implementation of european landscape convention in...
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Implementation of European Landscape Convention in Portugal insights from regional and local planning practice
Filipa Pinto Monteiro [email protected]
Isabel Loupa Ramos [email protected]
Instituto Superior Técnico, Universidade de Lisboa
Research Group on Urban Planning and Environment
PORTUGUESE LANDSCAPE ATLAS IDENTIFICATION LANDSCAPE CHARACTER AREAS IN PORTUGAL Directorate General for Spatial Planning and Urban Development – UNIVERSITY OF EVORA
GUIDE FOR LANDSCAPE IN THE REVISON OF MUNICIPAL MASTER PLANS (PDM) Directorate General for Spatial Planning and Urban Development - UNIVERSITY OF ÉVORA
MILESTONES of ELC in Portugal
2000 2004 2005 2011
RATIFICATION SIGNATURE
2007
Call for National Policy Framework on Landscape and Architecture -PNPOT
2014 ?
LANDSCAPE IN PORTUGUESE LEGISLATION
Constitution (Art. 66, 1976)
Quality of life
Rural Development Policy 2007-2013 Promotion of rural
landscape linked to sustainable agriculture
Forestry Law social uses/recreation 1996
Culture and Heritage Protection of special landscapes
Linked to environmental quality 2001
Environment Law Definition of landscape in1987
Landscape protection areas Landscape as component of the
environment 2014- landscape as relevant to
national identity
Spatial Planning Law Quality of life
PORTUGUESE PLANNING FRAMEWORK
Nat
ion
al
Reg
ion
al
Loca
l
National program (1 ) (PNPOT) - Territorial Scheme - not binding (2007)
Regional Plans (6) (PROT) – Strategic plans – setting guidelines for local plans – only binding for the administration
Municipal Master Plans (277) (PMD) – normative zoning plans – legally binding for everyone (public and private)
Identification of Landscape Character Areas at regional scale
No specific legal requirements
Call for National Policy Framework on Landscape and Architecture
OBJECTIVES
• To get a better understanding on how the ELC has been introduced spatial planning both at regional (PROT) and local scale (PDM).
METHODOLOGICAL APPROACH
• Content analysis of regional and local planning documents that came in force after 2000 in 3 time periods
PERIODS MILESTONES
2000 – 2005 PHASE 1 Signature of ELC in Florence by Portugal
2005-2011 PHASE 2 Ratification and transposition into Portuguese legislation
2011-2013 PHASE 3 Publication of Guidelines to Implement ELC in municipal plans
ALENTEJO
ALGARVE
AML
OVT
CENTRO*
NORTE*
* IN APPROVAL PHASE BY THE PORTUGUESE GOVERMENT
REGIONAL SPATIAL PLANS (PROT)
• 6 Regional Spatial Plans (PROT) • 4 in force
•Lisbon Metropolitan Area (AML) • West and Tagus Valley (OVT) • Alentejo • Algarve
• 2 waiting for publication • Center • North
PHASE 1 (2000-2005) – 2 plans
PHASE 2 (2005-2011) - 38 plans
PHASE 3 (2011-2013) – 19 plans
MUNiCIPAL MASTER PLANS (PDM)
• Portugal has 277 Municipal Master Plans (PDM) • 59 are 2nd Generation – after 98.
CRITERIA OF ANALYSIS
At Regional level - 4 Evaluation of how regional Spatial Plans (PROT) introduce landscape in their strategy: - Landscape units - Analysis of forces and pressures that are transforming landscapes - Setting standards or guidelines to local planning.
At Local level – 59 If Links to regional documents were adopted in Municipality Master Plans (PDM) and how landscape was integrated in the plan concerning: -Main goals -Mapping -Articulation with overall goals of plan, and management strategies for implementation.
METHODOLOGY Best Practice Procedures for ELC application in Plans
ELC ARTICLE CRITERIA OF ANALYSIS (ELC PRINCIPLE) check
0 Mention of ELC on the plan contents
1
Definitions: Landscape terms and definitions
- use of landscape dimension / terms on the plan
- use / refer ELC landscape definitions and terms
1 and 2
Holistic understanding of landscape
- considers landscape as interaction of cultural and natural factors
- includes perceptual factors
2
Apply to all landscapes
- the plan apply to the entire territory (area or place covered by the plan)
- the plan apply to all landscapes (everyday landscapes and outstanding)
- only to outstanding landscapes
- the plan has in consideration degraded landscapes
5b
Establish and Implement landscape polices on plans
- aiming landscape protection
- aiming landscape management
5c
Involves participation
- stakeholders
- general public
- local and regional authorities
5d and 6D
Integrate landscape into regional and local planning (municipality)
-promote multifunctional landscapes
- considers landscape quality objectives
6C
knowledge of the landscapes (identification and assessment)
- identification of landscape throughout its territory
- analyse theirs characteristics
- analyse the forces and pressures transforming landscapes
- monitoring change
METHODOLOGY CRITERIA OF ANALYSIS (ELC PRINCIPLE): adpated CHECKLIST
LANDSCAPE IN REGIONAL PLANS - ALENTEJO LCA Maps • Analysing theirs characteristics, forces and pressures that are transforming landscapes Normative Contents of several sectors Promoting multifunctional landscapes • Environmental system • Tourism development • Urban system
LANDSCAPES IN REGIONAL PLANS – OESTE E VALE DO TEJO
Identification of Outstanding Landscape Areas and Sites Analysing theirs characteristics Normative Contents of several sectors Promoting multifunctional landscapes Setting guidelines in Environmental System for implementation of landscape in Municipality Master Plans (PDM)
PDM LANDSCAPE LCA MAP
0. Mention of ELC on the plan contents 2 0
1. Definitions: Landscape terms and definitions 1.1 Use of landscape dimension / terms on the plan 4 (100%) 12 (20%)
1.2 Use / refer ELC landscape definitions and terms 2 0
2. Holistic understanding of landscape 2.1 Considers landscape as interaction of cultural and natural factors 2 4 2.2 Includes perceptual factors 0 1
3. Apply to all landscapes 3.1 The plan applies to the entire area covered by the plan 4 (100%) 1 3.2 The plan applies to all landscapes (everyday landscapes and outstanding 1 2 3.3 Only to outstanding landscapes 1 0 3.4 The plan considers degraded landscapes 1 3
4. Establish and Implement landscape polices on plans 4.1 aiming landscape protection 2 25 (42%)
4.2 aiming landscape management 4 (100%) 12
RESULTS NUMBER OF PLANS USING ELC PRINCIPLES BY CRITERIA OF ANALYSIS
PROT (4) PDM (59)
5. Involves participation Stakeholders 0 0 general public 0 0 local and regional authorities 0 0
6. Integrates landscape into regional and local planning promote multifunctional landscapes 2 5 considers landscape quality objectives 0 0
7. Knowledge of the landscapes (identification and assessment) identification of landscape throughout its territory 2 16 (27%)
analyses theirs characteristics 3 14 (24%)
analyses the forces and pressures transforming landscapes 1 0 monitoring change 1 0
RESULTS NUMBER OF PLANS USING ELC PRINCIPLES BY CRITERIA OF ANALYSIS
PROT (4) PDM (59)
REGULATIONS ACTION
PLAN
REPORT MAP REPORT MAP
Landscape description in:- Land use analysis - Biophysical analysis
Landscape objectives- Considers landscape value in plan objectives - includes landscape protection,
enhancement
- Landscape integration of buildings and infrastructures (roads)
3 Landscape Units identification and description
4 Use of term landscape only related with natural environment
5 Use of term landscape only related cultural heritage
6 landscape in ecological or green infrastructure
7 Landscape as economical resource (tourism)
8 Considers landscape value in the general objectives of the plan
9 Refers only to outstanding landscapes (does not takes into consideration ordinary
landscapes)
10 Identification of degraded landscapes
ANALYSIS AND
DIAGNOSIS
PROPOSAL
1
2
USE OF LANDSCAPE IN DIFERENT PHASES OF MUNICIPAL MASTER PLANS (PDM)
RESULTS APPLICATION OF THE CRITERIA ANALYSIS AT MUNICIPAL LEVEL (PDM)
The results of the analysis at municipal level reveals that:
• 20% of the Municipal Master Plans (PDM) observed use landscape dimension and landscape terms in their documents
• Normative contents and regulations are mainly for landscape protection • A quarter of plans observed identify landscape units and analyse their characteristics
• PDM’s does not include directly the Principles of ELC
HOWEVER, SEVERAL ASPECTS CONCERNING LANDSCAPE WERE FOUND IN MUNICIPALITY MASTER PLANS (PDM) MAPS AND REPORTS AT SEVERAL STAGES OF PLAN DEVELOPMENT (ANALYSIS AND DIAGNOSIS, PROPOSAL, REGULATION AND ACTION PLAN)
RESULTS
• Landscape seems be to appealing and ready to use in a more analytical part of the plan – but more difficult to integrate in its implementation.
• Landscape is mainly related with natural environment, ecological or green infrastructures.
MAIN CONCLUSIONS
• There seems to be no clear relation between the ELC milestones and the way landscape has been implemented in the majority of planning documents in Portugal.
• There is no visible difference to the first generation of Municipal Master Plans before the ELC was in place - landscape was already used in multiple forms depending on the expertise of the teams.
• Eventually, landscape is still not straightforward to communicate beyond its visual and aesthetic dimension amongst disciplines and decision-makers
Ultimately, still BUSINESS AS USUAL.
Filipa Pinto Monteiro [email protected]
Isabel Loupa Ramos [email protected]
Instituto Superior Técnico, Universidade de Lisboa
Research Group on Urban Planning and Environment