İmar hakkı transferinin düzenleyici planlama sistemine entegrasyonu
Integration of transfer of development rights into regulatory planning systems
Yazar: SEMİN NİRON
Danışman: PROF. DR. ŞEVKİYE ŞENCE TÜRK
İstanbul Teknik Üniversitesi / Fen Bilimleri Enstitüsü / Şehir ve Bölge Planlama Ana Bilim Dalı / Şehir Planlama Bilim Dalı
Derece: Yüksek Lisans, 2021
Konu: Şehircilik ve Bölge Planlama = Urban and Regional Planning
Dizin: Esnek planlama = Flexible planing

Özet:
Planlama, belirli hedefler doğrultusunda sistemli olarak stratejiler geliştirmek olarak tanımlanırken; kentsel planlama, en yalın anlamıyla, sağlıklı ve daha yaşanabilir bir çevrenin oluşturulması hedeflerine yönelik çeşitli eylemlerin gerçekleştirilmesi olarak ifade edilebilir. Söz konusu kentsel planlama hedeflerine ulaşmak, yerel ve merkezi yönetimlerin görevlerinden biridir. Yönetimler, mevcut kaynakların en etkin kullanımını sağlayarak toplumun ihtiyaçlarını karşılamaya çalışır. Bahsedilen şekilde mevcut kaynakların en etkin şekilde kullanılması ise sadece iyi bir kentsel planlama ile mümkün olabilir. Bu doğrultuda kentsel hedefleri, belirlenen stratejiler aracılığıyla gerçekleştirmek amacıyla çeşitli plan uygulama araçları geliştirilmiştir. Ancak kentler dinamik yapıları gereği; sosyal, kültürel, siyasi ve özellikle ekonomik faktörlerden etkilenmektedir. Böylece mevcut uygulama araçları kentlere ilişkin sorunların çözülmesinde yetersiz kalmaktadır. Bu sebeple sorunların çözümlenebilmesi için yeni uygulama araçlarına yönelik arayışlar söz konudur.
Ülkemizde son dönemlerde yaşanan ekonomik problemler sebebiyle, yerel yönetimler toplumun ihtiyacı olan sosyal ve teknik altyapı alanlarını mevcut uygulama araçları ile elde edememektedir. Bu sebeple yönetim, yeni uygulama aracı arayışında bulunmuş ve uluslararası düzeyde kullanılan imar hakkı transferi uygulaması bir çözüm aracı olarak görülmüştür. İHT literatürde, "finansal olmayan tazminat araçları" olarak tanımlanan, yönetimlerin bir geliştirici ya da arsa sahibinin yaşadığı mağduriyeti dolaylı olarak gidermeye çalışan bir araçtır. Uluslararası örneklerde 1980'li yıllardan beri uygulanan İHT temel olarak; çevre, tarım alanları ve tarihi alanların korunmasına yönelik kullanılmaktadır. Ülkemizde ise İHT temel olarak, yerel yönetimlerin sosyal ve teknik altyapı alanlarını elde etmesine aracılık eden ve aslında kamulaştırmaya alternatif olarak kullanılan bir araçtır. İHT ayrıca yanlış planlama uygulamaları sebebiyle yapılaşmaya açılmaması gereken yerlerin yapılaşmaya açılmış olması durumuna da çözüm olarak kullanılmaya çalışılmaktadır.
Bu tez çalışmasında tüm bu anlatılanlar bağlamında İHT'nin uluslararası düzeyde ve ülkemizdeki işleyişi; teori, planlama sistemleri, yasal boyut ve uygulama olmak üzere dört temel konu üzerinden incelenmiştir. Amaç, uluslararası düzeyde gerçekleşen imar hakkı transferi programlarını/ uygulamalarını, planlama sistemleri bağlamında irdeleyerek dersler çıkarmak ve bu doğrultuda ülkemizde "plan notları" aracılığıyla uygulanan İHT süreçlerini değerlendirmektir. Ülkemizde yasal anlamda net bir altlığı bulunmadan uygulanan İHT'nin plan notları aracılığı ile nasıl uygulandığı ve teoride planlama sistemimiz olan düzenleyici planlama sistemine nasıl entegre edildiği ya da edilmeye çalışıldığı ortaya koyulmaya çalışılmıştır.

Abstract:
Planning is defined as systematically developing strategies in line with specific goals; urban planning can be expressed as the realization of various actions towards the goals of creating a healthier and more livable environment. Achieving these urban planning goals is one of the tasks of local and central governments. The administrations try to meet the needs of the society by providing the most effective use of available resources. As mentioned, the most effective use of existing resources can only be possible with a good urban planning. In this context, various plan implementation tools have been developed in order to achieve urban targets through determined strategies. However, cities due to their dynamic structures; social, cultural, political and especially economic factors. Thus, existing implementation tools are insufficient in solving the problems related to cities. For this reason, there is a search for new application tools in order to solve the problems. Due to the recent economic problems in our country, local governments have not been able to obtain the reinforcement areas needed by the society with existing application tools. For this reason, the management sought a new application tool and the application of zoning right transfer, used internationally, was seen as a solution tool.
Transfer of development rights (TDR) is a tool that is defined as "non-financial compensation tools" in the literature and tries to eliminate the grievances of a developer or land owner indirectly. TDR, which has been applied in international examples since the 1980s, basically; It is used for the protection of the environment, agricultural areas and historical areas. In our country, TDR is a tool that mediates local governments to obtain reinforcement areas and is actually used as an alternative to expropriation.
In this thesis, in the context of all these explanations, the operation of TDR at the international level and in our country; Theory, planning systems, legal dimension and application. The aim is to draw lessons by examining the development right transfer programs / practices at the international level in the context of planning systems and to evaluate the TDR processes implemented in our country through "plan notes". It has been tried to reveal how TDR, which is applied in our country without a clear legal basis, is implemented through plan notes and how it is integrated or attempted to be integrated into the regulatory planning system, which is our planning system in theory.
This thesis study consists of six chapters. First part; It is the section where research questions, hypotheses and methodology of the study are formed in line with the purpose of the thesis.
In the second part; zoning right transfer application; It was created in order to identify its historical background, components, and its advantageous and disadvantaged parties through international examinations. Basic points such as what the concept of zoning right transfer means, what its main components are, how it is applied, which actors are involved in the process are mentioned. In this section, the advantageous and disadvantageous features of the transfer processes are presented in the perspective of the general framework drawn for the transfer of zoning rights.
In the third part; There are three main planning systems; It was created in order to determine the movement of TDR in planning systems by comparing TDR applications in regulatory, discretionary and hybrid planning systems. First of all, planning systems were introduced, and the features of three main planning systems (regulatory, admission-based and hybrid planning systems) were emphasized. Later, three different countries (America, Australia and the Netherlands) that use each planning system and at the same time use TDR applications in their countries were selected. The main approaches in the planning systems of these selected countries were presented and the situation in the applied TDR processes in their countries was tried to be compared. While making the comparison, seven sub-headings were used as planning system, planning approach, TDR structure, objectives of TDR, legal status of TDR, advantages and problems provided by TDR.
In the fourth part; The third chapter using sub-headings that have been used for the comparison of countries, the overall situation on the ground has been given to identify and iht'n planning system in Turkey. The lack of a clear legal base TDR being implemented in Turkey since our country legal status, the 1982 Constitution, laws, regulations, parliamentary resolutions and decisions of the Council of State were discussed in detail. Due to the fact that TDR is tried to be implemented through the plan notes in our country, the legal nature of the plan notes is also examined in detail under this section. Generally; Putting forth the basic features of Turkey planning system has tried to determine the movement of the TDR application in this system.
In the fifth part; TDR practices in Turkey, sample areas (Arnavutköy, Bahçelievler sub-sample areas) emerged out of placing, aims to compare the shape defined in practice and legislation. TDR processes in Arnavutköy and Bahçelievler districts selected for the purpose of the thesis are discussed. First of all, plans in which TDR in these districts are used as a tool have been determined. After the general plan decisions regarding the determined plans were made, the plan notes in which the implementation method of TDR was defined was examined. Thus, by drawing the general framework regarding the zoning right transfer applied in the districts, two sample areas that took place in each district were examined and more detailed information about the transfer practices was tried to be revealed. The sample areas examined; The purpose of the TDR is examined under three sub-headings, which are determined as the plan note that mediates the realization of TDR and the calculation of the transferred development right.
Sixth section; is the last section of the study, where the subject is evaluated in general terms, the accuracy of the hypotheses are tested and the recommendations are developed.
As a result of the investigations made in this context, it is stated that TDR is applied in different ways at international level and in our country; It was concluded that there are some problems in TDR applications in our country. 
TDR is used intensively at the international level for the purpose of "protection", in accordance with the legal order and planning approaches. However, in our country, TDR is used because local governments cannot use the expropriation due to the expropriation price and the places that should not be opened to construction are opened to construction. In addition, in our country, TDR is a tool applied without the necessary legal regulations. For this reason, there is an uncertainty about many issues in the transfer processes in our country. These issues; determination of receiving and sending regions, calculation of transfer rights, ensuring communication between actors, process management. International transfers are made through valuation. However, there is a dual structure in our country regarding the situation in question. In the Law No. 2863, it is stated that the transfer will be made over the value to be determined by the real estate companies licensed by the Capital Markets Board. Looking at the TDR applications, it is seen that the transfer is made over the parcel area, not on the value.
As a result, TDR is a flexible application tool. TDR acts within the hybrid planning system in the most effective way. It is used in accordance with international planning approaches and systems. While the planning system in our country is based on discretion in practice; in theory it is a regulatory planning system. However, when evaluating the appropriateness of the TDR implementation to the planning system, what should be taken into account is the regulatory planning system tradition. TDR, an application that provides flexibility, is not suitable for our planning system. TDR partially responds to the planning needs in our country. In our country, the transfer application is used for its aforementioned purposes, but cannot be used effectively due to the uncertainties in the process and the features of the regulatory planning system. In our country, making TDR through plan notes creates uncertainties regarding the transfer process. The implementation of the plan notes and TDR is not in accordance with the regulatory planning system in our country and the legal nature of the plan notes.