Paolo Ventura ASSESSMENT OF THE LANDSCAPE QUALITY INCLUDING THE HISTORICAL HERITAGE IN ITALY. Summary 1 2 Abstract ..................................................................................................................................................... 1 Definition of landscape .............................................................................................................................. 1 2.1 The European Convention ................................................................................................................. 1 2.2 Ambiguity and wealth of the term “landscape” ................................................................................ 2 3 Landscape analysis and protection in the Italian planning system ........................................................... 7 3.1 Objects protected by the State ......................................................................................................... 7 3.1.1 Landmarks and scenic landscape .............................................................................................. 7 3.1.2 National Parks ............................................................................................................................ 8 3.2 Landscape plans in Regional Planning ............................................................................................... 8 3.2.1 Landscape protection in Lombardy ......................................................................................... 11 3.2.2 Conservation of Ancient roads and canals systems ................................................................ 12 3.2.3 Mitigation of the impact of industrial zones ........................................................................... 12 3.3 Landscape protection in town planning .......................................................................................... 13 3.3.1 Conservation of historic town centres .................................................................................... 13 3.3.2 Urban landscape plans ............................................................................................................ 13 4 Images index ............................................................................................................................................ 14 1 Abstract This presentation aims to identify practical indicators and parameters for assessing the landscape in terms of the likely impact of a new infrastructure. The issue is approached from the point of view of the planner. I start with some basic definitions of landscape as a holistic, flexible and ambiguous concept. A variety of specifically Italian methods and typologies of landscape evaluation at different scales in regional and town planning are then identified. 2 Definition of landscape 2.1 The European Convention According to the European Landscape Convention, “Landscape” 1 means: “an area, as perceived by people, whose character is the result of the action and interaction of natural and/or human factors”. Furthermore, The European Landscape Convention gives the following definitions: 1. “Landscape policy” means an expression by the competent public authorities of general principles, strategies and guidelines that permit the taking of specific measures aimed at the protection, management and planning of landscapes; 2. “Landscape quality objective” means the response of the appropriate public authorities to the aspirations of the public for a specific landscape and the features of their surroundings; 1
Council of Europe Treaty Series =ETS 176 – 20.X.2000 entry into force 1‐3‐2004. The treaty, signed by 29 countries (2008) covers natural, rural, urban and peri‐urban areas. It includes land, inland water and marine areas. It concerns landscapes that might be considered outstanding as well as everyday or degraded landscapes. The European Landscape Convention applies to the entire territory of the signing countries. The aims of this Convention are to promote landscape protection, management and planning, and to organise European co‐operation on landscape issues. 1 3. “Landscape protection” means actions to conserve and maintain the significant or characteristic features of a landscape, justified by its heritage value derived from its natural configuration and/or from human activity; 4. “Landscape management” means action to ensure the regular upkeep of a landscape within a perspective of sustainable development so as to guide and harmonise changes which are brought about by social, economic and environmental processes; 5. “Landscape planning” means strong forward‐looking action to enhance, restore or create landscapes. 2.2 Ambiguity and wealth of the term “landscape” Despite the above official definitions, landscape is still an ambiguous concept, with meanings of both the actual reality (the area) and also its perception. Landscape is a term found in heterogeneous disciplines like art (painting, music, literature), analytic disciplines, like geography2and sociology and technical and scientific disciplines like economics, planning, town‐planning, architecture and even biology and natural sciences. Geographers emphasize the dynamic relationships among the physical context inhabited by man, the biological environment3 and the human action.4 Natural Science and Ecology analyzes landscape through complex models that examine the different forms of life in their habitat. Economists consider landscape as a support for resources or a resource itself. The landscape of the sociologist is of a specifically social nature – a context for social relationships. Urban planners see landscape as a crucial, specific context before and after the developments they implement. Painters or writers remind us of the holistic character of the term landscape, far from the simple collection of composite elements. A new order appears and with it new values and different sensations. There emerge two main and contrasting attitudes. 1. Landscape is interpreted according to the subjective sensibility and intuition of the artist. This attitude may lead to excellent artistic expression. Here, I take the example of the famous painting by Monet: Poppies near Argenteuil. 2. The artist bases the depth of analysis of the content of the landscape he paints on his own philosophy and mind‐set and those of the person commissioning the work. This aspect of knowledge and description, which can appear boring from the purely artistic point of view, is, instead highly worthwhile as an approach for analysing the landscape. 2 For a definition of paesaggio in Italian see: Enciclopedia Universale dell’Arte, Istituto per la collaborazione culturale 1958, riedizioni 1971, 1973 e 1980, ad vocem; V. Ingegnoli, Fondamenti di ecologia del paesaggio, CittàStudi, Milano, 1993; in French see: F. Beguin, Le paysage, Flammarion, Paris, 1995. 3
The terms “environment” and “context” are tightly linked to the term “landscape”. Environment is the set of the basic elements: hearth, air, fire and water. Context can mean the physical space where bodied are located or the social context where we live or also the physical or biological components of the environment of an organism. Cfr. J.P.
Muret, L’homme et le territoire, Bibliographie, in L’architecture d’Aujourd’hui, 164, 1972, pages 86-87 4
2 Image 1 ‐ Claude Monet, Poppies near Argenteuil, 1873 Let us look for instance at a number of works by Jakob Philpp Hackert, a painter who for some twenty years was at the service of the court of the Kingdom of Naples at the time of the French Revolution at the end of the Eighteenth Century. He was ordered to travel through the country and paint large works to be exhibited in the monumental palace that the king was building in Caserta, the new Versailles.5 The painter portrays in great detail the components of the landscape: buildings, palazzos, and picturesque hamlets, the work of arts, bridges, thoroughfares, farm land and woods, with attention to the botanical specimens and the people, seen as coordinated actors and authors of the painted landscape. Image 2 ‐ Jakob Philipp Hackert, Lake Bagno in Ischia, 1792 5
Jacob Philippe Hackert (1737 ‐ 1807). German landscape painter, began working in Italy in 1768. He upheld the traditions of landscape in his paintings, but also infused them with a Romantic sense. Hackert made the acquaintance of Goethe in 1787, who later edited and published the artist’s biography. See for instance: http://en.wikipedia.org/wiki/Jacob_Philipp_Hackert. 3 Image 3 ‐ Jakob Philipp Hackert, Brindisi Harbour, 1789 Image 4 ‐ Jakob Philipp Hackert, Bridge in Venafro, 1786 4 Image 5 ‐ Jakob Philipp Hackert, Sorrento, 1794 Image 6 ‐ Bernardo Bellotto, Landscape of the town Pirna, 1753‐55 We find a similar attitude in Canaletto’s analytic and descriptive paintings6, but also in the work of more contemporary artists, like the outstanding contemporary Italian photographer Gabriele Basilico. 6
Canaletto (Giovanni Antonio Canal) (1697‐1768). Venetian painter, the most famous view‐painter of the 18th century. By 1723 he was painting dramatic and picturesque views of Venice, marked by strong contrasts of light and shade and free handling. Canaletto was highly influential in Italy and elsewhere. His nephew Bernardo Bellotto took his style to Central Europe and his followers in England included William Marlow and Samuel Scott. (See for instance: http://ftp1.us.proftpd.org/wm/paint/auth/canaletto/) 5 Basilico’s pictures, like the previous paintings, are open manifestos of reflexive thought on how the existing landscape with its significant remnants and permanent vestiges, the historic and cultural product of human activity over the centuries could be transformed and protected. Image 7 ‐ Gabriele Basilico, The bridge of Porto Image 8 ‐ Gabriele Basilico, Industrial buildings Image 9 ‐ Image 8 ‐ Gabriele Basilico, Industrial buildings 6 Image 10 ‐ Gabriele Basilico, Industrial buildings Image 11 ‐ Gabriele Basilico, Industrial buildings 3 Landscape analysis and protection in the Italian planning system 7
The main Italian law dealing with landscape protection is a recent comprehensive Act , which reorganizes and improves the contents of a number of important republican and pre republican laws (1909, 1939). The landscape is also strongly protected by Article 9 the Constitution of 1948. Therefore all public bodies are called to cooperate to preserve beauties and work of arts: State, Regions, Provinces and single municipalities. 3.1 Objects protected by the State 3.1.1 Landmarks and scenic landscape Image 12 ‐ Florence Cathedral and Baptistery ‐ Landscape threats by a New tramway system Image 13 – Landmarks: Florence Cathedral and Baptistery Special buildings of outstanding value are protected by the State. Special scenic landscapes, the distinctive characteristics of which stem from nature, human history and their mutual relationship are protected in a special registry by special state boards. The owners are 7
Legislative decree N° 42, 22 January 2004, Code for cultural heritage and landscape (Codice dei beni culturali e del paesaggio). 7 forbidden to make any transformation of these registered properties, without the prior approval by the relative board. Even the most protected landmarks, however, runs the risk of alteration and misuse. 3.1.2 National Parks In Italy there are 22 National Parks. They cover over a million and half hectares, or approximately 5% of the national territory. National parks enjoy the highest level of protection. They are managed through special plans. There are four kinds of national park, and they are so designated by ad hoc National Park Plans, depending on the characteristics of their prestige and the quality of existing natural resources8 • integral nature reserves, where conservation of the natural environment is absolute; • oriented nature reserves, where all building is forbidden; • buffer areas, where normal farming may be carried out • socio‐economic improvement areas, where certain compatible activities can be carried out. Certain regions have also earmarked protected areas. In certain cases, like Lombardy, the amount of protected areas has increased substantially Image 14 ‐ Parks in Tuscany Image 15 ‐ Parks in Lombardy 3.2 Landscape plans in Regional Planning The Italian regional landscape planning system stems from a national law of 19859, which states that certain territories, like sea and lake coastal areas, important rivers, mountains over 600 meters high, all wooded areas, national parks, wetlands, volcanoes and archaeological sites automatically come under direct state protection. The law set a very short time – by 31 December 1986 – for Regions to draw up landscape protection plans for their whole territory. Regions and Provinces were slow in complying and it took more than twenty years for most of them to approve the required plans. Nowadays there are few Regions who have not yet completed this procedure. 8
See the National Law N°. 394 of 6 December 1991 which outlines the legal framework for the protected areas 9
Law N° 431 of 8 August 1985 (the so‐called Galasso law) Ratified with amendment to decree law N° 312 of 27 June 1985 containing urgent measures for safeguarding areas of particular environmental interest. 8 PIEDMONT
VALLE D'AOSTA
LOMBARDY
TRENTINO ALTO ADIGE
VENETO
FRIULI VENEZIA GIULIA
LIGURIA
EMILIA‐ROMAGNA
TOSCANA
UMBRIA
MARCHE
LAZIO
ABRUZZI
MOLISE
CAMPANIA
PUGLIA
BASILICATA
CALABRIA
SICILY
SARDINIA
TOTAL
Whole Territory
l l l l l l l l l l l l l Part l l l
l l
l
Purce
Protected ntage
Surface (Kmq) surface (Kmq)
23.390,60
13.061,19 56%
3.260,74
2.859,74 88%
23.939,10
11.798,12 49%
13.601,15
13.042,19 96%
18.418,07
8.396,33 46%
7.858,95
3.705,22 47%
5.535,46
4.538,70 82%
22.203,28
7.572,08 34%
22.986,47
13.333,77 58%
8.454,99
3.971,45 47%
9.727,84
3.853,91 40%
17.262,72
8.053,34 47%
10.719,13
5.855,98 55%
4.437,41
2.389,03 54%
13.527,71
6.404,04 47%
19.677,43
3.697,02 19%
9.987,15
3.982,73 40%
15.077,93
6.725,28 45%
25.390,10
7.305,77 29%
23.931,48
8.504,85 36%
299.387,71
139.050,74 46% Table 1 ‐ Landscape Regional Plans according to Act 431/85 (http://www.regione.emilia‐
romagna.it/paesaggi/paesaggio/index.htm) Regional Landscape plans contain important surveys on the natural and cultural heritage; interpretation and planning, though, varies from Region to Region depending on such circumstances as wealth, economic and development pressure, characteristics of the land and the specific local political framework. Plans also have an indirect effect on change in general because district and town planning has to conform to them. The implementation of these plans is also greatly affected by the type and size of territory of the Region or Province involved. Regions are normally larger than the Provinces that make them up, but Italy has some small Regions, like the Valle d’Aosta (3260 Km2 and about 120,000 inhabitants) which are smaller than some Provinces like Brescia (4785 Km2 and 1,200,000 inhabitants) or Arezzo (3235 Km2 and about 330,000 inhabitants). The Regional Landscape Plan of Abruzzi (“Piano paesistico regionale dell'Abruzzo”) was launched in 1984 and approved in 1990, much earlier than the other Regions, because of an important National Park located there. The Territorial Landscape Plan of the Val d'Aosta (“Piano Territoriale Paesistico della Val d'Aosta”) , a very scenic mountain region, was begun very early and was given preliminary approval in 1996, but has never been fully ratified. Despite its important landscape values, the Veneto Region has not complied with the law. There is, however, a preliminary document containing the criteria for implementing the plan. The Tuscany Region has not approved a specific landscape plan, but regional town planning legislation (1995‐2005), its 2007 territorial plan and in those of a number of Provinces all focus attention on landscape protection . Two Tuscan Provinces (Siena and Arezzo) have approved special landscape protection plans based on a detailed survey of the cultural heritage and which have a specific historic and geographic emphasis, identifying hundreds of landscape units. Consequent planning decisions and conservation constraints have come into force. 9 Image 16 ‐ Valle d'Aosta ‐ The San Bernardo valley Image 17 ‐ Scenic views of the Alps in Valle d'Aosta Image 18 – Landscape Plan of Valle d'Aosta ‐ Environmental systems Image 19 – Countryside in Tuscany (Siena province) with remnants of ancient agricultural systems 10 Image 20 – Types of landscape in the Plan of the Province of Siena The Emilia Romagna Region has been very active since 1986, in implementing a general plan of landscape protection, although the comprehensive plan was only recently approved. Every Province, however, has approved its own urban development plans which give special consideration to safeguarding landscape beauty. The Town Development Plan of the Autonomous Province of Trent (Piano Urbanistico della Provincia autonoma di Trento) was approved in September 2007. The most important part of the plan consists of the survey of the natural features (geology, hydrography, state forests, natural areas, relevant agricultural areas, cultural heritage landscapes) which may not be transformed or damaged by urban development. The Regional Landscape Plan (PTP) of Lazio was adopted in 2007. All regional plans are now under review as provided by the 2004 law mentioned abovewas approved on September 2007. The most important part of the plan consists of the survey of the natural features (geological elements, idrography, state forests, natural areas, relevant agricultural areas, cultural heritage landscapes) that cannot be transformed or damaged by urban developments. The Regional Landscape Plan (Piano paesistico regionale del Lazio) was adopted in 2007. All regional plans are now under review as provided by the 2004 law mentioned above. 3.2.1 Landscape protection in Lombardy Lombardy is one of the largest and richest Italian regions with about 24,000 Km2 and about 9 million inhabitants and a density of more than 400 inhab/ Km2. The land is variously scenic, with high mountains, alpine lakes and a extensive flatland which was once predominantly agricultural. The contradiction between development and conservation is very strong. The flatland is now covered by settlements both industrial and residential. 11 Image 21 ‐ Urban sprawl along the Milan ‐ Venezia Motorway near the Adda river Image 22 ‐ Urban sprawl in the Prealpine area near Bergamo ‐ Como A Landscape protection plan has been implemented since 1997 and was definitively approved in 2001 Its aims are as follows: • conservation of landscape identity; • enhancement of the landscape and its architectural e transformations; • dissemination of cultural heritage values among citizens. The plan provides a special (very simple and perhaps poor) methodology for assessing the feasibility of landscape transformation and its impact, with the latter required to be classified according to its extent .Landscape sites are also classified according to their degree of sensibility (or beauty). The resulting grid provides the constraints to be observed for example, requiring further development of architectural or engineering projects, impact mitigation, etc. 3.2.2 Conservation of Ancient roads and canals systems Sometimes, and hopefully often, attention turns again to old road systems and disused railway lines and waterways and canals which become objects to safeguard and recycle. There is an excellent system of navigable canals around Milan that began to be developed in the 12th Century. The Martesana canal, 30km long, built during the 15th century, links Milan with the river Adda. With the development of railways, water transportation fell into disuse and canals were abandoned. The water of the Martesana is now used for irrigation but its banks boast an architectural heritage of great historical and environmental importance – villas, gardens, factories, water wheels, public washhouses, etc.. The relationship between historic canals and lands generates a great variety of highly interesting landscapes where the signs of history blend in with nature. The system of canals and the buildings that depend on it, which are also derelict, are today a true open‐air museum. A recent protection programme and the creation of a regional park will enable the canal to be rehabilitated and be used for cultural and recreational purposes. This project, by Maurizio Boriani, of Milan Polytechnic, 2001, is a part of the Voies d'Eau Vivantes, Project10 within the EU Terra Programme, the objective of which is to trigger an exchange of experiences in land management criteria among partners from different European countries and to reach a common approach to the management of a historical landscape and heritage specific to the use of waterways. 3.2.3 Mitigation of the impact of industrial zones Industrial development in Italy has produced some great ugliness. In some instances, like, for example tourist resorts, special surveys have been conducted in order to mitigate (read “hide”) their impact. A 10
This research is carried on by the Centro per la Conservazione e Valorizzazione dei Beni Culturali (Centre for Conservation and Improvement of Cultural Heritage) at the Milan Politecnic. See the web page: http://www.beniculturali.polimi.it/pagine/esperienza.php?id=87 12 special law of the Emilia Romagna Region even funds the demolition of dreadful industrial buildings, but it has very rarely been applied. 3.3 Landscape protection in town planning Despite planning decisions at local level having a marked effect on landscape conservation, the ordinary planning system does not usually give proper due to how the landscape is transformed by new developments or even new use or abandonment. This has led to the institution of new landscape plans at the local level. 3.3.1 Conservation of historic town centres This issue was tackled by several plans specifically for historic town centres especially in the Sixties. The transformation of historic town centres are closely monitored, since historic buildings are registered and protected. Methodology has improved through experience . 3.3.2 Urban landscape plans A new kind of planning tool has been recently developed in a number of different areas of Italy which aims to coordinate landscape conservation work. The urban landscape plan is a sort of comprehensive tool, which classifies the whole municipal territory by the varying degrees of its “sensibility” or “vulnerability” to urban transformation. This classification leads to specific procedures of control and authorization. The Landscape Plan of Bolzano (Piano paesistico, 1999) is one of the first of this kind in Italy. Some subregional plans (for instance the Territorial Landscape Plan of the Province of Brescia in the Lombardy Region, approved in 2005) requires local authorities to improve and develop the surveys and implement the consequent conservation measures provided by area‐wide plans. Image 23 ‐ Botticino Landscape Plan – Landscape sensibility of the municipal territory 13 4 Images index Image 1 ‐ Claude Monet, Poppies near Argenteuil, 1873 ................................................................................. 3 Image 2 ‐ Jakob Philipp Hackert, Lake Bagno in Ischia, 1792 ............................................................................ 3 Image 3 ‐ Jakob Philipp Hackert, Brindisi Harbour, 1789 .................................................................................. 4 Image 4 ‐ Jakob Philipp Hackert, Bridge in Venafro, 1786 ................................................................................ 4 Image 5 ‐ Jakob Philipp Hackert, Sorrento, 1794 .............................................................................................. 5 Image 6 ‐ Bernardo Bellotto, Landscape of the town Pirna, 1753‐55 .............................................................. 5 Image 7 ‐ Gabriele Basilico, The bridge of Porto ............................................................................................... 6 Image 8 ‐ Gabriele Basilico, Industrial buildings ................................................................................................ 6 Image 9 ‐ Image 8 ‐ Gabriele Basilico, Industrial buildings ................................................................................ 6 Image 10 ‐ Gabriele Basilico, Industrial buildings .............................................................................................. 7 Image 11 ‐ Gabriele Basilico, Industrial buildings .............................................................................................. 7 Image 12 ‐ Florence Cathedral and Baptistery ‐ Landscape threats by a New tramway system ...................... 7 Image 13 – Landmarks: Florence Cathedral and Baptistery .............................................................................. 7 Image 14 ‐ Parks in Tuscany .............................................................................................................................. 8 Image 15 ‐ Parks in Lombardy ........................................................................................................................... 8 Image 16 ‐ Valle d'Aosta ‐ The San Bernardo valley ........................................................................................ 10 Image 17 ‐ Scenic views of the Alps in Valle d'Aosta ....................................................................................... 10 Image 18 – Landscape Plan of Valle d'Aosta ‐ Environmental systems ........................................................... 10 Image 19 – Countryside in Tuscany (Siena province) with remnants of ancient agricultural systems ........... 10 Image 20 – Types of landscape in the Plan of the Province of Siena .............................................................. 11 Image 21 ‐ Urban sprawl along the Milan ‐ Venezia Motorway near the Adda river ..................................... 12 Image 22 ‐ Urban sprawl in the Prealpine area near Bergamo ‐ Como........................................................... 12 Image 23 ‐ Botticino Landscape Plan – Landscape sensibility of the municipal territory ............................... 13 14