Chronology of Safeguard Plans in Revitalizing Towns: History of a Succession of
Failure in the Old Town of Constantine
I.Fantazi & B.Z.Hecham
Faculty of Architecture and Planning, University of Constantine 3, Constantine, Algeria
ABSTRACT:
Constantine is one of the ancient towns in the world, with 2500 years of existence and a large
heritage of an unprecedented historical wealth. Despite the different safeguard plans, from the
master plan to the unrealized permanent safeguard plan of the old town of Constantine, the still
inhabited medina of Constantine, making the vitality of the town centre, has not concretely seen
realization of these projects yet. Degradation of the old town continues and the inhabitants are
leaving it in fear of dying under their falling houses, while some owners somehow try to save
their properties through restoring the facades. Empty houses are squatted by homeless population. In December 2012, Constantine has been designated as Capital of the Arab Culture. In
2015, the old town has benefited from a safeguard plan and a budget to rehabilitate the old
town. However, during our investigation, none of the selected buildings has been completed.
What are the real causes of this failure? How should we proceed to solve the problem knowing
that the old town of Constantine has previously failed in several projects of rehabilitation? We
examine the following hypothesis: Despite the planning policy of the State concerning the safeguard of the built heritage, the current situation is due to the inertia of companies and actors in
Algeria in general and in Constantine in particular. Our intervention traces the chronology of
the various safeguard plans that have alternated by highlighting the causes of the successive
failures. It provides a synopsis of the revitalization planning of the Old Town of Constantine as
well as the roles of different actors involved in the program of restoration and rehabilitation in
the framework of the event "Constantine, Capital of the Arab Culture 2015", especially the allocated budget that has been spent without any realization on the site. The aim of this paper is to
demonstrate the mismanagement in the concrete application of planning policy. The aim is to
highlight the importance of skills in the field of management of a project. The investigation
adopts a historical approach and analyses the content of the different safeguard plans. The Result: Successive has failure of different operations.
Keywords: safeguard plans, old town of Constantine, schedule, revitalization, failure
1 INTRODUCTION:
The old towns are the living witness of cultural identity as well as the forged product of continuous transformations, social mutations, environmental, economic, and political ones. Their
architectural masterpieces have been passed, such as a heritage, through the previous generations with a certain loyalty. Therefore, our obligation is to bequeath them also for future generations. (Bittar, 2008)
Safeguard is a recognized vital concept, generally with respect to the survival of the historical
heritage, and particularly that of the historic built heritage.
For the latter’s interest, several studies and researches have been carried out, but unfortunately, few decisions have been made: the proposals being too theoretical, empirical, or unrealistic,
adding to that a certain "inertia and a displayed defeatism "on the part of the authorities and a
legal framework falling short of realities on the ground.
Moreover, despite the fact that Algeria has an immense historical heritage of a universal
scope, this historical heritage remains unfortunately very poorly operated, worse still, it is perishing at an uncontrollable speed.
The Town of Constantine has a very important heritage due to its exceptional historical and
archaeological value, reflecting the civilizations that have succeeded on its soil, as physical representation of the memory of places.
Toward the last decades of the 20th century, the Old Town has known a rapid degradation
with nothing to stop it or slow it down. According to its safeguard and enhancement plan of
safeguarded sectors, nearly 54% of the real estate is degraded, with 575 buildings partially ruined. In this period, the Old Town has received special attention on the part of the authorities,
and has been the object of a succession of contradictory and failing urban policies.
In December 2012, Constantine has had the unexpected opportunity of the rehabilitation program in the framework of the event "Constantine Capital of Arab Culture 2015". Unfortunately,
the event has ended and no selected project during our investigation has been completed. What
are the real causes of this failure? How should we proceed to resolve the problem, knowing that
the Old Town of Constantine has known previously a failure of several rehabilitation projects?
2 THEORETICAL CONTEXT:
Over the years, safeguard of old fabric has become one of the driving lines of the debate on
the town. Initially launched in the European countries, it has become the object of interest to
other countries, particularly those with strong urban traditions, and where the importance of the
historic bequeathed to the collective memory is relevant.
The safeguard of the old fabric is also the revitalization of the urban and social fabric, the revitalization of the local economy, as well as the improvement of the conditions of habitability
for the inhabitants (the International Charter for the
Safeguarding of Historic Towns and Urban Areas, 1987).
2.1. SAFEGUARDED SECTORS AND PLANS OF SAFEGUARDING
A safeguarded sector is an urban area subject to special rules due to its "historic character,
aesthetic or of a nature to justify the safeguard, restoration and development of all or part of a
set of buildings built or not" (French Documentation, 1991).
Two main objectives have chaired the Safeguarded Sectors (Malraux Law, 1962):
To avoid the disappearance or irreversible damage to the historic sites by establishing legal
measures of protection;
To requalify the historical heritage, architectural and urban areas and modernize the old
dwellings to ensure a quality of occupation in accordance with the contemporary way of life
through specific mechanisms of operational intervention.
The management of the programs or interventions on the Safeguarded Sectors is controlled
by a permanent plan of safeguard. The latter is an instrument for the management of the Safeguarded Sectors, it indicates in particular buildings whose demolition, modification or alteration
are prohibited and buildings or parts of buildings whose modification or demolition may be imposed at the time of public or private development operations.
2.2. THE SAFEGUARDED SECTORS ON THE ALGERIAN NATIONAL SCALE:
With the advent of law 98-04, dated June 15, 1998, relative to the protection of the heritage
and more specifically its Chapter III, the concept of safeguarded sector saved was born. Article
43 of this law defines them as being "urban or rural estate groups, such that of the Kasbah, medinas, Ksours, villages and traditional agglomerations, characterised by their predominance of
area of habitat, and which, by their homogeneity and their architectural and aesthetic unity, present historical, architectural, artistic or traditional interest of a nature to justify the protection,
restoration, rehabilitation and development."
The permanent plan for safeguard and development of the safeguarded sectors (PPSDSS):
The establishment of the PPSDSS has been enacted by the Executive Decree No. 03-324 of
October 5, 2003, amended and completed by the Executive Decree No. 11-01 of January 5,
2011.
3.2. THE INTERVENTION ON INHABITED SITE:
Intervention on an inhabited heritage is a delicate operation; it commits financial means, necessitates time and patience (a long-term job), for which the importance of a strong political will
needs to be maintained, and requires the cooperation between the various actors involved and
the involvement of the population, in particular (inhabitants, traders, users, etc.).
According to “Cusido”, the intervention on a historic inhabited site involves certain risks and
requires tact, because the operation must be well followed and marked, it must obey:
 An integrative methodology (the old site is not isolated, but is part of a larger territory in
which it must be articulated and integrated while preserving its characteristics).
 A comprehensive methodology (which is not restricted to the technical aspect and town planning, but is rather open to other disciplines, social, economic, environmental, etc.)
 A Methodology of Consultation
 A flexible methodology, which allows the possibility of redirecting the Rehabilitation Strategy
in adapting to unpredictable social and economic changes, etc.
3. METHODOLOGY:
This research is the first phase of a doctoral research. It is exploratory and qualitative in nature. The present research analyses the contents of different plans to safeguard the old town of
Constantine in an attempt to show mismanagement in the concrete application of rehabilitation
policy of planning.
To be able to correctly interpret and understand the causes of repeated failures in rehabilitating the old town, we set a comparative approach of the rehabilitation of three old Arab towns in
a different context.
3.1. THE CRITERIA FOR SELECTION:
We have selected two old Arab towns for the following criteria:
3.1.1. THE OLD-TOWN OF TUNIS:
It has similar circumstances to those of the Town of Constatine (French colonization, same
Maghrebian lifestyle, comparable economy, training of actors obedient to the general French
system, similar urban laws resulting from the French system).
3.1.2. THE OLD-TOWN OF CAIRO:
It is an example to follow for the seniority and the effectiveness of the rehabilitation of the
heritage in Egypt, considered as the first and pioneer in this field in the Arabo-Muslim. Moreover, it is an old town falling in ruins, but loaded with a historical heritage classified by
UNESCO. The old town of Cairo has had more or less successful safeguarding projects that
may serve as a model.
4. DESCRIPTION OF THE SITE
The old town of Constantine, one of the oldest cities in the world (2,500 years of history), is
the capital of the East of Algeria (Figure 1). It has a dense organic fabric; hierarchical streets
branched in a tree-like fashion just like the Arab-Muslim medinas, defining very elaborate urban
and architectural paths, punctuated by a set of sequences and landmarks. The fabric is rich in
historical values linked to its plot, its virile system, its Sabbaths, and a perfectly hierarchical
building typology (photos 1). It has within its walls the El Kettania mosque, Medersa, the
French High School ‘Aumale’(Redha-Houhou presently), Dar El Imam ... of very high architectural value souks, traditional houses, a Bey palace.....all of which give the city of Constantine a
special status.
Figure 1: the situation of the old town of Constantine
Source: Google Maps, authors’ treatment; 2016
Photos 1: Overview of the Old City
Source: Y.A. Bertrand, 2010
4.1. THE OLD TOWN IN THE HEART OF THE PROJECTS:
Constantine has had several projects (Table N° 1) to protect and preserve its heritage; however, no project has led to its safeguard. According to the permanent plan for safeguard and development of the safeguarded sectors (PPSDSS), this state of degradation is mainly due to ageing and the voluntary demolition of the occupants. Overpopulation and absence of maintenance
have led to an accelerating degradation of constructions (channeling, sealing, sanitation, etc.).
Table 1: The succession of projects for the rehabilitation of the Old Town of Constantine
Year
1960
Project
Calsat Study
1961
The project
BERU
1975
Urban
Master
Plan (UMP)
of
Context
The study of Calsat is in a survey of
urban planning summary on the alarming status of the Old Town of Constantine.
A study of the development of the
urban centre with the improvement of
the conditions of its habitat, it essentially aims to bring out the European
district from the rock.
It has selected the Rock as a zone to
renovate. As a safeguard measure, the
Recommendation
In this period, the heritage
comes down to Roman archaeological traces of Constantine and
its surroundings.
Bureau of Communal Studies has
blocked the building permits (Saharawi
Belabed, 2001).
It rests upon the renovation of the
Rock that would be remediated by demolishing a minimum of constructions
and by lowering the rate of occupation.
It aims to establish an exhaustive
situational analysis of the physical and
demo-economic status of the Rock and
demo-economic and release an action
plan with intervention priorities (URBACO 1984).
1982
Updating of the
Urban
Master
Plan
1984
URBACO project
2003
Master Plan
The rehabilitation and revitalization
of the economic and social fabric of the
Old Town of Constantine
2005
Designation
of
Safeguard Sectors
2007
Mellah
project
In October 2005, the Old Town of
Constantine has been designated as a
safeguarded sector by the executive decree N°03-324 which has as purpose
the application of Article 45 of the Law
98-04 of June 15, 1998, relative to the
protection of heritage and culture.
The rehabilitation of the street Mellah Slimane is divided into 3 parts:
- Rehabilitation of roads and other
utilities and 10 houses frontages.
2013
Rehabilitation
program
under
Constantine
the
Capital of the Arab Culture 2015
Slimane
The program contains 78 projects
divided in 9 major areas in the safeguarded sector of Constantine.
The 9 major areas include a heterogeneous lot of projects, ranging from
the rehabilitation of streets, squares,
parkings, mosques, zaouias, hamams,
derbs, singular monuments, the reconstruction of the frontage of the lower
Souika with its gardens, and the rehabilitation of the Kasbah, as well as operations of archaeological excavations
In this project, the study phase
has been carried out, but the ambiguity of the operation has led to
a fiasco. According to the Vicepresident of the technical service
of the Popular Communal Assembly of Constantine, "In 1984,
the project has been entrusted to
the URBACO without setting a
precise objective for it".
It has been deemed to be nonoperational because after the
launch of the study, the old town
has been designated as a safeguarded sector, meaning that all
actions must take account of the
permanent plan for the safeguarding and development of the safeguarded sectors (PPSDSS)
In 2007, an engineering office
has been engaged by the elaboration of PPSDSS. The local authorities of the province of Constantine have approved this measure
in 2013.
The project of Mellah Slimane
has been the only project materialized in the field and it is still
under realisation (4 houses finished only).
It has been marked by the absence of laws determining the role
of actors involved in the rehabilitation project.
On 31 December 2012, the Organization for Education, Science
and Culture of the Arab League
Organization (ALESCO) has appointed Constantine Capital of
Arab Culture 2015. To this effect,
the Algerian Government has
listed several projects under the
supervision of the Ministry of
Culture, to improve and develop
the cultural situation of the town
of Constantine. The program has
for the concerned areas.
included new projects as well as
those of rehabilitation operations
targeting areas of heritage significance of the historic centre. (Fantazi.I, 2014)
Source: Kharouatou, 2011. Treatment of authors, 2017
5. THE COMPARATIVE STUDY: THE OLD TOWN OF TUNIS AND THE CAIRO
In order to identify the causes and effects of the rehabilitation, Table 2 traces back rehabilitation operations of the old town of Tunis and Cairo.
5.1. HOUSING REHABILITATION PROGRAMME (HRP) OF DARB AL AHMAR SITE
(EGYPT):
Darb Al Ahmer (Figure 02) is one of the most historic sites of Cairo. Narrow alleys and a
very high demographic density of almost 1,000,000 inhabitants characterize Darb al Ahmar site.
The latter is located among the poorest districts in Cairo. The rehabilitation programme of the
area, Darb Al Ahmar, has been launched in 2004, with the objective of rehabilitating 200 houses
by the end of 2009.
Figure.02 map of the district Darb Al Ahmar
Source: urban regeneration project for historic Cairo
5.2. PRESENTATION OF REHABILITATION PROJECT OF THE HAFSIA SITE (19721977) AND (1981-1992):
The Hafsia or well the "Hara" (Figure 03) is an old site of traditional habitat in the Medina of
Tunis. It is characterised by a dense fabric, a network of streets, alleys and to stalemates serving
houses with patios adjacent to each other.
The project of rehabilitation and renovation of the Hafsia site is a restructuring operation under the third urban development project, conducted in two stages.
Figure 3: map of the district Hafsia
Source: RAMMAH Mourad, Hafsia, Médina deTunis.
6. THE RESULTS OF THE DIFFERENT REHABILITATION OPERATIONS IN THE 3
SITES:
We will present the results of rehabilitation projects in Algeria, Egypt and Tunisia.
Table 2: Results of rehabilitation projects in the 3 sites. Source: authors, 2017
Project progress
Main objective
of the project
Actors
Project of Constantine
Capital of the Arab Culture
- The beginning of the
project by the choice of the
buildings of the program in
March 2013 on the basis of
the permanent plan for the
safeguarding and development of the safeguarded
sectors (PPSDSS) by an
assistant to the contracting
authority - January 2014,
the beginning of the study
phase of the study by engineering offices
The improvement and
development of the cultural situation of the Old town
of Constantine for the
event of the Capital of the
Arab culture
Rehabilitation project of
Darb Al Ahmar
Rehabilitation project of
the Hafsia site
- In 2003, the development of a preliminary study
of the site and a survey on
the latter with participation
of inhabitants.
- The beginning of the rehabilitation of houses in
March 2004
- First stage studies of
have started in 1972
- Second stage studies
have started in 1989
The physical improvement of existing buildings
and the
socio-economic
development of the Community
- Ministry of Culture:
In charge of cultural
- Aga Khan Trust for Culture (AKTC): Contracting
Help the local authorities to "design and implement a better site and best
resources and improved urban services for the lowincome population living in
the medina," and "strengthening the policies of habitat
to increase the accessibility," on the one hand, and
"give an impetus to economic activities and maximize the potential for the
development of the project"
on the other
- Municipality of Tunis
(Contracting authority);
Encountered
difficulties
Solutions
Results
projects in Algeria
- Directorate of Culture:
Contracting authority:
- National Office of
Management and Exploitation of Protected Cultural
Property: Assistant to contracting
authority(OMEPCP):
Program
progress
- 21 Engineering offices: Study of projects
- Company: Project realisation
- Insufficient housing to
rehouse all the inhabitants
of the scheduled buildings
before the beginning of the
study stage;
- Indemnity problems
for traders who have not
wanted to leave their
premises due to nonregularization of their trade
register;
- Lack of virgin territory
to schedule parking lots;
- Citizens have much
claimed the choice of sample or pilot houses for they
believe that buildings other
than those of the program
deserve to be selected;
Owners of pilot houses
have not accepted to leave
their houses
Creation of a commission composed of representatives of all stakeholders
- April 16, 2015, the
opening date of the event,
Constantine Capital of the
Arab Culture, all the projects of the program are
authority
- Microenterprises, and
small entrepreneurs of Darb
Al Ahmar: Project realisation
- Inhabitants: Assist in
project realisation
- Limitation of the planning and useless plans: demolition plans for the benefit
of the rehabilitation;
- Lack of knowledge for
the rehabilitation of traditional structures;
- Lack of the sense of
ownership and the absence
of community participation;
- Low income and lack of
financial mechanisms
- Elaboration of a process
of participation
- Sensitizing inhabitants
to their cultural traditions
- Creation of enterprises’
association of Darb Al Ahmar Business and the Centre
for the promotion of family
health in charge of service
delivery to the community in
the safeguarded sectors
- A structured training enabling the dissemination
of technical knowledge
among the inhabitants
- In 2009, the project
has provided 285 homes
with ownership rights guaranteed;
has rehabilitated 85 build-
- ARRU (Contracting
authority deputy);
- The Association of
Safeguard of the Medina of
Tunis (designer of the project);
- Fund for local authority loans and (ensure funding of secondary networks
and collective equipment);
- Public dealers;
- The local committee
for the allocation of the lots
and credits
- Lack of knowledge for
the rehabilitation of traditional structures.
- Sensitization of the
public to the importance of
urban heritage and promote
its safeguarding based on
profound knowledge of
Medina.
- Sensitization and supervision of involved actors
in Medina to promote small
businesses by associating
craft workers in rehabilitation and restoration sites
- The first section of the
project has been completed
in 1977 and the second in
1992.
- The construction of
unfinished or in their initial states (Table 03)
- Progress report of the
program according to the
assistant to contracting authority is 51% (study phase
completely achieved, realization works stuck at 2%
in 2016)
- January 2017, all projects are blocked
ings;
has improved the conditions of life through the construction of 42 new private
bathrooms, 55 new kitchens,
more habitable space;
has improved the private
life of family members, the
day light and ventilation for
all habitable space, as well
as a better access to the distribution network of water
and sanitation services
- Amendment
of law
permitting the demolition in
the site of Darb Al Ahmar
- Elaboration of a new
process of participation of
Egypt
- In 2007, the National
Organization for the Urban
Harmony, in its "Guidelines
for Historic Areas" (Plan for
the historic districts), identified the HRP (Hafsia Rehabilitation Program) as a good
practice to be put in place at
the national level.
234 housing units
Achievement of all socio-economic and cultural
objectives of the project
- The success of the operation has earned the project Aga Khan Award for
Architecture in 1983 and in
1995.
Table 3: photos of The diferent Projects of Constantine Capital of the Arab before and afetr
event
The diferent projects before the event
The diferent projects after the event
SOUK EL ASSER Square (2013)
SOUK EL ASSER Square (2016)
CHARAA Parking lot (2013)
CHARAA Parking lot (2016)
Mill El CHATE (2013)
Mill El CHATE (2016)
Source: OGEBC, 2013. Authors, 2016
7. INTERPRETATION:
Table 1 show that the negligence of the value of the heritage and the lack of the culture of
preservation has the lion’s share in the degradation of constructions, appearing in the following
points:
 The Urban Master Plan (UMP) prohibits the occupants to intervene on their property
(Saharawi Belabed, 2001) and allows the demolition of buildings to reduce the rate of
occupation.
 The unawareness of the officials of the importance of heritage preservation has allowed
thinking to raze the traditional houses to build towers on the rock. (Saharawi Belabed,
1988).
 The ambiguity of the objectives and the lack of a strategy of intervention are of the
causes of operational failure.
 Do nothing to learn from previous experiences in the new projects or it is found that all
projects start to 0 and rehearsal the same mistakes of others
 The non-involvement of experienced actors in the site of Constantine
At the level of the comparative study, we find that:
 The absence of the identification of stakeholders in preliminary phase affects the conduct of rehabilitation project. The latter depends in large part on the quality of the
communication between the contracting authority and the stakeholders that needs to be
based essentially on clarity, simplicity and the frequency of the information. (Yaves
Raffestin, Frank Dreimie, Denys Slight 1996).



The absence of the preliminary study led to the unexpected throughout the program (the
negligence of the inhabitants has caused problems at the beginning of realisation
works). The participation and the involvement of the inhabitants of the whole town are
indispensable to the success of the safeguard (The International Charter for the Safeguarding of Historic Towns, 1987).
The absence of field research to be well informed on hopes of the inhabitants.
The lack of involvement in the project affects the results of the latter in time and the
cost of the operation
7.1. ACTIONS TO BE TAKEN
To avoid problems found in the implementation phase, we suggest a participatory approach
that has to be followed as early as the planning phase begins:
• Identify all project stakeholders: It is important to recognize the project team as a specific
stakeholder group. This will enable the assistant to the contracting owner to focus on their needs
and ensure that they are taken into account on an ongoing basis throughout the project.
• The establishment of conciliation commissions: a consultation commission made up of all
the participants in the choice of samples (the Directorate of Culture, the Daïra, network services,
Directorate of Trade, Transport Directorate, Religious Affairs, citizen).
• The use of questionnaires and surveys to know the wishes and remarks of citizens and users.
(YavesRaffestin, Frank Dreimie, Denys Léger, 1996).
• The development of a participation process: This process explains roles and responsibilities
during the planning and implementation phase (UNISCO, 2014).
Table 3: Project Stakeholders in the Planning Phase
Stakeholders
The contracting owner :
Directorate of Culture
The assistant of the contracting owner : OGEBC
Mission in the project
Makes the decision in the project
The Communal People's
Assembly
The need to solve all the problems inside the site
The Daïra
Responsible for rehousing the inhabitants of the chosen
equipment
The Directorate of Trade
The negotiating manager with the traders who enter the
program.
The Directorate of
Transport
In charge of evacuating the parking lots and finding virgin grounds.
The Directorate of Religious Affairs
Responsible for everything related to the mosques in the
program
Network services
Responsible for all networks: telephony, clean water
supply, sanitation; electricity and gas.
The citizen
The one who lives or occupies the site
Conducts the Operation
Source: authors, 2016
•Raising citizens’ awareness: raising awareness of the importance of this operation and its
advantage in improving their daily lives through different ways:
- By organizing meetings with the neighborhood-association or with the most representative
or dynamic users;
- By making contacts with the Head of General Services, present in the field, who can become one of the communication relays.
- By organizing days of consultation, marketing, advertising, information...
•In order to achieve the objectives of the project and ensure good continuity of the work, it is
imperative to suggest the following recommendations:
Encourage dialogue and solicit as many stakeholders as possible to participate in the consultation through periodic meetings with the objective of transmitting both information and the
progress of the operation in order to discuss all the problems foreseen and try to help the assistant to the contracting owner to make the right decisions.
CONCLUSION:
The comparative study has allowed us to see that the human factor is the main agent in the
success or failure of rehabilitation. Despite sufficient budgetary envelope and the existence of
previous, scientific, effective plans for heritage safeguard, the whole strategy of implementation
would collapse if the human factor is faltering. Egypt is a pioneering and expert country in the
area of safeguarding, where rehabilitation mechanisms put in place, operate automatically. Similarly, Tunisia has a considerable knowledge in heritage safeguarding and rehabilitation. However, Algeria, with a considerable amount of studies on the matter, has not yet acquired the expertise of Egypt and the knowledge of Tunisia. When is heritage rehabilitation in Algeria going to
be seriously considered? Essential elements for heritage safeguard and rehabilitation programs
are there, but the human factor remains a missing piece.
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