تبیین عملکردی مصوبات کمیسیون ماده 5 بر توسعه متوازن شهر زنجان

ABSTRACT
The rapid expansion of urbanization and the accelerated changes in urban structures have highlighted the need for reform in urban management and planning policies. In this context, the role of the Article 5 Commission, as one of the key institutions in approving land-use changes and building density, has a significant impact on sustainable urban development. This research aims to examine the performance of the Article 5 Commission's decisions in Zanjan city over a 9-year period (2011-2020). The research method is qualitative and based on content analysis, with the statistical population consisting of 3,000 resolutions issued by the Commission in Zanjan. The findings show that over 62% of the resolutions were related to increasing land occupancy, 23% to changes in land use, and 7% to increasing building density. More than 16% of the approved resolutions lacked clear and expert justifications, and many of the changes made led to a reduction in service per capita, the degradation of spatial structures, and unbalanced development. Additionally, the majority of requests came from private individuals and private ownerships, with the role of the municipality and legal organizations being significantly smaller. The results indicate that the performance of the Article 5 Commission, particularly in terms of its lack of transparency and failure to consider the long-term consequences of changes, has played a significant role in unsustainable development and the failure to implement detailed plans. It is recommended that the Commission's policies and processes be revised, particularly in evaluating the necessity of changes, with greater attention given to service per capita and spatial justice.
Extended Abstract
Introduction
The rapid pace of urbanization and spatial transformation in Iranian cities has highlighted the importance of flexible and responsive urban management systems. Within this context, Article 5 Commissions, established as key regulatory bodies to modify land use plans and urban development standards, play a critical role in shaping urban form and function. However, in many cities, including Zanjan, their performance has raised concerns regarding transparency, alignment with development goals, and the sustainability of the changes approved. This study aims to evaluate the functional implications of Article 5 Commission decisions on the balanced development of Zanjan city during a nine-year period (2011–2020), focusing on the distribution, reasoning, and consequences of approved land use and density changes.
 
Methodology
This research adopts a qualitative methodology based on content analysis. The dataset comprises 3,000 decisions made by the Article 5 Commission of Zanjan. All decisions were analyzed through full enumeration (no sampling), using qualitative coding in MAXQDA software. Eight main variables formed the units of analysis: road network modifications, land use inconsistencies, deletions, parcel subdivisions, parcel consolidations, land use changes, building coverage ratios, and building density increases. The study area is limited to the administrative boundaries of Zanjan city, excluding Golshahr district due to data limitations.
 
Results and discussion
The analysis reveals that 62.9% of the commission’s decisions were related to building coverage increases, 23.7% to density increases, and 23.5% to land use changes. More than 16% of approved decisions lacked clear reasoning or technical justification. The vast majority (approximately 89%) of change requests originated from private individuals, reflecting the strong influence of personal land ownership on urban spatial transformations. Institutional actors, including the municipality, accounted for less than 10% of the requests.
Among land use changes, a large portion involved the conversion of sensitive land uses, such as green spaces, educational zones, and healthcare zones, into residential or commercial functions. These changes often occurred without adequate consideration for replacement land, compensatory services, or infrastructure upgrades. Notably, 16.1% of commission approvals lacked any explanation beyond a vague statement such as "approved after discussion." Furthermore, 77.6% of approvals were based primarily on the pretext of "existing built conditions in and around the site," showing a reactive rather than strategic planning approach.
In terms of building density changes, the most frequent approvals involved increases from 120% to 180% and from 180% to 240%, primarily concentrated in central and older neighborhoods. These upward shifts in density, often unsupported by infrastructure improvements or service provision, have led to visual disharmony, higher population concentrations, and pressure on urban amenities. The process favored short-term profitability over long-term spatial equity and sustainability.
The study also revealed that only 43% of requests for density increases included justification for accommodating added population through service provisioning. Similarly, green space conversions were often approved due to misalignment between detailed plans and private ownership rights, highlighting systemic weaknesses in municipal land acquisition and plan enforcement.
 
Conclusion
The findings demonstrate that the decisions of the Article 5 Commission in Zanjan have not supported balanced urban development. Instead, the majority of approvals have contributed to spatial inequities, functional disruptions, and weakened the feasibility of urban plans. The commission’s lack of transparency, insufficient technical review, and emphasis on individual interests over collective benefits have rendered this regulatory body a mechanism that favors powerful stakeholders, rather than a guardian of the public interest.
The skewed distribution of land use benefits, the neglect of service and infrastructure impacts, and the erosion of public amenities such as green spaces point to structural and managerial deficiencies in urban governance. Furthermore, the preference for commercial and residential intensification without addressing access, infrastructure, and environmental consequences reflects a misalignment with the Sustainable Development Goals.
This situation calls for comprehensive reforms in the composition and functioning of Article 5 Commissions. First, decision-making should be evidence-based and supported by documented technical justification. Second, broader stakeholder participation, including representatives from environmental agencies, academic institutions, and civil society, must be institutionalized to safeguard public interests. Third, the alignment of commission decisions with urban master plans, environmental constraints, and social equity must be strictly enforced through legal and administrative oversight.
The research confirms that Article 5 Commission decisions have become a significant contributor to unbalanced development in Zanjan. In many cases, decisions have favored speculative land uses, increased land values for specific individuals, and caused the displacement of vulnerable residents. As such, this study recommends urgent policy and institutional revisions to ensure that Article 5 Commissions function as effective tools for managing spatial growth toward equitable and sustainable urban futures.
 
Funding
This article is derived from a research project titled “Comprehensive Evaluation of the Performance of Article 5 Commission Decisions on the Detailed Plan of Zanjan City in the Context of Balanced Urban Development: Explaining the Functional Mechanism of Building Density Increase Decisions on Urban Service Standards”, supported by the General Office Of Road And Urban Development of Zanjan Province.
 
 
 
Authors’ Contribution
Authors contributed equally to the conceptualization and writing of the article. All of the authors approved thecontent of the manuscript and agreed on all aspects of the work declaration of competing interest none.
 
Conflict of Interest
Authors declared no conflict of interest.
 
Acknowledgments
We are grateful to all the scientific consultants of this paper.