburo and National Assembly.
Currently, the vision in the Capital Plan is for 2050, while the vision in the Capital General Plan Adjustment is for 2026. This can likely lead to inconsistencies in the goals and connections between the two plans in the capital city’s development process. The Capital Plan is the basis to provide data for the Capital General Plan Adjustment, leading to differences between the two plans, while the content on population and labour forecasts is an important factor in the planning task because it will determine the use of land for residence, infrastructure, green parks and water surface.
Therefore, it is necessary to analyse the scenarios thoroughly to adjust population distribution; continue reducing the population in the historic centre and promoting the formation of satellite cities; enhance control over the development of urban and rural spaces, create a typical architectural planning forms for Hanoi in urban and rural areas as well as strictly control the height of buildings and construction density in each area, especially in the inner city. The selection of criteria for land use, space use, technical infrastructure and development requirements in specific functional areas must be clarified in this adjustment.
Hanoi’s geographical location is favourable for developing the economic space and urban landscape, with the Red River as the green axis and central landscape, and harmonious urban development on the two sides of the river.
For the five satellite cities, it is necessary to review their models and development roadmaps to focus resources in the order or priority. It is necessary to: inherit the urban development model as outlined in the approved Capital Construction Master Plan; approach the city-within-city model with specific conditions on the model of administration and institutions to become a driving force for the capital’s development; and conduct research on the satellite town of Phu Xuyen being aligned with the southern airport to become a southern city.
By determining Hanoi as the core of both the Red River Delta and the Capital Region; the national political-administrative centre and the cultural, historical, scientific and technological centre, both plans need to further clarify these advantages in regional linkage and national transport, linkage between the sea and marine economy with international border gates and international airports in the region. It is necessary to highlight the Hanoi - Hai Phong - Quang Ninh marine economy development triangle and the outstanding culture of the capital city and the Red River Delta.
On the other hand, Hanoi’s geographical location is favourable for developing the economic space and urban landscape, with the Red River as the green axis and central landscape, and harmonious urban development on the two sides of the river. As such, the Red River can truly become a natural scenery axis and a historical flow that define the culture of Thang Long and help create a civilised city. The combination of the Red River axis and the Ba Vi - West Lake axis will create a unique and distinctive Hanoi. Cities within the capital will be built in the north (the region of Dong Anh, Me Linh and Soc Son) and the west (the region of Hoa Lac and Xuan Mai).
The approval of the Red River Urban Subdivision Planning will accelerate the overall adjustment process for the capital’s construction, aiming to quickly develop the capital in a comprehensive, civilised, modern, and sustainable manner. Especially in the context where many central districts no longer have land reserves for development to serve social welfare. Therefore, breakthrough and effective solutions are needed to quickly implement projects for space development, particularly in utilising floodplains and the midstream area of the Red River for tourism services and recreational parks for the people so that the Red River becomes a "Red River miracle" for Hanoi. This system will work together with other rivers like the Duong, Nhue, Day, Tich, and Ca Lo rivers, forming a vital water system, green space, and landscape that plays an essential role in developing a green and sustainable capital.
The Nhon-Hanoi urban railway line.
The Nhon-Hanoi urban railway line.
Promoting the development of the urban railway (metro) and regional railway system (connecting with cities within the region), along with public transportation, will create a TOD (Transit-Oriented Development) public transportation system that connects commerce and services, saving land while creating urban landmarks and providing the best service for the people. Focus should also be placed on planning the development of underground urban spaces, clearly identifying restricted and prohibited areas for underground construction.
Planning solutions for green and smart technical infrastructure systems should align with the development direction outlined in the national sector plans for each phase to ensure regional infrastructure connectivity, the development of smart public transportation, as well as other technical infrastructure development.
It is necessary to establish an urban governance model appropriate to the characteristics and conditions of Hanoi, enhance administrative reform, digitise administration, gradually shift public services and decentralise power to subordinate cities to promote urban management and attract investment.
Regarding rural development following the new rural programme and the general planning direction, it is crucial to harmonise the urban and rural connection and preserve and promote the value of heritage and traditional culture. This includes forming cultural industry clusters linked to the development of traditional craft villages, fostering economic growth tourism, and developing ecological, high-tech agriculture, and urban agriculture tied to urban service chains.
Finally, the policy mechanism and legal regulatory framework need to be completed. This is the tool to manage urban construction and development towards a civilised and modern direction — managing urban construction and development according to the plan. In practice, it has been shown that even with good planning, if urban construction and management are not handled well, the plan cannot be realised or come to life. An appropriate urban governance model for Hanoi is needed, with enhanced administrative reform, digitisation, gradual shifts in public services, and decentralisation to subordinate cities to improve urban management and attract investment.
Long Bien Bridge. (Photo: Thanh Dat)
Long Bien Bridge. (Photo: Thanh Dat)
Conclusion
Building a cultured, civilised, modern, and sustainable capital is now the responsibility and honour of the Party Committee, authorities, and people of Hanoi.
The research and proposal of breakthrough solutions in Capital Planning and the General Adjustment of Capital Planning aim to concretise Hanoi’s development goals, transforming it into a smart and creative city and a green and climate-resilient urban model. At that point, the planning project will become an essential legal tool for managing urban planning, construction investment, policy formulation, and driving development in Hanoi, meeting the development requirements of the city, the region, and the nation.
Additionally, a proactive and reasonable urban development programme is needed, focusing on step-by-step spatial development and selecting appropriate approaches based on the requirements of each phase. Policies must be in place to mobilise resources and direct investment, along with implementation management mechanisms. Planning solutions must be adaptive and flexible to promote timely and accurate implementation and achieve the set goals. Emphasis should be placed on cross-sector coordination in executing the plan, combining integrated solutions to address ongoing socio-economic issues and other emerging challenges. This approach aligns with Hanoi's development direction of "Culture-Civilization-Modernity", ensuring that the city continues to grow to meet the standards of a modern capital in the future and aligns with the regional planning strategy for Hanoi.
Contents: Architect Tran Ngoc Chinh (President of the Vietnam Urban Planning and Development Association)
Design: Diec Duong
Photos: Thanh Dat, Le Viet
Built with Shorthand