RURAL STRATEGY
TOPIC PAPER
VOLUME 1
Final Draft
MARCH 2003
 MEPA
Table of Contents
1. Introduction
1.1
1.2
1.3
1.4
1.5
Purpose of the Study
Context of the Rural Strategy Topic Paper
Limitations of the Study
Structure of the Topic Paper
Definition of Rural Areas
2. The Countryside of the Maltese Islands
2.1
2.2
2.3
2.4
The Natural Environment
The Built Rural Environment and Quarrying
Employment in the Rural Economy
Summary
3. Urban Sprawl
3.1 The Growth of Urban Settlements before Adoption of the
Structure Plan
3.2 Containment of Urbanisation after Adoption of the Structure
Plan
3.3 New Dwellings Approved in Rural Areas from 1994 to 2000
3.4 Commercial and Industrial Uses Approved in Rural Areas
from 1994 to 2000
3.5 Summary
4. Settlements Outside the Development Zone
4.1
4.2
4.3
4.4
4.5
4.6
Distribution of Settlements ODZ
Growth in Settlements ODZ
Analysis of Rural Settlements
Settlements ODZ: Key Issues
Strategies for Settlements ODZ in Local Plans
Categories of Settlements ODZ as Proposed in the Rural
Strategy Topic Paper
4.7 Summary
5. Agriculture
5.1
5.2
5.3
5.4
5.5
5.6
Employment in Agriculture
Loss of Agricultural Land
Agricultural Land Holdings and land Fragmentation
Agricultural Stores
Irrigation of Agricultural land
Greenhouses
1
1
2
7
8
10
13
13
20
23
24
26
27
29
30
39
46
48
48
49
51
59
62
65
70
72
73
75
84
89
93
100
5.7
5.8
5.9
5.10
Vineyards and Wineries
Animal Husbandry
Government’s Emerging Policy on Agriculture
Summary
6. Countryside Recreation
6.1
6.2
6.3
6.4
6.5
Countryside Recreational Activities
Countryside Recreation Sites
Public Access to the Countryside
Rural Tourism and Diversification of the Rural Economy
Summary
7. Rural Conservation
7.1
7.2
7.3
7.4
7.5
7.6
7.7
7.8
7.9
7.10
Conservation through RCA Designation
Protected Natural Areas
Areas Protected for their High Landscape Value
Areas Protected for their Archaeological Value
Areas Protected for their Architectural and Historic Value
Areas Protected for their Agricultural Value
Effective ness of the Scheduling Process
Management of Protected Areas
Environmental Initiatives
Summary
8. Strategy Direction
8.1 Key Issues
8.2 Developing a Strategy for Rural Areas
8.3 Proposed Rural Strategy
Appendix A – The Structure Plan (1990): the current strategy and
policies for rural areas
Appendix B – The European Spatial Development Perspective
(1999): policy options applicable to rural areas
Appendix C – Members of the Rural Strategy Working Group
Appendix D – Survey of Rural Settlements
Appendix E – Urban Extensions
Appendix F – Localities Mentioned by the PAS Respondents
Appendix G – Legal Context for Rural Conservation
Bibliography
Volume 2 (Figures)
102
104
112
117
120
120
123
131
138
142
144
144
150
157
159
162
165
167
168
170
170
174
174
180
180
List of Tables
Table 1
Total area of the inland and coastal rural areas
11
Table 2
Distribution of rural areas by Local Plan boundaries
12
Table 3
Distribution of natural habitats in Malta
15
Table 4
Distribution of agricultural land by NSO Districts
19
Table 5
Distribution of built up areas in the countryside by 1998
20
Table 6
Percentage contribution to the Gross Domestic Product
23
Table 7
Analysis of planning applications for residential
schemes in rural areas from 1994 to 2000
31
Table 8
Analysis of planning applications for new dwelling units
in rural areas from 1994 to 2000 by type of decision
33
Table 9
Analysis of planning applications for new dwelling units
in rural areas from 1994 to 2000 according to Local
Plan boundaries
34
Table 10
Distribution of the approved applications for the
construction of 1 to 4 new dwelling units in rural areas
38
Table 11
Rationale for approval of new dwelling units in rural
areas
39
Table 12
Approved and refused industrial and commercial units
in rural areas from 1994 to 2000
40
Table 13
Distribution of approved industrial and commercial units
by Local Plan boundaries
41
Table 14
Distribution of settlements ODZ according to Local Plan
boundaries
49
Table 15
Number of approved new dwelling units in settlements
ODZ from 1994 to 2000
51
Table 16
Number of habitable dwelling units in rural settlements
by Local Plan boundaries
52
Table 17
Number of rural settlements by type of road network
53
Table 18
Statistics on old rural settlements
55
Table 19
Statistics on mixed rural settlements
56
Table 20
Rural settlements within, adjoining or partly within
scheduled property
58
Table 21
Number of habitable dwelling units within NWLP
Category 2 and Category 3 rural settlements
64
Table 22
Total number of registered farmers by type of
employment and NSO districts
73
Table 23
Full time farmers by age and NSO district
74
Table 24
Part time farmers by age and NSO district
75
Table 25
Approved new school development ODZ from 1994 to
2000
79
Table 26
Area of animal farms approved from 1994 to 2000
according to Local Council boundaries
80
Table 27
Agricultural land affected by quarry development
according to Local Council boundaries
81
Table 28
Illegal activities contributing to loss of soil
83
Table 29
Number of farmers according to size of agricultural
holdings and NSO regions
85
Table 30
Size of land holdings (ha) according to the status of
farmers
86
Table 31
Land holdings measuring between 0 to 1 ha in size,
according to the status of farmers and NSO regions
86
Table 32
Distribution of the number of farmers by category of
land and size of agricultural holdings
85
Table 33
Approved and refused agricultural stores from 1994 to
2000
90
Table 34
Localities where more than 4 agricultural stores were
approved from 1994 to 2000
91
Table 35
Distribution of irrigated agricultural land according to
NSO districts
94
Table 36
Distribution of approved and refused reservoirs and
pump rooms from 1994 to 2000
97
Table 37
Development of reservoirs and pump rooms from 1994
to 2001
98
Table 38
Localities where more than 4 notifications for reservoirs
and pump rooms were accepted under GDO and DNO
99
Table 39
Approved and refused greenhouses from 1994 to 2000
101
Table 40
Number of approved greenhouses from 1994 to 2000
according to NSO districts
101
Table 41
Population of livestock in pig farms according to their
size
106
Table 42
Population of livestock in cattle farms according to their
size
107
Table 43
Type and distribution of cattle farms according to NSO
regions
107
Table 44
Distribution of approved farms from 1994 to 2000
according to Local Council boundaries and type of
farms
110
Table 45
The main types of countryside recreation activities in
the Maltese Islands
121
Table 46
Compatibility of recreational activities occurring in the
countryside
122
Table 47
Areas identified as potential countryside parks
124
Table 48
Specific destination areas of the Household Travel
Survey respondents
125
Table 49
Localities identified in the PAS receiving a high rate of
mentions: between 100 and 200 persons
126
Table 50
Localities identified in the PAS receiving a high rate of
mentions: between 50 and 100 persons
127
Table 51
‘Widien’ mentioned by PAS respondents
127
Table 52
Types of land uses having a potential conflict with
localities mentioned by the PAS respondents
130
Table 53
Designation of Country Parkways, key footpaths and
picnic areas in Local Plans
135
Table 54
Categories of land designation within RCAs
145
Table 55
Designated nature reserves in the Maltese Islands
under the EPA 1991
151
Table 56
Different degrees of protection AEIs and SSIs
153
Table 57
Distribution of the scheduled AEIs and SSIs from 1994
to 2000. and listed natural areas according to the
proposed degree of protection
154
Table 58
Areas scheduled as Level 1 AEIs/SSIs from 1994 to
2000 according to the types of habitats
154
Table 59
Areas scheduled as Level 2 AEIs/SSIs from 1994 to
2000 according to the types of habitats
155
Table 60
Development pressure from 1994 to 2000 in areas
scheduled as level 3 AEIs/SSIs
156
Table 61
Areas scheduled as AHLV from 1994 to 2000
157
Table 62
Development pressures in areas scheduled as AHLVs
158
Table 63
Protective levels afforded to AAIs and SAIs
159
Table 64
Areas scheduled as AAIs/SAIs from 1994 to 2000
160
Table 65
Areas scheduled as Class A AAIs/SAIs from 1994 to
2000 according to the type of features
161
Table 66
Areas scheduled as Class B AAIs/SAIs from 1994 to
2000 according to the type of features
161
Table 67
Protective levels afforded to sites and areas of cultural
heritage value
163
Table 68
Areas scheduled for their architectural and historic
interest
163
Table 69
Areas scheduled for their architectural and historic
interest outside the development zone
164
Table 70
Areas of agricultural land within scheduled AEIs/SSIs
from 1994 to 2000 according to the levels of protection
165
Table 71
Area of agricultural land within scheduled AHLVs
166
Table 72
Areas of agricultural land within scheduled AAIs/SAIs
166
Table 73
IUCN protected area management categories
169
List of Graphs
Graph 1
Annual percentage change of the refused and approved
new dwelling units in rural areas from 1994 to 2000
37
Graph 2
Annual percentage change of the refused and approved
requests for change of use into industrial and
commercial uses in rural areas from 1994 to 2000
43
Graph 3
Analysis of sample: type of development before change
of use into industrial and commercial activity from 1994
to 2000
45
Graph 4
Analysis of sample: type of development after change of
use into industrial and commercial activity from 1994 to
2000
46
Graph 5
Rate of decline in agricultural land from 1971 to 2001
76
Graph 6
Number of applicant farmers according to the number of
tilled land parcels, registered in their name
87
Graph 7
Number of agricultural land parcels according to their
size
88
Graph 8
Annual percentage change: number of approved and
refused agricultural stores in rural areas from 1994 to
2000
90
Graph 9
Annual percentage change: number of approved and
refused reservoirs in rural areas from 1994 to 2000
97
Graph 10
Number of cattle farms according to size category
108
Graph 11
Number of pig farms according to size category
109
List of Figures (Volume 2)
Figure 1
National Statistics Office districts and Local Plan
boundaries
Chapter 1
Figure 2
Boundaries of Local Plan areas and Local Councils
Chapter 1
Figure 3
Defining the development zone
Chapter 1
Figure 4
Defining rural areas
Chapter 1
Figure 5
Main natural habitats in the Maltese Islands
Chapter 2
Figure 6
Elevation map
Chapter 2
Figure 7
Perched and sea-level aquifers
Chapter 2
Figure 8
Soils map
Chapter 2
Figure 9
Agricultural land
Chapter 2
Figure 10
Built up areas in the countryside
Chapter 2
Figure 11
Cultural and archaeological sites
Chapter 2
Figure 12
The growth of urban settlements in the Maltese
Islands from 1910 to 1989
Chapter 3
(Vol 1)
Figure 13
The conurbation
Chapter 3
Figure 14
Buildings constructed by 1988
Chapter 3
Figure 15
Population density 1931 – 1995
Chapter 3
Figure 16
Approved new dwelling units in rural areas from 1994
to 2000
Chapter 3
Figure 17
Industrial and commercial areas outside the
development zone
Chapter 3
Figure 18
Development of industrial and commercial areas
outside the development zone
Chapter 3
Figure 19
Areas subjected to change of uses into commercial
and industrial uses from 1994 to 2000
Chapter 3
Figure 20
Distribution of settlements ODZ
Chapter 4
Figure 21
Approved new dwelling units in urban extensions and
rural settlements from 1994 to 2000
Chapter 4
Figure 22
Rural settlements by number of dwelling units and
road hierarchy
Chapter 4
Figure 23
Road connection from rural settlements to town
centres
Chapter 4
Figure 24
Distribution of rural settlements according to
character
Chapter 4
Figure 25
Examples of green gaps between urban extensions
and the development zone
Chapter 4
Figure 26
Correlation between distribution of farms and water
protection zones
Chapter 5
Figure 27
Distribution of farms in relation to natural habitats
Chapter 5
Figure 28
Distribution of farms in relation to urban areas and
settlements ODZ
Chapter 5
Figure 29
Proposed countryside parks
Chapter 6
Figure 30
Localities mentioned by PAS respondents
Chapter 6
Figure 31
Correlation between the localities mentioned by the
PAS respondents and built up areas in the
countryside
Chapter 6
Figure 32
Scheduled natural areas
Chapter 7
Figure 33
Inventory of natural areas
Chapter 7
Figure 34
Areas of high landscape value ODZ
Chapter 7
Figure 35
Scheduled archaeological areas and sites
Chapter 7
Figure 36
National protective inventory: listed archaeological
features
Chapter 7
Figure 37
Scheduled features of architectural and historic
interest
Chapter 7
1. Introduction
1.0.1 The Structure Plan for the Maltese Islands, approved in 1990, aims to
influence the quality and distribution of land uses through a set of
sectoral and area-based policies that take into account the socioeconomic and environmental conditions of the Maltese Islands. The
Structure Plan provides guidance to Local Plans and Subject Plans
and gives a general direction for development control.
1.0.2 As part of the Structure Plan review process, the Malta Environment
and Planning Authority prepared a number of Topic Papers (including
the present study), which examine the suitability of the current Plan’s
policies and strategies with respect to contemporary land use issues
across the Islands. These Topic Papers also identify the various issues
that the review needs to address as part of the new Structure Plan.
1.1 Purpose of the Study
1.1.1 The aim of the Rural Strategy Topic Paper is to identify the key
issues in rural areas and to indicate possible strategies that may
address these issues. This involves analysis of the various land uses,
to allow the identification of the contemporary conflicts and issues
present within the Maltese countryside. The strengths and weaknesses
of the current approach are examined, and possible opportunities and
threats identified. The following analysis is included in this Topic Paper:
•
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•
•
•
•
•
•
identification of the context for land use development in rural
areas at the National and European levels;
examination of the various land uses present in the countryside;
analysis of urban sprawl after adoption of the Structure Plan in
1990;
analysis of settlements outside the development zone with
respect to the various land use issues and pressures;
examination of the changing requirements of the agriculture
sector, and the consequent changes in agricultural practices and
land uses;
identification and analysis of the current activities and demand
for countryside recreation;
review of the diversity of the natural and man-made heritage in
rural areas and examination of the current rural conservation
approach; and
to identify the key issues for the Structure Plan review.
1
1.2 Context of the Rural Topic Paper
1.2.1 The context of this study includes the following policy elements:
•
•
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•
the current Structure Plan strategy for rural areas;
Government policy on agriculture;
the European Union’s perspective for spatial development in
rural areas; and
the European Union’s strategy for agriculture and rural
development.
1.2.2 Given that Malta is in the pre-accession process in its application to
join the European Union (EU), an overview of the EU’s strategy for the
countryside and rural development is also provided.
The Structure Plan for the Maltese Islands
1.2.3 The Structure Plan was approved in 1990, but was adopted in 1992,
following the set up of the Planning Authority. The goals of the
Structure Plan are:
•
•
•
“to encourage the further social and economic development of
the Maltese Islands, and to ensure as far as possible that
sufficient land and support infrastructure are available to
accommodate it;
to use land and buildings efficiently, and consequently to
channel urban development activity into existing and planned
development areas, particularly through rehabilitation and
upgrading of the existing fabric and infrastructure thus
constraining further inroads into undeveloped land, and
generally resulting in higher density development than at
present;
to radically improve the quality of all aspects of the environment
of both urban and rural areas” (Structure Plan, 1990).
1.2.4 Consequently, the rural strategy as defined by the 1990 Structure
Plan addresses four main aspects as regards development in rural
areas:
•
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•
•
urban containment;
rural conservation;
enjoyment of the countryside; and
support for rural development.
2
1.2.5 The Structure Plan includes 320 policies, 100 of which affect rural
areas. The detailed Structure Plan policies affecting rural areas are
described in Appendix A. These 100 policies aim to:
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•
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•
prohibit urban development outside the development zone
boundaries through Policy SET 11 and Policy SET 12 (2
policies);
ensure conservation of the rural heritage through a set of RCO
Policies, ARC Policies and Policy UCO 11 (50 policies);
support appropriate recreational activities in the countryside
through a set of TOU Policies and REC Policies (9 policies);
support development for the needs of agriculture through a set
of AHF Policies (13 policies);
control mineral extraction operations through a set of MIN
Policies (17 policies); and
direct obnoxious industry (2 policies), social facilities (1 policy)
and public utilities (6 policies) in suitable locations through
Policy IND 9, Policy IND 10, a set of PUT Policies and Policy
SOC 7.
1.2.6 The Structure Plan designated most of the countryside as a Rural
Conservation Area (RCA), where the RCO policies are applicable
(refer to Appendix A). Consequently, developments in rural areas are
subjected to the various conservation measures of the RCO Policies.
RCO Policies provide conservation measures with respect to the
following:
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•
scenic value;
agricultural land;
ecology;
rehabilitation of degraded habitats and landscape;
control of erosion;
protection of valleys;
trees and afforestation; and
cultural and archaeological heritage.
1.2.7 The Structure Plan rural strategy aims to protect and enhance the
countryside whilst supporting environmentally friendly rural
development. Consequently, the Structure Plan affords different levels
of protection to various areas in the countryside. However, certain
developments still require a rural location due to incompatibility with
urban uses. The Structure Pla n aims to accommodate these uses
outside the development zone with the least possible environmental
impact.
3
Government’s Policy on Agriculture
1.2.8 The Government’s current policy on agriculture is directed towards
offering market support to the industry through imposition of levies on
imported agricultural goods. Assistance to farmers includes:
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•
upgrading of production techniques;
purchase of agricultural equipment and machinery;
distribution of soil that was excavated from areas under
construction;
erection of greenhouses and water reservoirs;
provision of access to fields; and
provision of compost and treated effluent for irrigation purposes.
1.2.9 Technical assistance provided by Government includes assistance in
disease control, siting of animal farms and provision of healthy food
products. An agricultural laboratory was also established with the aim
of increasing the efficiency of the sector and the quality of local
products.
1.2.10 The Government provides financial assistance to farmers through a
reimbursement of half of the social security contributions payable by
those self-employed, full-time farmers who are members of registered
co-operatives (Economic Planning Division, Ministry for Economic
Services, Economic Surveys from 1990 to 2000).
1.2.11 The pre-accession process to join the EU resulted in several
discussions on the future role of the local agriculture sector, the impact
of dismantling of the levy system and the viability and competitiveness
of local agriculture. The Government’s new policy on agriculture is
under preparation and it aims to follow the strategy outlined in the EU’s
policy on agriculture and rural development.
The EU’s Perspective for Spatial Development in Rural Areas
1.2.12 The EU’s perspective for spatial development and planning is outlined
in the European Spatial Development Perspective (ESDP). Although
the ESDP is a non-mandatory initiative, the EU encourages both
Member States and Non-Member States to apply the ESDP’s
strategies at the national, regional and local administrative levels.
1.2.13 The aim of the ESDP is to achieve a balanced and sustainable
development of the territory of the EU. “In accordance with the
definition laid down in the United Nations Brundtland Report,
sustainable development covers not only environmentally sound
economic development which preserves present resources for use by
future generations but also includes a balanced spatial development.
This means, in particular, reconciling the social and economic claims
4
for spatial development with the areas’s ecological and cultural
functions…” (European Commission, 1999).
1.2.14 The EU encourages Member States to integrate those national
initiatives that have a spatial impact within the framework of the ESDP.
The ESDP recognises that a balanced and sustainable development
can only be achieved by integrating these national initiatives and
through cooperation between various administrative bodies.
1.2.15 The ESDP follows the fundamental goals of EU policy:
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•
“economic and social cohesion;
conservation of natural resources and cultural heritage; and
more balanced competitiveness of the European territory”
(European Commission, 1999).
1.2.16 The ESDP provides three policy guidelines for spatial development,
as follows:
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•
“development of a balanced and polycentric urban system and a
new urban-rural relationship;
securing parity of access to infrastructure and knowledge; and
sustainable development, prudent management and protection
of nature and cultural heritage” (European Commission, 1999).
1.2.17 These three policy guidelines are supported with 60 policy options, 32
of which have a direct impact on the countryside and rural development
(refer to Appendix B). The most important of the 32 policy options are
as follows:
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•
efficient use of urban space (e.g. by adopting concepts of
compact cities and land recyc ling) to contain urban sprawl;
the partnership of urban and rural areas;
the prudent management and protection of the natural, cultural
and landscape heritage as a means of economic and social
regeneration;
sustainable agriculture, rural conservation, diversification and
promotion of rural tourism are means to aid the agriculture
sector;
efficient management of water resources and prevention of
flooding; and
the use of cultural and natural resources as opportunities for
diversification, particularly in the case of islands and
Mediterranean areas.
5
The EU’s Strategy for Agriculture and Rural Development
1.2.18 The main EU mandatory initiative having an impact on agriculture and
rural development is the Common Agricultural Policy (CAP). The
objectives of the CAP (which is currently being revised) are to provide
financial assistance to farmers and emphasise the multifunctional role
of rural areas. These objectives include the improvement in
competitiveness between rural areas, the maintenance of the
environment and preservation of the rural heritage, and the provision of
an integrated rural development policy.
1.2.19 Rural development is the emerging concept behind European
agricultural policy; this integrates agriculture within the broader rural
context. The various Member States have adopted the principles of the
EU Rural Development Programme (RDP) in their respective Rural
Development Plans; this involved formulation of national strategies that
take into account the rural context of different EU regions. Assistance
to farmers under the RDP is achieved under the main initiatives of the
EU Structural Funds and the CAP. Rural development measures and
other accompanying measures that Member States offer as part of
their respective Rural Development Plans are co-financed by the
European Agricultural Guidance and Guarantee Fund (EAGGF)
Guidance section and the EAGGF Guarantee section.
1.2.20 According to the International Centre for Advanced Mediterranean
Agronomic (CIHEAM, 2001) report on agriculture and the EU - Malta’s
Accession to the EU: Challenges and Opportunities for a Small-Scale
Multifunctional Agriculture - the main principles of the EU RDP are:
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“the multifunctionality of agriculture, based on the preservation
of rural areas and natural resources;
the multi-sectorality of agriculture, based on the differentiation of
income sources of farmers and the rural population; and
implementation of agricultural and non-agricultural integrated
strategies and programmes for rural areas”.
1.2.21 The aim of the EU RDP is to achieve sustainable agriculture and the
diversification of the rural economy, while ensuring the protection of
rural assets. Various objectives included as part of the rural
development initiatives are highlighted below:
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farm investment and management;
environmental planning within farm management;
improvement of animal welfare standards;
management of water irrigation;
improvement of rural infrastructure;
maintenance and preservation of traditional agricultural systems;
promotion of environmentally compatible agricultural techniques;
promotion of organic farming;
6
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compensation for Less Favoured Areas and Environmental
Sensitive Areas;
integration between agricultural and non-agricultural activities in
rural areas;
promotion of rural tourism and agriculture tourism;
direct sale of typical products produced on the farm;
protection of the rural environment, including cultural features,
natural habitats and landscape;
regeneration of degraded ecological areas; and
conservation of the traditional characteristics of agricultural land.
1.2.22 Chapter 5 examines the Government’s emerging policy on agriculture
and rural development and analyses the potential land use implications
resulting from measures adopted under the Rural Development Plan
for the Maltese Islands.
1.3 Limitations of the Study
1.3.1 Most of the principles advocated by the CAP are innovative to the local
agriculture industry. Therefore, the land use implications of the Rural
Development Plan for the Maltese Islands on the local countryside
remain uncertain at this stage; the generalised conclusions in Chapter
5, section 5.9, will require revision once the Government’s new policy
on agriculture and rural development has been implemented.
1.3.2 There have been no local initiatives to implement the principles of the
ESDP, and there has been no attempt to integrate those national
initiatives having a spatial impact within the common framework of the
ESDP. This has resulted in lack of analysis on this matter.
1.3.3 Analysis of decided planning applications in rural areas was
undertaken for the period from 1994 to 2000. Digitised data on
planning applications that were decided before 1994 was unavailable.
1.3.4 Although, the Structure Plan aims to safeguard areas of agricultural
value, information on the quality of agricultural land in the Maltese
Islands is lacking. Therefore, analysis with respect to damage caused
to good quality agricultural land is hindered.
7
1.4 Structure of the Topic Paper
1.4.1 This Topic Paper is subdivided into eight chapters:
Chapter 1
This chapter introduces the Topic Paper and identifies
the Structure Plan strategy for the countryside; the
context for development in rural areas at the European
Union level is outlined.
Chapter 2
This chapter examines the various land uses present in
the countryside.
Chapter 3
This chapter examines general trends in urban sprawl
and determines whether urban sprawl continued to occur
after adoption of the Structure Plan in 1992.
Chapter 4
This chapter examines the various types of development
pressures within settlements outside the development
zone; the socio-economic factors that depend on the
rearrangement of land uses within such settlements are
also examined.
Chapter 5
The agriculture sector has recently experienced major
changes, with a consequent change in the development
needs of this sector and in the types of land use issues.
This chapter examines these changes and analyses the
contemporary issues with respect to the 1990 Structure
Plan rural strategy and the emerging Rural Development
Plan for the Maltese Islands.
Chapter 6
The popularity of countryside recreation increased
amongst locals and tourists. The chapter identifies the
various types of countryside recreation activities within a
spatial context. The possible conflicts between such
activities are also examined, and the possible threats
imposed by other uses or activities in rural areas are
highlighted.
Chapter 7
The chapter on rural conservation reviews the diversity of
the natural and man-made heritage in the countryside.
The suitability of the current rural conservation approach
is examined together with the impact of the various land
uses on the rural heritage.
Chapter 8
The key land use issues in rural areas are identified, and
the suitability of the current strategy in addressing
contemporary issues is assessed; this provides the basis
for the Structure Plan review.
8
1.4.2 These chapters aim to provide an understanding of the current
situation in rural areas, whilst examining the suitability of the current
Structure Plan strategy. This analysis also provides the basis for the
formulation of a rural strategy and strategic land use policies for rural
areas.
Sources of Information
Data and Maps
1.4.3 Development control data on planning applications provided useful
input for the analysis of development pressures, and land use changes
in rural areas. Such data analysis provided the necessary information
on the emerging issues and land use activities in the countryside. The
1988 Temporary Provision Scheme boundaries, the cartographic
information available at the Mapping Unit and the Malta Environment
and Planning Authority’s Geographic Information System (GIS) were
the main tools used for the spatial analysis of past and emerging
issues. Other data was gathered from documents published by the
National Statistics Office and through consultation with other
Government Departments and agencies.
1.4.4 Maps showing the spatial distribution of various land uses are found in
Volume 2 of this study for cross-reference purposes; maps in Volume 2
support text in Volume 1 of the Rural Strategy Topic Paper. Most
spatial analysis, management of data and maps provided in this study
relate to the following administrative boundaries (refer to figures 1 and
2):
•
•
•
the Malta Environment and Planning Authority’s Local Plan
areas;
the National Statistics Office NUTS regions and districts; and
Local Council boundaries.
Literature Review
1.4.5 Literature on the Maltese countryside is extremely limited; however, it
was important to take into account literature on specific subjects when
addressing particular chapters, like that on agriculture. The various
reports of surveys prepared for the current Structure Plan and other
literature on European spatial planning were essential sources for the
compilation of this paper. Government information and published data
were also good sources of information. Other data and information
were obtained from internal documentation being prepared in other
sectoral Topic Papers and the emerging Local Plans.
9
Consultations
1.4.6 A Rural Strategy Working Group (RSWG) was set up to discuss
various emerging issues in the countryside. Government Departments,
various agricultural and farming co-operatives and non-Governmental
organisations participated in the consultation process. The contribution
of the Working Group in preparation of the Topic Paper was significant,
as members highlighted various socio-economic problems in rural
areas, raised environmental concerns and identified conflicts between
activities occurring in the countryside. Appendix C lists the members of
this Working Group.
1.5 Definition of Rural Areas
1.5.1 The key differences between urban and rural may be expressed in
terms of the different types of land uses occurring within a defined
spatial context. Agriculture, low population densities and natural
resources are typical of rural areas; urban areas are more associated
with large settlements where people live and work, where the density
of population and buildings is high and the amount of open natural
space is low. However, the distinction between urban and rural is not
always clear, as “all areas fall on a continuum from very rural to very
urban” (Blunden and Curry, 1988).
1.5.2 The urban fringe is that transitional area between the ‘very urban’ and
the ‘very rural’, and includes elements from both extremes and may be
partly in the countryside but for the most part it fulfils functions directly
related to urban areas.
1.5.3 The Structure Plan earmarked specific areas for urban development.
Such areas represent the ‘urban’, which is broadly defined as the
development zone, while areas where agriculture, countryside
recreation and nature conservation are practiced, represents the ‘rural’.
Consequently, rural areas refer to land outside the development
zone (refer to figure 3). The total area of the Maltese Islands is
approximately 316 sq km and is divided as follows:
•
•
78 per cent (or 247 sq km) are areas outside the development
zone (ODZ); and
22 per cent (or 69 sq km) are areas within the development
zone.
1.5.4 The impact of urban sprawl in past decades has influenced the extent
of urban fringes. Urban fringe areas vary from one location to another
due to their diverse characteristics. Some vacant land within the limits
to development is still used for agricultural purposes, but cannot be
considered as rural as it has been earmarked for future urban
10
development. Similarly, some types of urban uses exist in areas
outside the development zone.
1.5.5 Four large built up areas are located ODZ (refer to figure 3): the
international airport, Mtarfa residential area, Luqa Estate and Mosta
Techno Park. These areas cannot be termed “rural” or “countryside”.
For the purposes of this study, these areas were excluded from the
definition of rural areas and statistical data regarding areas ODZ.
1.5.6 The Structure Plan review process defines three study areas: coastal
areas, urban areas and rural areas. Areas outside the development
zone in coastal areas were addressed in the Coastal Strategy Topic
Paper. Consequently, this Topic Paper deals with the inland
countryside, as shown in figure 4.
1.5.7 As shown in table 1, the total area of the inland countryside is 192 sq
km; inland countryside accounts for 78 per cent of the total areas ODZ
(a total of 247 sq km). Therefore, only 22 per cent of the areas ODZ
are located within the coastal zone boundary.
TABLE 1: TOTAL AREA OF THE INLAND AND COASTAL RURAL AREAS
Island
Areas Outside the
Development Zone
(ODZ)
(sq km)
Inland Rural
Areas
(sq km)
Coastal Rural
Areas
(sq km)
Malta
186
153
33
Gozo
58
39
19
Comino
3
0
3
Total
247
192
55
Source: Malta Environment and Planning Authority (2002)
Percentage
of Inland
Rural Areas
from ODZ (%)
82
67
0
78
1.5.8 Figure 4 and table 2 show that most of the countryside is located within
the North West Local Plan area, which is partly due to the extensive
land area covered by this Local Plan. The northwestern areas of Malta
are also the most distant areas from the island’s conurbation;
consequently, the influence of the main urban centres, the main
employment centre and the main transport facilities on the
northwestern areas is lower than in other areas close to the
conurbation.
1.5.9 Urban growth in the northeast of Malta led to the coalescence of
expanding towns and villages, creating the islands’ major conurbation.
The North Harbours Local Plan and the Grand Harbour Local Plan
areas have the least amount of rural land (see table 2), since most of
these areas are urbanised (refer to figure 4).
11
TABLE 2: DISTRIBUTION OF RURAL AREAS BY LOCAL PLAN BOUNDARIES
Local Plan Area
Area of Local Plan
(sq km)
Inland
Rural Areas
(sq km)
Percentage of
Inland Rural Areas
of the Total Area
covered by Local
Plans
MALTA
North West
South Malta
Central Malta
Marsaxlokk Bay
North Harbours
Grand Harbour
Total
115
61
33
15
15
8
247
83
40
18
8
3
1
153
72
66
55
53
20
13
62
GOZO
Gozo and Comino
Total
GRAND TOTAL
69
69
316
39
39
192
57
57
Source: Malta Environment and Planning Authority (2002)
12
2. The Countryside of the Maltese Islands
2.0.1 This chapter reviews the various land uses and resources present in
the Maltese countryside; the following chapters examine the
relationship between these land uses in greater detail.
2.0.2 The countryside is mainly characterised by two types of land uses:
•
The natural environment: this includes agricultural land and
natural habitats.
•
The built environment and quarries: this includes urban uses,
heritage, agricultural structures and public utilities. Quarries
provide the necessary construction materials for the building and
maintenance of structures.
2.0.3 This chapter also discusses the main employment activities in rural
areas with respect to the rural economy.
2.1 The Natural Environment
2.1.1 The natural environment is characterised by the following:
•
•
•
habitats;
geology, geomorphology and hydrology; and
soils and agricultural land.
2.1.2 The individual sites of natural habitats do not follow administrative
boundaries, like the boundaries of the inland rural areas and coastal
zone. Therefore, data shown in this section represents information
regarding the natural environment present within the Maltese Islands.
Habitats
2.1.3 The main types of natural habitats consist of woodlands (including
afforested areas), maquis, garigue and steppe:
•
•
Woodlands are either established woodland communities or
artificial woodlands. Woodland communities are extremely rare
in the Maltese Islands and are recorded in four main localities: IlBallut tal-Wardija, Il-Ballut ta’ L-Imgiebah, Wied Hazrun and IlBosk.
Maquis communities are characterised by small trees and large
shrubs; some communities may result from the degradation of
woodlands.
13
•
•
Garigue communities are characterised by a variety of low
aromatic shrubs. Garigue communities are adapted to surviving
on expanses of limestone bearing numerous depressions and
fissures.
Steppe communities may result from the degradation of maquis
and garigue communities and are very widespread in the
Maltese Islands. Some natural steppes also occur on clay
slopes and abandoned agricultural fields.
2.1.4 Other significant types of habitats in the Maltese Islands are beaches
and sand dunes, bare zones, watercourse vegetation, boulder screes,
cliffs, wetlands and clay slopes. Figure 5 illustrates the different habitat
types listed above.
2.1.5 Watercourses, present along the dry valleys, are the commonest type
of freshwater habitat in the Maltese Islands and support a characteristic
vegetation community and a rich fauna. Some watercourses may also
retain surface water during the dry season.
2.1.6 Figure 5 and table 3 show that the amount of land area covered with
natural habitats in the Island of Malta is limited; only 19 per cent of the
Island of Malta is covered by natural habitats (refer to table 3). [Data
showing the natural habitats of Gozo is currently being digitised in GIS
format; consequently, the natural habitats of Gozo are not represented
in figure 5 and table 3.] The remaining parts of the Islands consist of
agricultural land, quarries, roads and built up areas: most natural
habitats were replaced by other land uses to meet the socio-economic
needs of the Maltese population.
14
TABLE 3: DISTRIBUTION OF NATURAL HABITATS IN THE ISLAND OF MALTA
Categories of Natural Habitats
Total Area
covered by
Natural Habitats
in Malta (sq km)
Percentage of
Natural Habitats
by each Category
Area covered by
Natural Habitats as a
Percentage of Total
Land Area of Malta
Garigue (including Rocky Steppe
and Maritime Garigue)
24.0
51.3%
9.72%
Disturbed Ground (including
disturbed Steppe)*
8.0
17.1%
3.24%
Woodland (including Afforested
Areas)
3.7
7.9%
1.50%
Cliffs (including Boulder Screes)
2.8
6.0%
1.13%
Steppe
2.2
4.7%
0.89%
Maquis
1.9
4.1%
0.77%
Clay Slopes/Areas
1.9
4.1%
0.77%
Bare Zone
0.2
0.4%
0.08%
Wetland (including Salt Marshes,
Salt Water Lagoons, transitional
Coastal Wetland and Temporary
Pools)
0.2
0.4%
0.08%
Beaches (including Sand Dunes)
0.1
0.2%
0.04%
Watercourse Vegetation
1.8
3.8%
0.73%
Total
46.8
100%
18.95%
Source: Malta Environment and Planning Authority (2002)
* Disturbed ground refers to land that once was natural but eventually became disturbed through human
intervention, and include areas covered with fly-tipping, areas subjected to heavy and continuous trampling
and bulldozed areas.
2.1.7 Data represented in figure 5 and table 3 requires revision once the
Habitats Map of the Maltese Islands is finalised.
2.1.8 Although the largest concentration of natural habitats is located in the
northwest of Malta, natural habitats tend to be fragmented (refer to
figure 5). Fragmentation of natural habitats results through construction
of roads and buildings, together with their ancillary facilities, and
cultivation of fields. Consequently, natural habitats are more prone to
damage resulting from development or other human activity;
fragmentation of natural habitats constrains the application of suitable
measures for their protection and management.
2.1.9 Only few distinct areas characterised by natural habitats are connected
with each other: this hinders enhancement and natural regeneration of
natural habitats. On the other hand, traditional rubble walls surrounding
agricultural fields provide limited connection between distinct natural
habitats, as rubble walls built in traditional methods and materials
afford a habitat for flora and fauna.
2.1.10 As a consequence of the impacts that resulted through urbanisation
processes, few natural habitats are located in the northeastern and
southern parts of Malta. Nevertheless, even areas within the
15
development zone may include elements of natural and scientific
interest that require protection.
2.1.11 The natural habitats of the Maltese Islands are characterised by low
vegetation communities. Table 3 shows that:
•
•
around 56 per cent of the total area of natural habitats in Malta
consist of garigue and steppe; and
only 12 per cent of the total area of natural habitats in Malta
consist of woodland (including afforested areas) and maquis.
2.1.12 Furthermore, 17 per cent of the total area of natural habitats in Malta
are now classified as disturbed ground; this shows that various natural
areas in the countryside have been degraded through excavations,
intensive trampling and bulldozing or covered with fly-tipping.
Geology, Geomorphology and Hydrology
2.1.13 The islands of Malta and Gozo are tilted seawards to the northeast
(refer to figure 6) where the largest urbanised area was developed.
There are two main geological faults in the Maltese Islands: a
predominant one running NE-SW and a smaller one running NW-SE.
The Maltese Islands are characterised by a large number of dry valleys
or widien that are formed by stream erosion or by tectonic movements.
2.1.14 There are five main types of rock that can be observed as separate
layers:
•
•
•
•
•
lower coralline limestone;
globigerina limestone;
blue clay;
green sand; and
upper coralline limestone.
2.1.15 The geomorphology of the Maltese Islands was formed by the
combination of two geological processes: rock erosion (due to climatic
factors) and tectonic movements. The different types of rock erode at
different rates, resulting in different topographic features:
•
•
Lower and upper coralline limestone layers form sheer cliffs
along the coast and inland karstland plateaux (terrain typical of
limestone country with an uneven surface and holes due to
weathering).
Upper coralline limestone formations include the inland cliffs
(rdum) surrounded by boulder screes. Due to their relative
inaccessibility and the shelter they provide, sea-cliffs, inland
cliffs and boulder screes provide a very important habitat for a
variety of endemic and rare species.
16
•
•
Globigerina limestone forms broad gently sloping coastal
platforms.
Blue clay gives rise to clay slopes when exposed.
2.1.16 The geological features of the Maltese Islands are of economic
significance, in terms of quarrying for mineral extraction. The quality
and location of quarry activities are determined by the distribution of
the different types of geological formations. Quarries often replace
natural habitats or agricultural land, with the consequent negative
economic and environmental impacts.
2.1.17 Freshwater resources in the Maltese Islands are scarce and depend
entirely on rainfall, which is unpredictable and insufficient. Rainwater
percolates through the porous limestone rock, and accumulates in
aquifers. The largest aquifer is the Mean Sea-level aquifer (refer to
figure 7) that consists of freshwater floating on denser saline water (in
limestone rock) at sea level.
2.1.18 Perched aquifers (refer to figure 7) consist of rainwater trapped in
permeable upper coralline limestone, and may give rise to High Level
Springs. Water from these springs drains into some widien
watercourses, flowing along the valley beds only during the wet
season; nevertheless, certain watercourses persist throughout the
whole year.
2.1.19 The aquifers are the Islands’ primary sources of water, particularly with
respect to agriculture. The quality of underground water affects the
quality of potable water and agriculture produce; the soil structure and
the productivity of agricultural land are also influenced by the quality of
irrigation water, since irrigation with saline water may increase the rate
of soil erosion.
Soils
2.1.20 The Maltese Islands are characterised by three main types of soil that
share some characteristics including:
•
•
•
•
“their similarity to the parent rock material;
their relatively young age;
the ineffectiveness of the climate in producing soil horizon
development; and
the great importance of human activities in modifying them”.
2.1.21 The three main types of soil (refer to figure 8) are:
•
Terra soils (Red Mediterranean soils): Relic soils formed
during the Pleistocene period and found mainly on lower and
upper coralline limestone; these are mature and highly
17
weathered soils that have a low calcium carbonate and organic
matter content.
•
Xerorendzinas: Immature soils with high calcium carbonate
content, and low in organic matter. These soils develop mainly
on weathered Globigerina Limestone and on valley deposits.
•
Carbonate Raw Soils: Immature soils having very high calcium
carbonate content, but very low organic matter content. These
soils develop on:
i. “Weathered Quaternary calcareous sandstones;
ii. Weathered Greensand and the lower beds of the Upper
Coralline Limestone;
iii. Weathered calcareous Blue Clay; and
iv. Globigerina Limestone alluvium and colluvium”.
2.1.22 There are also other artificial soil complexes resulting from the addition
of rock debris to the soil, the mixture of domestic waste with soils and
the mixture of different soils.
2.1.23 Soil structure influences the quality and value of agricultural land, and
as a result, the social and economic benefits that farmers can derive
from their holdings. Soil depth influences both the types of crops that
can be cultivated, and the type of natural habitats that may be
established; soil structure and quality has a consequent impact on the
landscape.
Agricultural Land
2.1.24 According to the National Statistics Office (2001), the amount of
registered agricultural land in the Maltese Islands is 10,738 hectares,
or 34 per cent of the Maltese territory. The National Statistics Office
(2001) classifies agricultural land under the following categories:
•
•
•
dry-farmed land (raba baghli), which is land that depends
exclusively on rainwater for irrigation;
irrigated land (raba saqwi ), which is land that is irrigated by
water from sources other than rainwater; and
unutilised/garigue, which is a term used to describe all land
registered with the Department of Agriculture, that is not
agriculturally productive.
2.1.25 The distribution of the total registered agricultural land (i.e. 10,738 ha)
is shown in table 4 and figure 9. Around 77 per cent of the total
registered agricultural land (a total of 10,738 ha) is categorised as dryfarmed land; only 11 per cent of the total registered agricultural land is
irrigated.
18
TABLE 4: DISTRIBUTION OF AGRICULTURAL LAND (ha) BY NSO DISTRICTS
NSO Districts
Dry
Land
Irrigated
Land
Unutilised
/Garigue
Land
Total
Percentage of
Total Agricultural
Land
Western District
2728
301
496
3525
33%
Northern District
1826
415
357
2597
24%
South Eastern
District
1580
140
241
1961
18%
Gozo and
Comino District
1505
88
190
1782
17%
Southern
Harbour District
360
121
43
524
5%
Northern
Harbour District
242
79
29
350
3%
8241
1144
1356
10738
100%
Total
Source: National Statistics Office (News Release No. 35, 2001)
2.1.26 The Southern Harbour and the Northern Harbour districts have the
least amount of registered agricultural land (refer to table 4), as most of
these territories are urbanised. 57 per cent of the total registered
agricultural land is located in the Western and Northern Districts.
Furthermore, 63 per cent of the total irrigated land is also located in the
Western and Northern Districts. The latter districts are those least
affected by the p rocess of urbanisation.
2.1.27 The statistical districts (Nomenclature of Territorial Units for Statistics NUTS) adopted by the National Statistics Office do not match the Malta
Environment and Planning Authority’s Local Plan areas (refer to figure
1); this has complicated the compilation and analysis of data according
to the Local Plan areas. The National Statistics Office provides data on
agricultural land, organised according to Local Council boundaries
(refer to figure 9). Although some Local Council territories form part of
different Local Plan areas (refer to figure 2), it is still clear that the
North West Local Plan area includes most of the agricultural land in the
Maltese Islands, this being partly due to the extensive land area of this
Local Plan and since most urbanised areas are located towards the
northeastern parts of Malta (refer to figure 9).
19
2.2 The Built Rural Environment and Quarrying
2.2.1 This section reviews the built up areas in the countryside, the built
heritage and quarries.
Built Up Areas in the Countryside
2.2.2 The main types of built up areas present in rural areas (refer to figure
10) consist of the following:
•
•
•
•
•
•
•
social and community facilities;
animal farm buildings;
commercial/industrial sites;
public utilities and services;
settlements ODZ;
formal sports and recreational facilities; and
tourism development.
2.2.3 Built up areas in the countryside occupy a land area of around 6.6 sq
km, which is equivalent to about 3 per cent of the countryside (refer to
table 5). The larger built up areas in the countryside are used for
residential and industrial/commercial development, and cover a total
land area of approximately 3.4 sq km.
TABLE 5: DISTRIBUTION OF BUILT UP AREAS IN THE COUNTRYSIDE BY 1998
Types of Built Up Areas
(excluding quarries)
Land Area
(sq km)
Percentage of
Inland Rural Area
(192 sq km)
Animal farm buildings
1.0
0.5
Settlements ODZ
1.5
0.8
Tourism development
0.2
0.1
Commercial/industrial uses
1.9
0.9
Formal sports and recreation facilities
0.6
0.3
Social and community facilities
0.5
0.3
Public utilities and services
0.9
0.5
Total
6.6
3.4%
Source: Malta Environment and Planning Authority (Aerial Photography, 1998)
2.2.4 Most of the built up areas in the countryside are located in the vicinity
of Malta’s conurbation (refer to figure 10), and include:
•
•
industrial uses;
settlements ODZ;
20
•
•
•
•
social and community facilities (including the Addolorata
cemetery, Tal-Qroqq hospital and schools);
public utilities and services;
animal farm buildings; and
sports and recreation facilities.
2.2.5 Although most industrial sites in rural areas are located in the vicinity of
the conurbation, others are located on the periphery of established
industrial estates such as Hal Far and Xewkija (Gozo).
2.2.6 Public utilities associated with waste management, like the Maghtab
landfill and the Sant Antnin Sewage Treatment Plant (recycling plant)
are distant from urban areas, but are still situated along the main road
network.
2.2.7 The main formal sports and recreational facilities are located in the
Marsa sports ground, the Ta’Qali National Recreation Centre and
Xewkija in Gozo. Other smaller scale facilities, like football grounds and
pitches are located on the periphery of other urban areas.
2.2.8 Most tourism projects present in rural areas are located towards the
north of Malta, and border the coastal zone boundary (as described in
the Coastal Strategy Topic Paper), with the exception of one hotel that
is located in the open countryside in Gozo.
2.2.9 Settlements ODZ and animal farm buildings dominate the rural areas
towards the northwest and southeast of Malta, and Gozo.
2.2.10 Certain types of developments, like farm buildings, need to be
accommodated in rural areas. However, figure 10 shows that the
countryside is characterised by various types of development that do
not require a rural setting.
The Built Heritage
2.2.11 The character of the Maltese countryside is influenced by a number of
buildings and structures that form part of the built heritage (refer to
figure 11). The main built heritage present in rural areas could be
classified as follows:
•
•
•
archaeological features, monuments and sites;
old rural buildings, structures and features that reflect the socioeconomic background of past agrarian societies; and
military structures that represent the development of national
defence in the Maltese Islands.
2.2.12 The Structure Plan Report of Survey No 5.1 (1990) recognised that the
Maltese archaeological heritage is one of the most important in the
21
whole Mediterranean region. The most common archaeological
heritage identified in the countryside include:
•
•
•
•
•
•
•
•
•
ancient quarries;
cart ruts;
tombs;
catacombs;
caves;
dolmen;
megaliths;
silos; and
archaeological remains.
2.2.13 Old farmhouses and other old rural structures (such as the girna and
the hitan tas-sejjieh – rubble walls) reflect the way of life of past
agrarian societies. Together with their associated network of rubble
walls, farmhouses form an essential part of the Maltese rural
landscape, and are unique examples of vernacular architecture.
2.2.14 Other buildings encountered in the Maltese countryside are country
houses, some of which date back to the 1700s. These were originally
fortified (as required by their turbulent historic context), and had the
external appearance of towers.
2.2.15 “Religious buildings are spread everywhere in the rural areas”
(Structure Plan Report of Survey No 5.1, 1990); these include various
significant features like niches and wayside chapels; the latter include
fine medieval exemplars like the Sta. Maria church in Bir Miftuh and the
Annunciation at Hal Millieri.
2.2.16 The military heritage present in rural areas reflects the different
architectural styles of the various historic periods, particularly those of
the Hospitallier Knights of St. John and the British. Although most of
the fortifications and military structures are located in urban areas and
the coast, some are situated inland: these include the Victoria Lines,
forts, pillboxes and batteries. The Victoria Lines were built along the
main geological fault, to provide additional military defence to the west
and south of the main Island.
2.2.17 The rural heritage and the surrounding rural landscape are social and
economic assets, as they provide the setting that enhances the
enjoyment of the countryside. Their contribution with respect to
countryside recreation is significant.
Quarries
2.2.18 There are two types of quarrying activities: soft stone quarries covering
an area of 1.2 sq km, and hard stone quarries covering an area of 1.4
sq km. According to the Minerals Subject Plan (2002), the total area
22
covered by quarries is approximately 1 per cent of the Maltese territory
(2.6 sq km). The main locations of quarries (refer to figure 10) are San
Lawrenz in Gozo, and Mqabba and Siggiewi in Malta. Most of the
quarries in Gozo are located within the coastal zone boundary.
2.2.19 The construction of buildings, both rural and urban, requires materials
extracted from quarries. However, quarries and their associated
mineral extraction processes damage the natural environment, the built
heritage and contribute substantially to the loss of countryside.
Residential areas in the vicinity are also impacted.
2.3 Employment in the Rural Economy
2.3.1 The countryside is an economic asset. The main economic activities
that require the countryside’s resources for production are agriculture
and quarrying. Agriculture is discussed in greater detail in chapter 5.
2.3.2 Although agriculture is a major land use in the Maltese Islands, the
contribution of agriculture and fisheries to the local economy from 1995
to 1999 was only about 2.5 to 3 per cent per annum. The annual
contribution of the construction industry and quarrying to the local
economy from 1995 to 1999 was between 2.5 and 3.5 per cent (refer to
table 6).
TABLE 6: PERCENTAGE
PRODUCT (GDP)
CONTRIBUTION
TO
THE
GROSS
DOMESTIC
Different Sectors of the Economy
1995
1996
1997
1998
1999
Agriculture & Fisheries
2.87
2.91
2.91
2.72
2.54
Construction and Quarrying
3.57
3.39
3.32
3.01
2.56
24.36
23.56
22.46
22.65
22.82
6.64
6.43
6.42
6.33
6.52
13.33
12.62
12.08
11.36
11.19
7.37
8.41
8.55
8.09
8.07
Manufacturing
Transport & Telecommunication
Wholesale & Retail Trade
Insurance, Banking & Real Estate
Government Enterprises
6.14
5.61
7.04
7.82
8.07
16.63
17.33
16.25
15.55
15.25
Property Income
9.09
9.61
10.51
11.26
11.36
Private Services
10.00
10.11
10.46
11.21
11.63
Total
100%
100%
100%
100%
100%
Public Administration
Source: Central Office of Statistics (2000)
2.3.3 Although the direct contribution of these sectors is modest, agriculture
and quarrying are still of great importance. Quarrying provides stones
and aggregates for the construction and maintenance of buildings, and
23
provides a service to other social and economic activities. The
agriculture sector contributes to:
•
•
•
•
•
local production of food;
the food manufacturing industry;
creation of a diverse rural character;
countryside recreation and tourism; and
retention of an open environment.
2.3.4 Employment resulting from rural economic activities tends to be
associated with agriculture and quarrying. According to the National
Statistics Office (2001), the total number of registered farmers in 2001
was 11,400, while the total number of persons employed in quarrying
was around 800 (Minerals Subject Plan, 2001). However, 91 per cent
of the total registered farmers are in part time employment, while only
974 are full timers.
2.3.5 63 per cent of the total registered full time farmers are located in the
Western and Northern districts (refer to chapter 5); this follows the
distribution of agricultural land in the Maltese Islands (refer to table 4).
Around 80 per cent of the full time farmers and 90 per cent of the part
time farmers are over 40 years of age.
2.4 Summary
2.4.1 Only a small proportion of the Maltese Islands are covered by natural
habitats (including afforested areas). Most habitats are characterised
by low vegetation communities, including watercourse vegetation. The
remaining areas of the countryside consist of agricultural land, quarries
and built up areas; most of the built up areas in the countryside consist
of urban development. Various natural areas have been degraded
through excavations, intensive trampling and bulldozing or covered
with fly-tipping.
2.4.2 Although, the largest concentration of natural habitats is located in the
northwest of Malta, areas within the development zone may include
elements of natural and scientific interest.
2.4.3 Natural habitats tend to be fragmented due to development and
cultivation of fields; fragmentation increases the potential degradation
of natural habitats. Traditional rubble walls provide limited connection
between separate natural habitats.
2.4.4 The contribution of agriculture to the local economy is modest, only a
small proportion of agricultural land is categorised as irrigated land and
most farmers are in part time employment. Nevertheless, agriculture
contributes to the local production of food and the local rural character.
The rural landscape is characterised by agricultural land, as agriculture
24
covers a significant part of the Maltese Islands. Most agricultural land is
located towards the northwest of Malta; most of the northeastern parts
of Malta are urbanised.
2.4.5 The aquifers are the Islands’ main water resources; given the scarcity
of freshwater resources and the unpredictable and insufficient rainfall,
the aquifers are of national importance. The quality of underground
water influences both the quality of potable water and quality of
irrigation water. The availability of water resources for irrigation
purposes, and the quality and depth of soils in agricultural fields
influence the quality of agricultural produce; this has a socio-economic
consequence on the farming communities, the population and the
landscape.
2.4.6 The geomorphology of the Maltese Islands resulted in various
topographic features that contribute to the diversity of the rural
landscape. Certain geological strata are significant in terms of mineral
resources. Quarrying is the most common type of mineral extraction
activity in the Maltese islands.
2.4.7
Quarries cover an area of 2.6 sq km. The contribution of quarrying to
the local economy is modest, and provides employment to around 800
persons. Furthermore, it provides raw material for the construction
industry. However, quarries also have a negative economic, social and
environmental impact, particularly through damage to agricultural land
and wildlife.
2.4.8
6.6 sq km of the countryside consists of built up areas. rural areas
towards the northeast of Malta are characterised by a mixture of urban
uses, animal farm buildings, settlements ODZ and public services.
Rural areas towards the northwest and southeast of Malta, and Go zo
are characterised by farm buildings and settlements ODZ.
2.4.9
Built heritage is a significant component of the Maltese countryside,
and includes archaeological and military features, ancient quarries,
tombs and caves, dolmens and megaliths. Farmhouses, country
houses, old agricultural structures and rubble walls also form part of
the rural heritage and are essential elements of the local rural
character.
2.4.10 The built heritage and the surrounding natural setting, contribute to the
diversity of the landscape. Given their contribution with respect to
enjoyment of the countryside, the rural heritage is a social and
economic asset.
2.4.11 This chapter outlined the various land uses and resources present in
the Maltese countryside. The following chapters examine the
relationship between development, activities and resources within the
local rural context, to identify the main land use issues for the Structure
Plan review.
25
3. Urban Sprawl
3.0.1 Urban sprawl may be defined as the spread of urbanisation into the
countryside from designated urban areas. Paragraph 7.6 of the
Structure Plan defines urbanisation as “the creation of new built up
areas containing all or most urban uses: houses, shops, offices,
factories, and all the built support facilities which these accumulate”.
3.0.2 The Structure Plan identifies urban sprawl as a key concern in the
Maltese Islands. The problems associated with urban sprawl are:
•
•
•
•
degradation of the quality of the countryside and the
environment;
an increase in the levels of transport;
an increase in energy consumption; and
an increase in the costs of infrastructure and services.
(European Commission, 1999)
3.0.3 The Structure Plan aims to contain urban growth within existing and
planned urban areas, as identified in the Temporary Provision
Schemes (TPS) of 1988 and the Primary Development Areas. The
main purpose of this chapter is to examine the extent to which the
Structure Plan succeeded in prohibiting urban sprawl after its adoption
in 1992.
3.0.4 To examine and understand the pressures of urbanisation in the
countryside in the past years, the following analyses are required:
•
•
•
a review of the history and patterns of growth of urban
settlements in the Maltese Islands by 1989;
the determination of the present extent and spatial distribution of
urban development in rural areas; and
analysis of the factors leading to further urban development in
rural areas.
3.0.5 The findings from the Public Attitude Survey (PAS), published in 2000,
indicate that the current Structure Plan’s strategy to tackle urban
sprawl is supported b y the PAS respondents:
•
•
•
74 per cent of the respondents ‘agreed’ and ‘strongly agreed’
that “Malta is too built up”;
55 per cent of the respondents ‘disagreed’ and ‘strongly
disagreed’ that “Gozo should be built up further”;
72 per cent of the respondents did ‘not agree’ and ‘strongly
disagreed’ that “some building permits should be granted
outside development boundaries (schemes)”; and
26
•
66 per cent of the respondents ‘agreed’ and ‘strongly agreed’
that, “there should be penalties on vacant buildings to
encourage their use”.
Limitation to Analysis
3.0.6 The examination of urban development in rural areas over the past
years is based on information related to development planning
applications. The analysis is based on data collected during the period
starting from 1994 to 2000. Reliable data on development planning
applications prior to 1994 is not available in digital format.
3.1 The Growth of Urban Settlements before
Adoption of the Structure Plan
3.1.1 Over the span of the last few decades, the transition from a
predominantly agrarian society to an urbanised community has
resulted in a drastic change in land use patterns. The change in
emphasis from agriculture to urban-based industries is reflected in the
growth of urban settlements in the Maltese Islands from 1910 to 1989,
as illustrated in figure 12.
FIGURE 12: THE GROWTH OF URBAN SETTLEMENTS IN THE MALTESE ISLANDS IN
THE MALTESE ISLANDS FROM 1910 TO 1989
27
Source: Malta Structure Plan Report of Survey Volume 1 (1990)
3.1.2 The most substantial growth of urban settlements occurred between
1968 and 1984, most of the growth being concentrated in the northeast
of Malta, around the harbour area. Although most localities in the
northwest of Malta, and in Gozo, retained their local urban identities,
the growth in the northeast of Malta led to the coalescence of
expanding urban areas, creating a conurbation (refer to figure 13). The
consequence of this was the loss of open countryside, damage to
natural habitats and loss of urban identities.
3.1.3 Figure 14 illustrates the settlement patterns of the Maltese Islands in
1988 in greater detail, showing the built up areas at the time of
preparation of the current Structure Plan; figure 10 shows the
distribution of the main built up areas in the countryside by 1998, as
identified from the 1998 aerial photography. The spatial examination of
the built up areas established by 1988 shows that the conurbation is
located within the development zone of the following Local Plan areas:
•
•
•
•
North Harbours Local Plan
Grand Harbour Local Plan
Central Malta Local Plan
South Malta Local Plan
3.1.4 The pressure for urban growth may be attributed to:
•
•
the general trend of depopulation from the Inner Harbour area to
areas surrounding the Grand Harbour and Marsamxett Harbour;
and
the need to zone undeveloped land for economic development.
3.1.5 The trend towards depopulation of the Inner Harbour area was the
result of changing lifestyles, the decreasing popularity of congested
urban areas, and the increase in car ownership. The change in Maltese
28
popula tion density from 1931 to 1995 is illustrated in figure 15,
according to Local Council boundaries; population migration and other
socio-economic pressures determined the spatial pattern of urban
growth that occurred in the northeast of Malta.
3.1.6 Economic pressures resulted in increased urban growth, as land was
required for industrial estates, and new retail and commercial activities.
Most of the areas earmarked by the Temporary Provision Schemes
(1988) for further industrial development were located on the periphery
of the conurbation; however, most areas consisted of undeveloped
land.
3.2 Containment of Urbanisation after Adoption of
the Structure Plan
3.2.1 The Structure Plan emphasises the need to prohibit urban
development outside the development zone. However, the Structure
Plan also recognises new residential farmhouses for full time
farmers/breeders and obnoxious industries as legitimate uses outside
the development zone (refer to Appendix A for a description of the
Structure Plan policies).
3.2.2 The Structure Plan classifies urban uses as non-legitimate in rural
areas; chapter 2 describes the various clusters of urban uses occurring
in the countryside:
•
•
settlements ODZ, with a total land area of around 1.5 sq km; and
clusters of commercial and industrial uses, with a total land area
of around 1.9 sq km.
3.2.3 Most settlements in rural areas and clusters of industrial uses in rural
areas tend to be built structures already established by 1988, before
adoption of the Structure Plan and the 1988 Temporary Provision
Schemes. This is implied by cartographic information on the built up
areas outside the development zone established by 1988, and the built
up areas as identified from the 1998 aerial photography. Nevertheless,
during the period from 1994 to 2000, various requests for new
dwellings and new industrial uses were approved outside the
development zone.
3.2.4 The following examines the extent and distribution of new dwellings
and new industrial uses approved in rural areas during the Structure
Plan period, by analysing information on approved development
planning applications in the countryside.
29
3.3 New Dwellings Approved in Rural Areas from
1994 to 2000
3.3.1 Although the Structure Plan prohibits urban development outside the
development zone, development planning applications for new
dwellings and new residential schemes in rural areas were still
submitted during the period from 1994 to 2000:
•
502 development planning applications for 829 new dwelling
units were requested in rural areas.
•
13 development planning applications for new residential
schemes in rural areas (with a total land area of around 40,474
sq m), were submitted, the number of dwelling units being
undefined.
The following is a more detailed analysis of the categories given above.
Development of New Residential Schemes in Rural Areas: No
Specification of the Number of Dwelling Units
3.3.2 Some of the 13 development planning applications for residential
schemes in rural areas were located in the vicinity of the Temporary
Provision Scheme (TPS) boundaries; others were located in the vicinity
of small settlements in rural areas (refer to table 7). None of the large
schemes were requested in the open countryside. As indicated in table
7, only 5 out of the 13 applications were approved. The total footprint
area of the approved development account for 18,586 sq m, or 46 per
cent of the total footprint area of all 13 requests (40,474 sq m).
3.3.3 The approved development planning applications were located within
the North West Local Plan, South Malta Local Plan and Central Malta
Local Plan areas. However, although 4 applications had a footprint
area of 1,000 to 1,500 sq m, 1 application having a footprint area of
around 13,500 sq m was approved within the Central Malta Local Plan
area. The latter consisted of a residential complex for the elderly.
3.3.4 2 out of the 5 approved applications for new residential schemes in
rural areas were already allocated for such use through development
permits issued previously (refer to table 7). These requests were
approved before the publication of Policy PLP 20: Development
Outside Built-Up Areas in 1995, which provided more guidance on the
types of acceptable developments in rural areas. Given that the
Structure Plan aims to channel urban development in existing and
committed urban areas, Policy PLP 20 clarified that “the existence of
previously issued development permit does not create an Existing or
Committed built-up area”. The Appeals Board approved the remaining
30
3 requests; one of which consisted of the residential complex for the
elderly (refer to table 7).
3.3.5 The above analysis indicates that requests for new residential schemes
in rural areas have been approved on the fringes of the development
zone, or on the edges of settlements ODZ, despite the Structure Plan’s
intent to direct urban development within the development zone.
TABLE 7: ANALYSIS OF PLANNING APPLICATIONS FOR RESIDENTIAL SCHEMES IN
RURAL AREAS DURING THE PERIOD FROM 1994 TO 2000
Local Plan
Areas
North West
M’Xlokk Bay
South Malta
Central
Malta
Number of
development
planning
applications
4
1
5
3
Total
Footprint
Area
(sq m)
4,213
9,572
11,560
15,128
Approved
Footprint
Area (sq m)
2,836
0
2,212
13,538
Comments
Two approved applications were
located adjacent to two
settlements ODZ: Hofret ir-Rizz
(Rabat), upheld at appeals level,
and Selmun (Mellieha). The
refused applications were
located adjacent to the TPS of
Bahrija.
The refused application was
located in the vicinity of the
Marsaxlokk TPS.
One approved application,
upheld at appeals level was
located in a settlement ODZ in
Zebbug. Another approved
application was located in the
vicinity of the Santa Lucija TPS.
Two of the refused applications
were located in the vicinity of
Luqa TPS; another refused
application was located in an
industrial area ODZ in Zebbug
(Tal-Hlas ).
The approved application,
upheld at appeals level, is
located in the vicinity of the
Naxxar TPS and is a residential
complex for old people. The
refused applications were
located in the vicinity of the
TPSs of Birkirkara and Lija.
TOTAL
13
40,474
18,586
Source: Malta Environment and Planning Authority (2002)
31
Development of New Dwelling Units in Rural Areas
3.3.6 Apart from the pressure for new residential schemes, there was also a
demand for the development of dwelling units in rural areas. During the
period from 1994 to 2000, 502 development planning applications for a
total of 829 new dwelling units in rural areas were submitted (refer to
table 8). The requested number of new dwelling units in rural areas are
distributed according to the following categories:
•
Construction of 1 or 2 dwelling units per application: 456
applications for a total of 515 dwelling units; 181 approved
dwelling units.
•
Construction of 3 or 4 dwelling units per application: 23
applications for a total of 81 dwelling units; 17 approved
dwelling units.
Construction of 5 to 10 dwelling units per application: 17
applications for a total of 116 dwelling units; 20 approved
dwelling units.
Construction of 11 to 21 dwelling units per application: 5
applications for a total of 70 dwelling units; 18 approved
dwelling units.
An application for the construction of 47 dwelling units: refused
planning permission.
•
•
•
3.3.7 A total of 236 new dwelling units in rural areas were approved during
the period from 1994 to 2000; these account for 28 per cent of the total
829 dwelling units in rural areas. Another 572 dwelling units (or 69 per
cent of the requested 829 units) were refused development permission;
however, 42 of the 572 refused dwelling units were approved at
reconsideration/appeals levels. 21 requests for one dwelling unit each
were withdrawn from the development planning process. Table 8 gives
further details of the analysis of new dwelling units in rural areas.
3.3.8 The Housing Topic Paper (2002) indicates that the total number of
approved dwellings from 1994 to 2000 amount to 20,740. The Topic
Paper shows that only around 1 per cent of the total approved
dwellings in the Maltese Islands, from 1994 to 2000, occurred outside
the development zone.
3.3.9 The reconsideration and appeals processes differ from that of the
Development Control Commission (DCC) process. The DCC process
involves decisions on proposed developments according to planning
policies; the reconsideration and appeals processes follow when
requested by the developer. Consequently, the DCC process is the
primary mechanism where Structure Plan policies are utilised to
determine proposed developments. This Topic Paper focuses primarily
on development planning applications decided through the DCC
process, to assess performance of Structure Plan policies.
32
TABLE 8: ANALYSIS OF PLANNING APPLICATIONS FOR NEW DWELLING UNITS IN RURAL AREAS DURING THE PERIOD FROM 1994 TO 2000 BY
TYPE OF DECISION
Number of development planning applications
No of
dwelling
Other
Approved
Refused
units per
decisions
application
1
139
239
21
2
21
37
0
3
3
8
0
4
2
10
0
5
1
3
0
6
1
5
0
7
0
2
0
8
0
1
0
9
1
1
0
10
0
2
0
12
0
1
0
18
1
0
0
19
0
1
0
21
0
1
0
47
0
1
0
Totals
169
312
21
Source: Malta Environment and Planning Authority (2002)
Number of dwelling units
Approved
Refused
Other
decisions
139
42
9
8
5
6
0
0
9
0
0
18
0
0
0
236
239
74
24
40
15
30
14
8
9
20
12
0
19
21
47
572
21
0
0
0
0
0
0
0
0
0
0
0
0
0
0
21
Total
applications
Total
requested
dwelling
units
Upheld
applications by
Reconsideration
or Appeals
Boards
399
58
11
12
4
6
2
1
2
2
1
1
1
1
1
502
399
116
33
48
20
36
14
8
18
20
12
18
19
21
47
829
22
6
0
2
0
0
0
0
0
0
0
0
0
0
0
30
33
3.3.10
The Local Plan areas that were most affected by requests for new
dwelling units in rural areas were the South Malta Local Plan and the
North West Local Plan areas (refer to table 9). The South Malta Local
Plan is the most significant Local Plan area in terms of approved new
dwelling units, while the North West Local Plan is most significant in terms
of refused new dwelling units in rural areas (refer to table 9).
3.3.11
Structure Plan policies directing urban development towards the
development zone were applied more rigidly in the North West Local Plan
area, as most of the countryside is located towards the northwest of Malta.
Consequently, application of policy has minimised the magnitude of the
impact resulting from new dwelling units.
TABLE 9: ANALYSIS OF PLANNING APPLICATIONS FOR NEW DWELLING UNITS IN
RURAL AREAS DURING THE PERIOD FROM 1994 TO 2000 ACCORDING TO LOCAL
PLAN BOUNDARIES (excluding those approved at reconsideration or appeals levels)
Applications
Local Plan
Areas
North West
Marsaxlokk
Bay
North
Harbours
Grand
Harbour
South Malta
Central
Malta
Gozo and
Comino
Total
Dwelling Units
Approved
Refused
Approved
Refused
Other
Decisions
Total
Units
32
120
35
184
7
226
4
9
4
10
1
15
6
15
14
49
2
65
7
2
7
2
0
9
56
73
82
166
2
250
33
53
41
106
4
151
31
40
53
55
5
113
169
312
236
572
21
829
Source: Malta Environment and Planning Authority (2002)
3.3.12
The total of 236 new dwelling units were approved by 169 requests for
development permission; consequently, an understanding of the
development pressure for new residential units in rural areas requires an
analysis of the relative intensity of development in the different localities.
3.3.13
The distribution of the approved residential units according to Local
Council boundaries is illustrated in figure 16; the latter indicates that the
number of approved dwelling units in certain localities within a Local Plan
area was substantially higher than those approved in other localities within
the same Local Plan Area. The number of approved dwelling units in one
locality within the South Malta Local Plan area (Santa Lucija) and in one
34
locality within the Gozo and Comino Local Plan area (Xaghra)
substantially increased the overall number of approved dwelling units
within these Local Plan areas. This has resulted from a few requests for
the construction of a large number of dwelling units in a specific location
within rural areas.
3.3.14
The most significant localities with respect to the number of approved new
dwellings units in rural areas (as identified in figure 16) are the following:
•
•
•
•
•
•
•
•
3.3.15
Xaghra, with 22 approved dwelling units;
Zebbug (Gozo), with 10 approved dwelling units;
Santa Lucija, with 18 approved dwelling units;
Zebbug (Malta), with 13 approved dwelling units;
Rabat (Malta), with 12 approved dwelling units;
Mosta, with 12 approved dwelling units;
Naxxar, with 11 approved dwelling units; and
Gharghur, with 14 approved dwelling units.
The spatial distribution of approved dwelling units in rural areas is partly
determined by the intensity of development per planning application. The
following examines the approved new dwelling units in rural areas
according to the following categories:
•
•
•
construction of 11 to 21 dwelling units per request;
construction of 5 to 10 dwelling units per request; and
construction of 1 to 4 dwelling units per request.
Approved Dwelling Units in Rural Areas: Construction of 11 to 21
dwelling units per request
3.3.16
The only approved planning application in this category consisted of a
Government housing scheme in Santa Lucija, which included 18 dwelling
units. The site is enclosed in an area ODZ, between a secondary school
developed ODZ and bordering the Temporary Provision Scheme
boundary of Santa Lucija. The school was approved in 1995. However,
although the school and the housing scheme were developed on land
where urban development in prohibited, agricultural land or natural
habitats were not damaged, since most of the site was occupied by a
large water reservoir. The latter was incorporated into the school
development.
35
Approved Dwelling Units in Rural Areas: Construction of 5 to 10
dwelling units per request
3.3.17
3 development planning applications, with a total number of 20 dwelling
units, were approved from 1994 to 2000. All 3 applications border the
Temporary Provision Scheme boundaries of Swieqi, Zebbug (Gozo) and
Zebbug (Malta), and/or form part of existing rows or settlements ODZ.
3.3.18
The development in Zebbug (Malta) was situated within the curtilage of a
settlement ODZ. The other two requests for planning permission were
situated adjacent to existing rows of dwellings, and contributed to the
expansion of residential buildings onto rural land. The 1998 aerial
photography shows that the approved request in Zebbug (Gozo) was
surrounded by agricultural land; the dwelling units approved in Swieqi
were developed in the valley of Wied Mejxu. The latter two requests were
already allocated for such use through development planning permits
issued previously.
Approved Dwelling Units in Rural Areas: Construction of 1 to 4
dwelling units per request
3.3.19
Most of the requests for new dwelling units in rural areas (479
development planning applications, for a total of 596 dwelling units) fall
under the category of “requests for the construction of 1 to 4 dwelling units
per request”. These applications were proposed in rural areas from 1994
to 2000; 165 applications for a total of 198 dwelling units were granted
development permission.
3.3.20
Although 198 dwelling units were approved ODZ contrary to Structure
Plan policy, the percentage of the annual approved new dwelling units in
rural areas tended to decrease from 1995 onwards (refer to graph 1); the
annual percentage of the refused dwelling units tended to increase from
1995 onwards. This trend may be attributed to Policy Paper PLP 20
published in 1995, which introduced more detailed guidance on
acceptable development ODZ.
36
GRAPH 1: ANNUAL PERCENTAGE CHANGE OF THE REFUSED AND APPROVED
NEW DWELLING UNITS IN RURAL AREAS FROM 1994 TO 2000 (excluding those
units approved at reconsideration or appeals levels)
90%
80%
Percentage
70%
60%
Approved
50%
Refused
40%
Other decisions
30%
20%
10%
0%
1994
1995
1996
1997
1998
1999
2000
Decision Years
S
Source: Malta Environment and Planning Authority (2002)
3.3.21
The 1988 Temporary Provision Scheme boundaries and the cartographic
information available from the Malta Environment and Planning Authority’s
Geographic Information System (GIS), allowed the examination of
approved applications for the construction of 1 to 4 new dwelling units in
rural areas (refer to table 10).
3.3.22
Table 10 shows that most approved new dwelling units in rural areas
border the development zone, and/or are located within settlements ODZ.
17 approved dwelling units were surrounded by undeveloped land; most
were not located in the open countryside. Consequently, during the period
of the Structure Plan, the magnitude of the impact on the open
countryside resulting from approved new dwelling units was minimal.
37
TABLE 10: DISTRIBUTION OF THE APPROVED APPLICATIONS FOR THE
CONSTRUCTION OF 1 TO 4 NEW DWELLING UNITS IN RURAL AREAS (excluding
those applications approved at reconsideration or appeals levels)
Categories
Description of Category
Category 1
Within settlements in rural areas
Approved
Applications
113
Approved
Dwelling Units
141
Bordering development zone
66
81
Others not classified as
“bordering development zone”
47
60
Category 2
With animal farms
Category 3
Within industrial areas
2
2
Category 4
Bordering the development zone
30
34
Category 5
Surrounded by undeveloped land
Total
4
4
16
17
165
198
Source: Malta Environment and Planning Authority (2002)
3.3.23
The case officers’ reports for all 165 approved applications for the total of
198 new dwelling units in rural areas (as described in table 10) were
examined, and the applications classified according to the categories
described above (refer to table 11).
3.3.24
This analysis (see table 11) reveals that the rationale for most approved
new dwelling units in rural areas was based on the concept of “infill
development” between existing buildings. Nevertheless, previous analysis
has shown that the overall decline in the annual percentage of the
approved new dwelling units may be attributed to Policy Paper PLP 20.
Policy PLP 20 stresses that “infill” development, once allowed under the
Building Permits [Temporary Provisions] Act (1988) was no longer
applicable, given that the latter Act “was repealed by the Development
Planning Act, 1992”.
3.3.25
Table 11 shows that other reasons for approval of new dwelling units in
rural areas included:
•
•
3.3.26
development occurring within areas committed for residential use
by Government Housing Schemes; and
reactivation of old development permits and renewal of old permits.
Furthermore, 22 planning applications for new dwelling units were
recommended for refusal by the Planning Directorate; these applications
were still granted development permission (see table 11).
38
3.3.27
Although the Structure Plan allows the development of new farmhouses in
rural areas by eligible farmers, only 12 out of 165 approved planning
applications for new dwelling units were requested by farmers (see table
11).
TABLE 11: RATIONALE FOR APPROVAL OF NEW DWELLING UNITS IN RURAL AREAS
Rationale for
Approval
Infill
development
Government
Housing
Schemes
Reactivation of
old development
permits and
renewal of old
permits
Farmhouses
Recommended
for refusal by the
Planning
Directorate
No info. in digital
format
Total
Within
settlements
in rural
areas
With
animal
farms
Within
industrial
areas ODZ
Bordering the
development
zone
Surrounded by
undeveloped
land
Total
Requests
56
-
2
2
2
62
10
-
-
6
-
16
16
-
-
9
5
30
4
4
-
-
4
12
16
-
-
5
1
22
11
0
0
8
4
23
113
4
2
30
16
165
Source: Malta Environment and Planning Authority (2002)
3.4 Commercial and Industrial Uses Approved in Rural
Areas from 1994 to 2000
3.4.1 Most of the zoned industrial land (as described in the Employment Topic
Paper) is located in the vicinity of urban settlements, mainly around
Malta’s conurbation. These locations are considered strategic due to
accessibility to employees living in urban areas, and reduction of conflicts
between industrial and residential uses.
3.4.2 The provision of new industrial and commercial development outside the
development zone is considered to be incompatible with the Structure
Plan strategy for rural areas. The Draft Employment Topic Paper indicates
that the current supply of land for industrial development is considered to
be adequate to satisfy the demand over the period of the revised Structure
Plan.
39
Development of New Industrial/Commercial Units in Rural Areas
3.4.3 Although the Structure Plan aims to channel industrial development into
designated industrial zones (with the exception of construction plants),
231 planning applications for 723 new industrial/commercial units were
requested in rural areas from 1994 to 2000. 96 applications for 202 new
industrial/commercial units (i.e. 28 per cent of the total 723 requested
industrial/commercial units) were approved from 1994 to 2000 (refer to
table 12); another 487 units were refused development permission.
However, 84 of the total 487 refused units were approved at
reconsideration or appeals levels; half of these 84 units consist of garages
for industrial use. The approved 202 industrial/commercial units are
examined in greater detail below.
TABLE 12: APPROVED AND REFUSED INDUSTRIAL AND COMMERCIAL UNITS IN RURAL
AREAS FROM 1994 TO 2000
Commercial and Industrial Uses
Workshops
Warehouses
Showrooms
Garages for commercial vehicles or machinery
Garages for industrial use
Yards for industrial machinery and vehicles
Offices
Stores for industrial purposes
Factories
Industrial/commercial development related to
agriculture
Restaurants
Halls
Retail premises
TOTAL UNITS
Approved
Units
Refused
Units
Withdrawn
from Process
Total
31
32
17
0
54
2
29
21
5
10
73
16
5
244
8
32
49
12
1
2
0
0
15
0
4
8
1
42
107
33
5
313
10
65
78
18
Approved Industrial/
Commercial Units by
Reconsideration or
Appeals Boards
2
17
4
2
43
1
9
5
0
6
7
2
15
1
1
2
2
202
1
1
29
487
0
0
1
34
2
3
32
723
0
0
0
84
Source: Malta Environment and Planning Authority (2002)
3.4.4 The most significant categories of industrial and commercial uses
approved in rural areas (refer to table 12) are:
•
•
•
•
•
Garages for industrial use, with 54 approved units.
Warehouses, with 32 approved units.
Workshops, with 31 approved units.
Office development, with 29 approved units.
Stores for industrial purposes, with 21 approved units.
3.4.5 During the period of the Structure Plan, most of the requested units for the
different categories of industrial and commercial uses (with the exception
of workshop units) were refused planning permission (refer to table 12).
40
3.4.6 Most of the 202 approved commercial and industrial units in rural areas
are located within the Central Malta Local Plan and the South Malta Local
Plan areas (refer to table 13). The distribution of the approved commercial
and industrial units indicates that most of these urban uses, classified as
non-legitimate in rural areas by the Structure Plan, were concentrated in
areas in the vicinity of the conurbation of Malta, mostly along the main
road network (refer to figure 17). However, an examination of cartographic
information shows that several structures were already established in
most industrial and commercial land outside the development zone by
1988.
TABLE 13: DISTRIBUTION OF APPROVED INDUSTRIAL AND COMMERCIAL UNITS BY
LOCAL PLAN BOUNDARIES (excluding those units approved at reconsideration or
appeals levels)
Commercial
and Industrial
Uses
Workshops
Warehouses
Showrooms
Garages for
commercial
vehicles or
heavy
machinery
Garages for
industrial use
Yards for
industrial
machinery and
vehicles
Offices
Stores for
industrial
purposes
Factories
Industrial and
commercial
development
related to
agriculture
Restaurants
Halls
Retail premises
Total
Approved
Units
NWLP
MCLP
MSLP
NHLP
GHLP
MBLP
GCLP
3
0
0
25
18
5
2
14
12
0
0
0
0
0
0
1
0
0
0
0
0
Total
Approved
Units
31
32
17
0
0
0
0
0
0
0
0
5
42
7
0
0
0
0
54
0
2
0
0
0
0
0
2
4
6
16
1
0
1
1
29
0
9
11
0
0
1
0
21
0
2
2
0
0
1
0
5
2
0
1
0
0
3
0
6
0
0
0
0
0
0
1
2
2
0
0
0
0
0
0
0
0
0
0
0
0
1
2
2
14
109
70
1
0
7
1
202
Source: Malta Environment and Planning Authority (2002)
41
Rationale for Approved New Industrial and Commercial Uses in Rural
Areas
3.4.7 Of the 231 applications for a total of 723 industrial/commercial units in
rural areas, 96 requests for a total of 202 units were approved. The
case officers’ reports for all 96 requests were examined.
3.4.8 133 of the total 202 approved new industrial and commercial units in rural
areas were regarded as being located within “committed areas” outside
the development zone; these were approved contrary to Structure Plan
policy and Policy PLP 20, which stated that “committed areas” did not
refer to areas ODZ; Appendix A provides details on the definition of
“committed areas” with respect to the current Structure Plan strategy and
policies.
3.4.9 Intensification of industrial development in rural areas increased the
potential damage to the amenity of the countryside. Given that most
clusters of industrial/commercial uses in rural areas are located in the
vicinity of the conurbation, intensification of development has impacted on
strategic open corridors between congested urban areas (refer to figure
18). Therefore, limited industrial sprawl occurred during the period of the
Structure Plan.
3.4.10
Other reasons for approval of new industrial/commercial units in rural
areas included:
•
•
reactivation of old development permits and renewal of old permits
(a total of 26 approved new units); and
development within quarries (a total of 25 approved new units).
3.4.11
Industrial and commercial development within disused quarries hinders
the process of reclamation of quarries for the needs of agriculture, even
though the number of approved industrial units is limited.
3.4.12
Apart from the development of new industrial and commercial uses in rural
areas, during the period from 1994 to 2000, various buildings were
converted into industrial and commercial uses. The following examines
the distribution of these types of requests.
Change of Use to Industrial and Commercial Uses in Rural Areas
3.4.13
The Structure Plan prohibits any form of urbanisation in areas outside the
development zone. Furthermore, Policy PLP 20 (1995) states that limited
change of uses in the countryside may occur provided that development
meets specific requirements, including: “the new use of the building must
42
not adversely affect the amenity of neighbouring properties or cause
interference with the management of surrounding land, by reason of
noise, vibration, pollution or traffic generation”.
3.4.14
During the period of the Structure Plan, 211 planning applications for
change of use into 211 industrial/commercial units in rural areas were
submitted. Of these 211, 82 units were approved and 119 units were
refused; most of the remaining planning applications were withdrawn from
the planning process. Graph 2 indicates that the annual percentage of the
approved units tended to decrease, whilst those of the refused units
tended to increase. However, 24 of the total 119 refused
industrial/commercial units were approved at reconsideration or appeals
levels.
GRAPH 2: ANNUAL PERCENTAGE CHANGE OF THE REFUSED AND APPROVED
REQUESTS FOR CHANGE OF USE INTO INDUSTRIAL AND COMMERCIAL USES IN
RURAL AREAS FROM 1994 TO 2000 (excluding units approved at reconsideration
or appeals levels)
Requests for Change of Use into Industrial/Commercial Uses:
Percentage Change by Type of Decision
90%
80%
Percentage
70%
60%
Approved
50%
Refused
40%
Other decisions
30%
20%
10%
0%
1994
1995
1996
1997
1998
1999
2000
Decision Years
Source: Malta Environment and Planning Authority (2002)
3.4.15
The geographical relationship between all approved development planning
applications for change of use into industrial/commercial uses (a total of
82 units) and the buildings that were already established in rural areas by
1988, were examined. 73 per cent out of the 82 approved units were
located within clusters or rows of buildings in rural areas (refer to figure
19). From the above analysis, those clusters or rows of buildings that were
affected by change of use into industrial or commercial uses were
identified as follows:
43
Cluster of areas used for industrial operations:
•
•
•
•
•
•
•
Tal-Handaq
Mdina Road, Zebbug (Tal-Hlas )
Mosta Road
Hal-Farrug, Luqa
Hal-Tarxien Road, Gudja
Tal-Barrani Road
Tas-Sriedek, Mosta
Small settlements located outside the limits to development:
•
•
•
•
•
•
•
•
•
3.4.16
Settlement on the periphery of Zebbug (Triq il-Kacca); approved
uses: green grocer.
Settlement on the periphery of Zebbug (road leading to Siggiewi);
approved uses: grocer, bar and motoring school.
Settlement located between Safi and Zurrieq; approved uses: video
rentals, selling of auto products and confectionery.
Settlement of Hal-Tmiem ; approved uses: selling of agricultural
produce.
Settlement near Buskett; approved uses: wedding hall.
Settlement of Bidnija; approved uses: car hire.
Settlement of Wardija; approved uses: furniture shop.
Settlement at Tal-Grixti (Victoria, Gozo); approved uses:
ironmongery.
Settlement at Il-Hofra (Victoria, Gozo); approved uses:
confectionery, furniture restorer and grocer.
Although some of the approved requests for change of use to industrial
and commercial uses in rural areas were located within established
industrial areas ODZ, only a small proportion of these approved
applications were for shops located within settlements ODZ.
Land Use Subject to Change of Use
3.4.17
A sample of 51 development planning applications was selected from the
211 applications for change of use into industrial/commercial uses in rural
areas, to determine the type of land uses that were subjected to a change
in use. Graph 3 illustrates these types of land uses.
44
GRAPH 3: ANALYSIS OF SAMPLE – TYPE OF DEVELOPMENT BEFORE CHANGE OF
USE INTO INDUSTRIAL AND COMMERCIAL ACTIVITY FROM 1994 TO 2000
(excluding those units approved at reconsideration or appeals levels)
Number of Decided Applications
25
20
15
10
5
Ga
rag
e
St
or
e
Re
sid
en
tial
No
tS
pe
cifi
ed
Qu
ar
ry
Sta
Ag
ble
ricu
s
ltur
al
sto
res
Fa
rm
Pe
tro
l st
ati
on
Ca
co
rpe
m
nte
m
erc
r
ial
ac
tivi
ty
Ex
isti
ng
Bo
utiq
ue
0
Land Use Type Prior Planning Application
Source: Malta Environment and Planning Authority (2002)
3.4.18
Graph 3 indicates that most of the sampled applications (45 per cent out
of 51 requests) were for change of use from garages to other
industrial/commercial uses.
3.4.19
Graph 4 shows the distribution of the types of requested industrial and
commercial activities resulting from the change of use. Of the sampled
requests (a total of 51), 25 per cent requested a change of use to activities
involving vehicle maintenance (silencer repairs, panel beaters and
sprayers) and 20 per cent were related to food and beverages. Other uses
included showrooms and offices, workshops and carpentries.
45
14
12
10
8
6
4
2
W
ork
sh
op
s
W
eld
ing
Ele
ctr
Clo
on
the
ic e
s
qu
i
p
Fo
me
od
n
t
an
db
ev
era
ge
s
Ga
rde
nc
en
tre
Lig
ht
ind
us
try
Pe
tsh
op
Re
ce
pti
o
nh
Re
al
tai
la
gri
cu
ltu
Sh
ral
ow
r
St
o
o
ora
m
/of
ge
fice
for
m
ac
hin
ery
0
Au
to
Ca
rpe
nte
r
Number of Decided Applications
GRAPH 4: ANALYSIS OF SAMPLE – TYPE OF DEVELOPMENT AFTER CHANGE OF
USE INTO INDUSTRIAL AND COMMERCIAL ACTIVITY FROM 1994 TO 2000
Type of Proposed Land Use
Source: Malta Environment and Planning Authority (2002)
3.5 Summary
3.5.1 The Structure Plan aims to contain urbanisation within existing and
planned urban areas, as defined in the Structure Plan. To examine the
extent of urban sprawl, this chapter examined the following:
•
•
extent of urbanisation prior 1990; and
approved development applications for residential, industrial and
commercial development in rural areas after 1990.
3.5.2 The analysis has shown that urban sprawl was significant before adoption
of the Structure Plan, as various settlements and industrial areas were
established outside the development zone by 1988.
3.5.3 In recent years, limited number of applications for residential and
industrial/commercial units have been approved in rural areas. Analysis of
these approved urban units shows that the current Structure Plan strategy
was effective in prohibiting further urban sprawl: most of the approved
urban units were located within existing settlements and industrial areas
outside the development zone. Therefore, during the Structure Plan
period, intensification of development has been restricted primarily to
these specific areas occurred outside the development zone.
46
3.5.4 The main reason for intensification of development in settlements and
industrial areas ODZ was that these areas were considered as either
“committed areas” or “infill sites”. However, “Infill” development, once
allowed under the Building Permits [Temporary Provisions] Act of 1988, is
no longer applicable, as the latter Act was repealed by the Development
Planning Act, 1992.
3.5.5 As far as urban fringe areas are concerned, approved industrial units were
concentrated in the vicinity of the conurbation, while most of the approved
residential units occurred in settlements ODZ, in the vicinity of the
development zone.
3.5.6 With regard to the type of developments permitted in rural areas, the
Structure Plan does allow the development of new residences by bona
fide full time farmers or animal breeders, but the analysis has shown that
only a small proportion of the total approved new dwelling units were
proposed by farmers.
3.5.7 The main industrial units approved in rural areas consist of garage
industries, warehouses, industrial stores, office development and
workshops. Some industrial units occurred within disused quarries. During
the Structure Plan period, existing buildings in rural areas – most of which
where garages – were subject to change of use into industrial/commercial
development.
3.5.8 The following chapter examines settlements outside the development
zone in greater detail, so as to assess whether the emerging Structure
Plan requires a specific policy approach for settlements outside the
development zone.
47
4. Settlements Outside the Development
Zone
4.0.1 Several groups of residential units (having either a cluster form or a linear
pattern) are located in rural areas; these were established as settlements
ODZ before adoption of the Structure Plan in 1992. The spatial analysis of
settlements ODZ shows that certain groups of residential units are located
in the vicinity of urban areas; the setting of other settlements ODZ tends to
be dominated by a rural environment.
4.0.2 This study defines rural settlements as an identifiable group of dwellings
situated more than 100 metres away from the development zone. Several
other groups of dwellings are located within a distance of less than 100
metres from the development zone, and are excluded from being defined
as rural settlements; these settlements are defined as urban extensions.
4.0.3 The Structure Plan policy framework applicable with respect to
development in rural areas, including settlements ODZ, is directed
towards prohibition of urban development, control of uses legitimate in
rural areas, and protection and enhancement of the countryside. The
Structure Plan does not distinguish between settlements ODZ and open
countryside; co nsequently, Structure Plan policies applicable to open
countryside are also applicable to settlements ODZ. The characteristics of
settlements ODZ and open countryside are diverse, and may therefore
necessitate different policy approaches.
4.0.4 The emerging Local Plans are proposing innovative approaches towards
settlements ODZ. The approach adopted by the Draft North West Local
Plan (2001), now also adopted by other Local Plans, includes a
classification of settlements ODZ based on the possibility of
accommodating modest growth in certain defined settlements without
encouraging unnecessary development in rural areas. The Draft North
West Local Plan approach to settlements ODZ is examined further on in
this chapter.
4.1 Distribution of Settlements ODZ
4.1.1 An analysis of cartographic information (including GIS) and aerial
photography indicates the presence of 148 settlements ODZ. Of the latter:
•
69 settlements ODZ are considered as rural settlements (refer to
figure 20 and Appendix D); and
48
•
79 settlements ODZ are considered as urban extensions (refer to
figure 20 and Appendix E).
4.1.2 The preparation process of Local Plans includes identification of
settlements ODZ; subsequently, the list of settlements ODZ (refer to
Appendix D and Appendix E) was revised accordingly.
4.1.3 A significant proportion of the settlements ODZ in different Local Plan
areas are urban extensions (refer to table 14). The most significant Local
Plan area in terms of number of rural settlements is the North West
Local Plan. The South Malta Local Plan is the most significant Local Plan
area in terms of number of urban extensions (refer to table 14).
4.1.4 Urban extensions may be contiguous with the development zone, as is
the case of 44 settlements of the total 79 urban extensions. The remaining
urban extensions (a total of 35 settlements) are separated from the
development zone by undeveloped land; the 1998 aerial photographic
information indicates that this undeveloped land consists mainly of
agricultural land.
TABLE 14: DISTRIBUTION OF SETTLEMENTS ODZ ACCORDING TO LOCAL PLAN
BOUNDARIES
Local Plan Area
North West Local Plan
South Malta Loc al Plan
Gozo and Comino Local Plan
Central Malta Local Plan
North Harbours Local Plan
Marsaxlokk Bay Local Plan
Grand Harbour Local Plan
Total
Distance between Settlement ODZ and
the Development Zone
Less than 100m
(Urban extensions)
11
29
21
11
5
1
1
79
More than 100m
(Rural settlements)
41
9
12
3
0
4
0
69
Total number of
settlements ODZ
52
38
33
14
5
5
1
148
Source: Malta Environment and Planning Authority (2002)
4.2 Growth in Settlements ODZ
4.2.1 During the Structure Plan period, various settlements ODZ grew in terms
of number of habitable dwelling units; a total of 128 new dwelling units
were approved at DCC level from 1994 to 2000 in settlements ODZ. All
approved new dwelling units were urban-type dwellings. Another 29 new
49
dwelling units were approved at the reconsideration or appeals levels. To
evaluate interpretation of planning policies, the following analysis focuses
upon decisions taken at the DCC level.
4.2.2 The Structure Plan adopts a blanket prohibition of development in rural
areas, except for legitimate uses (like agriculture development) as
described in Paragraph 7.6 of the Structure Plan; the Structure Plan does
not envisage growth in settlements ODZ.
4.2.3 The concept of “infill development” was the main rationale for approval of
new residential development in settlements ODZ, even though strictly
speaking this was not in line with the Structure Plan’s philosophy (refer to
Structure Plan Policy SET 11 in Appendix A).
4.2.4 The concept of “infill development” was introduced by the Building Permits
[Temporary Provisions] Act of 1988; the latter allowed development in
defined gap spaces between existing buildings in the countryside.
However, the concept of “infill development” is no longer applicable, since
the Development Planning Act of 1992 repealed the 1988 Act; this point
was further clarified by Policy PLP 20 (published in 1995) on Development
Outside Built-up Areas.
Intensification of Development in Settlements ODZ
4.2.5 Most intensification of new dwelling units in settlements ODZ occurred in
urban extensions (refer to figure 21); of the total 128 approved new
dwelling units:
•
only 34 new dwelling units were approved in rural settlements (69
settlements); and
•
94 new dwelling units were approved in urban extensions (79
settlements); of the 94 approved units, 53 were located in
settlements that are contiguous with the development zone.
4.2.6 Significant intensification of residential development in urban extensions
occurred in the Grand Harbour Local Plan and the North Harbours Local
Plan areas, followed by the Central Malta and the South Malta Local Plan
areas. Intensification of residential development tended to decrease
further away from the conurbation (refer to table 15). The South Malta
Local Plan and the Central Malta Local Plan were the most impacted
Local Plan areas in terms of number of approved new dwelling units in
urban extensions (refer to table 15).
4.2.7 The most significant intensification of dwelling units in rural settlements
occurred in the Central Malta Local Plan area (refer to table 15); around
50
3.3 new dwelling units per settlement were approved. Few rural
settlements in other Local Plan areas were subjected to approval of new
dwelling units from 1994 to 2000: 53 of the total 69 rural settlements were
not subjected to intensification of development. This indicates that
Structure Plan ODZ policies succeeded in minimising development
pressure in rural areas (refer also to chapter 3 on urban sprawl).
4.2.8 The rural settlements where more than 3 dwelling units were granted
development permission are Ta’Prejna in Gozo, Bidnija and Triq in-Naxxar
in the Central Malta Local Plan, and Ta’Mrejnu and Tax-Xieref in the North
West Local Plan.
TABLE 15: NUMBER OF APPROVED NEW DWELLING UNITS IN SETTLEMENTS ODZ FROM
1994 TO 2000
Number of
approved new
dwelling units
in urban
extensions
Number of
approved new
dwelling units
in rural
settlements
North West
8
Gozo & Comino
19
South Malta
Intensification of development:
Other approved
habitable units at
reconsideration or
appeals levels
Approved
habitable units
per urban
extension
Approved
habitable units per
rural settlement
17
0.7
0.4
5
6
0.9
0.5
8
31
1
1.1
0.1
9
Central Malta
20
10
1.8
3.3
4
Marsaxlokk Bay
0
0
0
0
2
North Harbours
12
0
2.4
0
1
Grand Harbour
4
0
4
0
0
Total
94
34
1.2
0.5
29
Local Plan Area
Source: Malta Environment and Planning Authority (2002)
4.3 Analysis of the 69 Rural Settlements
4.3.1 Given their characteristic rural setting and function, rural settlements differ
from urban extensions and were consequently examined in greater detail
to determine whether the Structure Plan review needs to provide a policy
direction for these settlements. A survey of 69 rural settlements was
undertaken; the findings of this survey are given in Appendix D (the
information is organised according to Local Plan areas).
51
4.3.2 The main thrust of this section is to examine the typologies of the 69 rural
settlements and their surrounding environment according to the following
criteria:
•
•
•
•
•
location and size;
availability of local services;
function;
character; and
spatial context.
Location and Size of Rural Settlements
4.3.3 Table 16 indicates the number of habitable dwelling units in the 69 rural
settlements according to Local Plan boundaries.
TABLE 16: NUMBER OF HABITABLE DWELLING
SETTLEMENTS BY LOCAL PLAN BOUNDARIES
Local Plan Area
North West Local Plan
Gozo and Comino Local Pla n
South Malta Local Plan
Central Malta Local Plan
Marsaxlokk Bay Local Plan
North Harbours Local Plan
Grand Harbour Local Plan
Total
Number of Rural
Settlements
41
12
9
3
4
0
0
69
UNITS
IN
RURAL
Number of Habitable
Dwelling Units
559
138
144
98
54
0
0
993
Source: Malta Environment and Planning Authority (2002)
4.3.4 Table 16 shows that 41 rural settlements (equivalent to 60 per cent of the
total 69 settlements) are located in the North West Local Plan area, while
another 12 rural settlements are located within the Gozo and Comino
Local Plan area. Rural settlements tend to be concentrated in particular
areas (refer to figure 20); those localities having more than 5 rural
settlements are Rabat, Dingli, Mgarr and St. Paul’s Bay, with most being
situated on the Rabat-Dingli plateau.
4.3.5 The rural settlements having the highest number of habitable dwelling
units are those in Bingemma, Bidnija, Selmun and L-Andrijiet; the largest
rural settlements in Gozo are Ta’San Anard and Ta’Prejna (refer to figure
21). 44 rural settlements (equivalent to 64 per cent of the total 69 rural
settlements) have between 10 and 30 habitable dwelling units and tend to
be located in the North West Local Plan area. Only 21 rural settlements
52
(equivalent to 29 per cent of the total 69 settlements) have less than 10
habitable dwelling units (refer to figure 22).
Availability of Local Services
4.3.6 Few rural settlements are provided with social and community facilities,
like local shops, postal facilities and telephone boxes (refer to Appendix
D). Bidnija is the most significant rural settlement with respect to the
availability of services and facilities; however, the latter settlement is the
largest rural settlements in the Maltese Islands (refer to figure 22).
Although found in several rural settlements, chapels are often not utilised,
probably due to provision of ecclesiastic services in nearby urban areas.
4.3.7 Residents in rural settlements travel to urban areas to reach urban
facilities. Few rural settlements are provided with public transport facilities,
as most rural settlements are located along local access roads (refer to
table 17 and figure 22). Rural communities consequently rely on private
transport to reach urban facilities and services, like health clinics, schools
and retail facilities.
TABLE 17: NUMBER OF RURAL SETTLEMENTS BY TYPE OF ROAD NETWORK
Local Plan Areas
North West Local Plan
Gozo and Comino Local
Plan
Central Malta Local Plan
South Malta Local Plan
Marsaxlokk Bay Local Plan
Grand Harbour Local Plan
North Harbours Local Plan
Total
Arterial
Road
1
Distributor
Road
1
Local
Access Road
39
2
2
8
12
0
0
1
0
0
4
0
2
2
0
0
7
3
7
1
0
0
58
3
9
4
0
0
69
Total
41
Source: Malta Environment and Planning Authority (2002)
4.3.8 Given the small scale of the Maltese Islands and the concentration of rural
settlements in particular locations, the distances between rural
settlements and the nearest urban areas are not significant. Distance
becomes significant only when certain services, like health clinics, are
concentrated in specific urban locations further away. Figure 23 shows the
road connections from rural settlements to town centres.
53
Function of Rural Settlements
4.3.9 The traditional function of rural settlements is agrarian, and associated
with the societies who used to live and work in rural areas. Certain
agricultural produce may have been processed within rural settlements;
however, this activity is likely to have been directed towards selfsufficiency rather than commercial production. Such activities may have
included small-scale processing activities, like grape or olive pressing.
The function of rural settlements is changing, as the connection with
agriculture is gradually being lost, due to the introduction of residential and
industrial uses not related to agriculture; traditional farming has been
replaced by a specialised and intensive industry.
4.3.10
Several rural settlements are characterised by the presence of old
chapels. The latter are proof of the historic relationships between
ecclesiastic functions and agrarian societies. Although, most of these
chapels are located within mixed rural settlements, certain old rural
settlements still retain their traditional characteristics. The character of
rural settlements is discussed in the following section.
4.3.11
Most new dwelling units approved within rural settlements from 1994 to
2000 were not requested by farmers. Furthermore, during the Structure
Plan period few rural settlements were subjected to agriculture-related
development; approved development associated with agriculture included
slaughterhouses, sale of agricultural produce and agricultural stores.
4.3.12
Certain concentrations of rural settlements coincide with concentrations of
large-scale animal farms; 28 rural settlements are affected by animal farm
buildings. Those rural areas characterised by rural settlements and animal
farm buildings are Maghtab, the rural areas between Zejtun, Marsaxlokk,
Marsascala and Zabbar, and the Rabat-Dingli area. The animal husbandry
sector is now specialised and intensive; several rural settlements and their
surrounding environment are impacted by the inadequate design of farms.
4.3.13
17 of the total 69 rural settlements are characterised by industrial activities
(refer to Appendix D). The most common industrial operations
accommodated within rural settlements include small garage industries
(like workshops, carpenters, vehicle repairs and maintenance) and yards
for storage of heavy machinery. Although the number of industrial units is
limited, rural settlements are becoming characterised by activities that do
not require a rural context. Given that garages are among the most
common types of development occurring within rural settlements (refer to
Appendix D), the risk of conversion into industrial use increases, as
described in chapter 3.
54
Character of Rural Settlements
4.3.14
27 of the total 69 rural settlements are characterised by farmhouses or old
dwellings (refer to table 18); these are defined as old rural settlements.
4.3.15
There are only 4 settlements that are totally characterised by urban-type
dwellings; these have been defined as urban-type rural settlements .
4.3.16
Another 38 rural settlements consist of a mixture of old dwellings (or
farmhouses) and new urban-type dwellings (refer to table 19); these are
defined as mixed rural settlements. The character of these settlements
varies according to the degree of urban development located within these
settlements; while certain mixed rural settlements are predominantly
urban in character, others retain their traditional characteristics.
4.3.17
Figure 24 shows the distribution of the 69 rural settlements according to
their character.
4.3.18
Most rural communities live in mixed rural settlements; the latter tend to be
located in the North West Local Plan area. Given that few new dwelling
units were granted development permission from 1994 to 2000 in rural
areas (refer to chapter 3), the formation of mixed and urban-type rural
settlements must have resulted before adoption of the Structure Plan.
TABLE 18: STATISTICS ON OLD RURAL SETTLEMENTS
Local Plan Boundaries
North West Local Plan
South Malta Local Plan
Central Malta Local Plan
Gozo & Comino Local
Plan
Marsaxlokk Bay Local
Plan
North Harbours Local
Plan
Grand Harbour Local
Plan
Total
Number of
Settlements
Number of
Habitable
Dwellings
Abandoned
Buildings
16
3
0
159
36
0
54
6
0
Abandoned
Buildings per
Habitable
Dwelling
0.3
0.2
0
7
74
5
0.07
1
25
4
0.2
0
0
0
0
0
0
0
0
27
294
69
0.2
Source: Malta Environment and Planning Authority (2002)
55
TABLE 19: STATISTICS ON MIXED RURAL SETTLEMENTS
Local Plan
Boundaries
North West Local Plan
South Malta Local Plan
Central Malta Local
Plan
Gozo & Comino Local
Plan
Marsaxlokk Bay Local
Plan
North Harbours Local
Plan
Grand Harbour Local
Plan
Total
Number of
Settlement
Number of
Habitable
Dwellings
Abandoned
Buildings
24
5
358
96
25
7
Abandoned
Buildings per
Habitable
Dwelling
0.07
0.07
3
98
0
0
4
60
4
0.07
2
16
0
0
0
0
0
0
0
0
0
0
38
628
36
0.06
Source: Malta Environment and Planning Authority (2002)
4.3.19
Several rural settlements, particularly those in the North West Local Plan,
are characterised by abandoned buildings (refer to table 18), most of
which are located in old rural settlements. Nevertheless, the number of
habitable dwelling units within most of these rural settlements still exceeds
the number of abandoned buildings.
4.3.20
All rural settlements characterised by more than 5 abandoned buildings
are located in the North West Local Plan area; these settlements are
characterised by farmhouses or old dwellings (examples include Ta’lAbatija, Tas-Sirena, Tas-Santi and Ghajn Tuffieha). Old dwellings and
farmhouses dominate most of the rural settlements in Gozo; however, the
rate of abandoned buildings is less than that in the North West Local Plan
area.
4.3.21
Possible factors leading to the abandonment of buildings in rural areas
include:
•
•
•
•
•
•
multiple ownership;
issues associated with inheritance;
lack of suitability of buildings for modern requirements;
state of repair of buildings;
ability and/or reluctance of owner to reinstate buildings to a
habitable state; and
reluctance of owner to live in a rural environment.
56
4.3.22
Several old dwellings and farmhouses within rural settlements were
subjected to alterations, extensions or redevelopment. The most common
types of development include the addition of rooms to existing dwellings,
garage developments and swimming pools. These types of development
may be beneficial in terms of rehabilitating abandoned buildings for
habitable purposes, but may also degrade the character of rural
settlements; several enforcement notices regarding development in rural
settlements were issued from 1996 to 2000.
Spatial Context of Rural Settlements
4.3.23
The character of rural settlements depends on the nature and quality of
the surrounding environment within different Local Plan areas. Most rural
areas in the Maltese Islands are located in the North West Local Plan
area. The northwest of Malta also includes the highest concentration of
rural built heritage, natural habitats, diverse topography, natural valleys
and agricultural land. Given its topographic diversity and character, the
Gozo and Comino Local Plan area is also characterised by agricultural
land, built heritage and valley systems of ecological significance.
4.3.24
Rural settlements within the South Malta Local Plan area are located
towards the southeastern part of the Local Plan boundary. The main land
uses in these rural areas include the built heritage, farms and agricultural
land; the dominant feature of the countryside in the South Malta Local
Plan area is agriculture. The southeastern parts of the South Malta Local
Plan boundary are continuous with the rural areas in the Marsaxlokk Bay
Local Plan area. The rural environment in the latter Local Plan areas are
rich in terms of rural resources; however, the relative proximity of these
areas to urban and industrial activities within the development zone (when
compared with the situation in the North West Local Plan area), influences
their quality and character.
4.3.25
Rural settlements within the Central Malta Local Plan area (with the
exception of Il-Bidnija) are surrounded by different land uses located
outside the development zone boundaries, including industrial uses,
agricultural land, farms and the Maghtab landfill. The area surrounding
Bidnija is characterised by a diverse vegetation cover and agricultural
land.
4.3.26
The rural settlements that are most significant in terms of their proximity to
rural resources are those in Gozo and the North West Local Plan area:
• 32 of the total 41 rural settlements in the North West Local Plan
area are located in areas that are of ecological significance; the
57
areas surrounding 20 of these 32 rural settlements are also
characterised by archaeological heritage.
• 7 of the total 12 rural settlements in the Gozo and Comino Local
Plan are located in areas covered by natural habitats.
4.3.27
10 of the total 69 rural settlements are located within, partly within, or
adjacent to scheduled property; most are old rural settlements (refer to
table 20 and Appendix D). 8 of these rural settlements are located in the
North West Local Plan area. Chapter 7 examines rural conservation and
scheduled properties in greater detail.
4.3.28
Most of the 10 rural settlements (referred to in the previous paragraph and
table 20) were subjected to pressure for development. Although this may
have occurred prior to scheduling, the conservation status of buildings,
features or areas may still have been negatively affected by the
development. Examples of development that have influenced the
conservation value of several properties or their setting include:
• construction of ancillary facilities to existing land uses (like
swimming pools);
• alterations and additions to old dwellings and farmhouses;
• construction of yards for storage of heavy machinery; and
• small-scale industrial uses.
TABLE 20: RURAL SETTLEMENTS
SCHEDULED PROPERTIES
Rural Settlement
WITHIN,
ADJOINING
OR
PARTLY
WITHIN
Local Plan Area
Designati on
Level of Protection
Ta’Wied Rini
NWLP
AEI
3
Ta’Namura
NWLP
AEI
3
Wied Gerzuma
NWLP
AHLV/Cultural
Cultural (church)
1
Ta’Bieb ir-Ruwa
NWLP
AAI
Buffer zone
Ic-Caghaq
NWLP
AEI
2
Ta’Xuxa
NWLP
AEI
3
AHLV
Is-Sirena
Ta’l-Ghattuqa
NWLP
NWLP
AAI
Buffer zone
AEI
3
AAI
Buffer zone
58
AHLV/Cultural
Il-Bakkari
Benghisa
SAI
B
SAI
A
AEI
3
Cultural (4 dwellings)
2
Cultural (church)
1
SMLP
MBLP
Source: Malta Environment and Planning Authority (2002)
4.4 Settlements ODZ: Key Issues
4.4.1 The key issues with respect to settlements ODZ (as identified in this
study) consist of:
•
•
•
•
•
•
the need for a policy framework for settlements ODZ;
protection of strategic open gaps;
the presence of industrial activities in rural settlements;
the traditional function of rural settlements;
conservation and enhancement of rural settlements; and
new development in defined rural settlements.
Need for a Policy Framework for Settlements ODZ
4.4.2 The characteristics of settlements ODZ differ from those of open
countryside; the magnitude of the difference depends upon the typology of
the different settlements. The current Structure Plan does not consider
such differences. Consequently, a policy framework is required to
recognise settlements ODZ as having distinct characteristics and land use
requirements.
Protection of Strategic Open Gaps
4.4.3 79 settlements ODZ are considered as urban extensions; of the latter, 35
urban extensions are separated from the development zone by
undeveloped land.
4.4.4 Although, the remaining urban extensions are contiguous with the
development zone, some are located in pockets or corridors of land ODZ
between separate urban areas.
59
4.4.5 Given that most rural settlements are diverse in terms of character, and
are concentrated in particular locations, their surrounding context may be
sensitive; development pressure requires control to prevent unacceptable
damage to the rural character and resources.
4.4.6 The above implies that protection of strategic open gaps in rural areas is
required to:
•
•
•
•
protect undeveloped land o utside the development zone;
prevent coalescence of urban areas;
prevent coalescence of settlements ODZ; and
protect the character and setting of settlements ODZ.
Industrial Activities in Rural Settlements
4.4.7 Several rural settlements , including old rural settlements, are impacted
by small-scale industrial activities. Most industrial activities in rural
settlements are not related to agriculture and do not require a rural
context.
4.4.8 During the Structure Plan period, existing structures in rural settlements
were converted to accommodate small-scale industrial uses (not requiring
a rural context). There is a need to discourage the use of existing
structures for uses not legitimate in rural areas.
4.4.9 Given the potential land use impacts and environmental damage,
mitigation measures are required with respect to existing industrial
operations within rural settlements. It may also be appropriate to relocate
such activities from settlements that are traditional and are surrounded by
a characteristic rural environment.
Traditional Function of Rural Settlements
4.4.10
Rural settlements were subjected to development of residential and
industrial uses not related to agriculture. The relationship between rural
settlements and their traditional agricultural function should be
strengthened, particularly in old rural settlements and mixed rural
settlements having a predominant traditional character.
4.4.11
Modernisation of the agriculture sector has resulted in changing land use
requirements; the agriculture sector has become specialised and
intensive. The promotion of small-scale agricultural activities in rural
settlements is required to allow the efficient reuse of existing buildings in
rural settlements.
60
Conservation and Enhancement of Rural Settlements
4.4.12
Before adoption of the Structure Plan, rural settlements were affected by
varying degrees of urban development (particularly residential
development). While certain rural settlements are now predominantly
urban in nature, others retain their traditional characteristics; the latter
include old rural settlements and certain mixed rural settlements.
4.4.13
Various structures have been demolished, altered, or extended, some
without development planning permission. Consequently, the built
heritage located within rural settlements requires protection and
maintenance.
4.4.14
Abandonment or neglect resulted in dereliction of buildings and structures,
loss of heritage, and impact on the character of rural settlements;
sensitive rehabilitation of old buildings and structures is required.
4.4.15
Conservation of old rural settlements should not focus upon individual
properties and features. Features that may not have a significant
conservation value may be important in terms of their past function within
rural settlements. Consequently, conservation should be extended to the
various interlinked elements and spaces that together constitute the
traditional character and function of rural settlements. A holistic approach
to conservation of the built heritage in rural settlements is required.
4.4.16
Conservation of rural areas that include old rural settlements and other
significant rural resources is essential. Emphasis for conservation should
focus not only on the status of particular habitats or structures, but should
also consider the importance of particular rural areas in terms of traditional
rural landscapes, character and function. Development that may impact
on the value or setting of old rural settlements should be controlled
through land-use planning and management.
New Development in Defined Rural Settlements
4.4.17
Approval of new dwelling units in rural areas was justified in terms of “infill
development” in gap spaces between existing buildings. Development
consisted of urban-type buildings that resulted in a visual impact caused
by exposure of blank party walls. The appearance of certain defined
mixed and urban-type rural settlements may be improved by allowing
limited new development within defined gap spaces, to mitigate the visual
impact caused by blank party walls of urban-type dwellings. However,
such development must also consider the sensitivity of the area where
development may occur.
61
4.4.18
Most gap spaces were developed as urban-type dwellings. In allowing
limited new development within defined gap spaces, the nature of the
proposed uses requires consideration; priority may be given to
development that is either beneficial to rural communities or that requires
a rural setting. This would also facilitate accommodation of small-scale
facilities required for the diversification of the rural economy.
4.4.19
The impacts resulting from new development on rural resources depend
upon the sensitivity and quality of the resource, and the type of
accommodated development. Consequently, the scale of gap spaces
between existing buildings requires careful consideration at the Local Plan
level.
4.4.20
New development in old rural settlements or those mixed rural settlements
having a predominantly traditional character, should be discouraged,
unless such development is legitimate in rural areas and does not impact
on the characteristics of the area.
4.5 Strategies for Settlements ODZ in Local Plans
4.5.1 The emerging Local Plans prepared local strategies regarding settlements
ODZ. These strategies are based upon that adopted by the Draft North
West Local Plan. Consequently, formulation of strategies for rural
settlements necessitates an examination of the Draft North West Local
Plan approach. The Draft North West Local Plan referred to all types
of settlements outside the development zone as rural settlements.
For ease of reference, use of the te rm rural settlements in this section
follows that adopted by the Draft North West Local Plan.
North West Local Plan (NWLP) Approach
4.5.2 The Draft North West Local Plan classifies rural settlements as follows:
•
•
•
development of large settlements close to the Temporary Provision
Schemes (category 1);
development of large settlements in rural areas (category 2); and
development of small settlements in rural areas (category 3).
4.5.3 The Draft North West Local Plan identifies three categories of rural
settlements according to size; however, the terms ‘large’ and ‘small’ as
applied within the identified categories are not defined in the Plan.
62
NWLP – Category 1 Settlements
4.5.4 Rural settlements identified as category 1 settlements by the Draft North
West Local Plan are ol cated within a distance of 100 metres from the
development zone. The Draft North West Local Plan allows limited
development within defined boundaries in these settlements, as these are
adjacent to urban areas. The findings of this Topic Paper indicate that
most intensification of residential development occurred in these types of
settlements.
4.5.5 The Draft North West Local Plan did not distinguish between settlements
that are contiguous with the development zone and those that are
separated from the developme nt zone by undeveloped land ODZ
(including agricultural land). This fundamental distinction is necessary, as
its absence could lead to further development pressure in the
undeveloped areas between settlements and the development zone.
4.5.6 The above implies that the Draft North West Local Plan approach needs to
be supported by measures for the protection of strategic open gaps
between settlements and development zones; however, protection of
strategic open gaps is lacking in the Draft North West Local Plan. Figure
25 shows examples of strategic open gaps in different localities.
4.5.7 The Local Plan’s approach of including category 1 settlements within the
development zone is not appropriate, as this may lead to further urban
development in pockets of land ODZ; this type of development pressure
already occurred during the Structure Plan period with respect to new
residential schemes (refer to chapter 3).
4.5.8 Furthermore, 35 settlements of the total 79 urban extensions in the
Maltese Islands (refer to table 14) are not contiguous with the
development zone. Only 6 of the latter 35 settlements are located in the
North West Local Plan area. The distribution of settlements indicates that
strategic open gaps in other Local Plan areas are more sensitive to
development pressure. Adoption of the Draft North West Local Plan
approach by other Local Plans with respect to category 1 settlements is
not appropriate, as this may increase development pressure in strategic
open gaps in other Local Plan areas.
NWLP – Category 2 and 3 Settlements
4.5.9 Category 2 settlements were defined as large settlements in rural areas,
while category 3 settlements are small settlements in rural areas; both
categories are located more than 100 metres away from the development
zone.
63
4.5.10
According to the Draft North West Local Plan, limited new dwelling units
may be accommodated on uncommitted land in category 2 settlements.
New development on uncommitted land within category 2 settlements is
controlled in terms of acceptable floorspace and eligible dimensions of the
site frontages. New development on uncommitted land in category 3
settlements is prohibited. The Local Plan provides criteria for
redevelopment and for new development located on land already
“committed” by the presence of residential buildings within category 2 and
3 settlements.
4.5.11
Although the Draft North West Local Plan allows limited new development
in gap spaces in category 2 settlements, the findings of this Topic Paper
indicates that the number of approved new dwelling units in category 2
settlements from 1994 to 2000 was minimal. This contrasts with the
degree of intensification of residential development that occurred in other
Local Plan areas during the Structure Plan period (refer to table 15).
4.5.12
Classification of settlements in categories 2 and 3 are based upon the
terms ‘large’ and ‘small’. However, the Draft North West Local Plan did not
define the terms ‘large’ and ‘small’; consequently it is difficult to identify
the threshold that distinguishes category 2 settlements from category 3
settlements. Table 21 shows that several category 2 settlements are
smaller than some falling under category 3 in terms of number of habitable
dwelling units. As a result, there appears to be no direct correlation
between size of rural settlement and its classification within the Draft
North West Local Plan categorisation of rural settlements.
TABLE 21: NUMBER OF HABITABLE DWELLING UNITS WITHIN NWLP CATEGORIES 2
AND 3 RURAL SETTLEMENTS
NWLP Category 2
Rural Settlements
Selmun
Bingemma
Ta’Mrejnu
Tax-Xieref
L-Andrijiet
Id-Dahar
L-Ghemieri
Ta’Namura
Tas-Sirena
Misrah Suffara
Tas-Santi
Ta’l-Abatija
Ta’Mencaq
Total
Number of Habitable
Dwelling Units
42
31
25
22
22
16
15
13
12
11
11
9
8
237
NWLP Category 3 Rural
Settlements
L-Imbordin
Tas -Salib
Hofret ir-Rizz
Santa Katerina
Il-Ballut
Ta’Sabbat
Wardija
Tal-Ghattuqa
Tal-Imbart
Bieb ir-Ruwa
Misrah Miet
Ghajn Tuffieha
Fomm ir-Rih
Hal-Xluq
Hal-Tartarin
Total
Number of Habitable
Dwelling Units
28
22
20
19
18
15
14
12
11
11
9
4
3
3
2
191
Source: Malta Environment and Planning Authority (2002)
64
4.5.13
The number of habitable dwelling units in most rural settlements in the
North West Local Plan area is between 10 and 25 units (refer to table 21).
The classification system proposed by the Draft North West Local Plan
implies that the majority of rural settlements would be classified as
category 2 (refer to table 21), as only 7 rural settlements have less than
10 habitable dwelling units. Consequently, the number of rural settlements
being subjected to intensification of residential development may be
significant, depending on the number of gap spaces defined.
4.5.14
Although several rural settlements in the North West Local Plan area have
a large number of habitable dwelling units, and are classified as category
2 settlements in the Local Plan, the adjacent rural resources are among
the most sensitive in terms of natural habitats and archaeology. Examples
of the latter settlements include Misrah Suffara, L-Ghemieri and TasSirena; the latter is also located within a scheduled area.
4.5.15
The findings of this Topic Paper indicate that the character and context of
rural settlements is diverse; classification of rural settlements according to
size risks neglecting site -specific factors. The Draft North West Local Plan
did not consider the diverse character of rural settlements in its
classification system. The possible impacts resulting from intensification of
residential development within different category 2 settlements and their
context require further consideration.
4.5.16
When considering new development (or redevelopment), the Draft North
West Local Plan proposed local shops and residential units as acceptable
uses in rural settlements. Alternatives are required to accommodate uses
that require a rural setting, rather than encouraging further residential
development ODZ.
4.6 Categories of Settlements ODZ as Proposed in the
Rural Strategy Topic Paper
4.6.1 Before adoption of the Structure Plan, the lack of conservation afforded to
rural settlements had led to a significant impact on their character and
surrounding environment.
4.6.2 The Draft North West Local Plan classified various settlements ODZ
according to size and distance from urban areas. The classification of
these settlements, as adopted by the Draft Local Plan, is based on the
possibility of accommodating limited new development within defined gaps
spaces in certain settlements. However, the Draft Local Plan did not
consider the characteristics of different settlements ODZ.
65
4.6.3 Rather than defining settlements ODZ as areas where limited new
residential development may be accommodated, settlements should be
regarded primarily as assets for the resolution of conflicts between
legitimate uses in rural areas; issues with respect to agriculture,
countryside recreation and rural conservation are discussed in chapters 5,
6 and 7 respectively.
4.6.4 Issues related to settlements ODZ should not be addressed in isolation
from their context; appraisals of those settlements located away from
urban areas need to be encouraged, to accommodate the site-specific
requirements of different rural areas.
4.6.5 During the Structure Plan period, development in settlements ODZ was
assessed on a case-by-case basis; development pressure for new urbantype dwellings occurred mainly in gap spaces between existing buildings
in defined settlements located in the vicinity of urban areas.
Settlements Contiguous with the Development Zone
4.6.6 Intensification of residential development occurred in settlements ODZ
located in the vicinity of urban areas, particularly in those settlements that
are contiguous with the development zone. The latter settlements form
part of urban areas, and consequently are considered as purely urban
extensions. The inclusion of these urban extensions within the
development zone boundaries is recommended; these urban extensions
are excluded from the following categorisation system of settlements, as
proposed in this study.
4.6.7 Given that site-specific information on urban extensions is lacking, further
investigations are required: the potential land use impacts resulting from
the inclusion of defined urban extensions within the development zone
boundaries require further examination at the Local Plan level.
Categories of Rural Settlements
4.6.8 The following classification of settlements is derived from the analysis on
the diversity of settlements ODZ and their surrounding environment, and
aims to address the issues raised from the examination of the Draft North
West Local Plan approach. Given the above analysis, this study suggests
the following classification system:
66
•
Category 1: settlements located in close proximity to urban areas,
but are separated from the development zone by undeveloped land
ODZ;
•
Category 2: settlements distant from urban areas, but
predominantly characterised by urban-type dwellings (these consist
of totally urban-type rural settlements or mixed rural settlements
having a predominant urban character); and
•
Category 3: settlements predominantly characterised by old and/or
traditional buildings (including farmhouses).
4.6.9 Classification of rural settlements should be undertaken at the Local Plan
level. Given that development in rural settlements is a continuous process,
the classification of rural settlements at the Local Plan level may
necessitate revision of the information given in Appendix D and Appendix
E.
Proposed Category 1 Settlements
4.6.10
Category 1 settlements are located in the vicinity of urban areas, but are
separated from the development zone by undeveloped land ODZ. Given
the influence of nearby urban activities, this Topic Paper recommends that
Local Plans investigate the remaining gap spaces between existing
buildings in greater detail, where limited new development may be
accommodated.
4.6.11
It is recommended that Local Plans draw boundaries around Category 1
settlements to contain potential intensification of development, and
prepare strategies for suitable development and proper use of defined gap
spaces within the identified boundaries. In identifying boundaries and
formulating strategies, Local Plans should achieve the following common
objectives:
•
•
•
•
4.6.12
prohibiting the outward expansion of category 1 settlements;
prohibiting damage to the character of the area, and conserving
features and structures or any other rural resources as discussed in
this study;
preparing conservation strategies in cases where category 1
settlements happen to be predominantly characterised by buildings
having a heritage value; and
potential development should consist of residential dwellings and/or
small-scale local shops and/or development related to agriculture.
Undeveloped land between category 1 settlements and the development
zone should be designated as ‘strategic open gaps’, to discourage the
67
coalescence of built up areas, to retain the setting of built up areas, and
protect undeveloped land ODZ from further development.
Proposed Category 2 Settlements
4.6.13
Category 2 settlements are distant from urban areas, and consist of totally
urban-type rural settlements or mixed rural settlements having a
predominant urban character. A small proportion of old (or traditional)
buildings may be present in these mixed rural settlements.
4.6.14
Although rural settlements are located away from urban areas, the
character of some rural settlements is significantly impacted by urban-type
development; certain gap spaces within these settlements may be
characterised by exposed blank party walls that result in a visual impact
on the aesthetic value of the surrounding areas. Local Plans should
investigate such gap spaces where limited new development may be
accommodated.
4.6.15
Given that the surrounding rural resources of various rural settlements are
sensitive, it is recommended that no boundaries be drawn around
category 2 settlements. As several category 2 settlements are
concentrated in particular locations (some in the vicinity of category 3
settlements), it is suggested that Local Plans designate large areas as
areas of containment and rural enhancement, with the intention of:
•
•
•
•
•
•
prohibiting coalescence of settlements and prohibiting the outward
expansion of category 2 settlements;
protecting the setting of category 3 settlements and their
surrounding rural environment, as well as sensitive rural areas;
screening category 2 settlements through natural means or means
that are consistent with the rural character, to minimise the visual
impact of predominantly urban-type settlements on the character of
rural areas;
prohibiting damage to the character of the area, and conserving
features and structures or any other rural resources as discussed in
this study;
protecting and maintaining features and structures of historical,
architectural and archaeological value; and
potential development should consist of development related to
residential farmhouses for farmers, agriculture, small-scale local
shops and structures required for the management of nearby rural
areas.
68
Proposed Category 3 Settlements
4.6.16
Category 3 settlements are distant from urban areas, and consist of totally
old (or traditional) rural settlements or mixed rural settlements having a
predominant traditional character. A high proportion of old (or traditional)
buildings are present in these rural settlements.
4.6.17
Conservation of category 3 settlements and management of their
surrounding environment is necessary. Given that various abandoned
buildings are found within category 3 settlements, re-use of existing
buildings and sensitive rehabilitation of old buildings and structures should
be given priority.
4.6.18
Although these settlements are predominantly old (or traditional), a limited
amount of urban-type buildings (and/or activities not consiste nt with rural
areas) may be present. Strategies to improve the state and context of
these settlements should be formulated, to protect their predominant
old/traditional character from further urban-type development, and mitigate
the visual impacts resulting from existing development.
4.6.19
New development (or additions that create new units) should not be
encouraged, unless shown to be legitimate in rural areas; such
development should consist of small-scale structures and should not
impact on the character of old settlements and their setting.
4.6.20
Small-scale additions to existing buildings and construction of certain
ancillary facilities may be acceptable, providing that this does not impact
the character of rural settlements and their setting.
4.6.21
In category 3 settlements, it is essential that Local Plans:
•
•
•
•
•
4.6.22
develop conservation strategies for category 3 settlements;
protect and enhance the character and setting of category 3
settlements;
conserve features and structures or any other rural resources as
discussed in this study;
encourage the formulation of management plans for category 3
settlements and their surroundings; and
encourage the maintenance of the traditional rural landscape.
Strategies for category 3 settlements should aim to strengthen their rural
function, by recognising them as focal points for countryside management
and diversification of the rural economy. Potential uses that may be
accommodated within category 3 settlements consist of residential,
agricultural development, sustainable rural tourism and small-scale local
shops. The emphasis for development in category 3 settlements is upon
69
conservation, sensitive rehabilitation, re -use and maintenance of existing
buildings having a heritage value.
4.7 Summary
4.7.1
The Structure Plan prohibits urban development ODZ. Nevertheless,
limited urban-type dwellings were approved within settlements ODZ; the
concept of “infill development” was the main rationale for approval of
these dwellings. This concept was no longer applicable under the
provisions of the Development Plan Act of 1992.
4.7.2
The Structure Plan does not distinguish between settlements ODZ and
open countryside. Following the approval of limited dwellings ODZ,
innovative approaches towards settlements ODZ are being proposed.
4.7.3
Most settlements ODZ were established prior to the adoption of the
Structure Plan; development of limited new dwellings resulted in
intensification of development in these settlements. Most intensification
occurred in urban extensions that are contiguous with the development
zone. Intensification of development tended to decrease further away from
the conurbation.
4.7.4 Most rural communities live in mixed rural settlements, most of which were
formed prior to the adoption of the Structure Plan. Exposure of blank party
walls of urban-type dwellings within these settlements resulted in a visual
impact on the surrounding rural areas.
4.7.5 Various old rural settlements are characterised by a number of abandoned
buildings. However, these types of settlements were also subject to
alterations and extensions to old dwellings and farmhouses.
4.7.6
Rural settlements are diverse in terms of size and distribution. Few rural
settlements are provided with local services; the distances between rural
settlements and the nearest urban areas is not significant. The traditional
function of rural settlements is changing, as traditional farming is been
replaced by a specialised and intensive industry, and few rural settlements
are being characterised by activities not requiring a rural context.
4.7.7
The magnitude of the impact of urban development on rural settlements is
diverse. Therefore, the paper proposes that rural settlements may be
classified as follows:
70
•
Category 1: settlements located in close proximity to urban areas,
but are separated from the development zone by undeveloped land
ODZ;
•
Category 2: settlements distant from urban areas, but
predominantly characterised by urban-type dwellings (these consist
of totally urban-type rural settlements or mixed rural settlements
having a predominant urban character); and
•
Category 3: settlements predominantly characterised by old and/or
traditional buildings (including farmhouses).
4.7.8 In this regard, this study proposes a 3-classification system for settlements
ODZ with the intention of:
•
•
•
•
•
•
•
prohibiting outward expansion of settlements and protecting
strategic open gaps between settlements;
protecting and enhancing traditional rural settlements and their
setting;
conserving and enhancing rural resources, heritage and the
traditional rural landscape;
conserving and enhancing old/traditional rural settlements in terms
of their past agrarian function;
mitigating the visual impact of settlements that are predominantly
characterised by urban-type development;
strengthening the traditional function of rural settlements with
respect to the needs of the wider rural context; and
encouraging sensitive re-use and rehabilitation of buildings to
accommodate activities that require a rural context.
71
5. Agriculture
5.0.1 Although the direct contribution of the agricultural sector to the domestic
economy is modest, this sector is still of great importance in socioeconomic and environmental terms. From 1995 to 1999, the direct
contribution of agriculture and fisheries to the local economy was about
2.5 to 3 per cent (Economic Services Division, Economic Surveys).
5.0.2 Agriculture dominates the local rural landscape, as agricultural land covers
34 per cent of the Maltese Islands (National Statistics Office, 2001); most
land is located towards the northwest of Malta. Given that data from the
National Statistics Office (NSO) on agriculture is published according to
the NUTS regional and district boundaries, figure 1 shows the correlation
between the NSO’s regions and districts, and the Local Plan boundaries.
5.0.3 According to the Government’s Economic Surveys from 1990 to 2000,
agriculture production in the Maltese Islands faces several constraints,
including:
•
•
•
•
•
•
the loss of agricultural land;
an ageing labour workforce;
the lack of water resources;
unsatisfactory climatic conditions;
fragmentation of land ownership; and
lack of arable land and soil erosion.
5.0.4 The Government provides technical and professional support to farmers,
to aid the agriculture sector in increasing exports and to meet local
demand for healthy produce. The agriculture sector is also supported
through the Government’s levy system, to increase the competitiveness of
the local sector; however, Government policy on agriculture during the
past years was restricted to market support.
5.0.5 To aid the agriculture sector, the Structure Plan allows the development of
agricultural structures and buildings in the countryside (refer to Appendix
A).
5.0.6 As part of the accession process to the EU, the Government aims to
restructure the agriculture industry by shifting the current agricultural
policy from market support towards the concept of rural development, as
identified in the EU’s Rural Development Programme (Ministry of
Agriculture and Fisheries, 2002, Preliminary Consultation Document on
the Rural Development Plan 2003 – 2006). The restructuring process led
to several discussions regarding the viability and competitiveness of the
72
local sector and the consequent impact on farmers, particularly those
resulting from the possible removal of the Government levy system. The
possible land use implications of the Government’s emerging policy on
agriculture are discussed towards the end of this chapter.
5.0.7 Over the past years, the agriculture sector has undergone major changes,
which have affected the development needs of this sector, the types of
constraints faced by farmers and the extent of land use issues. This
chapter analyses the contemporary issues with respect to the current
Structure Plan strategy; issues examined include:
•
•
•
•
•
•
•
•
employment in agriculture;
loss of agricultural land, soil erosion and deposition of soil on land;
land use consequences of land fragmentation, and limitations
imposed by field size;
water shortages for irrigation;
storage facilities for the needs of agriculture;
the need and consequences of intensification of crop cultivation;
development pressure for vineyards and wineries; and
land use implications of animal farms.
5.1 Employment in Agriculture
5.1.1 Over 90 per cent of the total 11,400 registered farmers are in part time
employment; only 10 per cent are full time farmers (refer to table 22).
Districts
TABLE 22: TOTAL NUMBER OF
EMPLOYMENT AND NSO DISTRICTS
REGISTERED
FARMERS
BY
Percentage
Percentage
Full time of Total Full Part time
of Total
time
Part time
Southern Harbour District
64
7
825
8
South Eastern District
104
10
2165
20
Northern Harbour District
66
7
599
6
Western District
262
27
2581
25
Northern District
351
36
1762
17
Gozo and Comino
127
13
2494
24
TOTAL
974
100%
10426
100%
TYPE
OF
Total
889
2269
665
2843
2113
2621
11400
Source: National Statistics Office (News Release No. 35/2001)
73
5.1.2 Table 22 shows that registered full time farmers are concentrated in the
Western and Northern districts, and constitute 63 per cent of the total 974
full time farmers; this is consistent with the distribution of agricultural land
in the Maltese Islands, most of which is located in the Northern and
Western districts (refer to chapter 2). A total of 10,426 farmers are part
timers. Most of the part time farmers are located in the Western (25 per
cent), the Gozo & Comino (24 per cent) and the South Eastern (20 per
cent) districts.
5.1.3 According to the National Statistics Office (2001), 58 per cent of the total
974 full time farmers are within the 40 to 60 age cohort (refer to table 23).
Part time farmers within the 0 to 40 age cohort amount to only 10 per cent
of the total 10,426 part time farmers (refer to table 24).
TABLE 23: FULL TIME LAND TENANTS (FARMERS) BY AGE AND NSO DISTRICTS
FULL TIME EMPLOYMENT IN AGRICULTURE BY AGE
DISTRICT
<20
20 - <30 30 - <40 40 - <50 50 - <60 60 - <70
>70
All Age
Groups
Southern Harbour District
0
2
6
13
27
13
3
64
South Eastern District
0
7
11
24
33
13
16
104
Northern Harbour District
0
0
9
17
22
15
3
66
Western District
0
7
31
99
74
29
22
262
Northern District
5
15
59
101
94
52
25
351
Gozo and Comino
3
10
15
34
29
18
18
127
TOTAL
8
41
131
288
279
140
87
974
Source: National Statistics Office (News Release No. 35/2001)
74
TABLE 24: PART TIME LAND TENANTS (FARMERS) BY AGE AND NSO DISTRICTS
PART TIME EM PLOYMENT IN AGRICULTURE BY AGE
District
<20
20 - <30 30 - <40 40 - <50 50 - <60 60 - <70
>70
All Age
Groups
Southern Harbour District
6
17
55
170
237
172
168
825
South Eastern District
9
29
161
496
575
446
449
2165
Northern Harbour District
2
6
33
121
155
126
156
599
Western District
11
38
259
607
707
447
512
2581
Northern District
16
31
172
394
423
351
375
1762
Gozo and Comino
23
22
153
374
501
477
944
2494
TOTAL
67
143
833
2162
2598
2019
2604
10426
Source: National Statistics Office (News Release No. 35/2001)
5.1.4 At present, the majority of farmers are over forty, and are in part time
employment. The above analysis implies that the agriculture sector needs
to recruit younger employees to replace those approaching retirement
age.
5.2 Loss of Agricultural Land
5.2.1 The Structure Plan recognises that agricultural land decreased by 3,200
hectares in 15 years: from 15,200 hectares in 1971 to 12,000 hectares in
1986. According to the National Statistics Office (2001) the amount of
agricultural land registered with the Department of Agriculture is currently
10,738 hectares. This implies that another 1,260 hectares of registered
agricultural land were lost in the past 15 years. Nevertheless, although
the amount of registered agricultural land decreased, the rate of loss in the
past 15 years was less than that experienced during the period from 1971
to 1986 (refer to graph 5). The overall amount of agricultural land lost
during the last thirty years is 4,462 hectares, equivalent to an average
annual loss of 148 hectares; the average annual rate of loss of agricultural
land has decreased from 213 hectares per year from 1971 to 1986, to 84
hectares per year from 1986 to 2001.
75
GRAPH 5: RATE OF DECLINE IN AGRICULTURAL LAND FROM 1971 TO 2001
1971 - 1986
1986 - 2001
0
-500
Hectares (Ha)
-1000
-1500
-2000
-2500
-3000
-3500
15 Year Periods
Source: National Statistics Office (News Release No 35/2001); Structure Plan for the
Maltese Islands (1990)
5.2.2 The Structure Plan designates most of the areas outside the development
zone as a Rural Conservation Area, where the nature of uses that are
permissible in the countryside are restricted. The Structure Plan and other
relevant planning guidance include the following measures to minimise the
loss of agricultural land:
•
•
•
•
control of the type and number of developments that could be
accommodated in the countryside;
avoidance of the use of good quality agricultural land for
development legitimate in rural areas;
identification and conservation of Areas of Agricultural Value; and
the mandatory conservation of soil.
5.2.3 Identification and classification of Areas of Agricultural Value has been
lacking to-date.
5.2.4 The loss of agricultural land since the approval of the Structure Plan was
influenced by various land use factors. The following section examines the
impact of the following types of development on agricultural land outside
the development zone:
•
Residential development
76
•
•
•
•
•
•
Industrial development
School development
Hotel and hospital development
Development of construction plants
Farm development
Quarry excavations
5.2.5 The implications associated with the loss of agricultura l land and soil
erosion, and the pressure for the further deposition of soil on land for
agricultural purposes (also referred to as “land reclamation for agricultural
use”) are also examined.
5.2.6 The decrease in agricultural land is not necessarily the result of
development, but may also result from the abandonment of land, nondeclaration of land as a consequence of land subdivision, and the
development of agricultural land within the development zone boundaries.
Agricultural land within the development zone has been earmarked for
further urban development, according to the 1988 Temporary Provision
Scheme boundaries and the Structure Plan for the Maltese Islands.
Residential Development
5.2.7 The contribution of residential development to the loss of agricultural land
may be examined from the number of planning consents given during the
period of the Structure Plan (refer to chapter 3). Most of the new dwelling
units approved in rural areas were located in settlements outside the
development zone.
5.2.8 Most of the approved new residential development in rural areas consisted
in the construction of only 1 or 2 dwelling units per planning application.
Only four approved applications requested the construction of a large
number of dwelling units (a total of 38 dwelling units) during the period
from 1994 to 2000. The latter applications were located mainly in the
vicinity of urban areas; an examination of the latter planning consents
shows that most of these approved permits affected land that was not
used for agriculture. Consequently, the physical impact of the approved
new dwelling units on agricultural land is considered to be
insignificant.
5.2.9 Development that is ancillary to residential dwellings, like swimming pools,
garages, formal gardens, addition of rooms and paved areas, may also
impact upon agricultural land and other rural resources. Issues connected
with ancillary development apply to new dwelling units ODZ, existing
dwellings ODZ as well as to conversions, rehabilitation and adaptation of
old buildings and farmhouses for habitable purposes. Therefore, ancillary
77
development may also impact upon the character of the surrounding rural
areas and characteristics of old buildings and structures. The impacts
resulting from ancillary developments (including their cumulative impact)
need careful consideration.
Industrial Development
5.2.10
Most of the new industrial uses approved in rural areas consisted of
garage industries, warehouses, industrial stores, office development and
workshops (refer to chapter 3). Most of the industrial units approved
during the Structure Plan period were located in existing rows or clusters
of industrial uses in rural areas; consequently, the impact of new
industrial units on agricultural land is minimal.
School Development
5.2.11
During the period of the Structure Plan, 5 new schools were proposed in
rural areas. Although the Structure Plan recognised that school
development should be accommodated within the development zone, all 5
schools were approved in rural areas (refer to table 25). The main reasons
for directing school development outside the development zone
boundaries include:
•
•
the lack of land within urban areas having an area sufficient to
accommodate such projects; and
the need to upgrade the social and educational facilities within
schools, such as sports and other ancillary facilities.
5.2.12
Schools require a significant amount of land due to the footprint of the
development and the required additional facilities like sports grounds; the
approved school developments cover a total land area of 114,830 sq m
(equivalent to 11 hectares), and are located at the periphery of urban
areas, with the exception of that at Ta’ Imselliet between Mgarr and St.
Paul’s Bay.
5.2.13
Another two schools are being proposed: a school with a site area of
22,830 sq m (equivalent to 2 hectares) at Ta’ Zokrija (Mosta), and another
school with a site area of 15,940 sq m (equivalent to 1.5 hectares) at Ta’
Karwija (Kirkop). Both sites are located at the periphery of urban areas
and require an Environmental Impact Assessment. According to the1988
survey sheets, the site area of the proposed school at Ta’Zokrija is
agricultural land. As regards the proposed school at Ta’Karwija, only a
proportion of the site area is agricultural land.
78
TABLE 25: APPROVED NEW SCHOOL DEVELOPMENT OUTSIDE THE DEVELOPMENT
ZONE FROM 1994 TO 2000
Locality
Mgarr/St. Paul’s Bay
Msida
Zebbug
Santa Lucija
San Gwann
Total
Type of school
Early school
Secondary school
Junior & senior school
Girls secondary school
Secondary school
Former Use of Land
Agricultural land
Agricultural land
Agricultural land
Non agricultural land
Agricultural land
Site Area (sq m)
24,960
13,370
45,750
16,830
13,920
114,830 sq m
Source: Malta Environment and Planning Authority (2002)
5.2.14
The impact of the new schools approved on agricultural land is significant.
The various sites where new school developments were approved were
examined from the Malta Environment and Planning Authority’s 1988
cartographic records and the 1998 aerial photography; the approved new
schools, with the exception of that approved in Santa Lucija, were
accommodated on land formerly used for agricultural purposes. School
development resulted in the loss of a total of 98,000 sq m (equivalent
to 10 hectares) of agricultural land.
Hotel and Hospital Developments
5.2.15
Although few planning applications for hotels and hospitals were approved
in rural areas, these types of developments occupy an extensive amount
of land; these are the San Lawrenz Hotel in Gozo (with a site area of
25,000 sq m, equivalent to 2.5 hectares) and the new hospital at TalQroqq in Malta (with a site area of 86,000 sq m, equivalent to 8.6
hectares). The approved hotel in Gozo was located in the open
countryside.
5.2.16
A comparison between the 1988 survey sheets and the 1998 aerial
photography revels that both hotel and hospital developments involved
the development of agricultural land (a total of 11 hectares). Although
the Structure Plan allowed hospital development outside the development
zone, hotel development in rural areas was prohibited.
Development of Construction Plants
5.2.17
There are currently 58 construction plants; these include concrete and
precast plants (including batching plants), tarmac plants and limekilns.
Over 30 per cent of these plants are located in quarries: the Structure Plan
encourages the relocation of construction plants to abandoned quarries.
Development related to the construction industry requires a substantial
79
amount of land, is directly linked to quarry operations and generates a
significant impact on the surrounding areas and land uses.
5.2.18
11 construction plants were approved from 1994 to 2000; 5 out of the 11
approved plants were located in Naxxar; another 4 approved plants were
located in Mqabba. Most approved construction plants were located in
rural areas, within or in the vicinity of existing quarries. During the period
of the Structure Plan, the impact of construction plants on
agricultural land was minimal.
Farm Development
5.2.19
Although the Structure Plan considers farm buildings as legitimate
development in rural areas, the construction of new structures for animal
husbandry also contribute to the loss of agricultural land. The examination
of the various approved planning applications for new farms from 1994 to
2000 provides useful information regarding the spatial distribution and
extent of the impact of new farm structures on agricultural land. The
findings are shown in table 26.
TABLE 26: AREA OF ANIMAL FARMS APPROVED FROM 1994 TO 2000
ACCORDING TO LOCAL COUNCIL BOUNDARIES
Local Council Area
Area in sq m
Qormi
7,880
Siggiewi
14,330
Zejtun
1,370
Ghaxaq
1,080
Munxar
5,090
Nadur
320
Naxxar
26,940
Paola
1,680
Safi
56
Zebbug (Gozo)
3,020
Zurrieq
17,600
Total
79,366
Source: Malta Environment and Planning Authority (2002)
5.2.20
Area in hectares
0.8
1.4
0.1
0.1
0.5
0.03
2.7
0.2
0.003
0.3
1.8
8.0
From 1994 to 2000, 8 hectares of agricultural land were lost due to the
construction of new farm buildings. The Local Council areas most
affected by the loss of agricultural land due to farm development were
Siggiewi, Naxxar and Zurrieq, where 5.9 hectares of agricultural land were
lost; this is the equivalent to 74 per cent of the total 8 hectares of
agricultural land lost.
80
Quarry Excavations
5.2.21
According to the Minerals Subject Plan for the Maltese Islands, a total of
around 2.6 sq km are under quarry operations. During the period of the
Structure Plan, various excavations of new quarries, and extensions to
existing quarries impacted on agricultural land.
5.2.22
The spatial distribution and extent of the impact of quarry operations on
agricultural land during the Structure Plan period was examined using the
planning applications for new quarries and extensions approved during
1994 to 2000, and the enforcement notices issued during 1996 to 2000.
The 1988 survey sheets were used as baseline information. The findings
are shown in table 27.
TABLE 27: AGRICULTURAL LAND AFFECTED BY QUARRY DEVELOPMENT
ACCORDING TO LOCAL COUNCIL BOUNDARIES
Name of Area
Local Council
Ta’ Torri Falka
Tax-Xantin
Ix-Xghira
Tad-Debbiet
In-Nigret
Tal-Qattus
Taz-Zebbiegha
Ta’ Habel Lazz
Ta’ L-Imbragg
Tal-Warda
Tal-Harruba
Wied Iz-Ziju
Xaghra Tal-Lunzjata
Total
Mgarr
Mqabba
Gharb
Siggiewi
Naxxar
Mqabba
Siggiewi
Kercem
Siggiewi
Mqabba
Siggiewi
Zejtun
Rabat (Malta)
Amount of Affected
Agricultural Land
(sq m)
33,290
5,140
3,630
10,360
4,000
10,100
30,300
4,400
12,000
11,200
36,200
18,500
9,300
188,420 sq m
Amount o f Affected
Agricultural Land
(hectares)
3.3
0.5
0.4
1.0
0.4
1.0
3.0
0.4
1.2
1.1
3.6
1.9
0.9
18.7 ha
Source: Malta Environment and Planning Authority (2002)
5.2.23
18.7 hectares of agricultural land were lost due to quarry excavations
during the Structure Plan period. The Local Council area most affected by
quarry excavations was Siggiewi with 8.8 hectares of agricultural land lost
(equivalent to 47 per cent of the total 18.7 hectares of lost agricultural
land).
5.2.24
As stated in the Mineral Subject Plan for the Maltese Islands (2002), the
future reclamation of various disused quarries, will allow the excavated
areas to revert back to agriculture. However, the reclamation process is
81
hindered by the presence of various activities in disused quarries,
particularly construction plants and industrial development (refer to
chapter 3).
Soil Erosion and Deposition of Soil on Land
5.2.25
Soil erosion is one of the factors contributing to the loss of agricultural land
and the viability of land in terms of agricultural production. The Structure
Plan encourages soil conservation and soil saving (refer to Policy AHF 4),
and refers to the existing legislation: Fertile Soil (Preservation) Act, 1973,
amended in 1983, and LN 104 of 1973.
5.2.26
As identified in the State of the Environment Report (1999) and Tanti et al
(2001), the main factors contributing to soil erosion are as follows:
•
•
•
•
•
•
5.2.27
the construction of impermeable surfaces, increasing the quantity
and velocity of surface water runoff e.g. urbanisation, roads and
quarrying;
exposure of soil surfaces to erosive forces (mainly wind and rain),
by removal of vegetation through overgrazing, or creation of
trapping sites;
soil compaction by trampling, including vehicles and machinery,
which reduces the amount of water penetration and vegetative
growth;
improper field management techniques, including improper
ploughing techniques, the use of saline water for irrigation,
improper use of pesticides and fertilisers, and lack of culverts;
lack of maintenance to rubble walls and terracing; and
planting of invasive and alien species that inhibit the growth of other
vegetation.
Various illegal activities involve the removal of soil from agricultural land to
accommodate other uses, such as parking of machinery and large
vehicles. Table 28 lists these illegal activities, for which enforcement
notices were issued from 1996 to 2000. As described in chapter 3,
planning applications for industrial uses in rural areas (those approved
from 1994 to 2000) included the development of yards for parking of
industrial machinery and vehicles.
82
TABLE 28: ILLEGAL ACTIVITIES CONTRIBUTING TO LOSS OF SOIL
Type of Activity
Number of Issued Enforcement Notices
Removal of topsoil from land
18 notices
Dumping of material, mostly
55 notices, including some cases of dumping
construction waste
in quarries or on fields adjacent to quarries
Levelling of land and fields, including
31 notices
concreting of land
Excavation works
57 notices
Total
161 Notices
Source: Malta Environment and Planning Authority (2002)
5.2.28
Furthermore, it was estimated that the total land area covered by dumping
within unofficial dumpsites in 1998 was 63,3000 sqm (Mallia et al, 2002,
Physical background, demography, tourism, mineral resources and landuse. In Axiak et al, 2002, State of the Environment Report for Malta 2002.
Ministry for Home Affairs and the Environment).
5.2.29
Development in rural areas (as discussed above and in the previous
sections) has resulted in an increase in the amount of impermeable
surfaces. In turn, this increased the surface water runoff and soil erosion.
Given that the Structure Plan is concerned with the protection of good
quality agricultural land, development that is legitimate in rural areas is
channeled in areas having low quality agricultural land. Nevertheless, a
classification system for the quality of agricultural land is absent.
5.2.30
In the past, rubble walls and terraced fields were constructed as a means
of retaining soil in fields. Rubble walls and terraced fields are now
regarded as an integral part of the character of the Maltese landscape.
However, lack of maintenance to rubble walls and terraced fields has
increased the risk of soil erosion. In this regard, Structure Plan Policy
RCO 4, and LN 160 of 1997 prohibit any damage to rubble walls.
Nevertheless, maintenance to rubble walls and terraced fields depend on
the type of field management techniques that farmers are willing or able to
adopt.
5.2.31
Over the past years, the Government distributed soil to farmers to
compensate for the loss of soil and to reclaim land for agriculture. During
the period January to September 1996, “4,311 cubic metres of soil were
transported to farmers to improve and reclaim agricultural holdings ”
(Economic Survey, 1996). Furthermore, the removal and transportation of
soil from construction sites requires Government permission; such soil is
also made available to farmers. In this regard, Structure Plan Policy AHF 4
states that “soil replenishment measures will be adopted where there are
suitable opportunities”.
83
5.2.32
Structure Plan Policy RCO 9 encourages the cultivation of abandoned or
derelict agricultural land; nevertheless, abandoned agricultural land is not
allowed to revert to agriculture if scientifically important species are
established on site. Policy RCO 8 stresses that “any planned agricultural
development will not harm the ecological, archaeological, and scenic
value of the area ”.
5.2.33
Despite the strategy outlined in the Structure Plan, “significant expanses
of garigue…have been ‘reclaimed’ for agricultural use by dumping of
rubble, leveling of the land and subsequently topping with soil“ (Schembri
et al. in Axiak et al., 1999). Examples of land reclamation on natural
habitats include those at L-Ahrax Tal-Mellieha.
5.2.34
During the period from 1994 to 2000, 5 development planning permits for
the deposition of soil on natural habitats were approved, despite the
damage caused. 3 out of the 5 approved applicati ons were granted
development permission at the reconsideration and appeals stages.
These approved applications covered an area of 0.02 sq km and are
located in Naxxar, Mgarr, Rabat, Ghaxaq and Birzebbugia. Furthermore,
12 enforcement notices were issued from 1996 to 2000 for the illegal
deposition of soil on land, including deposition of soil on natural habitats.
5.2.35
Soil deposited on land with shallow soils may be acceptable, depending
on the species or habitats established in these areas. During the period
from 1994 to 2000, 4 development planning permits for the deposition of
soil on fields (not natural habitats) were approved. Nevertheless, the
Department of Agriculture recognises that deposition of soil on land is
often carried out in an inappropriate manner.
5.3
Agricultural Land Holdings and Land
Fragmentation
5.3.1 The size of agricultural land holdings in the Maltese Islands tends to be
small, mainly “as a result of fragmentation of land due to the local landinheritance system” (Axiak et al, 1999). Over 70 per cent of the total
11,400 farmers have less than one hectare of agricultural land. Most of the
farmers having more than 1 hectare of agricultural land are located within
the North Westerly Region (refer to table 29).
84
TABLE 29: NUMBER OF FARMERS ACCORDING TO SIZE OF AGRICULTURAL
HOLDINGS AND NSO REGIONS
NSO Regions
0.000 - <1.000 ha.
1.000 - <31.000 ha.
Total
South Easterly
2,373
785
3,158
North Westerly
3,608
2,013
5,621
Gozo and Comino
2,107
514
2,621
Total
8,088
3,312
11,400
Source: Nat ional Statistics Office (News Release No. 35/2001)
5.3.2 Part time farmers tend to have small land holdings: 76 per cent of the total
10,426 part timers have less than 1 hectare of land; 55 per cent of all part
timers have less than 0.5 hectares of land. However, only 20 per cent of
full time farmers have less than 1 hectare (refer to table 30 and table 31).
Most farmers holding more than 5 hectares tend to be full timers.
5.3.3 The size of land holdings is not necessarily related to the farmer’s
employment status. 24 per cent of all part timers have more than one
hectare; these include holdings that are larger than 5 hectares.
5.3.4 The number of farmers having different categories of agricultural land are
given in table 32:
•
•
•
8,072 farmers declared that they had less than 1 hectare of dry
agricultural land.
Only 2,262 farmers have irrigated land; however, 87 per cent of the
latter have irrigated land that is less than 1 hectare in size.
Therefore, only 13 per cent of the 2,262 farmers have irrigated land
holdings that are larger than 1 hectare.
TABLE 32: DISTRIBUTION OF THE NUMBER OF FARMERS BY CATEGORY OF
LAND AND SIZE OF AGRICULTURAL HOLDING
Category of Land
0.000 - <1.000
1.000 - <5.000
5.000 and more
Total
Dry Land
8,072
2,411
93
10,576
Irrigated Land
1,961
295
6
2,262
Unutilised/Garigue
2,780
308
12
3,100
12,813
3,014
111
15,938
Total
Source: National Statistics Office (News Release No. 35/2001)
85
6.000 - <7.000
7.000 - <8.000
8.000 - <9.000
9.000 - <10.000
10.000 - <11.000
11.000 - <12.000
12.000 - <13.000
13.000 - <14.000
14.000 -< 15.000
15.000 - <16.000
16.000 - <17.000
18.000 - <19.000
23.000 -< 24.000
30.000 - <31.000
31
22
10
4
7
4
2
2
0
1
1
1
0
1
974
25
13
9
3
3
3
0
0
0
1
0
0
0
1
0
10,426
Total
8088 2018 659 298 137 81
44
31
13
7
10
4
2
2
1
1
1
1
1
1
11,400
Total
5.000 - <6.000
56
3.000 - <4.000
259 203 110 65
7893 1759 456 188 72
2.000 - <3.000
195
Part time Farmers
Category of Farmers
1.000 -< 2.000
Full time Farmers
0.000 - <1.000
4.000 -< 5.000
TABLE 30: SIZE OF LAND HOLDINGS (Ha) ACCORDING TO THE STATUS OF FARMERS
Source: National Statistics Office (News Release No. 35/2001)
TABLE 31: LAND HOLDINGS MEASURING BEWTEEN 0 TO 1 Ha IN SIZE, ACCORDING TO THE STATUS OF FARMERS AND NSO
REGIONS
Region
0.000 - <0.112 0.112 -< 0.224 0.224 - <0.336 0.336 -<0.448 0.448 - <0.560 0.560 - <0.672 0.672 - <0.784 0.784 - <0.896 0.896 - <1.008
Total
Full Time Farmers
South Easterly
0
6
6
3
8
5
4
2
13
47
North Westerly
0
8
8
11
8
19
18
15
29
116
Gozo and Comino
0
4
4
5
2
4
6
7
2
34
0
18
18
19
18
28
Part Time Farmers
28
24
44
197
South Easterly
83
498
478
358
279
205
189
126
115
2331
North Westerly
133
718
646
506
460
343
283
227
186
3502
Gozo and Comino
208
477
354
310
240
166
132
102
85
2074
424
1693
1478
1174
979
714
604
455
386
7907
Total
Total
0.112 Ha = 1 Tumolo
Source: National Statistics Office (News Release No. 35/2001)
86
5.3.5 Development
planning
applications
concerning
agricultural
development necessitate consultation with the Department of
Agriculture, who indicate whether the applicant is a registered full time
or part time farmer. The amount, category and location of the land
registered in the applicant’s name are then plotted in GIS by the Malta
Environment and Planning Authority.
5.3.6 The digitised land parcels are associated with development permits
requested from 1992 to 1997. Although not all information on land
holdings has been digitised in GIS, the data available provides a good
indication of the fragmentation of holdings of those farmers requesting
development permits for agricultural development.
5.3.7 Examination of applicants’ land holdings indicates that several farmers
requesting development permits have fragmented land holdings. A total
of 241 separate land parcels belonging to 147 farmers were identified;
some farmers had more than 3 separate land parcels (refer to graph 6).
Most of the identified agricultural land parcels are less than (or equal
to) 0.5 hectares (refer to graph 7).
GRAPH 6: NUMBER OF APPLICANT FARMERS ACCORDING TO THE
NUMBER OF TILLED LAND PARCELS, REGISTERD IN THEIR NAME
No of Applicant Farmers
120
100
80
60
40
20
0
1
2
3
4
5
6
7
No of Agricultural Land Parcels
Source: Malta Environment and Planning Authority, Constraints database
87
GRAPH 7: NUMBER OF AGRICULTURAL LAND PARCELS ACCORDING TO
THEIR SIZE
160
No of Agricultural Land Parcels
140
120
100
80
60
40
20
0
0.0 to < or = 0.5
0.5 to < or = 1.0
1.0 to < or = 1.5
1.5 to < or = 2.0
2.0 to < or = 3.0
3.0 to < or = 6.0
Categories of Areas of Agricultural Land Parcels
Source: Malta Environment and Planning Authority, Constraints database
Implications of Land Fragmentation
5.3.8 The various socio-economic factors influencing the fragmentation of
agricultural land holdings and the limited size of fields are not directly
related to land use planning . Nevertheless, fragmentation and limited
field size are significant in terms of impacts on the landscape and the
environment. Land fragmentation has the following negative
consequences:
•
•
•
•
•
•
•
•
an increase in the demand for access roads to fields;
loss of agricultural land and the increase of surface water runoff;
increases the possibility of land abandonment;
limits the agricultural techniques that could be applied on field;
constrains the design of proper irrigation schemes;
increases the demand for agricultural buildings;
involves further construction of boundary walls to define property
rights, with the consequent change in the rural landscape; and
reduces the economies of scale and consequently the economic
viability of production.
5.3.9 Most of the Structure Plan policies on agricultural development adopted
the employment status of the farmer and the size of the farmers’ land
holdings as criteria for development. This was intended to prevent
proliferation of structures in the countryside. Consequently, the
88
development of residential farmhouses was restricted to full time
animal breeders, or full time farmers having a minimum of 20 tumoli
(equivalent to 2.24 hectares) of dry agricultural land, or 5 tumoli
(equivalent to 0.56 hectares) of irrigated land. Similarly, development of
agricultural stores was restricted to full time farmers.
5.3.10 According to the National Statistics Office (2001) the amount of
irrigated agricultural land has increased to 1,143 hectares; during the
period of the Structure Plan, this may have increased the number of
farmers eligible for the construction of new residential farmhouses.
However, the analysis carried out in chapter 3 indicates that the
number of residential farmhouses granted to farmers from 1994 to
2000 has been insignificant.
5.3.11 The Structure Plan did not encourage the development of agricultural
stores by part time farmers, due to the cumulative impact these
structures would have on the countryside and the landscape. The
magnitude of the impact would be highly significant, given that the size
of the land holdings of part timers is small and fragmented, and that
part time farmers amount to 90 per cent of the total 11,400 farmers.
Nevertheless, the previous analysis of land fragmentation indicates that
the size of land holdings is not necessarily linked with the employment
status of the farmer.
5.3.12 Although the consolidation of agricultural land is expected to contribute
to an improvement of the environment and agriculture viability, “so far
there has never been an attempt for a land consolidation programme
which would have to involve the farmers themselves who, however, are
very reluctant to relinquish or exchange any part of their holdings”
(Mifsud A, 2001).
5.4 Agricultural Stores
5.4.1 The Structure Plan and the Policy and Design Guidelines on
Farmhouses and Farm Buildings require that development of
agricultural stores conforms to the following conditions:
•
•
•
•
the proposed structures should be integrated within the rural
context through adequate landscaping;
the applicant farmer must genuinely need the store for
agricultural purposes;
the applicant farmer should be a bona fide full time registered
farmer; and
the proposed structure should have a footprint equal to (or less
than) 15 square metres and be equal to (or less than) 9 courses
in height.
89
Development Pressures and Trends for Agricultural Stores
5.4.2 From 1994 to 2000, a total of 587 agricultural stores were requested:
•
228 agricultural stores (39 per cent) were approved at the DCC
level;
340 stores were refused at the DCC level; and
the applications for another 19 stores were withdrawn from the
development planning process.
•
•
5.4.3 Table 33 gives the distribution of the approved and refused agricultural
stores at the DCC level from 1994 to 2000.
TABLE 33: APPROVED AND REFUSED AGRICULTURAL STORES FROM 1994
TO 2000
Type of
Decision
Approved
Refused
Other
Decisions
Total
1994
1995
1996
1997
1998
1999
2000
Total
19
16
36
31
54
28
35
65
38
93
23
50
23
57
228
340
1
2
1
6
4
2
3
19
36
69
83
106
135
75
83
587
Source: Malta Environment and Planning Authority (2002)
5.4.4 Graph 8 indicates that the annual percentage of the approved stores
decreased from 1996 to 1997, while the reverse trend was noted with
respect to refused stores. This may have resulted from an increased
awareness of the impacts of stores on the landscape. Although most of
the stores requested from 1997 to 2000 were refused, the annual
amount of requested stores remains significant.
GRAPH 8: ANNUAL PERCENTAGE CHANGE: NUMBER OF APPROVED AND
REFUSED AGRICULTURAL STORES IN RURAL AREAS FROM 1994 TO 2000
80%
70%
Percentage
60%
50%
Approved
40%
Refused
Other decisions
30%
20%
10%
0%
1994
1995
1996
1997
1998
1999
2000
Decision Years
Source: Malta Environment and Planning Authority (2002)
90
5.4.5 Table 34 lists the localities where more than 4 agricultural stores were
requested:
•
58 per cent of the total 587 agricultural stores requested from
1994 to 2000 were located in the Northern and Western districts,
mainly in Siggiewi, Rabat (Malta), Zebbug (Malta), Naxxar, St
Paul’s Bay, Mgarr, Dingli, Mosta and Attard.
•
50 per cent of the 228 agricultural stores approved from 1994 to
2000 were located in the Northern and Western districts, mainly
in Siggiewi, Rabat (Malta), Zebbug (Malta), and St Paul’s Bay.
5.4.6 A threshold of 4 planning applications for agricultural stores per Local
Council was adopted, so as to simplify spatial analysis of data on
approved agricultural stores from 1994 to 2000 (refer to table 34).
TABLE 34: LOCALITIES WHERE MORE THAN 4 AGRICULTURAL STORES WERE
APPROVED FROM 1994 TO 2000
MALTA
NSO Districts
Western
Western
Western
Northern
Northern
South Eastern
Northern
Western
Southern
Harbour
Northern
South Eastern
South Eastern
South Eastern
South Eastern
Northern
Harbour
South Eastern
Western
South Eastern
South Eastern
Southern
Harbour
South Eastern
Local
Council
Siggiewi
Rabat
Zebbug
Naxxar
St Paul’s
Bay
Zurrieq
Mgarr
Dingli
GOZO
(Gozo and Comino District)
Local
Requested Approved
Council
Stores
Stores
Kercem
15
6
Ghasri
13
7
Xaghra
8
4
Xewkija
7
6
Requested
Stores
78
69
49
40
Approved
Stores
26
20
20
8
40
19
Nadur
7
4
30
19
18
14
4
5
Gharb
Zebbug
5
5
2
3
Zabbar
18
5
Mosta
Ghaxaq
Qrendi
Zejtun
Birzebbugia
16
13
13
11
11
8
10
4
5
4
Qormi
10
3
Mqabba
Attard
Safi
Marsaskala
10
10
9
9
4
5
3
4
Luqa
6
1
Gudja
5
3
Source: Malta Environment and Planning Authority (2002)
91
Development of Agricultural Stores by Part Time Farmers
5.4.7 The Department of Agriculture has indicated that as a consequence of
investment in expensive modern irrigation systems and/or greenhouse
technology, the production of some part time farmers is actually higher
than that of full timers. Furthermore, as discussed in the previous
sections, the size of land holdings is not necessarily linked with the
employment status of the farmer. Current Structure Plan policy does
not cater for part time farmers cultivating substantial amounts of land,
or part time farmers making a significant contribution to the local sector.
5.4.8 The consequences of including part time farmers as being eligible for
development of agricultural stores are as follows:
•
Given that only 10 per cent of farmers are full timers, and that
the number of part time farmers is 10,426, the pressure for
agricultural stores would increase drastically.
•
Given the fragmentation of land and the small size of land
holdings, the cumulative impact of agricultural stores on the rural
landscape and on the openness of the rural environment would
increase.
5.4.9 Provision for agricultural stores needs to consider part time farmers
whose contribution to the local sector is significant, without imposing
unacceptable and unnecessary development in the countryside. The
onus is put onto the farmers to demonstrate the need for storage
space; such need to be confirmed by the Department of Agriculture.
5.4.10 The Department of Agriculture recommends to the Malta Environment
and Planning Authority that assessment of planning applications for
agriculture stores should follow criteria to determine whether a bona
fide farmer needs storage for agricultural purposes. The suggested
criteria are as follows:
•
•
•
•
•
•
•
•
the degree of consolidation of land holdings;
the equipment required to cultivate the land;
the size of the tilled land;
the suitability of the terrain (e.g. terraced or plain fields) with
respect to application of field management techniques;
the turnover from the Pitkali or any other records of production;
proof of ownership of vehicle, the use of which is exclusively for
the tilling of land (and excluding other vehicles whose purpose is
transportation);
the types of products or crops produced per year; and
availability of water sources and the type of irrigation system
being used on land.
92
5.4.11 Therefore, determining planning applications according to these
specific criteria by the Malta Environment and Planning Authority
requires provision of information from both applicants and the
Department of Agriculture.
5.5 Irrigation of Agricultural Land
5.5.1 Given the climatic conditions of the Maltese Islands, water supply
through rainfall is unpredictable and insufficient. Alternative solutions
are required to irrigate land to increase crop production. According to
the National Statistics Office (2001), the amount of irrigated land is less
than that of dry agricultural land (refer to table 35): dry agricultural land
amounts to 8,241 hectares, equivalent to 77 per cent of the total 10,738
hectares of agricultural land.
5.5.2 The distribution of irrigated land in the Maltese Islands is as follows:
•
•
5 per cent of the total 1,782 hectares of agricultural land in Gozo
is irrigated, whilst 84 per cent is dry land.
2 per cent of the total 8,957 hectares of agricultural land in
mainland Malta is irrigated whilst 75 per cent is dry.
5.5.3 The remaining percentages
unutilised/garigue land.
of
agricultural
land
consist
of
5.5.4 Table 35 lists the proportion of dry land for every hectare of land that is
irrigated, according to the different NSO districts.
•
Most irrigated land is located in the Northern and Western
districts, followed by the South Eastern and the Southern
Harbour districts.
•
There are 17 hectares of dry agricultural land for every hectare
of irrigated land in the Gozo and Comino district.
•
There are between 9 to 12 hectares of dry land for every hectare
of irrigated land in the Western and South Eastern districts.
•
There are between 3 to 4.5 hectares of dry land for every
hectare of irrigated land in the Northern, Southern Harbour and
Northern Harbour districts.
5.5.5 The Northern district has the largest number of full time farmers and
the smallest number of part time farmers when compared with the
South Eastern, Western and the Gozo and Comino districts, and is the
second district with the largest amount of agricultural land. Only 4.4
hectares of dry land per hectare of irrigated land are found in the
Northern district.
93
TABLE 35: DISTRIBUTION OF IRRIGATED AGRICULTURAL LAND ACCORDING
TO NSO DISTRICTS
NSO Districts
Western District
Northern District
South Eastern
District
Gozo and
Comino District
Southern
Harbour District
Northern
Harbour District
Total
301
415
Proportion of
Irrigated Land
out of Total
Agricultural
Land
26
36
Amount of
Dry Land
per
Irrigated
Hectare
9.1
4.4
1580
140
12
11.3
1782
1505
88
8
17.1
524
360
121
11
3.0
350
242
79
7
3.1
10738
8241
1144
11
7.2
Total
Agricultural
Land (ha)
Dry
Land
(ha)
Irrigated
Land
(ha)
3525
2597
2728
1826
1961
Source: National Statistics Office (News Release No. 35/2001)
5.5.6 Despite the overall limited area of irrigated land, the National Statistics
Office (2001) states that “tenants declared an increase in irrigated land
to 1,143 hectares”; in 1991, only 723 hectares of land were irrigated
(Agriculture Census, 1991). This does not reflect an increase in the
amount of land being cultivated, but reflects an increased proportion of
land that is being supplied with water using modern agricultural
technologies. However, increasing the proportion of irrigated land
requires a substantial investment by the farmer.
5.5.7 Consequently, increased application of such technologies will result in
an increased demand for additional facilities for the storage and
distribution of water. The increased demand for water supply may
result in a proliferation of boreholes, with the consequent degradation
of the water table, agricultural land and environment (see below).
5.5.8 According to the European Spatial Development Perspective
(European Commission, 1999), shortage of water resources,
particularly in the dry season, is an issue that concerns most of the EU
Mediterranean countries, particularly the southern EU Member States.
Water supply is a significant limitation for the Maltese agriculture
sector, which has to compete with other sectors for water resources.
Consequently, alternative sources of irrigation water are required. The
various alternative supplies include the extraction of groundwater, the
distribution of treated effluent and the storage of rainwater.
94
Distribution of Recycled Water from the Sant’ Antnin Sewage
Treatment Plant
5.5.9 The Government distributes treated water from the Sant’ Antnin
Sewage Treatment Plant; Policy AHF 2 recognises the need to develop
a system for the supply of irrigation water, which includes recycling of
water. The extension of the existing system to other areas to the north
of Malta is not considered feasible. Consequently, central government
has proposed another three Sewage Treatment Plants at Ras il-Hobz,
Ic-Cumnija and Wied Ghammieq. An evaluation of these projects is
being undertaken through the EIA process. Part of the treated water
from the new Sewage Treatment Plants will be used for irrigation
purposes. The main potential impacts of the new treatment plants are
associated with:
Negative:
Positive:
•
Visual intrusion
•
•
Land take up
•
•
Loss of agricultural land
•
Damage to water table and
aquifers should hypersaline
waters be used for irrigation
Indirect damage to natural
habitats (if the increase in
available water for irrigation
will encourage the deposition
of soil on natural habitats, to
be used for agriculture, or
other developments)
•
•
Increase availability of water
for irrigation
Potential decreased use of
groundwater
Treating
water
before
disposing into the marine
environment
5.5.10 Government is currently pumping treated water for irrigation purposes
to six main reservoirs (total capacity of 11,840 cubic metres) from the
Sant’ Antnin Sewage Treatment Plant. Treated effluent for irrigation is
distributed to areas outside the groundwater protection zones to the
south of Malta, mainly Zabbar, Marsascala and Zejtun.
5.5.11 The salinity in the water distributed from the Sant’ Antnin Sewage
Treatment Plant has increased to unacceptable levels. Irrigation using
hypersaline waters will result in damage to agricultural land through
salinisation, as well as to the water table. Salinisation will lead to
complete abandonment of agricultural land and increase the potential
for soil erosion.
95
Development Pressure for Reservoirs and Pump Rooms
5.5.12 Land irrigation frequently involves the extraction of groundwater, using
pump rooms and boreholes. Groundwater accumulates in the perched
aquifer (mainly in the Western and Northern districts, where most of the
clay formations are situated) and in the mean sea level aquifer, located
in the “deeper freshwater lenses in the Lower Coralline Limestone
formation” (Mangion, 2001). The drilling of boreholes requires
permission from the Water Services Corporation.
5.5.13 At present, farmers are only charged the pumping costs, and do not
pay for the use of groundwater. The impacts of extracting groundwater
through boreholes are associated with:
•
increase of salinity levels in soils due to the excavation of
galleries at sea level and drilling of deep boreholes, to the
detriment of agriculture and potable water;
•
salinisation of soils increases the rate of soil erosion and
desertification;
•
over-irrigation is frequently associated with an increase in the
use of soluble and organic fertilizers to increase production, with
the consequent increase in the nitrate levels of groundwater;
and
•
drilling of boreholes, especially in the mean sea level aquifer,
has increased agriculture production; however, this has also
resulted in the deterioration of water quality and the lowering of
market prices of agricultural produce due to over production.
5.5.14 Groundwater is stored in reservoirs, which may also be used for the
storage of rainwater or treated water. Pumps are then used to irrigate
fields when required, especially during dry seasons. As discussed
above, land fragmentation and the small size of land holdings leads to
an increased demand for reservoirs, pump rooms, and boreholes for
irrigation purposes.
5.5.15 Given that the agriculture sector is constrained by the lack of water
resources, farmers require structures to store and distribute water to
their fields. From 1994 to 2000, 200 development permits were
requested for 190 reservoirs and 41 pump rooms. The distribution of
the refused and approved reservoirs and pump rooms at the DCC level
is shown in table 36.
96
TABLE 36: DISTRIBUTION OF APPROVED AND REFUSED RESERVOIRS AND
PUMP ROOMS FROM 1994 TO 2000
Reservoirs:
Type of
Decision
Approved
Refused
Other
decisions
Total
1994
1995
1996
1997
1998
1999
2000
Total
6
2
17
5
24
5
21
6
11
20
12
19
13
11
104
68
0
1
2
7
3
1
4
18
8
23
31
34
34
32
28
190
1995
1996
1997
1998
1999
2000
Total
2
0
4
2
3
1
2
6
4
2
6
4
24
15
0
0
1
0
1
0
2
2
6
5
8
7
10
41
19
28
24
13
16
19
128
Pump Rooms:
Type of
1994
Decision
Approved
3
Refused
0
Other
0
decisions
Total
3
Total
Approved
Structures
9
Source: Malta Environment and Planning Authority (2002)
5.5.16 104 reservoirs (equivalent to 55 per cent of the total 190 reservoirs)
were granted development permits. Another 68 reservoirs were
refused; the remaining applications were withdrawn from the
development planning process. An average of 3 pump rooms were
approved each year, from 1994 to 2000.
5.5.17 Over 70 per cent of the requested reservoirs each year, from 1994 to
1996, were approved (refer to graph 9). Nevertheless, from 1997 to
1998, the annual percentage of the reservoirs being refused increased.
GRAPH 9: ANNUAL PERCENTAGE CHANGE: NUMBER OF APPROVED AND
REFUSED RESERVOIRS IN RURAL AREAS FROM 1994 TO 2000
90%
80%
Percentage
70%
60%
50%
Approved
40%
Refused
30%
Other decisions
20%
10%
0%
1994
1995
1996
1997
1998
1999
2000
Decision Years
Source: Malta Environment and Planning Authority (2002)
97
5.5.18 An appreciable decrease in the number of approved reservoirs was
noted in the period from 1997 to 1998. This change is due to the
introduction of the General Development Order (GDO No.2) in 1997,
through which development for reservoirs and pump rooms (those
designed according to specific criteria) obtained exemptions from the
usual full development permit application procedures. Reservoirs and
pump rooms approved from 1997 to 2000, as shown in table 36, did not
qualify for exemptions under the GDO procedures; these cases
required full development planning permits.
5.5.19 Table 37 shows the distribution of all accepted notifications and
approved development permits for new reservoirs and pump rooms
from 1994 to 2001. Over a period of 8 years, the number of approved
reservoirs and pump rooms increased; during the period from 1998 to
2001, more than 100 structures related to the storage and distribution
of water for irrigation purposes were approved per year.
TABLE 37: DEVELOPMENT OF RESERVOIRS AND PUMP ROOMS FROM 1994 TO 2001
Introduction
of DNO
Procedures
Introduction of GDO
Procedures
Approved Full
Development
Permission
(1994 – 2000)
Accepted
GDO
notifications
(1997 – 2001)
Accepted
DNO
notifications
(2001)
1994
1995
1996
1997
1998
1999
2000
2001
Total
9
19
28
24
13
16
19
*
128
-
-
-
13
108
148
108
57
434
-
-
-
-
-
-
-
58
58
Total
9
19
28
37
121
164
127
115
* The survey for the full development planning applications consisted in development
planning applications decided from 1994 to 2000.
Source: Malta Environment and Planning Authority (2002)
98
620
5.5.20 The replacement of the General Development Order by the
Development Notification Order (DNO) in 2001 led to further
exemptions for reservoir development:
Reservoirs erected partly below ground level were eligible under
the GDO only when their floor area was less than 25 square
metres and their height above ground level did not exceed 1.7
metres. Under the DNO, the acceptable floor area of reservoirs
has increased to 36 square metres (when erected partly below
ground level). Reservoirs constructed partly below ground level
still cannot be more than 1.7 metres above ground level.
5.5.21 The examination of the spatial distribution of the reservoirs and pump
rooms accepted under GDO and DNO, indicates that most reservoirs
and pump rooms were approved within the Northern and Western
districts (refer to table 38), mainly in Siggiewi, Rabat, Mellieha, St’
Paul’s Bay, Naxxar, Mgarr, Zebbug, Mosta and Attard. Most irrigated
land is located within the Northern district, followed by the Western
district.
TABLE 38: LOCALITIES WHERE MORE THAN 4 NOTIFICATIONS FOR
RESERVOIRS AND PUMP ROOMS WERE ACCEPTED UNDER GDO AND DNO
MALTA
Local Council
Siggiewi
Rabat
Mellieha
St Paul’s Bay
Naxxar
Mgarr
Zebbug
Mosta
Attard
Swieqi
Birzebbugia
Zurrieq
San Gwann
Gharghur
Iklin
Qrendi
Qormi
Zejtun
Gudja
Approved
Reservoirs
and Pump
Rooms
77
32
32
29
21
17
16
15
14
12
11
11
10
7
6
6
5
5
5
NSO Districts
Western
Western
Northern
Northern
Northern
Northern
Western
Northern
Western
Northern Harbour
South Eastern
South Eastern
Northern Harbour
Northern
Western
South Eastern
Northern Harbour
South Eastern
South Eastern
GOZO
(Gozo and Comino
District)
Approved
Local
Reservoirs
Council
and Pump
Rooms
Nadur
20
Xaghra
19
Kercem
18
Gharb
16
Ghajnsielem
13
Sannat
8
Ghasri
6
Zebbug
5
Xewkija
5
Rabat
5
Source: Malta Environment and Planning Authority (2002)
5.5.22 In order to discourage the exploitation of groundwater and to allow the
recharge of the aquife rs, the adoption of suitable measures for the
99
collection of water and for the reuse of surface water runoff are
essential. Such measures will also minimise the impact of flooding in
areas located close to the sea level. Consequently, pressure for
structures related to the storage and distribution of water to fields will
continue to be significant in the future.
Surface Water Runoff
5.5.23 The extent of the road network, the removal or clearing of vegetation
and construction of hard surfaces increase the rate of surface water
runoff, as less water is absorbed by soils. Consequently, risks of
damage to rubble walls and crops, and loss of soil from fields increase.
Natural replenishment of the aquifers is also constrained; the use of
improper techniques to maintain valleys influence the natural flow of
water and impact on the vegetation cover of valleys.
5.5.24 The highest points above sea level are rural areas, with the result that
the decrease in water penetration in soils increases the risk of flooding
in those areas just above sea level. Consequently, several urban areas
are prone to flooding due to the hydrological and topographical
characteristics of the surrounding landscape.
5.5.25 Suitable facilities for the storage of water in rural areas and adoption of
infrastructure directed towards capture of surface water runoff, could
increase the amount of water available for irrigation purposes and
minimise the risk of flooding in urban areas. To date, the minimisation
of impacts on water resources resulting from development has been
considered on a case by case basis through the development control
process; the adoption of an integrated approach to development and
water resource management in development plans, is required.
5.6 Greenhouses
5.6.1 Greenhouses are developed to intensify the use of land for crop
cultivation. Greenhouses are erected over agricultural land and tend to
have a negative visual impact on the surrounding rural environment
when not adequately screened.
5.6.2 The 1988 survey sheets indicate that greenhouses covered 17.2
hectares of land at the time. According to the Department of Agriculture
(Census on Greenhouses, 1999), 38 hectares of land in Malta are
covered with greenhouses; according to the Gozo and Comino Local
Plan Agricultural Land Survey (Meli, 2000), 18 hectares of land in Gozo
are covered with greenhouses; giving an overall total of 56 hectares.
The above shows that land under greenhouses increased by more than
three times in 11 years.
100
5.6.3 From 1994 to 2000, 296 greenhouses were requested in the
countryside:
•
•
•
147 greenhouses were approved at the DCC level
(approximately 50 per cent);
129 greenhouses were refused at the DCC level; and
20 greenhouses were withdrawn from the development planning
process.
5.6.4 Table 39 shows the distribution of the greenhouses that were approved
or refused at the DCC level from 1994 to 2000.
TABLE 39: APPROVED AND REFUSED GREENHOUSES FROM 1994 TO 2000
Type of
Decision
Approved
Refused
Other
Decisions
Total
1994
1995
1996
1997
1998
1999
2000
Total
7
2
21
4
21
28
36
40
29
31
25
12
8
12
147
129
0
1
3
8
1
7
0
20
9
26
52
84
61
44
20
296
Source: Malta Environment and Planning Authority (2002)
5.6.5 Table 40 shows the number of approved greenhouses according to the
NSO district boundaries. Most of the greenhouses approved from 1994
to 2000 were located in the Western district, followed by the Northern
district. As described in chapter 2, the landscape of the northwest of
Malta, and the island of Gozo, is characterised by diverse topographic
features, geological formations, built heritage, natural habitats and
unbuilt valleys. Consequently, the visual impact of greenhouses on the
rural landscape remains a key land use concern.
TABLE 40: NUMBER OF APPROVED GREENHOUSES FROM 1994 TO 2000
ACCORDING TO NSO DISTRICTS
NSO District
Gozo and Comino
Northern
Western
Northern Harbour
Southern Harbour
South Eastern
Total
Number of Approved
Greenhouses
19
39
54
2
12
21
147
Percentage out of Total
Approved Greenhouses
13
27
37
1
8
14
100%
Source: Malta Environment and Planning Authority (2002)
5.6.6 Screening of greenhouses is required to mitigate the visual impact of
these structures; landscaping may be used to soften the edges of such
101
structures, as seen from distant viewpoints. This issue is of particular
importance in protected natural areas, areas of high landscape value
and areas that create a setting to built heritage. Nevertheless, the
landscaping must use appropriate species, and be sensitive to the local
context of the site.
5.6.7 Lack of control in the use of fertilisers and pesticides in greenhouses
can pollute land and underground water sources, given that the
pesticides (or fertilisers) are concentrated in a particular area. Given
that most of the approved greenhouses were located towards the
northwest of Malta, the risks of pollution to underground water are
significant. Intensification of greenhouse development over the water
protection zone may exacerbate pollution of ground water supplies.
5.7 Vineyards and Wineries
5.7.1 The production of wine grapes and olives are traditional agricultural
practices. The demand for land for the commercial production of wine
grapes is regaining popularity amongst farmers and the sector; planting
of olive groves tends to be on a much smaller scale. According to the
Department of Agriculture, 320 hectares are presently dedicated to
viticulture. Processing of wine -grapes occurs in wineries. The structure
of the viticulture sector is expected to influence the number of wineries
required.
5.7.2 The International Centre for Advanced Mediterranean Agronomic
Studies report (CIHEAM, 2000) on agriculture and the EU [Malta’s
Accession to the EU: Challenges and Opportunities for a Small-Scale
Multifunctional Agriculture] recognised that “although a small sector,
wine production in Malta is very important in terms of employment
(many part time farmers), landscape and environment, providing green
during the dry months and preventing soil erosion especially in terraced
zones.
5.7.3 At present, a significant amount of the wine-grapes processed locally
are imported: out of the present capacity of 60,000 haL, required for
wine making, Malta is producing only 20,000 haL (source: Department
of Agriculture). As the character of Maltese wine is determined by the
local soils and climatic conditions, wine-grapes must be grown locally if
the wine is to qualify as ‘Maltese wine’.
5.7.4 To achieve self-sufficiency with respect to wine-grape production, the
Ministry for Agriculture aims to increase the amount of land under vines
from 320 ha to 1,000 ha, so that the amount of imported grapes will be
reduced.
102
5.7.5 Large-scale commercial wineries are forming partnerships with
individual farmers, to encourage the production of good quality
produce. The use of the latest available technologies and appropriate
techniques are required, to manage vineyards in a sustainable manner,
and to ensure that the final product is competitive with foreign wines.
Land Use Implications and Vineyards
5.7.6 Encouraging the cultivation of vines may result in a decrease in the
amount of abandoned agricultural land, particularly if abandoned
terraced fields are rehabilitated. An improved income to farmers may
encourage land consolidation, given the possibility of increasing the
production of wine-grapes.
5.7.7 Farmers willing to increase the production of vines by increasing the
size of their land are constrained by the physical subdivision of their
adjoining fields by boundary walls (traditionally built rubble walls or
franka walls). Such boundaries may be natural constraints, as in the
case of terraced fields, where the walls are required to retain soil.
However, in some instances, the function of these boundary walls is to
indicate property limits; the Structure Plan (refer to Policy RCO 4) and
LN 160 of 1997 prohibit any damage to rubble walls (refer to chapter
10), since rubble walls form an essential element of the rural landscape
and are part of the cultural and traditional identity of past agrarian
societies.
5.7.8 Certain species (mainly eucalyptus and acacia) are considered a threat
to the quality of wine grapes, should these be located in close proximity
to the vineyard. These species are hardy and competitive, and may
actively inhibit the growth of vines. Planting of such species in rural
areas, particularly eucalyptus and acacia, is not considered acceptable
(Guidelines for Planting and Landscaping in the Maltese Islands, 2002).
Wineries
5.7.9 Wineries are industrial structures concerned with the processing of the
annual harvest of grapes, and are not essentially required on-site. The
size of wineries depends on the amount of grapes processed, and the
time period required for the storage of wine.
5.7.10 To qualify as quality wine originating from a specific region, wine
grapes need to be pressed in the same region where the wine -grapes
were cultivated. Although the Maltese Islands are currently recognised
as one region, the Department of Agriculture recognises that further
identification of sub -regions will be required to cater for the diverse
microclimate.
103
5.7.11 Distance is a factor that generally influences costs and quality of
produce. The time period between grape picking and processing
should be minimal, especially in the case of white wine-grapes.
However, distance is not considered to be a material consideration in
the Maltese Islands in view of its size and distances involved between
areas. Transportation of grapes in refrigerated containers may in fact
mitigate the loss of quality associated with distance and raised ambient
temperatures; wine-grapes presently imported from other countries are
transported under similar conditions.
5.7.12 Wineries may contribute to the diversification of the rural economy.
Nevertheless, new wineries are intrusive with respect to the landscape,
due to the footprint required and the visual impact of the development.
Initiatives associated with rural tourism should focus on the reuse of
existing structures and buildings, environmental protection and
landscape management.
5.7.13 Reuse of existing buildings, especially those constituting part of the
rural character, may also lead to a decrease in the number of
redundant structures in the countryside. In circumstances where the
building is of architectural or historical value, conservation and
environmental parameters should be applied. As discussed in chapter
4, there is the potential to use settlements ODZ as focal points for
certain rural facilities associated with the diversification of the rural
economy.
5.7.14 Structure Plan Policy AHF 1 aims to aid the agriculture sector in
assisting the overall economy of the country through reducing imports
and increasing exports. Although the development of vineyards should
be encouraged, a precautionary approach to winery development is
required: the primary objective is to increase the local production of
vines to satisfy current market demand, without imposing further
pressure for unnecessary deve lopment in rural areas. Therefore, urban
areas remain the best location to site wineries, though accommodation
of traditional small-scale wine processing in disused or under-utilised
buildings in the vicinity of vineyards may be given consideration.
5.8 Animal Husbandry
5.8.1 The Structure Plan recognises animal husbandry as a normal and
legitimate activity in rural areas, and (together with the Structure Plan
Explanatory Memorandum and the Policy and Design Guidance on
Farmhouses and Farm Buildings) provides various policies and criteria
having the following objectives:
•
•
limiting farm development to full time breeders;
encouraging the relocation of livestock units away from existing
and committed urban areas;
104
•
•
•
•
•
•
ensuring the screening of farm development through adequate
landscaping and proper building design;
locating farm developments in appropriate areas, having the
least possible impact on the environment;
avoiding good quality agricultural land;
prohibiting farm development within the 200 metres buffer zone
from residential areas;
protecting water resources; and
ensuring the mitigation of possible environmental impacts
through Policy AHF 5 and the Environmental Impact
Assessment (EIA) process.
5.8.2 The Dairy Farms Regulations of 1976 (LN 28/1976), the Poultry
Slaughterhouse Regulations of 1995 (LN 93/1995) and the Hatcheries
Regulations of 1997 (LN 51/1997) specify requirements and standards
with respect to construction features, minimum dimensions and
specifications, and proper layouts of farms. With respect to
slaughterhouses and hatcheries, the above regulations specify the
acceptable distance from livestock farms, industrial development and
habitable buildings.
Livestock Production
5.8.3 “Malta is self-sufficient in…pork, fresh milk and fresh eggs” (Mifsud,
2001). Other agricultural commodities are being imported to sustain the
local demand. The main types of livestock products in the Maltese
Islands are milk and beef, eggs and poultry meat, and pork.
5.8.4 The National Statistics Office has published the latest data on pig
farming in News Release No. 54/2001 and the data on the cattle
industry in News Release No. 68/2001. According to the National
Statistics Office, there are 174 pig farms and 260 cattle farms in the
Maltese Islands, with a total population of 100,400 li vestock.
5.8.5 Data on the rearing of poultry, sheep and goats is still being gathered
and will be published as part of the new Census of Agriculture. The
information currently available on poultry, sheep and goats as well as
rabbits is gathered from the CIHEAM (2001) report.
5.8.6 According to the CIHEAM (2001) report there are around 8,000 sheep
and 4,000 goats, distributed amongst 1,000 breeders; “the production
is definitely milk-oriented”. The local production of sheep and goat
meat is 200 tonnes per year; another 800 tonnes are imported.
5.8.7 With respect to poultry, the CIHEAM (2001) states that “Malta is highly
dependent on imports in this sector, with about 780 tonnes of
processed poultry imported per year”.
105
5.8.8 With respect to rabbit farms, the CIHEAM (2001) report states that:
•
•
•
•
there are 5 main rabbit farms in the Maltese Islands;
there are another 5,000 small breeding units (each less than 20
does);
annual production is 2,800 tonnes; and
local production is sufficient for domestic needs.
Farming of Pigs and Cattle
5.8.9 The total population of livestock within pig farms is 80,074; 63 per cent
of the pig population is found within farms measuring between 1,000
and 4,000 sq m (refer to table 41). There are another 3,380 pigs sited
in farms measuring between 10,000 to 20,000 sq m.
Pig Farms
<1000
>1001-<2000
>2001-<3000
>3001-<4000
>4001-<5000
>5001-<6000
>6001-<7000
>7001-<8000
>8001-<9000
>9001-<10000
>10001-<20000
TABLE 41: POPULATION OF LIVESTOCK IN PIG FARMS ACCORDING TO THEIR SIZE
Total
Population
8,652
22,841
15,920
11,446
4,818
7,169
4,217
531
185
915
3,380
80,074
Source: National Statistics Office (News Release No. 54/2001)
5.8.10 The total population of livestock within cattle farms is 20,326; 69 per
cent of the cattle population is found in farms that are larger than 4,000
sq m, 5,292 of which are sited in farms larger than 10,000 sq m (refer
to table 42).
106
Cattle Farms
<00100
>00100 -<00200
>00300 -<00400
>00400 -<00500
>00500 -<00600
>00600 -<00700
>00700 -<00800
>00800 -<00900
>00900 -<01000
>01000 -<02000
>02000 -<03000
>03000 -<04000
>04000 -<05000
>05000 -<07500
>07500 -<10000
>10000
Total
Population
TABLE 42: POPULATION OF LIVESTOCK IN CATTLE FARMS ACCORDING TO THEIR SIZE
14
33
21
21
241
11
11
28
72
1,268
2,027
2,630
2,693
2,147
3,817
5,292
20,326
Source: National Statistics Office (News Release No. 68/2001)
5.8.11 54 per cent of the 174 pig farms (having 52,267 pigs) are located in
the North Western region, whilst 36 per cent (having 21,953 pigs) are
located in the South Eastern region. The Gozo and Comino region has
17 pig farms, with 5,854 pigs. “Pig slaughtering is a stable activity with
around 10,000 pigs slaughtered on a monthly basis” (National Statistics
Office, News Release 54/2001).
5.8.12 There are two types of cattle farming: dairy for the production of milk
and beef for the production of meat. There are 260 cattle farms in the
Maltese Islands:
•
•
•
44 per cent are located in the South Eastern region;
36 per cent are located in the North Western region; and
20 per cent are located in the Gozo and Comino region.
5.8.13 An average of 500 cattle were slaughtered on a monthly basis in 2000
(National Statistics Office, News Release 68/2001).
5.8.14 Table 43 shows that 55 per cent of the 260 cattle farms are involved in
both dairy and beef produc tion. Most of these cattle farms are located
in the South Eastern region.
TABLE 43: TYPE AND DISTRIBUTION OF CATTLE FARMS ACCORDING TO
NSO REGIONS
Type of Activity
Dairy Farms
Beef Farms
Both Beef and Dairy
Farms
Total
Number of
Farms
34
83
South
Eastern
12
37
Regions
North
Western
16
39
Gozo and
Comino
6
7
143
66
38
39
260
115
93
52
Source: National Statistics Office (News Release No. 68/2001)
107
5.8.15 According to NSO data (2001), 85 per cent out of the 260 cattle farms
are between 1,000 to 10,000 sq m in size, with the exception of 16 beef
farms that are between 500 and 600 sq m in size. Graph 10 below
gives the distribution of cattle farms by type, according to the size of
the farms. The average of each farm size category has been used to
estimate the land take up by cattle farms: cattle farms occupy around
1,000,000 sq m, or 1.1 sq km.
5.8.16 According to NSO data (2001), 79 per cent out of the 174 pig farms are
between 1,000 sq m to 3,000 sq m in size. Graph 11 below shows the
distribution of pig farms by type, according to the size of the farms. The
average of each farm size category has been used to estimate the land
take up by pig farms: pig farms occupy around 400,000 sq m, or 0.4
sq km.
GRAPH 10: NUMBER OF CATTLE FARMS ACCORDING TO SIZE CATEGORY
Number of Farms
60
50
40
30
20
10
>10000
>07500-<10000
>05000-<07500
>04000-<05000
>03000-<04000
>02000-<03000
>01000-<02000
>00900-<01000
>00800-<00900
>00700-<00800
>00600-<00700
>00500-<00600
>00400-<00500
>00300-<00400
>00100-<00200
<00100
0
Cattle: Category of Farm Size (sq m)
Source: National Statistics Office (News Release No. 68/2001)
108
GRAPH 11: NUMBER OF PIG FARMS ACCORDING TO SIZE CATEGORY
60
Number of Farms
50
40
30
20
10
<1
00
0
>1
00
1-<
20
00
>2
00
1-<
30
00
>3
00
1-<
40
00
>4
00
1-<
50
00
>5
00
1-<
60
00
>6
00
1-<
70
00
>7
00
1-<
80
00
>8
00
1-<
90
00
>9
00
1-<
10
00
0
>1
00
01
-<2
00
00
0
Pig: Category of Farm Sizes (sq m)
Source: National Statistics Office (News Release No. 54/2001)
5.8.17 The total amount of land occupied by cattle and pig farms is around 1.5
sq km. The land occupied by farms, in terms of the cumulative footprint,
amounts to 58 per cent of the land occupied by quarries (a total of 2.6
sq km).
Development Pressures and Land Use Implications: Animal Farms
5.8.18 The 1998 aerial photographs indicate that most farms in Malta are
concentrated in Maghtab, Rabat, Dingli, Zebbug (Malta), Qormi, Zejtun
and Zabbar; in Gozo, most farms are located around Xewkija, Ghasri
and Kercem. Figure 26 gives the distribution of farms in the Maltese
Islands.
5.8.19 34 new farms were approved at the DCC level from 1994 to 2000 (refer
to table 44); most were located in Maghtab (Naxxar). Other significant
localities where new farms were approved are Zurrieq, Rabat, Qormi,
Nadur (Gozo), Siggiewi and Zejtun.
109
TABLE 44: DISTRIBUTION OF APPROVED ANIMAL FARMS FROM 1994 TO 2000
ACCORDING TO LOCAL COUNCIL BOUNDARIES AND TYPE OF FARMS
Local
Council
Zejtun
Siggiewi
Marsaxlokk
Naxxar
Safi
Zurrieq
Rabat
Qormi
Ghaxaq
Paola
Dingli
Birzebbugia
Zebbug
(Gozo)
Nadur
Munxar
Total
Pig
Poultry
Rabbit
2
1
3
1
-
3
1
1
-
4
2
1
1
1
1
2
-
1
1
1
1
-
1
-
No
Information
1
1
-
-
-
1
-
-
-
-
1
7
1
8
10
1
4
4
1
2
1
1
34
Sheep Cattle
Mushroom
Source: Malta Environment and Planning Authority (2002)
5.8.20 The main land use implications associated with animal farm buildings
are as follows:
•
•
•
impact on landscape and ecology;
disposal and management of solid and liquid waste; and
close proximity to residential areas.
5.8.21 Current policies, regulations, standards and management techniques
influence the degree of the farms’ visual and environmental impacts.
The degree of these impacts depends on the:
•
•
•
•
•
•
•
•
•
•
density of animals per land area;
height of buildings;
proximity to other farms nearby (resulting in a cumulative visual
impact);
proximity to residential areas;
type of adjacent land uses;
openness of the surrounding environment;
types of methods used for the disposal of waste and litter
generated by farm operations;
methods used to screen farm operations and buildings;
type and amount of required built structures within farms, and
materials, colours and textures used for construction.
110
Total
3
3
1
9
1
5
4
1
1
1
1
1
5.8.22 The degree of impact is also influenced by the position of farms in
relation to the:
•
•
•
topography of the surrounding areas;
areas popular for countryside recreation; and
sensitivity (in terms of natural, archaeological, cultural and
landscape value) of the surrounding areas.
5.8.23 The lack of farm waste management increases the risks of pollution to
the water table. During heavy rainfalls, overspill of waste could lead to
severe environmental problems. Figure 26 shows that farms located
towards Rabat and Dingli are within the Water Protection Zone. Most
farms are located in the vicinity of valleys, and various natural habitats
including Buskett; figure 27 shows the location of farms with respect to
the distribution of natural habitats and valleys. Efficient enforcement of
regulations with respect to waste management is necessary.
5.8.24 Large-scale farm developments that contribute considerably to the
economy require a significant amount of large-scale structures located
in rural areas. The cumulative impact of large-scale farms on the scenic
quality of the countryside is significant, given that most farms are
concentrated in specific areas. Improvement in the external design of
farms is important, given that at present, farms consist of large-scale
buildings and high boundary walls which enclose the site, with large
apertures that are not consistent with the rural character. This justifies
the need to adopt suitable measures for the proper design of farms and
the screening of such developments. The concentration of farms in
particular areas provide the opportunity to deal with several farm issues
collectively, particularly in:
•
•
•
•
areas popular for countryside recreation;
protected natural areas;
areas of high landscape value; and
areas that provide the context to built heritage.
5.8.25 According to the Structure Plan Explanatory Memorandum, farm
buildings cannot be developed in areas that are less than 200 metres
away from an inhabited area. However, as shown in figure 28, some of
the existing farms are located in areas less than 200 metres away from
residential areas, particularly Rabat (Malta), Zebbug (Malta), Mqabba,
Ghaxaq, Zejtun, Zabbar, Xewkija and Sannat. None of the 34 new
farms approved during 1994 to 2000, were located in the vicinity of
urban areas; however, some new farms were located in close proximity
to settlements ODZ.
5.8.26 Conflicts between farms and other land uses cannot be attributed
solely to the siting of new farm development; other developments,
particularly residences, were constructed in close proximity (i.e. within
the 200-metre buffer area) to existing farms. This 200-metre restriction
area should not only apply to farm development, but should also
111
prohibit the expansion of residential and indus trial areas towards
existing farms.
5.9 Government’s Emerging Policy on Agriculture
5.9.1 According to the CIHEAM (2000) report, “the present situation of
Maltese agriculture is unsustainable, regardless of EU accession”. The
Government’s new policy on agriculture and rural development is
under preparation, and aims to follow the strategy outlined in the Rural
Development Programme (RDP) under the Common Agriculture Policy
(CAP).
5.9.2 The RDP emphasises the multifunctional role of agriculture and rural
areas, especially in the field of environment protection. The
Government’s Rural Development Plan will integrate agricultural
initiatives within the broader context of other rural activities. The EU
provides financial assistance to Member States to support such
initiatives.
Vision and Goals of the Rural Development Plan for Malta
5.9.3 The Government’s emerging policy on agriculture will encourage a
multifunctional agriculture sector. As stated in the Preliminary
Consultation Document on the Rural Development Plan 2003 – 2006
(2002), the Ministry of Agriculture and Fisheries promotes “the
sustainable development of rural Malta in a manner which leads to its
increased economic competitiveness in a demand-driven, international
market system, but in a context which takes into account its
environmental, social and cultural dimensions and their importance to
the Maltese way of life”.
5.9.4 The principle of integration of agricultural initiatives with nonagricultural initiatives and rural conservation is a key priority for the
Government’s emerging policy on agriculture, in order to minimise
various conflicts emerging among agricultural practices, the
environment, society and culture.
5.9.5 The draft Rural Development Plan for the Maltese Islands (2002)
identifies a set of short-term and medium-term objectives:
Short-term objectives
•
•
•
reduce further salination of water table;
increase level of environmental awareness and responsibility
amongst farmers;
limit soil erosion;
112
•
•
increase competitiveness of farmers by developing a niche
agricultural strategy for specific quality products; and
develop multifunctional agricultural activities.
Medium -term objectives
•
•
•
•
•
reduce loss of land to tourism/industry/housing;
reduce rate of decline in the number of full-time farmers;
maintain cultural landscape to generate positive externalities
associated with culture, tourism, food security and environmental
conservation (including protection of biodiversity);
limit environmental degradation; and
limit negative impacts (resulting from cultural landscape erosion)
on tourism and local quality of life.
5.9.6 The above implies that resolution of the conflicts between agricultural
practices and the environment should be a key objective of the RDP.
Consequently, the success of the RDP requires the identification of
suitable strategies to:
•
minimise conflicts between agricultural practices and nonagricultural activities;
• ensure environmental protection and landscape management;
• encourage sustainable economic development; and
• adopt a suitable strategy aimed towards attracting EU funding
for rural development.
5.9.7 The successful implementation of the Government’s emerging policy
also depends on the environmental awareness amongst farmers,
adoption of appropriate agricultural practices, and the preparation of
suitable management schemes for particular areas. Given that
agriculture is the largest land use in the Maltese Islands, effective
environmental protection and landscape management requires
coordination with the various agricultural practices.
5.9.8 The initiation of a framework for management schemes is required to
achieve the latter objectives of the RDP, as the magnitude of the
possible environmental impacts of economic development depends
upon the diversity and sensitivity of particular local rural areas.
Consequently, the Government’s emerging policy on agriculture should
consider countryside management as a key strategy to achieve “a
sustainable development of rural Malta”.
5.9.9 Countryside management deals with issues at the local level; this
should ensure a degree of community involvement, and proper
integration of economic development with environmental protection and
enhancement. The role of farmers with respect to maintenance of an
attractive countryside should be acknowledged; this should ensure
wider support for the farming community by the general public.
113
The Rural Development Plan for the Maltese Islands: priorities and
eligible measures
5.9.10 The Government of Malta has identified four priorities for the RDP. The
priorities of the Rural Development Plan for the Maltese Islands (2002)
are as follows:
•
Modernise holdings with respect to quality and competitiveness
in order to offer more differentiated, higher quality products and
services to domestic consumers and foreign tourists and thus
make farming a viable and more attracti ve career for younger
people
•
Promote environmentally friendly production methods in line with
rural heritage
•
Diversify and develop the multifunctional role of rural enterprises
•
Successful implement the RDP
Selected Measures
Objectives
Investment in agricultural
holdings
To provide targeted assistance to support the
development of more sustainable and competitive
farming businesses with improved agricultural incomes,
redeployed production and diversified farm activities
Training
To broaden the skills based of the agricultural
workforce to enable it to meet the challenges of the reorientation of agriculture and so contribute to the new
demands of the rural economy
Improving processing and
marketing of agricultural
products
To encourage innovation and investment to achieve
added value for Maltese agricultural primary products
and to enhance market opportunities
Producer groups
To remedy the structural deficiencies affecting the
supply and marketing of agricultural products resulting
from insufficient producer organisation in Malta
Marketing of quality
products
Support farm businesses and other rural enterprises
that add value to agricultural production, enabling them
to enter the market more effectively, through the
production and promotion of high value quality
products, which exploit emerging niche food and craft
related markets
Land reparcelling
To stem the high level of land fragmentation in Malta
and create farms of an economically viable size
Financial engineering
To ensure that Malta’s farmers (especially tenant
farmers) are able to co-finance essential investments
made under the RDP
114
Agri-environment
To conserve and improve the landscape, wildlife and
historic heritage of rural Malta, thereby also
contributing directly and indirectly to economic activity
and social objectives in rural areas
Agricultural water
resource management
To ensure that Malta’s limited water resources are
optimally utilised by farmers to maximise their
productivity and competitiveness
Protection of the
environment in connection
with agriculture and
landscape
To reduce the incidence of soil erosion by wind and
water by restoring and maintaining the traditional
physical barriers to wind and water erosion provided by
rubble walls, terraces and native trees; to improve the
landscape quality of the Maltese Islands by maintaining
and restoring the most characteristic landscape
features – notably rubble walls, terraces, other
traditional stone features (girna) and native trees; and
to increase biodiversity by maintaining, enhancing and
extending the wildlife habitats associated with these
characteristic landscape features
Encouragement for tourist
and craft activities
To ensure that Malta’s rural community contributes to
and benefits from the holistic approach to tourism
development now adopted by the Malta Tourism
Authority
Technical assistance
To ensure that Malta’s Rural Development Plan is
successfully implemented and defined targets achieved
Source: Ministry of Agriculture and Fisheries (2002) draft Rural Development Plan for
the Maltese Islands
The Possible Land Use Implications of the Rural Development
Plan
5.9.11 The measures identified above address various issues with respect to
environmental protection and economic development. Certain
measures have objecti ves that coincide with Structure Plan strategy,
particularly the accommodation of the requirements of agriculture, while
mitigating the environmental impacts resulting from development. The
RDP currently being finalised may contribute to the integrated
management perspective that has been lacking to date.
5.9.12 As discussed in the previous sections of this chapter, although several
agricultural practices are not directly related to land use, their indirect
implications on the use of land is significant. Consequently, an
integrated rural development approach is required. This involves
cooperation between the various responsible agencies, in the
formulation of joint solutions for activities and practices that have a
direct and indirect impact on the use of land.
5.9.13 Several measures suggested by the RDP may lead to the
enhancement of the rural landscape, reinstatement of the traditional
115
landscape, preservation of natural habitats, protection of water
resources and protection of heritage sites. Most of the countryside is
influenced by agricultural practices; this implies that the extent and
quality of structures required for the needs of agriculture, and the
quality of the adopted field management techniques need to be
directed towards protection and management of the rural resources.
Consequently, the opportunities for diversification of the rural economy
are also enhanced.
5.9.14 The shift in adopted field management techniques requires education
initiatives, training of farmers, and the formulation of Codes of Good
Agricultural Practices; farmers also need to be guided towards the field
management techniques most suitable to the characteristics of
particular rural areas. This will minimise the impact of agricultural
practices on the environment, contributing to the improvement and
management of the overall state of the countryside.
5.9.15 Given that local agriculture is characterised by limited field size and
fragmented land holdings, initiatives towards land reparcelling will
affect the landscape value of rural areas. Land consolidation initiatives
may lead to an increase in the size of structures required for
agricultural purposes, but may decrease the frequency of development
in rural areas. Land consolidation initiatives may result in damage to
rubble walls to allow farmers to use modernised farm machinery for the
cultivation of larger fields; however, rubble walls are protected under
local environmental legislation. Nevertheless, land consolidation may
justify the removal of unnecessary development from rural areas.
5.9.16 The restructuring process may actually result in an increased demand
for buildings in the countryside for the socio-economic improvement of
the sector. This will have a consequent impact on rural resources. The
land use implications will vary according to the distribution of the
present activities, and according to the conditions of local rural areas.
Such development should be channelled towards areas where the least
possible impacts are generated.
5.9.17 In the context of the RDP, rural areas refer to local council areas
(NUTS 1 V) with a population density lower than 5,000 inhabitants per
square kilometre; in the Maltese context, these areas may be defined
to include areas within the development zone and areas outside the
development zone (ODZ).
5.9.18 The measures proposed by the RDP promote diversification of
activities in rural areas. This would result in economic benefits to the
1
The nomenclature of territorial units for statistics (NUTS) was created by the European Office for
Statistics (Eurostat) in order to create a single and coherent structure of territorial distribution. It has
been used in the Community legislation pertaining to the Structural Funds since 1988
(www.inforegio.cec.eu.int). With respect to Malta, NUTS I and II levels represent the Maltese Islands;
NUTS III represents Malta and Gozo separately; NUTS IV represents districts; and NUTS V represents
local councils.
116
agricultural sector, enhance opportunities for rural tourism and promote
the countryside as a recreational asset. Consequently, the
multifunctional role of the agriculture sector needs to be supported by
initiatives aiming towards environmental protection, landscape
enhancement, re-use and rehabilitation of existing buildings,
conservation of cultural heritage and visitor education.
5.9.19 The restructuring process of the agriculture sector will also impact on
the development of farm buildings, and will entail changes to the
current design and siting of animal farms. Standards and requirements
on farm waste management and improvement in animal welfare are
important considerations. The type of impacts depends on the
sensitivity of the surrounding environment, the type of nearby land
uses, and the concentration of animal farms in a particular location.
The potential implications of farms on the landscape, nearby protected
rural areas, adjacent land uses and water resources are key
considerations.
5.9.20 The key challenge to achieve sustainable development of rural areas is
the minimisation of the possible conflicts between the identified
measures. This requires the appropriate integration of these measures
within the local rural context, with an emphasis on the protection of
rural resources.
5.10 Summary
5.10.1 The contribution of agriculture to the local economy is limited. Most
farmers are in part-time employment. Most agricultural holdings are
fragmented and limited in terms of field size, with a consequent
increase in the demand for development. Although the rate of loss of
agricultural land in the past 15 years was less than that experienced
from 1971 to 1986, impacts resulting from large-scale developments
and the cumulative impact of numerous small-scale developments
requires attention. Furthermore, various natural areas were lost as a
consequence of deposition of soil on land to increase the amount of
land under cultivation. These factors all contribute to the degradation of
the rural landscape.
5.10.2 During the past years, pressures for agricultural stores, reservoirs and
pump rooms increased significant. Demand for both agricultural stores
and structures related to storage of water for irrigation will continue to
be significant due to fragmentation of land holdings and lack of water
resources.
5.10.3 Issues related to soil erosion also continued to be significant,
particularly due to the construction of impermeable surfaces, improper
field management techniques and land abandonment. The adoption of
suitable techniques for the preservation of soil is required.
117
5.10.4 The agriculture industry has become intensive and specialised. This
resulted in pressure for greenhouses and extensive development for
animal husbandry. The main implications connected with animal farms
include generation of waste, pollution to water resources,
incompatibility with adjacent land uses and impacts on the scenic value
of rural areas.
5.10.5 Although agriculture faces several constraints and its contribution to the
local economy is limited, agriculture’s contribution to other sectors and
activities undertaken in rural areas is significant. Agriculture is
considered to be a multifunctional activity in terms of contribution
towards food production, landscape enhancement, protection of the
environmental and countryside recreation. In this regard, Government’s
emerging policy on agriculture follows the concept of ‘integrated rural
development’, as outlined in the EU’s Rural Development Programme.
5.10.6 Therefore, development for agriculture purposes should be restricted to
those cases catering for the genuine needs of local agriculture while
taking into account the possible cumulative impact of small-scale
structures in sensiti ve areas and impacts on the quality of water
resources.
5.10.7
A holistic approach to farm management is required, particularly with
respect to the management of conflicts with other land uses and
mitigation of possible environmental degradation; several farms are
located in the vicinity of valleys and/or residential areas.
5.10.8
The potential conflicts and impacts of agricultural practices with the
environment, or with other land uses, are significant. Screening of
development, mitigation of possible impacts and the direction of
development towards appropriate locations, should be the focal point
for future planning policy. Furthermore, reuse of existing buildings, may
lead to a decrease in the number of redundant structures in the
countryside and accommodate the needs of the agriculture sector. It
should be noted that the Government’s emerging policy on agriculture
and rural development is expected to have a significant spatial impact
on the future development of rural areas.
5.10.9
Given that some of the promoted measures under ‘rural development’
aim to enhance the economic benefit of the agricultural sector and the
multifunctional role of rural areas, pressure for development in the
countryside may increase. On the other hand, the adopted agrienvironmental measure aims towards the protection of the environment
and the conservation of the countryside.
5.10.10
The key challenge to achieve sustainable development of rural
areas is the minimisation of the possible conflicts between the
identified measures under ‘rural development’. This requires the
appropriate integration of these measures within the local rural context,
118
with an emphasis on the protection of the countryside and the efficient
use of existing resources. This will require an integrated approach
between RDP initiatives, and other initiatives undertaken for the
protection of the environment and countryside planning and
management.
119
6. Countryside Recreation
6.0.1 Countryside recreation is defined as “any pursuit or activity engaged
upon during leisure time, or as part of provision for education and
training, which makes use of the natural resources of the countryside”
(Devon County Council, 1994 as cited in Draft Leisure and Recreation
Topic Paper, 2001). Rural recreation activities are also popular with
tourists, who take the opportunity of exploring the Maltese rural
environment.
6.0.2 The recreational benefit of the countryside may be attributed to the
following factors:
• the intrinsic appreciation of the natural and man-made rural
assets;
• the ‘feel-good factor’ generated by being in the rural
environment as opposed to urban surroundings;
• the extractive value (e.g. hunting, trapping, fruit picking, etc);
and
• the educational value of wildlife and cultural heritage.
6.0.3 The enjoyment of countryside recreation depends on the aesthetic
experience provided by the rural landscape. The latter represents a
combination of elements, including natural resources, built heritage,
agricultural land and a diverse topography.
6.1 Countryside Recreational Activities
6.1.1 The main types of countryside recreation activities in the Maltese
Islands are listed in table 45; the latter indicates that the main facilities
required for countryside recreation activities are:
•
•
•
access to routes and/or sites;
parking facilities;
well preserved and maintained rural heritage, including the rural
landscape, natural environment and built rural heritage.
6.1.2 Other recreational activities taking place in rural areas have been
tackled in other Topic Papers, mainly the Leisure and Recreation Topic
Paper.
120
TABLE 45: THE MAIN TYPES OF COUNTRYSIDE RECREATION ACTIVITIES IN
THE MALTESE ISLANDS
Types of Countryside Recreation Activities
Required Facilities
Education
Access routes/sites
Natural habitats
Built heritage
Parking facilities
Nature appreciation
Access routes/sites
Natural habitats
Parking facilities
Sight-seeing
Access routes/sites
Diverse and pleasant landscape
Parking facilities
Bird watching
Access routes/sites
Bird hides
Bird habitats
Bird breeding sites
Parking facilities
Country drives
Road access
Diverse and pleasant landscape
Walking and hiking
Access routes
Diverse and pleasant landscape
Parking facilities
Abseiling and climbing
Access to sites
Cliffs
Steep valley sides
Parking facilities
Cycling
Access routes
Diverse and pleasant landscape
Parking facilities
Horse riding
Access routes
Diverse and pleasant landscape
Horse riding facilities
Parking facilities
Picnicking
Access routes/sites
Diverse and pleasant landscape
Picnicking facilities
Parking facilities
Caravanning
Road access
Caravan sites
Pleasant landscape
Parking facilities
Camping
Road access
Flat ground
Pleasant landscape
Parking facilities
Off-roading
Road access
Non uniform terrain
Hunting and trapping
Road access and routes
Wildlife
Trapping sites or hunting grounds
Parking facilities
Source: Malta Environment and Planning Authority (2002)
121
6.1.3 Although normally practiced in the countryside, activities like offroading do not require a rural context. This means that certain sports
activities do not depend upon the aesthetic, educational, natural and
cultural value of the countryside. Hunting, trapping and caravanning
require specific areas dedicated to these types of activities; areas
dedicated to trapping and caravanning require a significant e
l vel of
human intervention to accommodate the required equipment, such as
trapping nets or caravans.
6.1.4 The need for parking facilities should be viewed in the context of the
lack of provision of public transport to the various countryside
destinations, which in turn encourages the reliance on private transport.
Compatibility Between Countryside Recreational Activities
6.1.5 The compatibility of the various recreation activities occurring in the
countryside is described in table 46.
TABLE 46: COMPATIBILITY OF RECREATIONAL ACTIVITIES OCCURING IN
THE COUNTRYSIDE
Activity
Impact on other
activities
low
Impacted by
other activities
high
low
low
Activity depends on:
•
•
quality of the countryside
minimal interference from
other activities
medium
high
•
•
•
low
medium
•
Cycling
Horse-riding
medium
medium
•
•
•
Picnicking
medium
medium
•
•
•
Caravanning
Camping
high
medium
•
•
•
Off roading
vehicles
high
low
•
•
•
Hunting
Trapping
high
high
•
quality of the countryside
quality of the countryside
minimal interference from
other activities
minimal interference from
other activities
vertical faces
quality of the countryside
minimal interference from
other activities
adequate passageways
quality of the countryside
minimal interference from
other activities
adequate locations
quality of the countryside
minimal interference from
other activities
adequate locations
adequate locations
area must be reserved for
this activity
minimal interference from
other activities
area must be reserved for
this activity
Nature
Appreciation
Sight-seeing
Bird watching
Country drives
Walking
Hiking
Abseiling
Climbing
•
Source: Malta Environment and Planning Authority (2002)
122
6.1.6 The types of conflicts between recreational activities occurring in the
countryside are examined according to the following:
•
•
the impact of a specific recreational activity on other recreational
activities; and
the impacts of other recreational activities on a specific
recreational activity.
6.1.7 The range of impacts examined in table 46 varies from ‘Low’ to ‘High’.
Low impact means that either:
•
•
the impact of a particular recreational activity does not constrain
the benefit that is derived from most of the listed recreational
activities in table 45; or
the impact of most of the listed recreational activities on a
particular recreational activity could be considered insignificant.
6.1.8 High impact means that either:
•
•
the impact of a particular recreational activity constrains the
benefits of most of the listed recreational activities; or
the impact of most of the listed recreational activities hinders the
benefit of a particular recreational activity.
6.1.9 An analysis of table 46 reveals that:
•
•
•
•
‘Low-impact’ recreational activities (like sight-seeing, nature
appreciation etc.) require access and surroundings that are
undisturbed by intense activities;
Good quality countryside improves opportunities for ‘low-impact’
countryside recreation;
Certain activities like camping require management to minimise
conflicts with other activities; and
Activities like off roading, hunting and trapping are incompatible
with other uses, and require dedicated areas.
6.2 Countryside Recreation Sites
6.2.1
Although there are no managed areas for countryside recreation in the
Maltese Islands, various rural areas have been earmarked as
countryside recreation sites by central authorities (refer to table 47).
Kennedy Grove/Burmarrad and Delimara have been identified as
National Country Parks; the Hagar Qim/Mnajdra area has been
identified as an Archaeological Park. Other heritage or country parks
123
are planned for Ta’ Cenc, Zabbar and Dwejra (Leisure and Recreation
Topic Paper, 2001).
6.2.2
Although Ta’ Qali is not a countryside recreation site, it is designated
as a National Recreation Centre outside the development zone. Marsa
Sports Ground is also located outside the development zone, but is an
urban sports centre. Ta’Qali offers both formal sports facilities and
informal recreational opportunities; the Ta’ Qali Action Plan Area
provides future strategies for the area.
TABLE 47: AREAS IDENTIFIED AS POTENTIAL COUNTRYSIDE PARKS
Name of Parks
Zone
Kennedy
Grove/Burmarr
ad
Delimara
Inland
Countryside
Hagar
Qim/Mnajdra
Ta’ Cenc
Coastal Zone
Zabbar
Inland
Countryside
Coastal
Zone
Dwejra
Coastal Zone
Coastal Zone
Local
Plan
Area
North
West
Local Plan
Marsaxlokk
Bay
Local
Plan
North
West
Local Plan
Gozo
and
Comino Local
Plan
Malta South
Local Plan
Gozo
and
Comino Local
Plan
Types of Rural Resources
Steppe,
watercourses,
agricultural land and built
heritage
Garigue, agricultural land and
afforested areas
Built heritage, steppe, garigue
and agricultural land
Bird habitat
Built heritage and afforested
areas
Watercourses, agricultural land,
steppe, garigue, clay, cliffs and
beach
6.2.3 With the exception of the Hagar Qim and Mnajdra Park, all identified
countryside parks are distributed along the main road network,
ensuring an adequate level of accessibility to recreational areas from
the main urbanised areas (refer to figure 29). The distribution of these
parks is not restricted to the northwest of Malta and Gozo, but include
recreational parks in the Malta South Local Plan and the Marsaxlokk
Bay Local Plan areas.
6.2.4 Other areas having a potential for countryside recreation are identified
from the Public Attitude Survey (PAS), published in 2000, and the
Household Travel Survey (HTS), carried out in 1998; a social value has
been attributed to these areas by the respondents of the latter surveys.
Appendix F and table 48 list the identified localities.
6.2.5 The HTS identifies countryside destinations that the HTS respondents
visited during Sunday outings. Most of the destinations mentioned in
both surveys are located within the North West Local Plan and the
Gozo and Comino Local Plan areas (refer to Appendix F and table 48).
Potential Parks were identified in different locations in the Maltese
124
Islands; nevertheless, visitors are still attracted towards the northwest
of Malta and Gozo.
6.2.6 Some of the respondents of the Household Travel Survey did not
indicate a Local Council area as a Sunday destination, but indicated a
specific area within a locality (refer to table 48). 63 per cent of the 30
mentioned specific destination areas for a Sunday outing are located
outside the development zone; most of these are located within the
North West Local Plan area.
TABLE 48: SPECIFIC DESTINATION AREAS OF THE HOUSEHOLD TRAVEL
SURVEY RESPONDENTS
Local Plan Area
Destination Area
North West
Buskett
Cirkewwa
Ghajn Tuffieha
Ghar Lapsi
Golden Bay
Marfa
Mtahleb
Selmun
Ta’ Qali
Tal-Lawrenti
Wardija
Wied iz- Zurrieq
Bahrija
Burmarrad
Manikata
Bugibba
Qawra
17 Localities
Ta’ Pinu
Mgarr (Gozo)
Ramla Bay
Dwejra
Marsalforn
Xlendi
6 Localities
Benghajsa
Hal Far
2 Localities
St Andrews
Madliena
Paceville
3 Localities
San Pawl tat-Targa
Bahar ic-Caghaq
2 Localities
Total
Gozo and Comino
Total
Marsaxlokk Bay
Total
North Harbours
Total
Central Malta
Total
TOTAL
Classification of Area
ODZ
ODZ
ODZ
ODZ
ODZ
ODZ
ODZ
ODZ
ODZ
ODZ
ODZ
ODZ
Within Scheme
Within Scheme
Within Scheme
Within Scheme
Within Scheme
ODZ
ODZ
ODZ
ODZ
Within Scheme
Within Scheme
ODZ
Within Scheme
Within Scheme
Within Scheme
Within Scheme
Within Scheme
ODZ
Source: Planning Authority (Household Travel Survey, 1998)
6.2.7 The Public Attitude Survey (PAS) published in 2000, identifies those
areas in the countryside that the public wants to see protected from
development. It is significant that the most popular general areas
mentioned by respondents include ‘all countryside’, ‘all valleys’,
125
‘archaeological sites’ and ‘arable land’ together with ‘all Gozo and
Comino’.
6.2.8 The most popular countryside destinations are illustrated in figure 30,
where the localities that the public wants to see protected from
development are ranked according to the rate of mentions in the PAS:
a total of 4,000 mentions list 180 localities outside the development
zone. Figure 30 also shows the distribution of these localities with
respect to the natural heritage. Buskett received the greatest number of
mentions with almost one in five respondents suggesting that it should
be protected from development. Other recreational areas receiving a
high rate of mentions (between 100 and 200 persons out of 3000) are
listed in table 49.
6.2.9 All localities described above are characterised by natural habitats
and/or surrounded by agricultural land. These localities are located
mainly towards the northwest of Malta, and are also characterised by
the built rural heritage, such as the Victoria Lines and various tomb
sites and cart ruts.
TABLE 49: LOCALITIES IDENTIFIED IN THE PAS RECEIVING A HIGH RATE OF
MENTIONS: BETWEEN 100 AND 200 PERSONS
Localities advised for protection
from development (between 100
and 200 mentions each)
Local Plan Areas
Dingli Cliffs
North West
Chadwick Lake
North West
Bahrija
North West
Ta’ Qali
North West
Wardija
North West
Mtahleb
North West
Mizieb
North West
L-Ahrax tal-Mellieha
North West
Ghajn Tuffieha
North West
Selmun
North West
Il-Kuncizzjoni
North West
Kemmuna
Gozo and Comino
Bahar Ic-Caghaq
Malta Central
Delimara
Marsaxlokk Bay
Total
Source: Planning Authority (Public Attitude Survey, 2000)
No of
Mentions
130
196
193
177
124
113
111
113
121
140
99
125
130
152
1924
6.2.10 Other popular recreational areas which received between 50 to 100
mentions in the PAS are listed in table 50; these areas are located
towards the northwest of Malta and Gozo.
126
TABLE 50: LOCALITIES IDENTIFIED IN THE PAS RECEIVING A HIGH RATE OF
MENTIONS: BETWEEN 50 AND 100 PERSONS
Localities to be protected from
development (between 50 and
100 mentions each)
Local Plan Areas
Il-Kuncizzjoni
Mellieha Bay
Il-Fawwara
Ghar Lapsi
Mistra
Dwejra
Ramla L-Hamra
Ta’ Cenc
Wied Ghomor
Total
North West Local Plan
North West Local Plan
North West Local Plan
North West Local Plan
North West Local Plan
Gozo and Comino Local Plan
Gozo and Comino Local Plan
Gozo and Comino Local Plan
North Harbours Local Plan
No of
Mentions
99
94
69
64
50
83
75
65
63
662
Source: Planning Authority (Public Attitude Survey, 2000)
6.2.11 Valleys are amongst the most popular places for countryside
recreation; 33 out of the 180 specific localities gathered from the PAS
respondents are “widien” or dry valleys. Table 51 below lists the
identified “widien”, with a total of 413 mentions (excluding the 136
mentions that indicated “all valleys”).
TABLE 51: ‘WIDIEN’ MENTIONED BY PAS RESPONDENTS
Name of ‘Widien’
Wied ix-Xoqqa
Wied Ta'Rinella
Wied Betti
Wied Sant'Antnin
Wied Xkora
Wied Tal-Hemsija
Wied l-Isqof
Wied Il-Mielah
Wied Bingemma
Wied Il-Qoton
Wied Babu
Wied Hesri
Wied Il-Ghasri
Wied Biljun
Wied It-Tuffieh
Wied Rihana
Wied Is-Saqwi
Total
No. of Mentions
1
1
1
1
1
1
1
1
1
1
2
2
2
2
2
2
3
Name of ‘Widien’
Wied Qlejgha
Wied Blandun
Wied Ta'Garnaw
Wied il-Balluta
Wied Is-Sewda
Wied Ghollieqa
Wied Dalam
Wied L-Isperanza
Wied Ta' l-Imtarfa
Wied Il-Kbir
Wied il-Ghasel
Wied Lunzjata
Wied Qirda
Wied Id-Dis
Wied Ghomor
Chadwick lakes
No. of Mentions
3
3
3
5
5
5
5
6
8
13
17
18
18
20
63
196
413
Source: Planning Authority (Public Attitude Survey, 2000)
127
The Impact of Countryside Recreation on Rural Areas
6.2.12 Given that at present there are no managed areas for countryside
recreation, it is not possible to identify the locations where specific
recreational activities are undertaken; consequently, neither is it
possible to evaluate the impacts resulting from such activities
according to the local spatial context. Nevertheless, countryside
recreational activities may have the following negative impacts on rural
resources and attractions:
•
•
•
•
•
•
trampling and disturbance;
exploitation/destruction of wildlife;
overcrowding of visitors;
increased traffic flow and demand for parking facilities;
soil erosion; and
damage to important man-made features (e.g. rubble walls).
6.2.13 The geographic distribution of natural habitats is limited; as described
previously, localities popular with respect to countryside recreation tend
to be located towards the northwest of Malta, and Gozo.
Consequently, this is resulting in excessive recreational pressures
being concentrated in specific locations, the extent of the impact
depending on the degree of accessibility of the sites, and the sensitivity
of the habitats.
6.2.14 Visitors use private vehicles for most countryside recreational activities,
and at present there are no managed countryside recreation sites
having suitable parking facilities. Lack of managed car parks increases
the extent of impact on natural habitats through trampling, and may
also increase the rate of soil erosion. Non-availability, or lack of
management, of suitable parking facilities increases the risk of
ecological degradation.
6.2.15 However, provision of excessive recreational facilities, such as parking,
attracts further traffic and visitors to particular locations; a case in point
is the parking area in the vicinity of Ir-Ramla tac-Cirkewwa that has an
area of 4,500 sq m, while the actual bay has an area of 2,200 sq m.
6.2.16 33 out of the 180 specific localities that the PAS respondents want
protected are valleys. However, as valleys support a rich fauna and are
important water catchment resources, activities like off-roading,
caravanning, camping, hunting, and trapping would not be appropriate
in these locations, given that these activities result in a significant level
of human interference with the natural environment. Furthermore, these
activities also conflict with other “low-impact” recreational activities, like
nature appreciation and bird watching.
128
6.2.17 Valleys with steep sides limit the extent of impact generated through
motor vehicles and human interference on wildlife. However, activities
like climbing and abseiling may still impact on particular wildlife that is
sensitive to human interference, such as bird breeding sites.
6.2.18 The above indicates that the lack of visitor management results in
impacts that devalue natural and heritage resources, and detracts from
the recreational value of the countryside.
Compatibility between Potential Recreation Sites and Land Uses
6.2.19 Various land uses conflicting with countryside recreation are located in
the vicinity of the localities most mentioned by PAS respondents, as
shown in table 52 and figure 31. The main land uses conflicting with
those localities mentioned more than 50 times by PAS respondents
are:
•
•
•
•
•
•
•
urban settlements;
large scale projects of national importance;
farms;
landfill;
industrial development;
tourist development; and
quarrying.
6.2.20 Table 52 identifies the main conflicts between countryside recreation
and other land uses:
•
Most tourism-oriented development affects coastal countryside
recreational areas by intrusion onto the natural landscape and
increasing the demand for commercial facilities and
infrastructure.
•
Concentrations of farms hinder the recreational use of various
areas, including Buskett, which was the area most mentioned by
the PAS respondents. Conflicts include visual impacts, and
nuisances caused by the lack of proper waste management.
•
Only Ta’ Qali is influenced by existing industrial processes, as
most of the industrial uses ODZ are located in the vicinity of
Malta’s conurbation.
•
The Maghtab landfill influences the Bahar Ic-Caghaq area,
mainly in terms of visual impact.
•
Large-scale projects that influence countryside recreation sites
are the Cirkewwa – Mgarr ferry terminal (visual impact from
Kemmuna and L-Ahrax tal-Mellieha) and the Power Station and
129
Freeport areas (visual impact from Delimara and possible
generation of noise pollution).
•
Existing urban settlements obstruct the scenery as seen from
countryside recreation sites, as is the case at Delimara, Dingli
Cliffs, Mistra and Selmun. However, certain main locations
identified by the PAS respondents are located in the vicinity of
urban settlements e.g. Bahar ic-Caghaq, Mellieha Bay and Wied
Ghomor.
•
Quarry operations conflict with countryside recreation due to the
mineral extraction processes involved, and the damage inflicted
on the rural landscape. This has occurred in Dingli Cliffs, LAhrax tal-Mellieha, Dwejra and Ghar Lapsi.
6.2.21 The main concerns arising from the above incompatibilities are the
aesthetic degradation of the rural landscape, and the impact of specific
land uses on the recreational value of rural areas.
TABLE 52: TYPES OF LAND USES HAVING A POTENTIAL CONFLICT WITH
LOCALITIES MENTIONED BY PAS RESPONDENTS
Locality
No of Mentions
Buskett
Chadwick Lake
Bahrija
Ta’ Qali
556
196
193
177
Delimara
152
Selmun
Bahar Ic-Caghaq
140
130
Dingli Cliffs
130
Kemmuna
125
Wardija
Ghajn Tuffieha
124
121
L-Ahrax Tal-Mellieha
113
L-Imtahleb
Il-Mizieb
Il-Kuncizzjoni
Mellieha Bay
113
111
99
94
Hindering the
aesthetic value of
the rural
landscape
Conflicts possibly
due to the types
of built up land
uses
Farms
Urban settlements
Urban settlements
Urban settlements,
Power station and
Freeport
Urban settlements
Urban settlements
and Landfill
Urban settlements,
quarries
Cirkewwa
and
Mgarr ports and
tourist development
Tourist
development
Industrial
development
Quarries
Cirkewwa
port,
tourist development
and quarries
Tourist
development/
commercial
Tourist
development/
commercial
Tourism
development
Tourism
development/
and
130
urban settlements
Quarries
commercial
Quarries
Tourist
development
Tourist
development/
commercial
Tourist
development/
commercial
Quarries
Quarries
Dwejra
Ir-Ramla L-Hamra
Il-Fawwara
83
75
69
Ta’Cenc
65
Tourist
development
Ghar Lapsi
Wied Ghomor
64
63
Quarries
Urban Settlements
and quarries
Gnejna
Mistra
59
50
Urban settlements
Source: Planning Authority (Public Attitude Survey, 2000); 1998 Aerial Photography
6.2.22 The PAS also identifies some other localities that have minimal
interference from other types of land uses. These localities are situated
within the North West Local Plan and Gozo and Comino Local Plan
areas. These are as follows:
•
•
•
•
•
•
•
Bahrija (Rabat Local Council);
Il-Kuncizzjoni (Rabat Local Council);
L-Imtahleb (Rabat Local Council);
Wardija (St. Paul’s Bay Local Council);
Il-Mizieb (Mellieha Local Council);
Gnejna (Mgarr Local Council); and
Ir-Ramla L-Hamra (Xaghra Local Council).
6.3 Public Access to the Countryside
6.3.1 Countryside recreation depends on two interlinked elements that
provide for the enjoyment of the countryside: the quality of the resource
and access to the resource. Table 45 has shown that most countryside
recreational activities depend on the availability of public access to the
countryside.
6.3.2 In several European countries, like the UK, Germany, Denmark,
Norway and Sweden, public access to the countryside is safeguarded
through legislative measures. The commonly used legislative term to
describe public access is Rights of Way.
6.3.3 Rights of Way are meant to establish or enhance public access to the
countryside by providing more freedom to explore and enjoy the
countryside’s resources. The main considerations for Rights of Way
are:
131
•
•
•
•
•
•
•
the private individual has no right to close, alter or damage such
Rights of Way;
all members of society have equal opportunities to access the
recreational benefits of the countryside;
public access should not result in unacceptable damage to the
resource;
routes could be closed permanently or temporarily to minimise
visitor impacts on sensitive areas;
legal agreements between private and public entities could be
achieved to designate area as public routes;
identification of public access routes depends on the quality of
the surrounding countryside; and
the designation of public access should be complemented and
interlinked with practical measures aimed at the protection and
enhancement of the countryside.
Public Access to the Maltese Countryside
6.3.4 Public access for the enjoyment of the Maltese countryside is not
managed as in various European countries. The distribution of the
Islands’ road network and paths and the distribution of agricultural land
reflect the degree of accessibility in the countryside; however, public
access is restricted to country roads, and paths in well-known public
areas like Buskett; tables 49, 50 and 51 list particular areas in the
countryside that PAS respondents want protected from development.
Although public access for the enjoyment of the countryside in the
Maltese Islands is lacking, public demand for access is significant; 88
per cent of the PAS respondents agreed that “there should be more
footpaths in the countryside”.
6.3.5 For the past ten years, the Structure Plan has encouraged the
designation of public access to the countryside, in the form of Country
Parkways. Country Parkways are essentially “public rights of way and
their immediate surroundings within which a variety of open air
recreational activities will be located” (Structure Plan, 1990).
6.3.6 Public access routes are currently being identified by both Government
agencies and within Local Plans. Local Plans identify potential access
routes, and provide land use criteria for the provision of public access.
Government agencies identify routes in consultation with the Malta
Environment and Planning Authority and aim towards the provision and
management of such routes.
6.3.7 Local Plans built upon the routes identified in the Structure Plan by
identifying Country Parkways as well as other access routes (refer to
table 53). Some of the main considerations with respect to the
provision of public access in Local Plans are:
132
•
•
•
•
•
access from urban settlements to the countryside;
encouraging picnic areas;
identification of linear and circular routes;
landscaping schemes; and
parking and ancillary facilities.
6.3.8 Although, most of the routes identified in Local Plans pass through
areas popular for informal recreation, at present, not all parts of the
identified routes may be implemented and managed for the benefit of
the public. The identification of access routes is hindered by the
following factors (as identified through studies carried out for the Gozo
and Comino Local Plan):
•
•
•
•
the steepness of land slopes;
sharing of carriageways with vehicular traffic;
the lack of defined circular walking/cycling routes; and
lack of interpretation facilities.
6.3.9 Furthermore, the acceptability of human interference for the provision
of access routes could not be examined at the Local Plan level, as the
specific routes need to be examined within the context of different rural
locations at the management level.
6.3.10 Besides the Local Plan’s initiatives for the provision of Country
Parkways, the Ministry for Gozo has initiated a pilot project on the
provision of country walking routes in Gozo, in agreement with the
Malta Tourism Authority (MTA) and in consultation with the Malta
Environment and Planning Authority. The pilot project will then be
extended nationwide. The identified country walking routes are based
on existing public routes, to minimise environmental damage. These
routes are being promoted for walking, horse riding and cycli ng.
6.3.11 The key issues emerging from the pilot project initiated between the
Ministry for Gozo and the MTA are as follows:
•
•
•
fragmented land ownership and restricted access to third party
property;
poor quality of the countryside (dumping of inert waste and litter,
dumping in valleys and blocking of water flow, and cleaning of
valleys by heavy machinery); and
conflict with other activities in rural areas.
6.3.12 Although the Structure Plan identified Country Parkways as ‘rights of
way’, management of public access to the Maltese countryside is
lacking. Designation and management of public access routes is
presently constrained, mainly due to lack of access to third party
property and conflicts between countryside recreation activities and
other land uses in rural areas. Agreements with private landowners
133
may ensure the identification of the most suitable paths for the
enjoyment of the countryside.
6.3.13 Due to the lack of strategic guidance, Local Plans adopted different
approaches to designation of public access routes. Some Local Plans
focused on site-specific routes, others provided criteria for identification
of strategic routes, whilst others identified main routes and encouraged
the provision of picnic areas (refer to table 53). Strategic guidance on
public access to the countryside may provide the context for
designating and managing public access routes in the Maltese Islands.
6.3.14 Other routes identified in Local Plans provide opportunities for informal
recreation in the vicinity of congested urban areas. The quality of the
rural environment in the vicinity of the main urbanised areas may not
provide opportunities for public access routes at present. However,
environmental enhancement initiatives and landscape management
may provide opportunities for the future.
6.3.15 The Structure Plan encourages the linking of recreational attractions
through public access routes. In this regard, various public access
routes have already be identified in Local Plans. To ensure connection
of various rural attractions, these public access routes should be linked
together across Local Plan areas.. To enhance opportunities for the
enjoyment of the countryside, Local Plans designated a series of public
access routes that connect urban areas to the countryside.
6.3.16 Most Local Plans encourage the provision of picnic areas and
enhancement of rural attractions along designated public access
routes. Provisions for the enjoyment of rural areas should not impact on
areas that may be sensitive in terms of ecology and biodiversity,
cultural heritage, archaeology and landscape. Therefore, not all types
of visitor facilities are appropriate in all parts of the countryside. In this
regard, the Structure Plan recognises that organised picnic areas
should attract visitors away from sensitive areas. Consequently,
provisions for enjoyment of rural attractions should have regard to the
management of visitors and their activities, suitable locations for picnic
sites and proper design, scale and layout of facilities.
134
TABLE 53: DESIGNATION OF COUNTRY PARKWAYS, KEY FOOTPATHS AND PICNIC AREAS IN LOCAL PLANS
Local Plan Area
Remarks
Routes
North West
Most of the identified Country
Parkways in the Structure Plan are
located within the North West
Local Plan area. Most are linear
routes; the Draft North West Local
Plan (as issued for public
consultation)
proposes
an
additional link to those routes
along the western coastal cliffs.
Designated country parkways:
• Linear parkway along the ridge of the Victoria and Dwejra Lines;
• Linear river valley and lakes park from ta’ Qali National Recreation Centre
to Chadwick Lakes, along Wied il-Qlejgha;
• Linear parkways along the western coastal cliffs joining L-Imtahleb to
Fomm ir-Rih;
• Il-Buskett to Wied il-Kbir; and Wied is-Zurrieq to Ghar Lapsi.
Existing key footpaths, which
require further examination, have
also been identified in this Local
Plan, and consist of linear and
circular routes.
Local Councils are encouraged to
provide picnic areas in the various
suggested areas.
Existing key footpaths:
• Marfa – the ridge and the varied coastline of the peninsula, incorporating
the Red and White towers, Ras il-Qammieh and the Madonna Statue;
• Northern Coastline – eastern and western coastlines in the vicinity of
Mellieha and the wooded area of il-Mizieb;
• Western Cliff Rim – the crest of the western cliffs from Mgarr, via Mtahleb
and Dingli Cliffs south to Ghar Lapsi, with a diversion to Ras il-Pellegrin;
• Dingli Plateau – the Dingli – Nadur plateau, including Ghemieri, Dingli cliffs,
Il- Qolla and Chadwick Lakes;
• Widien and Wardija – St Paul’s Bay combined with the ridge crest;
• Victoria Lines – east-west walk between Gharghur and Bahrija following
the crest of the Victoria Lines escarpment, forts and fortifications including
Bingemma; and
• Mgarr Walk – Mistra Miel cliff top, near Gnejna, north to Ghajn Tuffieha,
and east to IL-Fawwara and the Roman baths.
Proposed picnic areas:
• Burmarrad National Country Park;
• Buskett;
• Chadwick Lakes;
• Fort Campbell;
• Kennedy Grove;
• Tat-Tomna;
135
•
•
•
•
•
•
Rdum Tal-Madonna (L-Ahrax tal-Mellieha);
Former Nato Base (L-Ahrax tal-Mellieha);
Ta’Qali Recreational Park;
Ta’ Ras il-Gebel (Mgarr);
Ta’ Danenzi Woodland (Mgarr); and
Victoria Lines.
Grand Harbour
Given the high percentage of
urbanised land within the area, the
focus is upon heritage trails in
historic urban areas rather than
country parkways.
Gozo and
Comino
The steep slopes of the Island
constrain the identification of
routes, especially circular ones,
since steep hills limit the ability of
people to walk, go hiking and
cycling.
The emerging Gozo and Comino Local Plan identifies several circular routes in
the countryside for informal recreation. These routes are distributed throughout
the countryside in the Local Plan area, and link urban settlements to rural
areas.
Central Malta
The emerging Central Malta Local
Plan has identified a key route
which is already accessible to the
public, but which needs proper
management to ensure a safe
public
access.
The
main
attractions along such routes, the
links from residential areas to the
valley and existing problems are
identified in the Local Plan study.
A key route passing through Wied il-Ghasel valley and linked to the Victoria
Lines. Another coastal walk was identified in the Bahar Ic-Caghaq area.
136
Marsaxlokk Bay
The approved Marsaxlokk Bay
Local Plan has identified a footpath
system for the whole Plan area.
The identification of picnic areas,
strategic
planting
and
the
preparation
of
management
schemes for the footpath system
are identified as key requirements
to enhance public access to the
countryside.
Policy MA 03 promotes the development of a footpath system based on routes
linking the Hal Far – Delimara and Birzebbugia – Gudja localities, as shown on
the Policy map.
North Harbours
The North Harbours Local Plan
has encouraged the “development
of a recreational footpath system
based on circular routes and
access from urban areas to the
countryside”. The identification of
picnic areas along these routes
and the planting of trees have also
been encouraged.
The suggested routes are:
• Pembroke circuit;
• Forts Circuit;
• Wied Ta’ Kalci Circuit;
• Wied Ghollieq Walk;
• Wied Ghomor Walk;
• Wied id-Dis Walk; and
• Coastal Walk.
South Malta
The Malta South Local Plan is still
under preparation. This Local Plan
aims to encourage public access
routes in the form of footpaths.
Areas where such routes could be
provided will be identified in the
near future.
The Malta South Local Plan Report of Survey identified existing areas used for
walking and picnicking:
• Zonqor Point
• St. Thomas Bay
• Il-Munxar
• Wied Zembaq
• Il-Maqluba
• Wied Garnaw
• Wied il-Kbir
• Wied Qirda
Source: Marsaxlokk Bay Local Plan (1995); Draft North Harbours Local Plan (2000); Emerging Gozo and Comino Local Plan; Report of
Survey South Malta Local Plan (2002); Emerging Central Malta Local Plan; Draft North West Local Plan (2001)
137
6.4 Rural Tourism and Diversification of the Rural
Economy
6.4.1 Rural tourism is defined as “a form of tourism activity and related
development which encourages and complements a better
appreciation and experience of the rural environment and its
resources” (Tourism Topic Paper, 2001). The Tourism Topic Paper
(2001) gives a detailed analysis of rural tourism in the broader context
of tourism in the Maltese Islands; the Rural Strategy Topic Paper
examines issues related to rural tourism from the perspective of rural
diversification.
6.4.2 Rural areas contribute to the Islands’ cultural and natural diversity, and
may be the means for diversification of the rural economy, by
promoting rural areas as an asset for tourism. However, rural tourism
requires a healthy environmental setting and landscape, if the rural
experience is to be considered as an alternative attraction to current
tourist activities.
6.4.3 Protection of the countryside and its resources, creative landscape
management and management of activities related to the enjoyment of
the countryside are essential for the viability of rural tourism.
6.4.4 The ESDP and the RDP promote rural tourism as a possible alternative
for the diversification of the rural economy; protection of the
countryside and its resources are considered to be assets for
diversification of the rural economy. The integration of agricultural and
non-agricultural activities in rural areas could provide farmers with
alternative sources of income.
6.4.5 The Malta Tourism Authority (MTA) recognises the countryside and
coast as assets that enhance the tourist product, particularly if the
“showcase” of Mediterranean landscape is well presented and
maintained. The MTA also identifies historic gardens (like Buskett), bird
sanctuaries and other arbocultural interests as important elements for
tourism. The MTA has initiated a landscaping scheme where Local
Councils, Hotels and NGOs are assisted in the provision of greener
surroundings.
6.4.6 Rural tourism depends upon the quality of the rural environment. The
success of rural tourism initiatives depends upon:
•
•
•
•
the control of urbanisation;
the control of the extent and visual impact of various activities
and land uses present in rural areas;
the minimisation of conflicts between recreational activities in the
countryside;
successful habitat preservation and regeneration initiatives;
138
•
•
•
•
•
creative rural landscape management;
provision of different degrees of public access;
control of environmental impacts resulting from rural tourism
initiatives and development for the needs of agriculture;
the conservation, maintenance and interpretation of the built
heritage; and
promotion of integrated countryside management areas.
Environmental Conditions for Rural Tourism
6.4.7 The rural areas towards the northwest of Malta and Gozo, possibly also
areas towards the southeast of Malta, are the least influenced by the
process of urbanisation; these areas consequently provide the most
suitable type of environment for rural tourism.
6.4.8 Areas covered by natural habitats are limited in the Maltese islands;
however, rural areas are rich in terms of the diversity of resources,
including topographic features, farms, cultivated fields, small
settlements, valleys and built heritage.
6.4.9 The potential for rural tourism in the Maltese Isla nds is based upon the
diversity of the local rural character, which depends upon the various
interlinked activities and land uses.
6.4.10 Given that agricultural fields dominate the rural landscape, the
agriculture sector has the potential of maintaining a healthy and wellpresented rural environment for the enjoyment of visitors. Agricultural
practices may contribute to rural tourism by protecting, enhancing and
managing the rural resources, through:
•
•
•
•
landscape management, including maintenance of traditional
rubble walls, screening of visually intrusive agricultural buildings
and structures, maintenance and re-use of old farmhouses and
other built heritage, and cultivation of terraces;
management and enhancement of public access to the
countryside;
adoption of environmentally friendly agrarian practices that
reflect past local traditions; and
adoption of suitable cultivation techniques that minimise soil
erosion, and environmental damage to water resources and
natural habitats.
6.4.11 However, farmers cannot manage the countryside without:
•
•
•
initiating countryside management schemes for areas that
include countryside recreation sites, natural habitats and
agricultural activities;
the provision of technical and educational support;
guidance on farming and building methods in rural areas; and
139
•
dealing with other indirect constraints, such as urbanisation of
the countryside and quarry excavations.
6.4.12 The protection and management of the countryside to provide and/or
maintain the right environmental conditions for rural tourism entail
additional costs to farmers. However, there is a possibility that the
accession of Malta to the EU might enable local farmers to benefit from
some form of financial assistance especially under the initiatives of the
EU Structural Funds. Tourists making use of countryside recreational
facilities may also contribute towards enhancement of farmers’ income.
Integrating Agricultural and Non-agricultural Activities in Rural
Areas
6.4.13 Economic diversification will require farmers to participate in various
activities, including initiatives with respect to environmental protection
and enhancement, and countryside recreation and rural tourism. The
integration of agricultural and non-agricultural activities may contribute
to the plurality of the farmers’ activities.
6.4.14 The types of agricultural and non-agricultural activities that could aid
the diversification of the local rural economy through rural tourism
initiatives include the following activities (list is not exhaustive):
Agricultural related activities
• wine making and vineyards;
• production of olive oil and olive pressing activities;
• production and sale of traditional agricultural products;
• conservation of traditional characteristics of agricultural land and
encouragement of traditional methods of farming;
• direct sale of agricultural produce; and
• promotion of environmentally friendly agricultural practices.
Non-agricultural related activities
•
•
•
•
•
•
•
horse riding activities;
renting of traditional farmhouses;
regeneration of degraded habitats and landscape management;
improvement and screening of farm structures;
enhancement of public access to the countryside;
conservation and management of the built heritage; and
contribution to the management of countryside recreation sites.
6.4.15 Although diversification of the rural economy may benefit farmers,
there may be an initial reluctance to accept these activities in view of
the current changing circumstances of the industry.
140
6.4.16 The promotion of rural tourism may aid the agricultural sector in
competing with other sectors of the economy in attracting a younger
workforce. Given the increasing environmental awareness of the
population, the new recruits may be more willing to consider this option
if the agricultural sector is to adopt non-agricultural initiatives (as
identified in the Rural Development Plan discussed in chapter 5) like
countryside recreation and rural tourism that involve aspects of
environmental protection and management.
Pressure for Further Development in the Countryside
6.4.17
Most activities involving rural tourism require some form of built
structures, which may result in an impact on the recreational and
aesthetic values of the countryside. Rural tourism and diversification of
the rural economy will increase the pressure for further development in
the countryside, either in the form of new structures or addition of
structures to existing buildings.
6.4.18
The list given in paragraph 6.4.15 suggests that the types of pressures
may be for structures related to tourist accommodation, horse-riding
facilities, direct sale of agricultural products, and processing of
particular agricultural commodities. The extent of the land use impacts
will depend upon:
•
•
•
6.4.19
the specific initiatives arising from the Government’s emerging
policy on agriculture and rural development;
the quality and intensity of development and/or activities that
may be pursued in a given area; and
the sensitivity of the affected environment.
The areas that would be most affected by rural tourism initiatives are
the northwest of Malta and Gozo, and possibly also rural areas towards
the southeast of Malta. Gozo is already a popular rural tourism
destination amongst the local population, where traditional farmhouses
are rented for weekend breaks. The number of farmers involved in
such rural tourism initiatives is unknown.
6.4.20 Pressure for further development associated with rural tourism may
increase in terms of demand for land. Given that the countryside is
already dotted with several rural buildings, development pressure for
rural tourism should be accommodated within existing rural buildings.
In this regard, conservation of the built and natural heritage, protection
of the scenery and biodiversity and enhancement of the rural character
are key considerations that require attention. The magnitude of
development pressures associated with rural tourism and
diversification of the rural economy will depend upon:
•
the willingness of farmers to invest in the reuse, rehabilitation
and conservation of existing buildings;
141
•
•
the correlation between land holdings, and the location and
ownership of existing buildings; and
the degree of fragmentation of land holdings and the availability
of existing buildings in the vicinity.
6.4.21 The 1988 survey sheets show that various buildings and structures
were already scattered in rural areas towards the northwest and
southeast of Malta and Gozo. Some are clusters of buildings in the
countryside; others are scattered around rural areas. Most of the built
up clusters in rural areas are settlements ODZ and animal farms (refer
to figure 10). Consequently, development related to rural tourism and
diversification of the rural economy should exploit existing
infrastructure, and avoid damage to the rural character, which is the
primary asset in this respect. Chapter 4 provides further detail
regarding settlements ODZ with respect to development related to the
diversification of the rural economy.
6.5 Summary
6.5.1 The enjoyment of countryside recreation depends on the aesthetic
experience provided by the rural landscape. The latter represents a
combination of elements, including natural resources, built heritage,
agricultural land and a diverse topography. However, the quality of the
landscape has been affected by a variety of factors, including
urbanisation, agricultural practices, and the quality of natural and man
made heritage and diversity. Protection of the countryside and its
resources, creative landscape management and management of rural
activities are essential for the viability of rural recreation and rural
tourism activities.
6.5.2 Countryside recreation depends on two interlinked elements that
provide for the enjoyment of the countryside: the quality of the resource
and access to the resource. The most popular areas with respect to
countryside recreation are those located towards the northwest of
Malta and Gozo. The most popular general areas include ‘all
countryside’, ‘all valleys’, ‘archaeological sites’ and ‘arable land’.
6.5.3 Certain localities popular with the PAS respondents are located in the
vicinity of the conurbation and other congested urban areas.
Enhancement of these rural locations will provide opportunities to
encourage informal recreational activities in the vicinity of urban areas.
6.5.4 There are no managed areas for countryside recreation in the Maltese
Islands. Although the countryside is popular for countryside recreation,
initiatives with respect to minimisation of conflicts between activities in
rural areas, protection of resources against countryside recreational
activities and sensitive/controlled provision of facilities for the
enjoyment of the countryside are lacking.
142
6.5.5 The main concerns arising from the conflicts among recreational
activities and other land uses in rural areas are the aesthetic
degradation of the rural landscape and resources, the impact of
specific land uses on informal recreational activities and the
incompatibility between recreational activities. Particular recreational
activities in rural areas do not require a rural context and/or require
significant human intervention to accommodate the required facilities,
with a consequent impact on rural resources.
6.5.6 Furthermore, lack of visitor management results in impacts that may
devalue natural and heritage resources, and detract from the
recreational value of the countryside. Overprovision of facilities for
countryside recreation may result in excessive recreational pressure on
sensitive rural areas. Management of recreational areas and
minimisation of conflicts between land uses is required. Visitor
management planning should be a key consideration within protected
areas, whereas provision for countryside recreation should focus upon
enhancement of the traditional rural environment and limited provision
of essential facilities for the interpretation of rural heritage.
6.5.7 Although the Structure Plan identifies Country Parkways as ‘rights of
way’, management initiatives associated with the designation and
protection of these routes is lacking. Public access is restricted to
country roads and well-known public areas. Lack of public access
routes diminishes the potential management of public access to the
countryside and siting of picnic areas. In this regard, mechanisms that
safeguard and enhance public access to the countryside are required.
6.5.8 Rural areas contribute to the Islands’ cultural and natural diversity, and
may be a possible means for diversification of the rural economy, by
promoting rural areas as an asset for tourism. Given that agricultural
fields dominate the rural landscape, the agriculture sector has the
potential of maintaining a healthy and well-presented rural
environment.
6.5.9 Economic diversification will require the participation of farmers in
various activities, including initiatives with respect to environmental
protection and enhancement. The integration of agricultural and nonagricultural activities in rural areas may contribute to the plurality of the
farmers’ activities.
6.5.10 Activities involving rural tourism and diversification of the rural
economy may require some form of built structures; the existing built
fabric of rural areas provide scope to accommodate most of this
potential development pressure. Given that the countryside is already
dotted with several clusters of buildings (and others that are scattered)
development related to rural tourism and diversification of the rural
economy should exploit existing infrastructure without causing damage
to rural resources.
143
7. Rural Conservation
7.0.1 The countryside and the associated rural resources include the natural
environment, the built heritage and the rural landscape. These require
conservation to safeguard enjoyment of the countryside, and the
sustainable use of renewable and non-renewable resources.
Preservation, improvement and management of rural resources would
consequently benefit both present and future generations.
7.0.2 The proportion of the Maltese Islands covered by natural habitats is
limited; most of the Islands’ surface area consists of urban areas,
roads, agricultural land and quarries. The rural environment also
provides the setting to various forms of built heritage.
7.0.3 Various socio-economic factors (discussed in the previous chapters)
led to changes in land use pressures in rural areas during the Structure
Plan period. The influence of these land use pressures on the quality of
the countryside and its resources depend upon the spatial distribution
of various land uses.
7.0.4 This chapter examines the current approach to conservation of the
natural and built heritage in the countryside and the implications of land
use pressures on rural resources.
7.1 Conservation through RCA Designation
7.1.1 The Structure Plan aims to conserve and enhance the countryside by
prohibiting urban development outside the development zone, and by
designating most of the countryside as a Rural Conservation Area
(RCA). The Structure Plan provides the following policies guiding
development within RCAs (refer also to Appendix A):
•
•
RCO Policies; aiming towards the conservation of natural
habitats, natural features and the landscape; and
ARC Policies; aiming towards the conservation of
archaeological areas and sites.
7.1.2 Areas within RCAs may be protected according to the categories listed
in table 54.
144
TABLE 54: CATEGORIES
CONSERVATION AREAS
Categories of RCAs
Areas of Agricultural
Value
Areas of Ecological
Importance
Sites of Scientific
Importance
Areas of
Archaeological
Importance
Sites of
Archaeological
Importance
National Parks
Areas of High
Landscape Value
OF
LAND
DESIGNATION
WITHIN
RURAL
Definition
AAV
AEI
SSI
Areas comprised of high grade agricultural land
including irrigated and partly irrigated land
Relatively large areas designated to protect
typical and rare habitats
Sites containing individual species, groups of
species, and geological features
AAI
Concentrations of valuable archaeological sites
SAI
Individual and/or isolated archaeological sites
NP
Relatively large areas of national significance not
materially altered by human use, with managed
visitor access and amenities
AHLV
Source: Structure Plan (1990)
7.1.3 Given that most of the countryside is designated as a Rural
Conservation Area (RCA), issues identified in previous chapters are
relevant to RCAs. The following sections examine the concept of RCAs
with respect to:
•
•
•
•
•
Urban development
Large-scale projects in rural areas
Farming and the changing landscape
Screening of development and afforestation
Provision for visitor management
Urban Development in Rural Areas
7.1.4 The most common types of urban development occurring in rural areas
during the Structure Plan period consist of residential dwellings and
industrial uses. The latter urban uses were examined in greater detail
in chapters 3 and 4.
7.1.5 The countryside is characterised by several settlements ODZ and
clusters of industrial uses. Industrial clusters tend to be concentrated in
the vicinity of the conurbation. Most settlements ODZ are located in the
vicinity of the development zone; most settlements in the northwest of
Malta are distant from the development zone and are characterised by
a predominantly rural environment.
7.1.6 Despite the Structure Plan strategy to protect areas within RCAs, and
to prohibit urban uses in the countryside, several clusters of buildings
145
in rural areas were subject to intensification of urban development.
However, pressure for residential and industrial uses in the open
countryside was minimal.
7.1.7 The increase in impact of industrial and residential development on
RCAs has been minimal during the Structure Plan period, given that
several residential and industrial clusters were already established
outside the development zone by 1988. Before the adoption of the
Structure Plan, the character of various old rural settlements was
impacted by modern development; initiatives to improve the character
of old rural settlements during the period of the Structure Plan was
lacking.
7.1.8 Existing clusters of residential uses (particularly those dominated by
urban-type dwellings) and industrial uses in the vicinity of the
development zone are not consistent with the concept of Rural
Conservation Areas. This means that the conservation values of
different rural areas within RCAs need to be specified and supported
with specific designations; the scheduling process, established under
section 46 of the Development Planning Act, is a key tool to conserve
rural areas according to their conservation values (see section 7.2).
7.1.9 During the Structure Plan period, a number of large-scale urban
developments (including residential schemes) were accommodated in
pockets or corridors of undeveloped land ODZ. Given that various
industrial and residential clusters are concentrated in particular
locations towards the conurbation and other urban areas, undeveloped
land ODZ which separates urban areas requires further protection. In
this regard, Local Plans are adopting the concept of strategic open
gaps to prevent coalescence of settlements.
7.1.10
During the Structure Plan period, buildings located in rural areas were
subjected to ‘change of use’ to industrial activities. Conversion of
existing buildings into uses not requiring a rural setting may result in an
impact on the conservation value of RCAs. These impacts may result
due to significant redevelopment of buildings, intensification of built-up
land, extensive alterations to structures and their rural context and the
nature of activities linked to particular land uses. Given that buildings
are scattered throughout the countryside, conversion of existing
buildings within RCAs require careful consideration; existing buildings
should be used for activities requiring a rural setting.
Large-scale Projects in Rural Areas
7.1.11
Although limited in number, large-scale developments approved during
the Structure Plan period had a negative impact on agricultural land
and the aesthetic value of the countryside. Such developments
included a hotel, a hospital, quarry extensions, construction plants and
schools.
146
7.1.12
The development of large-scale projects within the development zone
may not be possible, given the nature of proposed activities, and the
large footprint area required. However, large-scale projects result in the
obliteration of several features of the rural landscape and are not
consistent with the concept of RCAs.
7.1.13
The quality of reclamation of disused quarries remains one of the main
considerations for future land use strategies, as this influences the
conservation status of rural areas. Although disused quarries may be
reclaimed for agricultural use, certain types of urban uses were
accommodated in disused quarries, with a consequent impact on the
surrounding landscape. Furthermore, various quarries impacted on
areas characterised by natural habitats.
Farming and the Changing Landscape
7.1.14
Agricultural land dominates the rural landscape; consequently,
agricultural issues, initiatives and practices have a significant impact on
the character of rural areas. Impacts resulting from agricultural
activities include:
•
•
•
•
•
•
•
•
soil erosion;
lack of maintena nce of traditional rubble walls and terraced
fields;
abandonment of agricultural land;
landscape degradation;
damage to biodiversity;
pollution of the water table;
an increase in the number of built structures in rural areas; and
the obliteration of natural habitats by deposition of soil.
7.1.15
The animal husbandry sector is intensive and specialised; particular
rural areas are characterised by large farm structures. The impact of
animal farm buildings on the rural character results from the improper
design and siting of large-scale buildings, which are often located in
areas characterised by low-vegetation. These concerns may be largely
overcome through proper design and layout of such buildings and
structures within the local rural context.
7.1.16
Through the Guidelines for Planting and Landscaping in the Maltese
Islands (Planning Authority, 2002), large farm operations are required
to screen development through adequate landscaping. Similarly,
landscaping schemes are also required for the screening of
greenhouses in rural areas. Additionally, to minimise visual impacts
resulting from greenhouses and farms, significant consideration should
be given to the landform, character and landscape value of rural areas
where farms and greenhouses are to be accommodated.
147
7.1.17
The increased popularity of viticulture amongst farmers led to an
increase in the amount of land under vines, with a consequent positive
impact on the landscape. Viticulture offers the potential for the
rehabilitation of terraced and abandoned fields.
Rubble Walls
7.1.18
Further control and guidance are required with respect to maintenance,
rebuilding and construction of rubble walls in rural areas. Past practices
have resulted in the loss of and damage to traditional rubble walls
through:
•
•
•
•
•
•
7.1.19
replacement of rubble walls by franka stone walls;
cladding of walls with rubble stone;
use of concrete in rubble wall construction;
surfacing of traditional rubble walls with concrete;
placement of materials not consistent with rural areas; and
lack of consideration to issues connected with water runoff from
fields.
Loss of and damage to traditional rubble walls had resulted in a
significant impact on biodiversity and the landscape and increased
risks of soil erosion from fields. Increase in the height of rubble walls in
rural areas characterised by low-lying landscapes has also blocked
long distance views from country roads. Rubble walls should be
constructed in traditional methods and materials, so as to protect the
traditional rural character of the Maltese Islands and safeguard
ecological corridors throughout the farmed landscape.
Landscaping and Afforestation
7.1.20
Current policy regarding landscaping and the embellishment of both
urban and rural areas are given in Guidelines for Planting and
Landscaping in the Maltese Islands (Planning Authority, 2002). The
latter includes details regarding the type of species that may be used
for landscaping, to ensure that such projects are environmentally
sound. Landscaping schemes are required by development permit
conditions for development that may have a visual impact on rural
areas.
7.1.21
There have been no large-scale afforestation projects during the
Structure Plan period. Such projects are required, particularly in
degraded areas, or areas in close proximity to urbanisation, to:
•
•
•
relieve the pressure on ecologically sensitive areas;
mitigate the impact of urban fabric on the rural landscape; and
contribute to the quality of life within urban areas.
148
7.1.22
Given that few areas are covered with natural woodlands, afforestation
projects are significant in the local context. Although several activities
in rural areas are required to screen buildings and structures through
landscaping, the amount of wooded areas in the Maltese Islands
remains limited. Therefore, afforestation projects should be
encouraged and managed for the enjoyment of the public. However,
areas suitable for afforestation should not include areas that are
important in terms of ecological, scientific and/or built heritage and
landscape.
Visitor Management
7.1.23
Countryside recreation depends on the conservation of the countryside
and the sustainable use of rural resources. Visitor management aims to
“enable people to enjoy wildlife and the countryside without destroying
the very things they come to see” (Green, 1996).
7.1.24
The magnitude of the impact depends on the sensitivity of the area,
and the intensity of the various recreational activities (particularly those
resulting from major impact sports). Lack of visitor management
increases the risk of conflicts between rural conservation and
countryside recreation. Projects aiming towards conservation of natural
and cultural heritage, enhancement of rural areas and afforestation of
sites for recreational purposes should include a visitor management
plan, so as to enhance people’s enjoyment of rural resources, minimise
potential visitor impacts on resources and interpret the value of rural
heritage and scenery to the public.
7.1.25
Degradation of the rural character impacts on the enjoyment of the
countryside. Although visitors are attracted to the countryside, rural
areas remain characterised by several structures that are inconsistent
with the rural character. Dumping and construction of franka boundary
walls discourage visitors from undertaking informal recreational
activities in the countryside. Although the provision of public access
routes to the countryside enhances the experience of visitors in rural
areas, activities that degrade countryside recreation opportunities (like
the construction of high walls that obstruct views) should be controlled.
Protecting RCAs through Legislation
7.1.26
Rural Conservation Areas are characterised by the natural
environment, a pleasant landscape and the built heritage. Particular
areas and sites within RCAs are protected through national legislation;
rural areas are protected according to their conservation value in terms
of Structure Plan RCO Policies (as shown in table 55). Furthermore,
there are various regulations, issued under the Environment Protection
Act of 2001, which are aimed at affording protection to biodiversity,
flora and fauna, wildlife, trees and woodlands and designation of nature
149
reserves. Specific regulations protect various rural structures and
rubble walls. National and international legal obligations aimed towards
conservation of rural resources are outlined in Appendix G. Some of
these legal obligations involve the protection of specific species or
features; others deal with the protection of sites and areas.
7.1.27
Various areas, buildings and features are protected through the
Development Planning Act of 1992 (amended in 2001):
“The Authority [now the Malta Environment and Planning
Authority] shall prepare, and from time to time review, a list of
areas, buildings, structures and remains of geological,
palaeontological,
archaeological,
architectural, historical,
antiquarian or artistic importance, as well as areas of natural
beauty, ecological or scientific value (hereinafter referred to as
“scheduled property”) which are to be scheduled for
conservation and may in respect of all or any one or more of the
scheduled property make conservation orders to regulate their
conservation”
(Section 46, Development Planning Act of 1992).
7.1.28
Structure Plan RCO policies and the Structure Plan Explanatory
Memorandum provide the context for development proposed in
scheduled property. The following sections identify protected rural
areas and examine development pressure in scheduled areas.
7.2 Protected Natural Areas
7.2.1 Natural areas are designated as Scheduled Property under the
Development Planning Act (DPA) of 1992 (as amended in 2001) and
Nature Reserves under the Environment Protection Act (EPA) of 1991
(now repealed by the Environment Protection Act of 2001).
Nature Reserves
7.2.2 A total of 52 sites are designated as “Nature Reserves” under the EPA
of 1991 (see Table 55). Only 3 of the 52 sites are protected as strict
Nature Reserves. Another 20 sites are protected as Bird Reserves
where the shooting and trapping of birds is prohibited; the remaining 29
sites are designated as Tree Reserves. In this respect, most Nature
Reserves are “protected not for the habitats and biota they support, but
to protect public and private property and to reduce nuisances” (State
of the Environment Report, 1999).
150
TABLE 55: DESIGNATED NATURE RESERVES IN THE MALTESE ISLANDS
UNDER EPA OF 1991
Reserve
Legal instrument
Type of Reserve
Filfla
Act XV of 1988
Nature Reserve
Fungus Rock
LN 22 of 1992
Nature Reserve
Selmunett Islands
LN 25 of 1993
Nature Reserve
Ta’ Qali
LN 144 of 1993
Bird reserve
Manoel Island
LN 144 of 1993
Bird reserve
Addolorata Cemetery
LN 144 of 1993
Bird reserve
Ghadira
LN 144 of 1993
Bird reserve
LN 144 of 1993
Bird reserve
Kennedy Grove & Salina
LN 144 of 1993
Bird reserve
Marsa Sports Ground
LN 144 of 1993
Bird reserve
San Anton Gardens
LN 144 of 1993
Bird reserve
Portes-des-Bombes
LN 144 of 1993
Bird reserve
Comino
LN 144 of 1993
Bird reserve
Buskett Gardens &
Verdala Palace
LN 144 of 1993
Bird reserve
Ta’ Cenc
LN 144 of 1993
Bird reserve
Simar, St Paul’s Bay
LN 144 of 1993
Bird reserve
Filfla
LN 144 of 1993
Bird reserve
Il-Ballut, Marsaxlokk
LN 144 of 1993
Bird reserve
Selmunett
LN 144 of 1993
Bird reserve
Girgenti
LN 144 of 1993
Bird reserve
Wied Ghollieqa
LN 144 of 1993
Bird reserve
Il-Qawra, Gozo
LN 144 of 1993
Bird reserve
Ghammar Hill
Wied il-Mizieb and
Wied tax-Xaqrani
(limits of Mellieha)
LN 144 of 1993
Bird reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
Ta’ Baldu (limits of Dingli)
LN 12 of 2001
Tree reserve
Gnien il-Kbir (limits of Rabat and
Siggiewi)
LN 12 of 2001
Tree reserve
Xrobb l-Ghagin (234,000*)
2
Il-Wied ta’ l-Imgiebah (limits of Mellieha)
Il-Ballut (at Wardija,
limits of St. Paul’s Bay)
Part of Wied ir-Rum
(limits of Dingli)
Wied Hazrun
(limits of Dingli)
2
Status of ‘Nature Reserve’ revoked in 1997 after the Deutsche Welle radio station in the area was
closed down. (LN 215 of 1997, Article 3).
151
Il-Buskett (limits of Rabat, Siggiewi and
Dingli)
Wied il-Girgenti
(limits of Siggiewi)
Il-Wied ta’ l-Imtahleb and Wied Markozz
(at Mtahleb, limits of Rabat)
Wied il-Hut
(at Mtahleb, limits of Rabat)
Wied Gerzuna and Wied il-Bahrija (at
Bahrija)
Il-Maqluba
(limits of Qrendi)
Wied il-Baruni
(limits of Marsascala)
Wied Zembaq
(limit of Birzebbugia)
Wied Moqbol
(limits of Zurrieq)
The area between Wied ta’ l-Arkata and
Ta’ Sparati
(at Bidnija, limits of Mosta, St. Paul’s
Bay)
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
LN 12 of 2001
Tree reserve
The area of Il-Hazina (Comino)
LN 12 of 2001
Tree reserve
Il-Qala ta’ Santa Marija (Comino)
LN 12 of 2001
Tree reserve
Part of Wied il-Ghasel (limits of Mosta)
Wied Ghollieqa
(limits of San Gwann)
Wied Qirda
(limits of Zebbug)
Wied Bloq
(limits of Zebbug/Qormi)
Wied Anglu
(limits of Gharghur/Naxxar)
The area of San Pawl tat-Targa
(limits of Naxxar/Gharghur)
Ta’ Lambert
(limits of Xewkija Gozo)
The area between Ghajn Damma and
Pergla
(limits of Xaghra, Gozo)
Wied San Blas and Wied Bingemma
(limits of Nadur Gozo)
Il-Qawra (part of Dwejra, limits of San
Lawrenz, Gozo)
Sources: Schembri P.J. et al (2002) Living Resources, Fisheries and Agriculture. In
Axiak V. et al (2002) State of the Environment Report 2002
7.2.3 The list of areas designated as Nature Reserves (table 55) is being
reviewed by MEPA, so as to protect areas according to their diverse
conservation values. This review is being carried out in the context of
the European Union’s Natura 2000 (Habitats Directive) and the Council
of Europe’s Emerald Network. Protected natural areas will be
designated as Special Areas of Conservation (SACs), according to
IUCN Area Management Categories.
152
Scheduled Natural Areas
7.2.4 According to the Structure Plan, natural habitats can be classified as
Areas of Ecological Importance (AEIs) and Sites of Scientific Interest
(SSIs). The different levels of protection afforded to AEIs and SSIs are
listed in table 56. The list of habitats qualifying as AEIs/SSIs and the
development policy criteria attributed to AEIs/SSIs are found in the
Structure Plan Explanatory Memorandum (1990) and the Structure
Plan Written Statement (1990).
TABLE 56: DIFFERENT DEGREES OF PROTECTION AEIs AND SSIs
AEIs and SSIs:
Levels of Protection
Description of Eligible Habitats
Level 1
Important habitat types present only in small areas and/or
sites with unique species or features
Level 2
Important habitat types present in relatively large areas
and/or sites with rare species or features
Level 3 (Buffer Zone)
Level 4
Include areas where control is necessary to preserve
habitats/species/features in adjacent sites
Include habitats and/or features of general interest
Source: Structure Plan (1990)
7.2.5 As further information becomes available, the list of natural habitats
qualifying as AEIs/SSIs needs to be updated and revised from time to
time to include habitats or features not listed in the current Structure
Plan.
7.2.6 Natural areas scheduled as AEIs and SSIs cover a total area of 37.4 sq
km, or 12 per cent of the Maltese Islands (refer to table 57 and figure
32). The Scheduling process is an ongoing task: natural areas in the
island of Gozo and others in Malta are currently being identified for
protection according to their level of importance.
7.2.7 The Scheduling process of the Malta Environment and Planning
Authority is complemented by an inventory of natural areas and sites.
Some of these areas have already been scheduled under the DPA of
1992, or included as parts of the designated Nature Reserves; other
areas may be scheduled in the future. Table 57 and figure 33 show the
distribution of the listed natural areas or sites, according to the different
proposed levels of protection. Natural habitats of ecological and
scientific interest are identified through various ecological surveys;
these habitats are listed in an inventory, and may become scheduled
property under the DPA of 1992.
153
TABLE 57: DISTRIBUTION OF SCHEDULED AEIs AND SSIs FROM 1994 TO
2000, AND LISTED NATURAL AREAS ACCORDING TO THE P ROPOSED
DEGREE OF PROTECTION
Protection Levels
AEIs/SSIs
Level 1
Level 2
Level 3
Level 4
Total
Area Listed
(sq km)
5.5
10.4
25.7
16.4
58 sq km
Area Scheduled
(sq km)
0.4
20.5
15.3
1.2
37.4 sq km
Source: Malta Environment and Planning Authority (2002)
7.2.8 52 sites, having a total land area of 0.4 sq km, are scheduled as Level
1 AEIs/SSIs (refer to table 58). Another 46 sites, having an area of
20.5 sq km, are scheduled as Level 2 AEIs/SSIs (refer to table 59).
TABLE 58: AREAS SCHEDULED AS LEV EL 1 AEIs/SSIs FROM 1994 to 2000
ACCORDING TO THE TYPE OF HABITATS
Scheduled Features
Level 1 AEIs/SSIs
No of Areas/Sites
Caves
Cliffs
Freshwater Wetland
Garigue
Marshland
Promontory
Saline Marshland
Sand Dunes
Spring
Valleys
Watercourses
Woodland
AEIs AND/OR
AEIs AND/OR
AEIs AND/OR
AEIs AND/OR
AEIs AND/OR
AEIs AND/OR
AEIs AND/OR
AEIs AND/OR
AEIs AND/OR
AEIs AND/OR
AEIs AND/OR
AEIs AND/OR
SSIs
SSIs
SSIs
SSIs
SSIs
SSIs
SSIs
SSIs
SSIs
SSIs
SSIs
SSIs
5
1
6
1
3
1
8
10
4
4
7
2
Total Number of
Scheduled Sites
Level 1 AEIs/SSIs
52
Source: Malta Environment and Planning Authority (2002)
154
TABLE 59: AREAS SCHEDULED AS LEVEL 2 AEIs/SSIs FROM 1994 TO 2000
ACCORDING TO THE TYPE OF HABITATS
Scheduled Features
Level 2 AEIs/SSIs
No of Areas/Sites
Caves
Cliff and Valley
Coastal Cliffs
Fault and Watercourse
Garigue
Karstland
Maquis
Saline Marshland
Sand Dunes
Subsidence Structure
Valleys
Valley Sides
AEIs AND/OR SSIs
AEIs AND/OR SSIs
AEIs AND/OR SSIs
AEIs AND/OR SSIs
AEIs AND/OR SSIs
AEIs AND/OR SSIs
AEIs AND/OR SSIs
AEIs AND/OR SSIs
AEIs AND/OR SSIs
AEIs AND/OR SSIs
AEIs AND/OR SSIs
AEIs AND/OR SSIs
3
2
14
1
3
1
4
2
6
1
3
6
Total Number of
Scheduled Sites
Level 2 AEIs/SSIs
46
Source: Malta Environment and Planning Authority (2002)
7.2.9 Most of the areas scheduled as Level 3 AEIs/SSIs are buffer zones to
adjacent sensitive areas, as defined in Structure Plan Policy RCO 12
and Paragraph 15.39 of the Structure Plan Explanatory Memorandum.
There are a few cases where areas scheduled as Level 3 AEIs/SSIs
did not represent a buffer zone to adjacent sensitive habitats.
7.2.10
Structure Plan Policy RCO 12 and Paragraph 15.40 of the Structure
Plan Explanatory Memorandum state that areas protected as Level 4
AEIs/SSIs should include habitats and/or features of general interest.
Nevertheless, most areas that have been designated as Level 4
AEIs/SSIs have been identified as buffer zones to Level 3 AEIs/SSIs.
Development Pressure in AEIs and SSIs
7.2.11 From 1994 to 2000, development pressure within Level 1 AEIs/SSIs
was insignificant; during the Structure Plan period, the only
development was the restoration of a tower and a water spring.
However, impacts on important habitats have resulted prior to
scheduling of an area; for example, extension to properties within the
development zone of Xlendi encroached on adjacent natural habitats,
which were later scheduled.
7.2.12
Several approved development permits within Level 2 AEIs/SSIs were
related to existing uses; these included the installation of dish
antennas, signs, amendments to car parking facilities, redevelopment
of a farmhouse and other internal alterations to existing structures.
155
7.2.13
New developments approved consisted of:
•
•
•
•
•
the addition of a pumping station to an existing plant;
a boundary wall;
4 agricultural stores;
reinstatement of an existing restaurant; and
an additional terrace house within a gap space between the
development zone and another building.
7.2.14
The scheduling process has been effective in attracting conservation
and maintenance initiatives to the built heritage that are located within
areas scheduled as Level 2 AEIs/SSIs. However, the areas where the
development permits for the reinstatement of a restaurant and the
development of a terrace house were approved, were scheduled after
the approval of the development applications.
7.2.15
Level 3 AEIs/SSIs are buffer zones to more sensitive habitats. Given
that development pressure in scheduled Level 3 AEIs/SSIs was
minimal, Level 3 AEIs/SSIs have been effective in allowing the
continuation of agricultural practices in these areas, without damaging
adjacent sensitive habitats.
7.2.16
New developments in Level 3 AEIs/SSIs consisted of a pumping
station, a substation, 6 agricultural stores, a greenhouse, 3 boundary
walls and 2 reservoirs. A farmer’s residence was approved in a rural
settlement at Ta’ Wied Rini l/o Bahrija.
7.2.17
An application for the renewal of an existing permit for a new dwelling
was approved in 1999; the area was scheduled in 1996. Other
development permits were approved within areas scheduled as Level 3
AEIs/SSIs (refer to table 60). Development pressures in areas
scheduled as Level 3 AEIs/SSIs was minimal.
TABLE 60: DEVELOPMENT PRESSURE FROM 1994 TO 2000 IN AREAS
SCHEDULED AS LEVEL 3 AEIs/SSIs
Type of approved developments within areas scheduled as Level 3 AEIs/SSIs;
these developments did not require the construction of new buildings
Internal alterations to
Three extensions to
Redevelopment of three rural
existing buildings
existing residences
rooms
Four extensions to existing Extension to existing
Conservation of a tower
rural buildings and animal
reservoir
farms
Restoration of three rural
Six dish antennas on
Widening of a road
rooms
existing properties
Change of use into a
A kiosk
Introduction of two informative
residence
signs
Source: Malta Environment and Planning Authority (2002)
156
7.3 Areas Protected for their High Landscape Value
7.3.1 35.8 sq km of the Maltese Islands are protected as Areas of High
Landscape Value (AHLVs) as indicated in table 61 and figure 34.
TABLE 61: AREAS SCHEDULED AS AHLV FROM 1994 TO 2000
Protected Feature and Environs
Grand Harbour Area
Coastal Cliffs (Malta)
Victoria Lines
Mdina
Cittadella (Gozo)
Buskett
Total Area (sq km)
Area Scheduled (sq km)
9.3
19.2
5.0
1.0
0.2
1.1
35.8 sq km
Source: Malta Environment and Planning Authority (2002)
7.3.2 The largest scheduled AHLV consists of Malta’s coastal cliffs. The
AHLV of the Grand Harbour area protects the urban landscape of the
old harbour area.. The AHLV designated around the Victoria Lines
protects the heritage and scenic value of the Victoria Lines, together
with the surrounding rural context. Similarly, the AHLV designated
around Buskett protects the setting of Verdala Palace, and includes
one of the most important natural woodlands, and the surrounding
agricultural land.
7.3.3 The AHLVs around Mdina and Cittadella protect the setting of the two
old cities by protecting the surrounding rural context. The rural
environment surrounding Mdina and Cittadella is located outside the
development zone boundaries; certain rural areas were also protected
through designation as Urban Conservation Areas (UCA). However,
while Mdina is located within the limits to development and is an UCA,
Cittadella is an UCA but is located outside the development zone
boundaries (refer to figure 34). Consequently, application of policies
requires clarification.
7.3.4 Few inland rural areas were designated as AHLVs during the period of
the Structure Plan. Most designated AHLVs protect the setting of
specific elements of the built heritage or coastal areas. There has been
no designation of significant rural areas that are of high landscape
value in terms of Malta’s traditional rural scenery. The assessment and
classification of the landscape in terms of its quality is not the remit of
this Topic Paper; landscape assessment is being carried out as a
separate study.
7.3.5 Apart from areas protected for their significant landscape value, several
individual or group of trees are protected through Tree Preservation
Orders (TPOs). Various protected trees form an integral part of the
rural landscape.
157
Development Pressure in AHLVs
7.3.6 Malta’s coastal cliffs were scheduled as AHLV in 1996; in 1996, these
coastal cliffs were also scheduled as Level 2 AEI. Examination of
development pressure within these areas has already been outlined in
paragraphs 7.2.12 to 7.2.14 of this study. Development pressure within
the AHLV of the Grand Harbour area is not being considered in this
paper as it is connected to the urban landscape.
7.3.7 The AHLVs around Mdina, Cittadella and the Victoria Lines were
designated in 2000, while that around Buskett was designated in 1996.
Development pressures within these rural areas were minimal. Table
62 shows the types of approved developments within these AHLVs
during the period from 1994 to 2000.
7.3.8 The nature of impact on the different AHLVs depends on the visual
imposition caused by the different forms of approved developments.
The aesthetic value of the Victoria Lines was impacted by various
activities (including quarry extensions); nevertheless, most of the
impacts occurred prior to the designation of the Victoria Lines as an
AHLV.
TABLE 62: DEVELOPMENT PRESSURES IN AREAS SCHEDULED AS AHLVs
Type of approved developments within areas scheduled as AHLVs
Buskett (Designated in 1996)
•
•
•
•
•
•
Mdina (Designated in 2000)
•
•
•
Cittadella (Designated in 2000)
•
•
•
Victoria Lines (Designated in 2000)
•
•
•
•
Internal alterations
Agricultural stores
Extensions to farms
Dish antennas
Informative signs
Substation
Agricultural store
Informative sign
Three new dwellings within the
settlement at Il-Hofra
Change of use into a local shop at Il Hofra settlement
Internal
modifications
and
extensions at Il-Hofra settlement
Reinstatement of rubble wall
Swimming pool, gazebo and garden
store
Swimming pool and tennis court
Additions to existing farmhouse
Open air theatre
158
•
•
•
•
•
•
•
Informative signs
Redevelopment of agricultural store
Dish antennas
Extensions to quarry operations
Redevelopment into residence
Alterations to school
Erection of boundary walls
Source: Malta Environment and Planning Authority (2002)
7.4 Areas Protected for their Archaeological Value
7.4.1 Structure Plan Policy ARC 2 provides four protection ratings for areas
and sites designated as Areas of Archaeological Importance (AAIs)
and Sites of Archaeological Importance (SAIs); refer to table 63 and
figure 35. According to Structure Plan Policy ARC 1, designation of an
area as an AAI/SAI does not require that the area be located within an
Urban Conservation Area (UCA).
TABLE 63: PROTECTIVE LEVELS AFFORDED TO AAIs AND SAIs
Levels of Protection
Class A
Description
Top priority conservation. No development to be allowed
which would adversely affect the natural setting of these
monuments or sites. A minimum buffer zone of at least
100m around the periphery of the site will be established
in which no development will be allowed.
Class B
Very important to be preserved at all costs. Adequate
measures to be taken to preclude any damage from
immediate development.
Class C
Every effort must be made for preservation, but may be
covered up after proper investigation, documentation
and cataloguing. Provision for subsequent access shall
be provided.
Class D
Belonging to a type known from numerous other
examples. To be properly recorded and catalogued
before covering or destroying.
Source: Structure Plan (1990)
7.4.2 Table 65 shows that areas scheduled as AAIs/SAIs cover a total area
of 10 sq km (including buffer areas that have an equally important level
of protection). Archaeological sites are being protected in terms of both
their value and their setting. Furthermore, concentration of various
AAIs and SAIs in particular locations indicates the archaeological
159
importance of particular large areas in the Maltese Islands (refer to
table 64); such areas are not given a protection level.
7.4.3 The Scheduling process is complemented by the National Protective
Inventory, which lists buildings, features, monuments, sites and areas
of cultural and archaeological interest. Some of the items listed in this
inventory are scheduled under the DPA of 1992; others may be
scheduled in the future. Table 64 and figure 36 show the distribution of
the listed items of archaeological importance.
TABLE 64: AREAS SCHEDULED AS AAIs/SAIs FROM 1994 TO 2000
Protection Levels
AAIs/SAIs
Class A
Class B
Class C
Class D
Class E
Large AAIs containing
AAIs and/or SSIs
(buffer zones)
Total Area
Listed Scheduled (sq km)
Area Scheduled (sq km)
3.6
3.3
0.12
0.003
4.7
2.6
0.4
(insignificant)
0
(insignificant)
2.2
7
13.9 sq km
10 sq km
Source: Malta Environment and Planning Authority (2002)
7.4.4 Certain areas/sites scheduled as AAIs/SSIs are located within urban
areas and/or the coastal zone. The following describes all scheduled
archaeological sites and/or areas.
7.4.5 86 areas/sites, covering a total land area of 2.6 sq km, are scheduled
as Class A AAIs/SAIs (refer to table 65 and figure 35); the protected
features include temples, catacombs, archaeological remains and
tombs. 14 AAIs out of the 86 scheduled areas/sites are buffer zones
around clusters of archaeological features or monuments, and are
afforded a Class A degree of protection.
7.4.6 149 sites, having a total land area of 0.4 sq km, are scheduled as
Class B AAIs/SAIs (refer to table 66 and figure 35); the protected
features include structural remains, tombs, ancient quarries, burial sites
and cart ruts. 2 AAIs out of the 149 scheduled areas/sites are buffer
zones around clusters of archaeological features or monuments, and
are afforded a Class B degree of protection.
7.4.7 Only one site has been scheduled as Class C AAIs/SAIs; the site
consists of a stone circle. No sites were scheduled as Class D
AAIs/SAIs. Another two sites were scheduled as Class E AAIs/SAIs,
and consist of a hypogeum, and remains of old buildings.
160
TABLE 65: AREAS SCHEDULED AS CLASS A AAIs/SAIs FROM 1994 TO 2000
ACCORDING TO THE TYPE OF FEATURES
Scheduled Features
Class A AAIs/SAIs
No of Areas/Sites
Wall
Villas (including Roman villas)
Temples
Catacombs
Settlements
Towers
Roman Domus
Roman Baths
Archaeological Sites
Rock Cut Basin
Remains (including prehistoric
remains and structural remains)
Punic Sanctuary
Megaliths
Tombs
Hypogea
Fortified Town
Dolmen
Cistern
Circle
Cemetery
Cave Dwelling
Caves
Cart Ruts
Multi-type sites
Class A Buffer Zones
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
1
3
11
9
2
2
1
1
2
1
AAIs AND/OR SAIs
8
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
AAIs AND/OR SAIs
1
3
8
4
1
1
2
2
1
1
3
2
2
14
Total Number of Scheduled Sites
Class A AAIs/SAIs
86
Source: Malta Environment and Planning Authority (2002)
TABLE 66: AREAS SCHEDULED AS CLASS B AAIs/SAIs FROM 1994 TO 2000
ACCORDING TO THE TYPE OF FEATURES
Scheduled Features
Class B AAIs/SAIs
No of Areas/Sites
Structural Remains
Other Remains (including Roman
remains)
Tombs
Ancient Quarries
Ancient Rubble Wall
Burials
Cart Ruts
Catacombs
Caves
Cave Dwellings
Cistern
Chapel
Columbarium
Ditch of Roman Melite
Hypogea
AAIs AND/OR SAIs
20
AAIs AND/OR SAIs
5
AAIs
AAIs
AAIs
AAIs
AAIs
AAIs
AAIs
AAIs
AAIs
AAIs
AAIs
AAIs
AAIs
AND/OR
AND/OR
AND/OR
AND/OR
AND/OR
AND/OR
AND/OR
AND/OR
AND/OR
AND/OR
AND/OR
AND/OR
AND/OR
SAIs
SAIs
SAIs
SAIs
SAIs
SAIs
SAIs
SAIs
SAIs
SAIs
SAIs
SAIs
SAIs
23
10
1
22
25
5
4
7
1
1
1
2
3
161
Masonry
Megaliths
Menhir
Rock Cut Features
Roman Tower
Multi-type sites
Class B Buffer Zones
AAIs
AAIs
AAIs
AAIs
AAIs
AAIs
AAIs
AND/OR
AND/OR
AND/OR
AND/OR
AND/OR
AND/OR
AND/OR
SAIs
SAIs
SAIs
SAIs
SAIs
SAIs
SAIs
Total Number of Scheduled Sites
Class B AAIs/SAIs
2
3
2
8
1
1
2
149
Source: Malta Environment and Planning Authority (2002)
Development Pressure in AAIs/SAIs
7.4.8 The level of development impacts on scheduled archaeological sites
and areas from 1994 to 2000 is deemed to be minimal. Development
was either connected with the protection and interpretation of
archaeological features and monuments or additions, alterations and
extensions to existing nearby structures. Only few developments
affected the setting of scheduled archaeological sites and areas during
this period and included the installation of a kiosk in the vicinity of a
roman villa at ir-Ramla (Gozo) and a residence approved next to the
Victoria Lines.
7.5 Areas Protected for their Architectural and
Historic Value
7.5.1 There are many isolated buildings and groups of buildings of
architectural and/or historical interest in the Maltese Islands that
require protection; the Structure Plan aims towards the designation of
such buildings and spaces as “Buildings of Architectural and Historical
Interest and to extend to them the protection afforded to Urban
Conservation Areas” (Paragraph 15.10 of the Structure Plan).
Therefore, the protection afforded to buildings of architectural and
historical interest in rural areas follows the levels of protection afforded
to buildings and structures within UCAs. Furthermore, Structure Plan
Policy UCO 11 supports the conversion of buildings of architectural or
historical interest, where such conversions will result in the protection
of buildings that are worth retaining.
7.5.2 The protection afforded to individual buildings in Urban Conservation
Areas is provided in Structure Plan Policy UCO 7, as listed in table 67.
162
TABLE 67: PROTECTIVE LEVELS AFFORDED TO SITES AND AREAS OF
CULTURAL HERITAGE VALUE
Levels of Protection
Grade 1
Description
Buildings of outstanding architectural or historical
interest that shall be preserved in their entirety.
Demolition or alterations that impair the setting or
change the external or internal appearance, including
anything contained within the curtilage of the building,
will not be allowed. Any interventions allowed must be
directed to their scientific restoration and rehabilitation.
Internal structural alterations will only be allowed in
exceptional circumstances where this is paramount for
reasons of keeping the building in active use.
Grade 2
Buildings of some architectural or historical interest or
which contribute to the visual image of an Urban
Conservation Area. Permission to demolish such
buildings will not normally be given. Alterations to the
interior will be allowed if proposed to be carried out
sensitively and causing the least detriment to the
character and architectural homogeneity of the building.
Grade 3
Buildings that have no historical importance and are of
relatively minor architectural interest. Demolition may be
permitted provided the replacement building is in
harmony with its surroundings.
Source: Structure Plan (1990)
7.5.3 As shown in figure 37, a concentration of structures/sites that are
scheduled for their architectural and historic interest, are located within
the conurbation of Malta. Table 68 indicates that a large proportion of
the scheduled buildings and sites having an architectural or historic
interest are located in rural areas.
TABLE 68: AREAS SCHEDULED
HISTORICAL INTEREST
Protection
Levels AAIs/SAIs
Area Scheduled
ODZ (sq km)
Grade 1
Grade 2
Grade 3
Total Area
1
0.04
0.007
1.047 sq km
FOR
THEIR
ARCHITECTURAL
Area Scheduled
Within DZ
(sq km)
0.8
0.16
0.023
0.98 sq km
AND
Total Area
Scheduled
(sq km)
1.8
0.2
0.03
2.03 sq km
Source: Malta Environment and Planning Authority (2002)
7.5.4 Other scheduled areas represent buffer zones to the various buildings
and sites scheduled for their architectural and historical interest. The
latter areas have a total area of 5.2 sq km, with most (an area of 5 sq
163
km) being located outside the development zone. These buffer zones
do not have a specific level of protection.
7.5.5 261 buildings/sites of architectural or historical interest are scheduled
as Grade 1 (refer to table 69 and figure 37), and have a total area of 1
sq km. The most common types of scheduled buildings/sites are
categorised as Civil and Military. Although the Maltese landscape is
dotted with various structures and features associated with past
agrarian practices, only 10 out of the 261 scheduled buildings were
categorised as Rural; such features require identification and
classification in terms of their conservation value.
TABLE 69: AREAS SCHEDULED
HISTORICAL INTEREST ODZ
FOR
THEIR
Categories of Scheduled Buildings/Sites
ARCHITECTURAL
AND
No of Buildings/Sites
Civil
Educational
Engineering
Industrial
Marine
Maritime
Memorial
Military
Monuments
Religious
Rural
61
5
1
8
1
1
1
142
11
20
10
Total Number of Scheduled Buildings/Sites
261
Source: Malta Environment and Planning Authority (2002)
Development Pressure on Scheduled Buildings of Architectural
and Historic Interest
7.5.6 Development within properties scheduled for their architectural or
historic interest consisted mainly of the restoration and conservation of
such structures. During the period of the Structure Plan, restoration
works for forts, water springs and towers were granted development
permission.
7.5.7 Other approved developments that affected scheduled property include
internal modifications to the scheduled structures, the erection of dish
antennae and the construction of garages within a historic palace.
Development permission for the latter case was approved in 1996; the
palace was scheduled in 1998.
164
7.6 Areas Protected for their Agricultural Value
7.6.1 The Structure Plan states that Areas of Agricultural Value (AAVs)
should consist of ”high-grade agricultural land, including irrigated and
partially irrigated land”. Paragraph 15.30 of the Structure Plan states
that “the designation of AAVs in the Structure Plan is intended primarily
as an instrument of protection and as a statement of the importance of
such areas in the resolution of conflicts with scenic, ecological,
archaeological and mineral interests…”.
7.6.2 During the period from 1994 to 2000, few rural areas have been
identified as potential AAVs; no firm scheduling has taken place with
respect to AAVs. The paper has examined issues connected with
agricultural land within the broader context of rural areas, given that it
is the main component of the Maltese rural landscape. In this regard,
various areas scheduled as AEIs/SSIs, AHLVs and AAIs/SAIs include
agricultural land within their designated boundaries. In terms of
paragraph 15.30 of the Structure Plan, these agricultural areas could
be regarded as equivalent to AAVs, with the intention of minimising
possible impact of agricultural practices on areas of natural, cultural,
archaeological or scenic values.
7.6.3 The ecological and agricultural surveys carried out for Local Plans
indicate (through GIS analysis) that 16.2 sq km of agricultural land is
located within areas scheduled as AEIs/SSIs; most is located within
areas scheduled as Level 2 and Level 3 AEIs/SSIs. Table 70 shows
that:
•
•
50 per cent of the areas scheduled as Level 1 AEIs/SSIs and 50
per cent of the areas scheduled as Level 3 AEIs/SSIs is
agricultural land; and
36 per cent of the areas scheduled as Level 2 AEIs/SSIs is
agricultural land.
TABLE 70: AREA OF AGRICULTURAL LAND WITHIN SCHEDULED AEIs/SSIs
FROM 1994 TO 2000 ACCORDING TO THE LEVELS OF PROTECTION
Degree of
protection
AEIs/SSIs
Area of agricultural
land within scheduled
AEIs/SSIs (in sq km)
Areas of
scheduled
AEIs/SSIs (sq km)
Percentage of
agricultural land
within AEIs/SSIs
Level 1
Level 2
Level 3
Level 4
Total
0.2
7.4
7.7
0.9
16.2 sq km
0.4
20.5
15.3
1.2
37.4 sq km
50%
36%
50%
1%
43%
Source: Malta Environment and Planning Authority (2002)
165
7.6.4 Furthermore, the Structure Plan aims to protect areas where
scientifically important species have become established on
abandoned agricultural land; the Structure Plan does not encourage
reversion to agriculture in such areas (Structure Plan Policy RCO 9).
7.6.5 Only 4.3 sq km of agricultural land are located within areas scheduled
as AHLVs, with most located within the AHLV of the Victoria Lines
(refer to table 71). Table 71 shows that over 50 per cent of the areas
scheduled as AHLVs (a total of 7.3 sq km) consist of agricultural land.
TABLE 71: AREA OF AGRICULTURAL LAND WITHIN SCHEDULED AHLVs
Scheduled
AHLVs
Area of agricultural land
within scheduled AHLVs
(in sq km)
Areas of
scheduled
AHLV (sq km)
Grand
0.0
9.3
Harbour
Buskett
0.6
1.1
Mdina
0.8
1.0
Cittadella
0.04
0.2
Victoria Lines
2.9
5.0
Total
4.3 sq km
7.3 sq km
Source: Malta Environment and Planning Authority (2002)
Percentage of
agricultural land
within AHLV
0%
55%
80%
20%
58%
59%
7.6.6 Only 3 sq km of agricultural land is located within areas scheduled as
AAIs/SSIs; most of the latter are located within large scheduled AAIs
that contain concentrations of small-scale AAIs and SAIs (refer to table
72). Only 23 per cent of the total area scheduled as Class A AAIs/SAIs
(a total of 2.6 sq km) consists of agricultural land.
TABLE 72: AREA OF AGRICULTURAL LAND WITHIN SCHEDULED AAIs/SAIs
Area of agricultural
land within
scheduled AAIs/SAIs
(in sq km)
Areas of
scheduled
AAIs/SAIs
(sq km)
Percentage
agricultural
land within
AAIs/SAIs
Class A
Class B
Class D
Class C
Class E
Large AAIs containing
AAIs/SSIs
0.6
0.07
0
0
0
2.6
0.4
0
0
0
23%
18%
0%
0%
0%
2.3
7
33%
Total
3 sq km
10 sq km
30%
Scheduled
AAIs/SSIs
Source: Malta Environment and Planning Authority (2002)
166
Classification of Agricultural Land according to its Quality
7.6.7 To date, there is little information available regarding the quality of
agricultural land and its classification according to the variations in the
quality of land.
7.6.8 Legitimate development in rural areas needs to be accommodated in
areas where the least good quality agricultural land is used, with a
presumption against the use of land irrigated from naturally occurring
sources of water (Structure Plan Policy AHF 5). Consequently,
identification of good quality agricultural land is required. Nevertheless,
the value of agricultural land cannot be determined solely by the
availability of water for irrigation. Various issues require consideration
before agricultural land can be classified further.
7.6.9 Irrigation of agricultural land depends on the willingness of farmers to
invest in modern technology, and on the availability of water resources;
the proportion of the total agricultural land currently being irrigated is
limited. Most agricultural land holdings that are irrigated are less than 1
hectare in size.
7.6.10
Classification of agricultural land may also be influenced by the
following factors:
•
•
•
the degree of environmental awareness amongst farmers;
the willingness of farmers to change their current practices; and
the availability of resources to overcome natural constraints.
7.6.11
Given the fragmentation of agricultural land holdings, the identification
of large areas that are predominantly irrigated is difficult. Rural areas
are characterised by the random distribution of irrigated and nonirrigated land. However, the identification of high-grade agricultural land
needs to be extensive and consolidated to allow effective protection
through the designation of AAVs.
7.6.12
Classification of agricultural land should not be solely linked to the
availability of water resources, as is current practice. The value of
agricultural land should be determined following defined criteria. These
criteria could include: quality of soil, risk of soil erosion, exposure to
natural constraints and availability of water through natural sources.
Agricultural land that is productive with minimal investment should be
given priority for conservation.
7.7 Effectiveness of the Scheduling Process
7.7.1 The scheduling process protects particular areas in the countryside
according to specific conservation values. Protection of rural areas
167
through the scheduling process proved to be more successful in
restricting development pressure than the general RCA designation.
The RCA designation provides the wider context for protection and
management of distinct rural areas.
7.7.2 In contrast to scheduled property, RCAs consist of most of the areas
ODZ, and incorporate areas than do not require conservation in terms
of rural heritage. The Structure Plan did not distinguish between built
up areas ODZ and the open countryside; clusters of industrial uses
towards the conurbation are an example. Furthermore, during the
Structure Plan period, limited large-scale developments were
accommodated in corridors of land ODZ (between urban areas), within
RCAs. Other types of non-legitimate uses in RCAs occurred through
conversions of existing structures in rural areas.
7.7.3 Most approved development permits in scheduled areas concerned
existing structures; other approved development permits were related
to the conservation and maintenance of the built heritage in rural areas.
Nevertheless, various case histories indicate that the urgency of
scheduling particular areas or structures was precipitated by
development. As identified in chapter 2, several valuable areas of the
countryside still require protection, as these have yet to be scheduled.
7.7.4 Although, the scheduling process proved to be more effective than the
RCA designation, rural conservation needs to be complemented by
management of protected areas, given these cannot be protected
solely through land designation and development control. During the
Structure Plan period, rehabilitation and enhancement of degraded
rural areas and the landscape respectively were lacking. Furthermore,
conflicts between countryside recreation and rural conservation may
increase; this may result due to lack of visitor management in sensitive
rural areas.
7.7.5 The application of the categories for the management of protected
areas, as identified by the IUCN, is a possible solution for the
resolution of conflicts between activities, and the practical conservation
of protected rural areas.
7.8 Management of Protected Area
7.8.1 The Structure Plan seeks to establish National Parks (refer to Structure
Plan Policies RCO 1 and RCO 14) as tools for the management of rural
areas. However, the definition of “National Park” given in Structure
Plan Policy RCO 1 (refer to table 54) is of limited applicability to the
local context; “large areas of national significance not materially altered
by human use” are not available given local circumstances. This
definition follows that given by the World Conservation Union (IUCN);
this has been updated in 1994.
168
7.8.2 Even though central authorities identified various areas as National
Country Parks (refer to chapter 6), there are no managed Parks in the
Maltese Islands at present. Policies RCO 1, RCO 14, RCO 35, RCO
37, RCO 38 and TOU 10 make specific reference to the establishment
of “National Parks” without any consideration of other World
Conservation Union (IUCN) designations that are potentially more
appropriate.
7.8.3 The categories for the management of protected areas (formulated by
the IUCN) are listed in paragraph 15.36 of the Structure Plan
Explanatory Memorandum. These categories are now superseded by a
new set of definitions of the IUCN Protected Area Management
Categories (IUCN, 1994), as described in table 73.
TABLE 73: IUCN PROTECTED AREA MANAGEMENT CATEGORIES
IUCN Categories
Title of Protected Area
Category 1a
Strict Nature Reserve
Category 1b
Wilderness Area
Category 2
National Parks
Category 3
Natural Monument
Category 4
Habitats/Species
Management Area
Category 5
Protected
Landscapes/Seascape
Category 6
Managed Resource
Protected Area
Definition
Protected area managed
mainly for science
Protected area managed
mainly for wilderness
protection
Protected area managed
mainly for ecosystem
protection and recreation
Protected area managed for
conservation of specific
natural features
Protected area managed
mainly for conservation
through management
intervention
Protected area managed
mainly for
landscape/seascape
conservation and recreation
Protected area managed
mainly for the sustainable use
of natural ecosystems
Source: IUCN (1994) Guidelines for Protected Area Management Categories
7.8.4 To ensure effective protection of rural areas, the functions of the
scheduling process and that of management should be clearly defined.
The function of the scheduling process may include:
•
identification and classification of areas, sites and features for
conservation (as identified in the DPA of 1992 and the Structure
Plan for the Maltese Islands);
169
•
•
the control of development within scheduled areas as current
practice; and
the preparation of conservation orders to regulate their
conservation, while setting the framework for management (i.e.
identification of the general objectives for management of
scheduled properties).
7.8.5 Management of particular rural areas may follow the IUCN definitions
for protected area management, and the general objectives identified in
conservation orders for scheduled properties. However, management
could be constrained due to the small scale (or fragmentation) of
various scheduled areas; area management may focus upon large
rural areas that incorporate particular scheduled properties (or a group
of scheduled properties).
7.9 Environmental Initiatives
7.9.1 Area management is an important step forward in reconciling
protection and enhancement of the countryside at the local level;
preparation of strategies for rural areas and implementation at the local
level also ensures a suitable degree of community involvement. This
will benefit the public by improving the quality of the countryside and
enhancing opportunities for countryside recreation.
7.9.2 Given that area management may not be possible in all parts of the
countryside, other forms of environmental initiatives are required.
Community involvement in environmental protection is becoming
increasingly important; participation of the public sector, the private
sectors, NGOs and voluntary bodies should be encouraged. Therefore,
cooperation between different entities is required, to provide a better
countryside for both present and future generations.
7.10 Summary
7.10.1
The countryside and the associated rural resources include the natural
environment, the built heritage and the rural landscape. The proportion
of the Maltese Islands covered by natural habitats is limited.
Preservation, improvement and management of such rural heritage
benefit both present and future generations. In this regard, the
Structure Plan aims to conserve and enhance the countryside by
prohibiting urban development outside the development zone, and by
controlling development within Rural Conservation Areas (RCAs).
7.10.2
RCAs are characterised by several clusters of industrial buildings and
settlements ODZ; these areas were subjected to intensification of
development during the Structure Plan period, and therefore conflicted
170
with the concept of RCAs. Nevertheless, pressure for residential and
industrial uses in the open countryside was minimal. RCAs were also
subjected to approved permits for large-scale developments, with a
consequent impact on the character of rural areas (including
agricultural land); however, the Structure Plan allowed the
development of certain large-scale projects (like construction plants
and hospitals) outside the development zone. Designation of RCAs
should prioritise those rural areas that require conservation.
7.10.3
Agricultural land dominates the rural landscape within RCAs;
consequently, agricultural issues, initiatives and practices have a
significant impact on the character of rural areas. During the Structure
Plan period, agricultural malpractices have resulted in various impacts
on the environment and the landscape. Nevertheless, the increasing
popularity of viticulture offers the potential for the rehabilitation of
terraced and abandoned fields, with a consequent positive impact on
the landscape.
7.10.4
Countryside recreation depends on the conservation of the countryside
and the appropriate use of rural resources. Nevertheless, countryside
recreational activities may impact on the conservation value of RCAs.
The magnitude of the impact depends on the sensitivity of the area,
and the intensity of the various recreational activities. Lack of visitor
management increases the risk of conflicts between rural conservation
and countryside recreation.
7.10.5
During the past years, landscaping schemes were required (through
development permit conditions) for developments (including
greenhouses and farms) that may have impacted on the scenic value
of RCAs. Current policy regarding landscaping and the embellishment
of both urban and rural areas are given in Guidelines for Planting and
Landscaping in the Maltese Islands (2002). The latter includes details
regarding the type of species that may be used for landscaping, to
ensure that such projects are environmentally sound.
7.10.6
No large-scale afforestation projects were undertaken during the
Structure Plan period. Afforestation projects in degraded areas and/or
in areas located in the vicinity of congested urban areas would mitigate
the impact of the urban fabric on the rural landscape, and contribute to
the quality of life within urban areas.
7.10.7
Different areas within RCAs are classified according to their
conservation values. Protection of these areas under the Development
Planning Act of 1992 (amended in 2001) is achieved through the
scheduling process.
7.10.8
According to the Structure Plan, protected natural habitats can be
classified as Areas of Ecological Importance (AEIs) and Sites of
Scientific Interest (SSIs); scheduled AEIs and SSIs (areas scheduled
from 1994 to 2000) cover 12 per cent of the Maltese Islands. Other
171
natural areas are protected through regulations issued under the
Environment Protection Act (EPA) of 2001.
7.10.9
35.8 sq km of the Maltese Islands are protected as Areas of High
Landscape Value (AHLVs); few areas around the Maltese Islands were
scheduled as AHLVs during the Structure Plan period. Most designated
AHLVs protect coastal cliffs and the setting of the built heritage; there
has been no designation of significant areas of rural scenery and
traditional landscape according to criteria establishing areas of high
landscape value. In this regard, features forming part of the traditional
rural landscape and their settings require protection.
7.10.10
Areas scheduled as AAIs/SAIs cover a total area of 10 sq km (including
buffer areas that have an equally important level of protection). A
significant proportion of the land area scheduled as AAIs/SAIs consists
of large AAIs that contain groups of AAIs/SAIs; the latter indicates the
archaeological importance of particular large areas in the Maltese
Islands.
7.10.11
Many buildings (and clusters of buildings) of architectural and/or
historical interest in the countryside require protection; 261 buildings of
architectural or historical interest are located outside the development
zone, and are scheduled as Grade 1. Only 10 out of the 261 scheduled
buildings were categorised as ‘Rural’; such features require
identification and classification.
7.10.12
Few sites have been designated as Areas of Agricultural Value (AAVs);
only 2.1 sq km are being proposed for scheduling. However, several
parts of other areas scheduled as AEIs/SSIs, AHLVs and AAIs/SAIs
include agricultural land within their designated boundaries. Agricultural
land located within or in the vicinity of scheduled areas may be
designated as an AAV, with the intention of minimising the possible
impact of agricultural practices on protected rural resources.
7.10.13
Classification of agricultural land should not be linked solely to the
availability of water resources, as is current practice. The value of
agricultural land should be determined following the identification of
suitable criteria. Agricultural land that is productive with minimal
investment should be given priority for conservation.
7.10.14
The scheduling process has restricted the extent of development
pressure in the countryside, mainly since it protects particular rural
areas according to defined values. In contrast, the general designation
of RCAs is large and incorporates several clusters of urban uses ODZ.
7.10.15
Most approved development permits in scheduled areas concerned
existing structures; other approved development permits were related
to the conservation and maintenance of the built heritage in rural areas.
However, initiatives for the restoration and management of the natural
172
environment and the landscape were lacking during the Structure Plan
period.
7.10.16
Various case histories indicate that the urgency of scheduling of
particular areas or structures was precipitated by development. Several
valuable areas of the countryside still require protection, as these have
yet to be scheduled. The minimisation of damage to non-scheduled
heritage is therefore required.
7.10.17
Although the scheduling process proved to be more effective than the
RCA designation, rural conservation needs to be complemented by
area management, given that protected areas cannot be protected
solely through land designation and development control. The
application of the categories for the management of protected areas,
as identified by the IUCN, is a possible solution for the resolution of
conflicts between activities, and the practical conservation of the rural
heritage.
173
8. Strategic Direction
8.0.1 The issues associated with the rural areas of the Maltese Islands were
identified in the previous chapters. Although various issues are not the
direct remit of the planning system, their implications with respect to
sustainable use of land are significant. Implementation of strategies for
rural areas necessitates cooperation amongst the various agencies
having an influence on activities occurring in rural areas.
8.0.2 The issues identified in rural areas result from the incompatibility of
activities undertaken in the countryside. This chapter identifies key land
use issues that require consideration in the Structure Plan review. A
strategic direction is then proposed.
8.1 Key Issues
8.1.1 The key issues in rural areas as identified in this Topic Paper consist of
the following needs:
•
•
•
•
•
•
•
conservation of the natural and built rural heritage;
efficient use of extractive resources;
protection and enhancement of the rural landscape;
integrated rural development (with respect to agriculture);
provision for countryside recreation;
classifying rural settlements; and
protection of the amenity and setting of the countryside.
Conservation of the Natural and Built Rural Heritage
8.1.2 Natural heritage: the proportion of the Maltese Islands covered by
natural habitats is limited; natural habitats tend to have a fragmented
distribution. Most of the Islands’ surface area consists of built up areas,
roads, agricultural land and quarries. Lack of management has resulted
in an impact on various natural habitats. The need to protect and
manage the natural heritage and its setting is a key priority.
8.1.3 Built heritage: most protected built heritage is associated with military
and archaeological features; few rural buildings were afforded a
specific protective designation. Buildings (and clusters of buildings),
features and monuments of architectural, historical and archaeological
interest in the countryside require further protection and management.
Protection of the setting to built heritage is essential to retain the
characteristics of protected features, monuments and buildings.
174
8.1.4 Various buildings of heritage value are abandoned; others were
subjected to significant structural changes and additions. Sensitive
reuse of existing buildings and structures is essential; development
involving built heritage requires careful control.
8.1.5 Effectiveness of Rural Conservation Areas: a large proportion of the
areas outside the development zone are designated as Rural
Conservation Areas. However, concentrations of urban uses outside
the development zone are not consistent with the concept of Rural
Conservation Areas. Consequently, designation of RCAs requires
revision to allow effective protection of particular rural areas according
to their value, while channelling legitimate development in rural areas
to the least sensitive areas.
8.1.6 Effectiveness of scheduling: the scheduling process has restricted
the extent of development pressure in protected rural areas. Most
development in scheduled areas affected existing structures; other
development was related to the conservation and maintenance of built
heritage in rural areas. However, there were no initiatives for the
restoration and management of the natural environment and the
landscape. There is a need to encourage sensitive rehabilitation of
degraded rural areas and restoration of built heritage, while continuing
the control of development in scheduled areas.
8.1.7 However, various case histories indicate that the urgency of scheduling
of particular areas or structures was precipitated by development. The
minimisation of damage to non-scheduled heritage is therefore
required; several valuable areas of the countryside still require
protection, as these have yet to be scheduled.
8.1.8 Area management and environmental initiatives: rural conservation
(in terms of the scheduling process) needs to be complemented by
area management and other environmental initiatives, given that rural
areas cannot be protected solely through land designation and
development control.
Efficient Use of Extractive Resources
8.1.9 Pollution and overuse of water resources: various activities making
use of water resources may contribute significantly to the degradation
of ground water supplies. An integrated approach to development and
water resource management is essential to ensure protection of natural
water sources; control of development that may impact on the quality of
groundwater and valleys is also required.
8.1.10 The decrease in water penetration in soils (due to the construction of
hard surfaces and clearing of vegetation) increases the rate of surface
water runoff, with a consequent increase in the risk of flooding in those
175
areas just above sea level. Provision for the storage of surface water
runoff in rural areas is therefore required.
8.1.11 Mineral extraction: quarries have a negative economic, social and
environmental impact. Industrial development within disused quarries
hinders the process of reclamation of quarries for the needs of
agriculture and undermines the intrinsic value of the countryside.
Control of quarry operations is required to minimise potential conflicts
between land uses and to minimise impacts on the intrinsic value of the
countryside. Development that may hinder the restoration process of
disused quarries should be prohibited; restoration of disused quarries
is also required.
Protecting and Enhancing the Rural Landscape
8.1.12 Protection of landscapes: most protected areas of high landscape
value protect the setting of the built heritage; there has been no
designation of significant areas of rural scenery that are of high
landscape value. Designation of rural areas of high landscape value is
required, to protect those key features that contribute to the quality of
the landscape.
8.1.13 Landscape enhancement: initiatives for rehabilitation of degraded
areas and enhancement of the landscape were lacking in the past.
Dumping, inappropriate design of buildings, obstruction of views and
placing of structures inconsistent with the rural character, highlight the
need for protection, enhancement and creati ve landscape
management in rural areas.
8.1.14 During the Structure Plan period, several developments were located in
rural areas; visual impact on the aesthetic value of the countryside was
mitigated through landscaping schemes and design measures required
by the development control process. Landscaping schemes for
legitimate developments in rural areas continue to be essential.
8.1.15 There were no large-scale projects for the enhancement of degraded
areas during the Structure Plan period. Given that woodlands are
scarce in the local context, afforestation projects in appropriate
locations need to be encouraged.
8.1.16 The changing landscape and rural character near the conurbation:
the urban fringe of Malta’s conurbation resulted from urban sprawl that
occurred prior to formulation of the current Structure Plan; such areas
are characterised by mixed ‘urban’ and ‘rural’ land uses. The impacts
resulting from past urban sprawl are still relevant, as few initiatives
were undertaken to screen urban areas from distant rural areas. The
control of urban development outside the development zone, the
prohibition of coalescence between urban areas, screening of urban
176
areas from distant rural areas and mitigation of past urban sprawl
remain key issues in rural areas.
8.1.17 The changing landscape and rural character away from the
conurbation: rural areas distant from the conurbation of Malta
(including Gozo) were those areas least affected by urban
development. However, such areas have been impacted by various
activities requiring a rural setting. Protection and improvement of the
rural landscape in distant rural areas is required, as is control of the
design and siting of legitimate development in rural areas.
8.1.18 Given that agriculture dominates the rural environment, the cumulative
impact of concentrations of greenhouses, and small-scale agricultural
structures have a significant influence on the quality of the landscape.
The review needs to consider the cumulative impact of legitimate
structures in rural areas, particularly in sensitive rural areas and areas
having diverse topographic features.
Integrated Rural Development (Agriculture)
8.1.19 Land fragmentation and limited field size: the latter have significant
land use impacts, particularly in terms of increased demand for
development. Although land consolidation initiatives are not the remit of
the planning system, consolidation of land holdings requires attention.
8.1.20 Loss of agricultural land: the rate of loss of agricultural land in the
past 15 years was less than that experienced from 1971 to 1986. Good
agricultural land and agricultural land that provides the setting to
sensitive rural areas require protection.
8.1.21 Buildings and structures essential to the needs of agriculture: the
Structure Plan adopted the employment status of farmers as a criterion
for agriculture development, to prevent excessive development in rural
areas. This does not necessarily reflect the needs of bona fide farmers;
nevertheless, criteria are required to determine what constitutes
development necessary for agriculture, while preventing unacceptable
proliferation of buildings and concentration of small-scale structures.
There needs to be increased emphasis on securing reutilisation of
existing buildings and structures for agricultural purposes in order to
minimise impacts on the amenity of the countryside.
8.1.22 Soil erosion and deposition of soil on agricultural fields:
Rehabilitation of abandoned agricultural land needs to be encouraged
in suitable locations; however, deposition of soil on natural habitats
should be prohibited. Past reclamation of natural habitats led to
significant damage of rural resources and the landscape. The way
forward may lie in the adoption of suitable field management
techniques and measures for the preservation of soil that may need to
be supplemented by control of development.
177
8.1.23 Alternative solutions for land irrigation: the use of surface water
runoff for irrigation needs to be encouraged so as to minimise impacts,
like over-extraction and pollution, on groundwater resources. The scale
and siting of such development are key considerations to minimise
visual impacts and proliferation of development in the countryside.
8.1.24 Greenhouse development: during the Structure Plan period,
greenhouse development was significant. Given that greenhouses
allow intensification of crop cultivation in small fields, pressure for such
development is expected to increase in view of the current trend on
fragmentation of land holdings. The visual impact on the countryside is
significant; screening of greenhouses and control of such development
is required in areas of landscape value, countryside recreation sites
and other areas that provide the setting to other important rural
resources.
8.1.25 Environmental and social impacts of animal husbandry: various
user conflicts have arisen through inappropriate site location of animal
farms and lack of waste management. Waste management issues are
particularly significant when farms are located within water protection
zones. It is important to ensure that adequate structures for
management of animal waste from farms are adopted. Minimisation of
conflicts between animal husbandry practices and other land uses, and
improvement in farm design, are also required.
8.1.26 Integrated rural development: Government policy on agriculture is
shifting from market support to rural development; the latter aims to
integrate agricultural practices within the broader context of rural areas.
Given that the emerging policy promotes measures aimed to enhance
the economic benefit of the agricultural sector and diversification of the
rural economy, pressure for development in the countryside may
increase. It is essential that development required for the diversification
of the rural economy be directed towards the reuse of existing
buildings, and not imposes unacceptable development pressure on the
countryside and its resources.
Provision for Countryside Recreation
8.1.27 The aesthetic value of the countryside: the enjoyment of countryside
recreation and rural tourism depends on the aesthetic experience
provided by the rural landscape: those factors contributing to
degradation of the landscape, and that detract from the rural
experience, require control. With respect to countryside recreation, the
way forward should emphasis the protection and enhancement of the
traditional rural landscape.
8.1.28 Conflicts between rural conservation and countryside recreation:
the magnitude of conflicts between recreational activities and
178
conservation of the countryside depends on the sensitivity of the area,
and intensity and type of activities. Visitor management is required to
prevent impacts that devalue natural and heritage resources, and that
detract from the recreational value of the countryside.
8.1.29 Accessibility of rural areas: there are no management initiatives
associated with the designation and protection of public access to the
countryside. Public access is restricted to country roads, and paths in
well-known public areas. Designation and management of public
access routes is required.
8.1.30 Provision of facilities: this study has identified a lack of proper
managed countryside recreation sites and picnic areas. Provision and
management of such sites (with limited small-scale facilities) is
therefore required for the enjoyment of the countryside, provided that
these are consistent with the surrounding rural environment.
Rural Settlements
8.1.31 Intensification of development: intensification of development
occurred in settlements ODZ during the Structure Plan period, mainly
in those settlements located in the vicinity of urban areas. Various
impacts resulted from urban-type development prior to the adoption of
the Structure Plan, whereas other settlements distant from urban areas
retained their rural characteristics. The way forward is to classify
settlements ODZ according to their diversity, as indicated in this paper,
with the intention of:
•
•
•
•
•
•
•
prohibiting outward expansion of settlements and protecting
strategic open gaps between settlements;
protecting and enhancing traditional rural settlements and their
setting;
conserving and enhancing rural resources, heritage and the
traditional rural landscape;
conserving and enhancing old/traditional rural settlements in
terms of their past agrarian function;
mitigating the visual impact of settlements that are
predominantly characterised by urban-type development;
strengthening the traditional function of rural settlements with
respect to the needs of the wider rural context; and
encouraging sensitive re-use and rehabilitation of buildings to
accommodate activities that require a rural context.
Protection of the Amenity and Setting of the Countryside
8.1.32 Accommodation of urban uses in rural areas: several buildings in
rural areas were subjected to change of use that is not legitimate in
rural areas. The type of uses accommodated in existing buildings (or
179
structures) in rural areas requires control. Furthermore, strict control is
required on conversion of buildings (or structures) that were formerly
used for legitimate uses in the countryside.
8.1.33 Urban development: During the Structure Plan period, the impact of
urban development on the countryside was limited; urban development
ODZ occurred mainly in existing clusters of built-up areas. The current
Structure Plan blanket prohibition of urban development outside the
development zone is considered adequate.
8.1.34 Strategic Open Gaps: Corridors or pockets of land ODZ separate
various urban areas; the proximity of these urban areas to each other,
renders such corridor or pockets sensitive to development pressure.
Furthermore, various clusters of urban uses ODZ are located in certain
pockets or corridors of land ODZ. Protection of strategic open gaps
between urban areas and designation of areas of containment for
clusters of urban uses ODZ are required.
8.2 Developing a Strategy for Rural Areas
8.2.1 The proposed rural strategy needs to contribute towards a better
quality of life for both urban and rural populations. This means that
urban and rural areas are increasingly becoming inter-dependent. The
countryside provides the backdrop to people living and working within
urban environments in terms of food production, rural heritage and
biodiversity and traditional rural landscapes. In turn, these activities
contribute towards improvement of public welfare and economic
opportunities for farmers.
8.2.2 Agriculture is increasingly being recognised as a multifunctional activity
that contributes towards the maintenance of the rural character,
conservation of heritage, improvement of opportunities for enjoyment of
the countryside and rural diversification through environmentally
friendly activities.
8.2.3 This paper, therefore, considers that sustainable development of rural
areas and countryside stewardship may provide the basis for the
planning and management of the countryside. This means that
legitimate activities and development within rural areas should be
reconciled with the ecological and cultural diversity of rural areas.
8.3 Proposed Rural Strategy
8.3.1 The issues identified in the previous section highlight the need to
minimise possible conflicts between activities and the environment, and
integration of measures having a spatial impact on rural areas. This
180
requires integration of development within the local rural context, with
an emphasis on the protection of the countryside and the efficient use
of natural and man-made resources for present and future generations.
Objectives
8.3.2 The objectives of the proposed strategy for rural areas are as follows:
•
•
•
•
•
•
•
protection of the amenity and setting of the countryside and rural
heritage;
protection and reinstatement of traditional rural landscapes and
enhancement of degraded rural areas;
minimisation of conflicts among rural activities and between
these activities and the environment;
promotion of sustainable rural development and efficient use of
rural resources;
channelling development away from sensitive rural areas;
protection and management of rural heritage according to
specific conservation values; and
management and promotion of the enjoyment of the countryside
for recreational purposes.
Strategy
8.3.3 The strategy proposed in the Rural Strategy Topic Paper encompasses
the following themes:
I.
Protecting the amenity and setting of the countryside, by:
•
•
•
II.
discouraging the use of land and existing buildings outside the
development zone for non-legitimate uses in rural areas;
designating ‘strategic open gaps’ between urban areas located
in close proximity to each other, and promoting the informal
recreational use of such open gaps; and
designating ‘strategic open gaps’ around clusters of urban uses
ODZ to ensure their containment.
Managing natural and built heritage, areas of landscape value,
and the traditional components of the rural landscape. The
measures needed to support this element of the strategy may
include:
•
•
•
encouraging cooperation among agencies;
controlling development;
protecting the character of rural areas;
181
•
•
•
•
III.
Enhancing the enjoyment of the countryside, by:
•
•
•
•
•
•
•
IV.
safeguarding public access to the countryside;
identifying and managing access routes;
promoting legislation on public access to the countryside;
promoting organised picnic sites away from sensitive areas;
promoting conservation and interpretation in sensitive areas;
enhancing opportunities for informal recreation in the vicinity of
congested urban areas; and
protection and management of key areas popular for
countryside recreation according to the sensitivity of rural areas.
Promoting sustainable rural development, by:
•
•
•
•
•
•
•
V.
effective enforcement;
promoting management and environmental initiatives;
encouraging the re-use of existing buildings and infrastructure
for appropriate uses; and
imposing conditions with respect to protection and enhancement
of rural areas within development permits.
protecting agricultural land and soil, and minimizing soil erosion;
directing agricultural development that does not require a rural
setting into appropriate locations;
controlling the cumulative impact of agricultural structures;
encouraging the reuse of existing buildings with respect to
development for the diversification of the rural economy;
promoting an integrated approach to development and water
resource management;
discouraging conversions of existing buildings and structures for
non-legitimate uses in rural areas; and
assessing the need for development through the development
control process.
Minimising conflicts through various measures, including:
•
•
•
•
development control and enforcement;
planning gain;
provision of alternatives to minimise impact on sensitive rural
areas; and
cooperation among relevant agencies.
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Appendix A
The Structure Plan (1990): the current
strategy and policies for rural areas
The Structure Plan has focused on three main aspects as regards development
in rural areas:
•
•
•
the containment of urban sprawl;
the control of the quality and extent of acceptable development in the
countryside; and
the improvement and conservation of the general rural environment.
Containment of Urban Sprawl
The Structure Plan defined urbanisation as “the creation of new built-up areas
containing all or most urban uses: houses, shops, offices, factories, and all the
built support facilities which these accumulate ”. The significant impact of urban
sprawl on Maltese rural areas has been recognized by the Structure Plan, which
stated that the loss (or damage) of natural habitats, wildlife species, agricultural
land and the rural landscape is due to the increased rate of urbanisation.
Consequently, the Structure Plan aimed at containing urban sprawl by prohibiting
urbanisation outside the existing and committed built-up areas, and the Primary
Development Areas. The latter areas are defined as follows:
•
•
•
the Primary Development Areas are defined by Structure Plan Policy SET
10;
the committed built-up areas were defined by the 1988 Temporary
Provisions Schemes; and
the existing built-up areas refer to built up land located within the limits to
development, as identified in the 1988 Temporary Provision Schemes.
The definition of existing and committed built-up areas was refined by policy
paper PLP 20 (published in 1995) which stated that such areas do not include:
•
•
“land outside the limits of development which contains sporadic
development;
sites where a housing development has fallen into disuse; or
•
sites outside the limits of development with an expired development
permit”.
In order to contain urban sprawl, the Structure Plan stressed the need “to use
land and buildings efficiently, and consequently to channel urban development
activity into existing and planned development areas, particularly through
rehabilitation and upgrading of the existing fabric and infrastructure thus
constraining further inroads into undeveloped land, and generally resulting in
higher density development than at present”.
The prohibition of urban development in the rural context was the ultimate
objective of Policy SET 11, which clearly stated that “no form of urban
development will be permitted outside existing and committed built-up areas, and
primary development areas as designated in the Structure Plan even where
roads and public utilities are available”.
Given that the demand for the categories of development that may occur over a
20 year period was not predictable, possible exceptions to Policy SET 11 were
given in Structure Plan Policy SET 12 which stated that:
“notwithstanding the policy against any form of urbanisation outside areas
designated for urban uses in the Structure Plan, the Planning Authority will
consider applications for permission to develop which ostensibly infringe
Policy SET 11. In any such case the onus will be on the applicant to
present evidence as to why the policy should be infringed, giving reasons
why from a planning point of view such proposed use cannot be located in
areas designated for development. The Planning Authority will additionally
require the applicant to submit at his own expense a full Environmental
Impact Assessment of a form and content satisfactory to the Authority.
This policy is not a means of evading policy SET 11 or any other policy.
An Environmental Impact Assessment which adequately demonstrates
acceptable impacts will not be a reason for the granting of a development
permit if the proposed use can be located in an area intended for its
development under the Structure Plan or any subsequent approved
Planning Authority document”.
The Structure Plan stressed that “the Authority will require an exhaustive
examination of the advantages and disadvantages of each such proposal in
order to arrive at a conclusion”.
Acceptable Types of Development in Rural Areas
The types of development that are co nsidered acceptable in rural areas are
defined in paragraph 7.6 of the Structure Plan, which states that:
“in seeking to prohibit urbanisation of existing non urban areas it is not the
intention to prohibit built structures of various kinds which are normal and
legitimate inclusions in the non urban scene – farmhouses and other genuine
agricultural buildings, reservoirs, picnic area toilets and car parks, and control
buildings and walls/fences at archaeological and ecological sites.
Nevertheless, the provision of such structures must be controlled in order to
preserve and enhance the environmental quality of the countryside”.
The following categories of development will be considered in the following
sections:
•
•
•
•
•
•
•
development required for agricultural purposes;
residential buildings in the rural areas;
buildings/structures required for tourism and recreation;
development associated with quarrying and mineral extraction;
industrial development (including obnoxious industries) in rural areas;
development related to social and community facilities; and
development required for public utility services.
Agriculture Oriented Development
The Structure Plan (1990) applies the concept of sustainable development when
regulating the development of the agricultural sector: while encouraging
improvements in the agriculture sector to assist the overall economy, it also
highlights the importance of protecting the countryside for future generations
(refer to Policy AHF 1 ).
Various Structure Plan policies make direct reference to the agriculture industry:
•
•
•
•
•
•
•
Policy AHF 2 regarding the development of a national system for
irrigation water supply;
AHF 3 regarding the need to survey the inherent agricultural quality of all
land;
Policy AHF 4 stipulating the need for soil conservation, and contemplating
the possibility of replenishment of soil in acceptable locations;
Policy AHF 5 regulating buildings and structures that are essential to
agriculture;
Policy AHF 6 prohibiting the subdivision of Government land tenancies
that do not have suitable vehicular access to all subdivisions (all
subdivisions being indicated by rubble walls);
Policy AHF 7 and Policy AHF 8 aimed at removing visual intrusions in
the countryside and envisaging the reinstatement of random rubble walls;
Policy AHF 9 recommending the relocation of livestock units that are
unsuitably situated in urban areas;
•
•
Policies AHF 10, AHF 11 and AHF 12 encouraging the development of
grading and packing stations in industrial estates, a depot for exports and
imports in the harbour area, as well as quarantine stations for animals and
livestock; and
Policy AHF 13 stating that the Government seeks the establishment of
rights of ways for agricultural vehicles and machinery in an
environmentally sensitive manner, to make land available for long leases
and encourage viable farm businesses.
The above policies aim towards protection of the agriculture industry via
protection of the necessary land resources; this includes the prohibition of
development of land irrigated from natural sources, and tackling various
problems like soil erosion and various issues like land fragmentation.
Similarly, in order to avoid over-development of rural areas, the construction of
farmhouses, agricultural and farm buildings, and stores for agricultural
implements is only allowed in the case of bona fide full time registered
farmers/breeders, as described in Section 11 of the Structure Plan Explanatory
Memorandum, 1990. In order to permit such development, the proposed
development and the applicant had to meet specific criteria. The Planning
Authority’s publications: Policy Paper PLP 20 on Developments Outside Built-up
Areas, published in 1995, and the Policy and Design Guidance – Farmhouses
and Agricultural Buildings provide further guidance and criteria for
development that is essential to the needs of agriculture.
The above policies also attempt to meet the needs of the agriculture industry (in
terms of development), while protecting the environmental quality of the
countryside. Consequently, Policy AHF 5 states that “buildings and structures
essential to the needs of agriculture will be permitted in the countryside. They will
however either blend with the rural landscape through the use of random rubble,
or be hidden from view. This includes irrigation wo rks and other utilities
structures ”.
Other aspects protecting environmental quality (as included in Policy AHF 5),
includes the proper siting of agricultural buildings and structures (e.g.
greenhouses) together with proper landscaping, to reduce the impact of
development on the rural landscape.
The need to reduce noise, smell and effluent impacts on urban, recreational and
wildlife areas are also recognised. The conservation of rural characteristics was
catered for by the encouragement of conservation of existing farmhouses and
farm buildings by the proper conversion for recreational purposes.
Residential Development in Rural Areas
The Structure Plan (1990) recognised the threat posed by urban sprawl, and in
Structure Plan Policy SET 11 stated that no form of urban development is
permitted outside the development boundaries; similarly, Paragraph 7.6 of the
Structure Plan recognised residential units as part of the urban fabric. On the
other hand, the Structure Plan acknowledged residential farmhouses as normal
and legitimate development in rural areas under certain given circumstances, as
described below:
•
•
•
•
Paragraph 11.2 of the Structure Plan Explanatory Memorandum
indicated that only bona fide registered full-time farmers are eligible for
new residential farmhouses in the countryside; the Policy and Design
Guidance on Farmhouses and Agricultural Buildings and Policy PLP 20
provide further guidance and criteria on the development of new
residential farmhouses for farmers;
Policy AHF 5 allowed the sensitive conversion of existing farmhouses for
rural recreation;
Policy RCO 2 addressed the rehabilitation and change of use of some
rural structures for the improvement of the environment; and
Policy UCO 11 tackled the conversion of scattered buildings of
architectural or historical interest that are worth preserving
The conversion and extensions of rural buildings are discussed in the Planning
Authority’s Policy PLP 20, which limited the additional footprint of such
development.
Strategies for Tourism and Re creation
According to the Tourism Topic Study (Public Consultation Draft, 2001), “the
main focus of the tourism strategy in the current Structure Plan is to channel
tourism and related growth to the existing and committed tourist areas in the
Islands”. This strategy is consistent with the Structure Plan’s general strategy of
preventing further increase in the built -up area of the Islands. However, given
that the Structure Plan has identified “three interrelated objectives for tourism,
namely market diversification, seasonality reduction and product/tourist
upgrading”, the demand for land resources in rural areas will not necessarily
decrease, but will be required for different uses.
The Leisure and Recreation Topic Paper (Public Consultation draft, 2001)
describes Structure Plan recreation policy objectives as encouraging “the
provision of opportunities for recreation in a coordinated manner in co-operation
with the range of public and private agencies involved, to ensure that sites for an
adequate range of facilities are included in Local Plans, and to reconcile
recreation provision with competing interests ”.
The Structure Plan describes Country Parkways as one of the main forms of
development that contribute to the enjoyment of the countryside. Paragraph
13.30 has defined Country Parkways as:
“public rights of way and their immediate surroundings within which a
variety of open air recreational activities will be located. The parkways will
link tourism and/or recreation attractions by tracing routes through areas
that are of intrinsic natural and/or man made value. They will be used for
walking, hiking, jogging, orienteering, horse riding, cycling, school outings
for educational purposes, and by archaeological and historical specialist
interest groups, amongst others”.
Various Structure Plan Policies give importance to such informal aspects of
recreation:
•
•
•
•
Structure Plan Policies TOU 11 dealing with the improvement of heritage
trails around the Maltese Islands;
Policy REC 3, which encourages the preparation of management
schemes for publicly owned open spaces and water areas by the
Government, other agencies and landowners;
The identification of sites for district level recreation centers is required by
Policy REC 4;
Policy REC 13 and Policy REC 14 of the Structure Plan that promote the
enjoyment of the countryside by local and foreign visitors; Policy REC 13
identifies various country parkways in Gozo and mainland Malta (refer to
chapter 9), while Policy REC 14 promotes the designation of picnic areas.
Both Policy REC 13 and Policy REC 14 should operate within the
framework provided by the RCO Policies.
With regards to formal recreation, the Structure Plan has recognised that
provision for sports “conflicts with the Structure Plan’s fundamental policy of
restricting further development of non urbanised land”. Although many
recreational activities could be accommodated in the existing and committed
urban areas, other recreational activities demand a substantial amount of land
outside the urban areas. Hence, the Structure Plan aimed at directing such
demand in specific areas as outlined in Policy REC 5, whilst Policy REC 7 has
identified a specific direction for the Ta’Qali National Recreation Centre.
The Structure Plan also makes provision for organized sports facilities that may
be located in a rural context, subject to full environmental impact assessments.
These include the preparation of Subject Plans on golf activities, as described in
Policy TOU 12, and major impact sports as described in Policy REC 8. The
Structure Plan has also recognised that certain sport activities (like motorcycle
scrambling and off road vehicle racing) for which there is a demand, cause
severe damage to the rural and coastal natural resources.
Quarrying and Mineral Extraction
The Minerals Subject Plan (Public Consultation Draft, 2001) for the Maltese
Islands provides a thorough examination of the Structure Plan policies related to
quarries and other mineral extraction operations. The policies “seek to meet the
main objective of satisfying the demand for minerals locally by fully exploiting
existing quarries and ensuring that minerals deposits are not sterilised”.
The Structure Plan also includes environmental protection as an objective, via
the control of minerals related development, e.g. siting of quarries and the
operations and restoration of quarries. The impact of quarrying activities on
residential areas was also considered.
Industrial Development
The Structure Plan policies on the manufacturing industries allow for the
allocation of more land for such uses, in areas with good transportation access
and adequate utility services. Nevertheless, the Structure Plan also emphasises
that industrial development should be restricted to the designated zones. Policy
IND 4 has stressed that “allowance for future expansion of floorspace should be
upwards rather than sideways...” in order to use land more efficiently.
Policy IND 14 and Policy IND 15 address the oil and gas industry in inland
Malta. According to Policy IND 14, “facilities for servicing oil and gas industry
shall be established in the Marsaxlokk Bay vicinity”. Furthermore, Policy IND 15
has stressed the need that “major gas installations liable to explosion shall be
located away from urban areas, including the removal of e xisting installations ”.
Obnoxious Industry
According to the Structure Plan, “there are many small industrial sites scattered
around the Islands whose uses can be described as ‘obnoxious industry’
because of the processes involved: limekilns and concrete batching plants are
typical examples ”. However, such industries cannot be located in industrial
estates due to their incompatibility with the other industrial activities.
The Structure Plan has indicated that, “at least two sites on mainland Malta and
one on Gozo should be found for such uses and incentives provided to
encourage these uses to relocate to them. It is proposed that fireworks factories
and scrapyards are included in this category”. Structure Plan Policy IND 9 has
stated that during the preparation of Local Plans, feasibility studies should be
carried out to establish sites for obnoxious industry in abandoned quarries in
accordance with Policies MIN 13, MIN 14, and MIN 15.
Social and Community Facilities
In terms of social and community facilities, due to the extent of land
requirements, new private hospitals and nursing homes for the ‘frail elderly and
the severely handicapped’ may be located outside the existing and new built-up
areas as described in the Structure Plan. However, Structure Plan Policy SOC 7
also stated that an environmental impact assessment would be required for new
hospitals or extension to existing hospitals.
Public Utilities
The strategy with respect to public utilities is outlined in Policy PUT 3, which
emphasizes the need for “the efficient management and conservation of
resources, the recycling and reuse of waste water and waste materials, the
minimisation of waste, the avoidance of land, sea, and air pollution, and
protection from the dangers of hazardous substances. The water cycle from
supply through distribution, use, disposal, treatment, and reuse will be planned
and managed comprehensively”.
A detailed analysis of the policies related to public utilities projects have been
addressed in the Public Utilities Topic Paper. However, various projects require
locations outside the designated urban areas; this is either due to the footprint
required by the project, or because this is required by the nature of the project
itself, as is described below:
•
•
•
Water resource ma nagement: the need to manage water resources is
discussed in Policy PUT 8; various issues like the control of aquifer
recharge from surface water runoff, have various land use implications.
Similarly, Policy PUT 7 envisaged that reservoirs for water storage should
be constructed underground or in a manner that respects the surrounding
landscape.
Sewage treatment facilities: most of the areas identified for this purpose
lie within the coastal areas of the Islands as described in Policy PUT 11,
and are conseq uently, outside the scope of this Topic Paper. However,
Policy PUT 12 indicates Wied il-Kbir near Qormi as the site for new
sewerage installations; Policy PUT 10 states that such development
(including that related to water irrigation measures), should be subject to
an environmental impact analysis.
Infrastructure for provision of electricity: although overhead electricity
and telecommunications facilities are present in the rural environment, the
Structure Plan’s PUT Policies focused on the undergrounding of the
existing overhead facilities in built-up areas (refer to Policy PUT 23 and
Policy PUT 25). The new 132 KV distribution line from the new Delimara
station via Marsa shall now require an Environmental Impact Assessment;
in this case, the option of an underground line rather than an overhead
line is preferred mainly since overhead lines would have a visual impact
and would sterilize a substantial amount of land. Nevertheless, given the
extent of the development, rural areas would unavoidably be influenced.
Improving and Conserving the Rural Environment
The Structure Plan has designated various areas as Rural Conservation Areas
(RCAs) to emphasis the blanket prohibition of urban development outside the
designated urban areas, to afford further protection of the countryside, and allow
for the enhancement of the rural environment. The extent of the RCAs includes
all of Gozo and Comino, and most of Malta’s countryside, as defined in Structure
Plan Key Diagram. The Structure Plan includes a set of RCO Policies to
complement the designated RCAs; these policies are concerned with the
following aspects of the rural areas of the Maltese Islands that shall be described
in the following sections:
•
•
•
•
•
•
•
Scenic Value;
Agriculture;
Ecology;
Rehabilitation of Degraded Habitats and Landscapes;
Control of Erosion;
Valleys; and
Trees and Afforestation.
Those RCO Policies affecting coastal areas are addressed in the Coastal
Strategy Topic Paper (Public Consultation Draft, 2001).
The conservation of the archaeological areas and sites is included in the
Structure Plan as a set of ARC Policies.
The sub-areas that are designated within an RCA, shown in Table A below, are
given in Policy RCO 1 .
Policy SET 11 protects RCAs by prohibiting urban development “outside existing
and committed built-up areas ”; this position is reaffirmed by Policy RCO 2.
However, the rehabilitation and change of use of buildings and structures in
RCAs will be permitted (in accordance with Policy BEN 5) with the aim to
improve the rural environment, especially if such development contributes to the
removal of other structures and buildings that adversely affect the rural
environment.
Policy BEN 5 regulates development outside urban areas, and states that such
applications will be judged against “the policies and design guidelines of the
Local Plans for Rural Conservation Areas, and in the interim period, to Structure
Plan policies and guidelines contained in the Explanatory Memorandum ”. Policy
RCO 3 also gives guidance to Local Plans for those areas cove ring RCAs.
Table A: sub-areas that are designated within an RCA
SUB AREAS
DEFINITION
Areas of Agricultural
Value
AAV
Areas comprised of high grade agricultural land including
irrigated and partly irrigated land
Areas of Ecological
Importance
AEI
Relatively large areas designated to protect typical and rare
habitats
Sites of Scientific
Importance
SSI
Sites containing individual species, groups of species, and
geological features
Areas of Archaeological
Importance
AAI
Concentrations of valuable archaeological sites
Sites of Archaeological
Importance
SAI
Individual and/or isolated archaeological sites
National Parks
NP
Relatively large areas of national significance not materially
altered by human use, with managed visitor access and
amenities
Areas of High Landscape
Value
AHLV
Scenic Value
Policies RCO 4 to RCO 6 are concerned with the protection of the scenic value
of the countryside. According to Policy RCO 4, development is prohibited if it
would:
•
•
•
•
•
•
“Break a presently undisturbed skyline;
Visually dominate or disrupt its surroundings because of its mass or
location;
Obstruct a pleasant and particularly a panoramic view;
Adversely affect any element of the visual composition – for example,
cause the destruction or deterioration of traditional random stone walls;
Adversely affect existing trees or shrubs; and
Introduce alien forms, materials, textures, or colours”
Policy RCO 5 stressed that the Planning Authority must be satisfied that all
possible measures to mitigate the visual impact of new or extended infrastructure
development must have been taken into account.
Policy RCO 6 encouraged programmes of landscape enhancement and
management with other Government agencies for:
•
•
•
•
•
•
“Afforestation and landscaping schemes;
Rehabilitation of abandoned quarries;
Reactivating abandoned agricultural land, encouraging compatible
methods of cultivation;
Reuse and conversion of rural buildings which are compatible with their
scenic setting;
Rehabilitation of degraded habitats; and
The encouragement of and provision of incentives for the relocation to
appropriate existing or planned urban areas of structures and activities
which are incompatible with the creation and maintenance of a high quality
of rural environment.”
Agriculture
According to Policy RCO 7, interpretation of the agricultural AHF Policies
should also refer to the requirements of designated Areas of Agricultural Value,
and to resolve conflicts between agricultural interests and other rural interests
(mainly scenic, ecological, archaeological and mineral interests) in Local Plans.
Furthermore, Policy RCO 8 states that cultivators are required to show that their
proposed agricultural developments do not damage the ecological, scenic and
archaeological values of rural areas.
Policy RCO 9 encourages the reutilization of abandoned and derelict agricultural
land whilst restituting those ecologically, archaeologically and scenically valuable
environments that have been damaged due to agricultural malpractices.
However, Policy RCO 9 prohibits the reversion to agriculture of that abandoned
agricultural land where species of scientific importance have been developed.
Ecology
Areas of Ecological Importance (AEIs) are identified according to criteria given in
Policy RCO 10; similarly sites that are eligible as Sites of Scientific Importance
(SSIs) are identified according to criteria given in Policy RCO 11. Levels of
protection of AEIs and SSIs are given in Policy RCO 12.
Through Policy RCO 13, the Structure Plan encourages collaboration with other
agencies to implement policies for the conservation and protection of wildlife and
threatened species, while Policy RCO 14 encourages the designation of
National Parks for public enjoyment and wildlife protection.
Rehabilitation of Degraded Habitats and Landscapes
Structure Plan Policy RCO 19 states that surveys will be carried out by the
Planning Authority to identify degraded habitats and landscapes. Policy RCO 20
encouraged the rehabilitation of such degraded areas.
Control of Erosion
The Structure Plan prohibits development in circumstances that may contribute
to soil erosion, by means of the following policies:
•
•
•
•
•
•
Policy RCO 21 expresses a general presumption against development in
areas prone to erosion
Policy RCO 22 requires the prevention of further loss of various natural
resources, including soil and cliff edges;
Policy RCO 24 re-emphasise the existing regulations for the excavation
and transport of sand and soil;
Policy RCO 25 encourages the repair of the retaining walls on valley
sides;
Policy RCO 26 requires that vegetation cover from abandoned and
derelict land could not be removed without justification; and
Policy RCO 27 states that developments that involve the excavation of
significant quantities of Blue Clays will not be permitted.
Valleys
Valleys (widien) are a valuable national resource in terms of water resources,
agriculture, wildlife, landscape, soil conservation, and leisure. Consequently, the
Structure Plan has emphasised the protection of valleys as important water
catchment areas ( Policy RCO 28) and prohibits the construction of new physical
development on valley sides and watercourses (Policy RCO 29).
Development related to the prevention of soil erosion and the conservation and
management of water resources is allowed. Policy RCO 29 encourages the
repair of existing dams in valleys instead of new constructions. Dredging works
are to be selective to minimise the possible detrimental effect of such works in
valleys, as it is likely to damage natural communities and may lead to soil
erosion.
The Planning Authority is also required to safeguard valleys for walking, cycling
and horse riding, while prohibiting vehicular access (except those required for
agricultural and maintenance purposes) and car parks at valley edges (Policy
RCO 29). The collaboration with other Government agencies to prevent dumping
into valleys is encouraged.
Trees and Afforestation
Although afforestation projects are encouraged on abandoned agricultural land
and derelict land, Policy RCO 30 also states that afforestation projects cannot be
sites where indigenous natural vegetational communities have established.
Furthermore, the species to be used in non-urban areas should be limited to
indigenous and archaeophytic species ( Policy RCO 31).
Policy RCO 32 encourages the planting of trees for landscape enhancement,
especially to screen visually unattractive areas. Individual trees and groups of
trees of “aesthetic, historical, cultural, arboricultural, and/or scientific interest” will
be protected through Tree Preservation Orders (Policy RCO 33).
Archaeology
The protection of archaeological sites, areas, monuments and features also form
part of the Structure Plan’s general philosophy for improving and protecting the
rural environment. Particular areas of archaeological importance have World
Heritage Sites status, as listed by UNESCO.
Policy ARC 1 highlights the need for Local Plans to identify and designate Areas
and Sites of Archaeological Importance, whilst Policy ARC 2 provides four
categories to classify such areas and sites according to their protection rating.
Policy ARC 3 envisaged that development affecting monuments, and sites and
areas of archaeological importance that are to be preserved, would not be
permitted. If “there is no overriding case for preservation ”, development will not
be permitted until adequate opportunities for recording and excavations of the
site would have been provided.
Policy ARC 4 designated Hagar Qim/Mnajdra and Ggantija as Areas of
Archaeological Importance and encouraged their development as National Parks.
Policy ARC 5 encouraged further investigations in Fomm Ir -Rih Bay, Bingemma,
Gebel Ciantar and Ghar Dalam. Policy ARC 6 protects sites listed in the
National Protective Inventory and Policy ARC 7 envisaged that the Planning
Authority “ will adopt, maintain, and extend the National Protective Inventory”.
Appendix B
The European Spatial Development
Perspective (1999): policy options applicable
to rural areas
In order to ensure that social and economic modernization processes do not
jeopardize natural and cultural resources, the ESDP has provided a set of policy
options that could be adopted according to the diversity of the various
administrative levels 1 in the European Union. The following policy options are
relevant to rural areas:
•
•
•
•
•
•
•
Indigenous development, diverse and productive rural areas;
Urban-Rural Partnership;
Natural and Cultural Heritage as a Development Asset;
Preservation and Development of the Natural Heritage;
Water Resource Management – a Special Challenge for Spatial
Development;
Creative Management of Cultural Landscapes;
Creative Management of the Cultural Heritage.
Indigenous Development, Diverse and Productive Rural
Areas
1
•
Promotion of diversified development strategies, sensitive to the
indigenous potentials in the rural areas and which help to achieve an
indigenous development (including the promotion of multi-functionality in
agriculture). Support of rural areas in education, training and in the
creation of non-agricultural jobs.
•
Strengthening small and medium-sized towns in rural areas as focal points
for regional development and promotion of their networking.
•
Securing sustainable agriculture, application of environmental measures
and diversification of agrarian land utilization.
i.e. European level, Member State level, regional level and local level
Promotion and Support of Co-operation and Information
Exchange between Rural Areas
•
Use of the potential for renewable energy in urban and rural areas, taking
into account local and regional conditions, in particular the cultural and
natural heritage.
•
Exploitation of the development potential of environmentally friendly
tourism.
Urban-Rural Partnership
•
Maintenance of a basic supply of services and public transport in small
and medium-sized towns in rural areas, particularly those in decline.
•
Promotion of co-operation between towns and countryside aiming at
strengthening functional regions.
•
Integrating the countryside surrounding large cities in spatial development
strategies for urban regions, aiming at more efficient land use planning,
paying special attention to the quality of life in the urban surroundings.
•
Promotion and support of partnership-based cooperation between small
and medium -sized towns at a national and transnational level through joint
projects and the mutual exchange of experience.
•
Promotion of company networks between small and medium-sized
enterprises in the towns and countryside.
Natural and Cultural Heritage as a Development Asset
•
The Communication from the Commission to the Council and the
European Parliament on a European Community biodiversity strategy
states that spatial development can play an important role in the
conservation and sustainable use of biodiversity at local and regional
level.
•
Although strict protection measures are sometimes justified, it is often
more sensible to integrate protection and management of the endangered
areas into spatial development strategies for larger areas.
•
A creative approach is required to reverse the trend of neglect, damage
and destruction of the cultural heritage.
•
Spreading cultural life throughout the EU, by supporting the development
of cultural facilities, upgrading public spaces and reviving commemorative
sites.
•
The natural heritage and cultural heritage are economic factors that are
becoming increasingly important for regional development.
•
Natural and cultural places of interest are also an essential precondition
for the development of tourism.
Preservation and Development of the Natural Heritage
•
Continued development of European ecological networks, as proposed by
Natura 2000, including the necessary links between nature sites and
protected areas of regional, national, transnational and EU-wide
importance.
•
Integration of biodiversity considerations into sectoral policies (agriculture,
regional policies, transport, fisheries, etc…) as included in the Community
Biodiversity Strategy.
•
Preparation of integrated spatial deve lopment strategies for protected
areas, environmentally sensitive areas and areas of high biodiversity such
as coastal areas, mountain areas and wetlands balancing protection and
development on the basis of territorial and environmental impact
assessments and involving the partners concerned.
•
Greater use of economic instruments to recognise the ecological
significance of protected and environmentally sensitive areas.
•
Promotion of energy-saving and traffic-reducing settlement structures,
integrated resource planning and increased use of renewable energies in
order to reduce CO2 emissions.
•
Protection of the soil as the basis of life for human beings, fauna and flora,
through the reduction of erosion, soil destruction and overuse of open
spaces.
•
Development of strategies at regional and transnational levels for risk
management in disaster-prone areas.
Water Resource Management – a Special Challenge for
Spatial Development
•
Improvement of the balance between water supply and demand,
particularly in areas that are prone to drought. Development and
application of economic water management instruments, including
promotion of water-saving agricultural methods and irrigation technology
in areas of water shortage.
•
Promotion of transnational and interregional cooperation for the
application of integrated strategies for the management of water
resources, including larger ground water reserves in areas prone to
drought and flooding, particularly in coastal regions.
•
Preservation and restoration of large wetlands that are endangered by
excessive water extraction or by the diversion of inlets.
•
Concerted management of the seas, in particular preservation and
restoration of threatened maritime ecosystems.
•
Strengthening of regional responsibility in water resource management.
•
Application of environmental and territorial impact assessments for all
large-scale water management projects.
Creative Management of Cultural Landscapes
•
Preservation and creative development of cultural landscapes with special
historical, aesthe tical and ecological importance.
•
Enhancement of the value of cultural landscapes within the framework of
integrated spatial development strategies.
•
Improved coordination of development measures which have an impact on
landscapes.
•
Creative restoration of landscapes that have suffered through human
intervention, including recultivation measures.
Creative Management of the Cultural Heritage
•
Development of integrated strategies for the protection of cultural heritage
which is endangered or decaying, including the development of
instruments for assessing risk factors and for managing critical situations.
•
Maintenance and creative redesign of urban ensembles worthy of
protection.
•
Promotion of contemporary buildings with high architectural quality.
•
Increasing awareness of the contribution of urban and
development policy to the cultural heritage of future generations.
spatial
Appendix C
Members of the Rural Strategy Working Group
Name
Surname
Government Department / Authorities / Cooperatives /
Private Enterprises
Mr. Clive
Tonna
Department of Public Health
Dr. John
Mangion
Malta Resource Authority
Mrs. Christine
Tanti
Environment Protection Directorate, MEPA
Inspector Alexander
Miruzzi
Police GHQ
Mr. Anthony
Zammit
Ministry for Gozo
Mr. Tony
Meli
Department of Agriculture
Mr. Anthony
Borg
Department of Agriculture
Miss Fiona
Grech
Department of Agriculture
Mr. Godfrey
Camilleri
Department of Agriculture
Mr. George
Carbone
Ministry for Agriculture and Fisheries
Mr. Antoine
Attard
Ministry for Agriculture and Fisheries
Mr. Mario
Vella
National Statistics Office
Mrs. Pauline
Dingli
Malta Tourism Authority
Mr. Joseph
Borg
Local Council Association
Mrs. Glorianne
Borg
EU Directorate
Mr. Mario
Balzan
Drainage Department
Mr. Kristinu
Azzopardi
KPH Ltd.
Mr. Romain
Galea
Farmers' Central Cooperative
Mr. Alexei
Pace
Light Pollution Awareness Group
Mr. Louis
Naudi
Malta Agriculture Lobby
Mr. Andy
Welsh
Malta Geographic Society
Mr. Roger
Aquilina
Meridiana
Mr. Albert
Calleja
Meridiana
Mr. Mark M.
Farrugia
Meridiana
Mr. Patrick
Scerri
Delicata
Mr. Aldo
Azzopardi
Kaccaturi San Ubertu
Mr. Anthony
Buhagiar
Pig Breeders Cooperative Society
Mr. Julian
Manduca
Friends of the Earth
Mrs. Simone
Mizzi
Din l-Art Helwa
Mr. Vincent
Attard
Nature Trust
Ms. Rita
Schembri
Farmers' Wine Cooperative
Mr. Charles
Galea
Ghaqda Delettanti tas-Senter u Gabjun
Mr. Joe
Catania
Moviment Kaccaturi Nassaba Ambjentalisti
Mr. Tony
Cassar
Marsovin
Appendix D
Survey of Rural Settlements
Gozo and Comino Local Plan
Number of Habitable
Units
Number of Abandoned
Economic Activities
Buildings
List of Rural Settlements
Character
Ta'San Anard
MIXED
20
1
Ic-Cnus
Id-Dar is-Safra
Il-Mendbin
OLD
MIXED
OLD
10
11
18
0
1
0
Hofrot Fonda
OLD
8
0
Xaghra tal-Pergla
Ta'Fenz
Ta'Danda
Ta'Xurdin
Tal-Palma
Il-Maghqad
Ta'Prejna
OLD
OLD
OLD
MODERN
MIXED
OLD
MIXED
2
12
12
4
4
12
25
2
1
2
1
2
0
0
Social and Community
Facilities
Industrial garages and
Bus stop
yards for machinery
School
Bus stop
Hotel
Night clubs, coffee shop,
restaurant and industrial
garages
Church
Central Malta Local Plan
List of Rural Settlements
Character
Triq in-Naxxar
Maghtab
MIXED
MIXED
Number of Habitable
Units
11
15
Bidnija
MIXED
72
Number of Abandoned
Economic Activities
Buildings
0
0
Industrial activities
0
Social and Community
Facilities
Church
Local shop and industrial Church and community
garages
hall
South Malta Local Plan
Number of Habitable
Units
List of Rural Settlements
Character
Hal-Tmiem
MIXED
24
Bidni
Tal-Krawla
Il-Bakkari
Has-Sajjied
Il-Blur ta'Capcap
It-Triq
Has-Sajd
Ix-Xaghri
OLD
MIXED
OLD
MIXED
MODERN
MIXED
OLD
MIXED
15
17
12
18
12
16
9
21
Number of Abandoned
Economic Activities
Buildings
Selling of agricultural
1
produce
1
4
3
Industrial garages
0
0
2
2
Industrial garages
0
Number of Habitable
Units
13
25
4
12
Number of Abandoned
Economic Activities
Buildings
1
Industrial garages
4
Local shop
0
0
Social and Community
Facilities
Chapel and post box
Chapel
Bus stop
Telephone box
Chapel
Marsaxlokk Bay Local Plan
List of Rural Settlements
Character
Ras il-Wied
Benghisa
Tal-Garda
Misrah Strejnu
MODERN
OLD
MIXED
MIXED
Social and Community
Facilities
Bus stop
Chapel
Chapel
North West Local Plan
Number of Habitable
Units
11
25
Number of Abandoned
Economic Activities
Buildings
0
Industrial activities
3
List of Rural Settlements
Character
Bieb ir-Ruwa
Ta'Mrejnu
MIXED
MIXED
Selmun
MODERN
42
5
Tal-Imbordin
Il-Qallelija (Tas-Salib)
Is-Salvatur
Hofret ir-Rizz
Ta'l-Imbart
Ta'Wied Rini
Ta'Ghamajra
Ix-Xaghra tal-Girad
Il-Wardija
Ta'Santa Katerina
Ta'Namura
Ix-Xewkija
Ta'Mencaq
Il-Wilga ta'Bingemma
Hal-Tartarin
Ta'Sabbat
L-Andrijiet
MIXED
MIXED
MIXED
MIXED
MIXED
MIXED
OLD
MIXED
MIXED
OLD
OLD
MIXED
MIXED
OLD
MIXED
MIXED
MIXED
28
22
12
20
11
10
4
10
14
19
13
10
8
31
2
15
40
0
0
2
0
1
0
0
1
1
0
6
0
5
4
2
0
1
Wied Gerzuma
OLD
4
0
Tal-Majjistra (L-Ghemieri)
Ta'Rkuplu
In-Nigret
Id-Dahar
Ta'Bieb ir-Ruwa
Ir-Ramla
Ic-Caghaq (Misrah Miet)
Ta'Xuxa
OLD
OLD
MIXED
MIXED
MIXED
OLD
OLD
MIXED
15
7
21
16
6
6
9
9
3
0
3
1
0
2
2
0
Social and Community
Facilities
Local shop, industrial
Chapel
garages and restaurant
Garage industries
Garage industries
Garage industries
Chapel
Industrial units
School
Hotel
Church and telephone
box
Chapel and school
Garage industries
Yard for machinery
Garage industries
Tas-Santi
Il-Ballut
It-Tilliera
Ta'l-Abatija
Tas-Sirena
Misrah Suffara
Is-Sehem
Fomm ir-Rih
Hal-Xluq
Ghajn Tuffieha
Ta'l-Ghattuqa
Tax-Xieref
OLD
MIXED
MIXED
OLD
OLD
MIXED
OLD
OLD
OLD
OLD
MIXED
MIXED
11
18
5
9
12
11
9
3
3
4
12
22
11
0
0
5
5
4
4
4
0
8
0
1
Scrapyard
Chapel
Appendix E
Urban Extensions
Tal-Basal
Tal-Ghajn
Il-Lunzjata
Wied Qirda
Ta'Maggi
Sqaq San Lawrenz
It-Troll
Ta'Zmetta
Triq Il-Berwieq
Triq Bali Guarena
Triq il-Barrieri
Bir id-Deheb
Ta'San Gwakkin
l/o Gharghur
Il-Gwiedi
Il-Wilga
Ta'Gwidi
Tan-Naxxari
Tal-Lacca
Ta'Xemmex
Santa Cilja
Pjazza Vincenzo Borg
Triq Wied Mejxu
North West Local Plan Area
l/o Mellieha
Ta'Kalc
It-Talija
Triq Wied Qannotta
Tal-Faccol
Tal-Markiz
Malta South Local Plan Area
Il-Hofra (Malta)
Bulebel iz-Zghir
Ta'Sant'Agata
Triq San Nikola
Tar-Remel
Il-Bajjada
Triq il-Qrendi
l/o Ghaxaq
Triq It-Torri
Ta'Wied il-Qrendi
l/o Marsascala
Tal-Mentna
In-Noqra
l/o Zabbar
Tal-Plier
Ta'Maggi
Tal-Hawlija
Ta'Nahla
Malta Central Local Plan Area
Triq Santa Katerina
Ghar il-Gobon
Ta'Misrah Basili
Ta' Sebah
Ta'Mellu
Ta'Qassati
Gozo and Comino Local Plan Area
Ta'Randu
Tal-Belligha
Ic-Cens
Ta'Gorf
Ix-Xaghra Ta' Fuq l-Ghajjun
Ta'Bezuza
Tal-Gonna
Tal-Grixti
Ta'Truppu
Ta'Fuq ta' Gajdoru
Ix-Xaghra ta' Ghajn Damma
Ta'Nenus
North Harbours Local Plan Area
Tal-Qroqq
Triq San Giljan
Grand Harbour Local Plan Area
Ta'Tewma
Marsaxlokk Bay Local Plan Area
Il-Kavallerizza
Il-Qanpiena
Ix-Xaghra ta'Ketrin
Triq il-Kacca
Tac-Cawla
Triq Hal-Gharghur
Il-Qasbija
Il-Hofra (Gozo)
Ta'Tawru
Ghajn Xeghjba
Misrah Lewza
Appendix F
Localities Mentioned by the PAS Respondents
Name of Locality
Port Ruman
Wied ix-Xoqqa
Il-Karwija
Wied Ta'Rinella
Blue Grotto
Bulebel
San Niklaw
Wied Betti
In-Nadur
Tal-Hotba
Tal-Gawwija
Ta' Brija
Ta' Bieb is-Sultan
Addolorata
Tar-Remel
Tal-Gebel
L-Ghajn tal-Girgenti
Ta' Loretu
Iz-Zellieqa
Wied Sant'Antnin
Wied Xkora
Madliena Fort
Is-Sghajtar
Bezbizija
Ghajn Rihana
Tas-Sellum
Wied Ta'Hemsija
Rdum il-Hmar
Ras Il-Qammieh
Wied l-Isqof
Migra Ferha
San Pawl Milqi
Imbordin
Tal-Virtu
Ta' Skrajda
Ghajn Qajjet
Popeye Village
Ghar Barka
Ghajn Znuber
Tas-Santi
Swatar (Msida)
Gibjun Area
Tal-Mensija
Iz-Zewwieqa
L-Gholja ta' Gordan
Wied Il-Mielah
Number of Mentions
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
1
Name of Locality
Fuq Ix-Xatt ta' L-Imgarr
Wied Bingemma
Qolla il-bajda
Ras Il-Qala
Ta'Xhajma
Il-Wileg
Il-Qortin
Wied Il-Qoton
Ghar Ilma
Tal-Hawli
Xatt L-Ahmar
Borg In-Nadur
Wied Babu
Tal-Barrani
Wied Hesri
Bubaqra
Il-Maqluba
Ghajn Dwieli
San Lucjan Tower
Il-Fiddien
Gnien Ingraw
Mgiebah Bay
Qasam Barrani
Nadur
Taht il-Lukanda tal-Verdala
Ibragg
Tal-Qroqq
Wied Il-Ghasri
Il-Qortin
Ghajn Qamar
Santa Lucija (Gozo)
Is-Srug
Ta' Dbiegi
Wied Biljun
San Dimitri
Ta' Pinu
Ta' Lambert
Wied It-Tuffieh
Wied Rihana
Tas-Safra
Ghar Qawqla
Has-Saptan
Wied Blandun
Wied Ta'Garnaw
Zurrieq
Taht is-Saqqajja
Number of Mentions
1
1
1
1
1
1
1
1
1
1
1
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
2
3
3
3
3
3
Name of Locality
Wied Qlejgha
Torri l-Ahmar area
Spinola
Wied Is-Saqwi
L-Ghammar
Tal-Hlas
Ghar Dalam
Ta-Faqqani
Maghluq
L-Ghadira (Kercem)
Il-Qajjenza
Wied Dalam
Tas-Silg
Rinella Bay
Tal-Handaq
Marfa
Wied Ghollieqa
Wied Il- Balluta
Marsalforn
Fort Chambray
Wied Is-Sewda
Mgarr Ix-Xini
San Anard
Il-Maghtab
Wied L-Isperanza
Dahlet Qorrot
Il-Bidni
Verdala
Benghajsa
Golden Bay
Mellieha Bird Sancturay
Wied Ta' l-Imtarfa
San Blas
Ghar Hasan
Zebbiegh
Victoria Lines
Fort Ricasoli
Burmarrad
Wied Il-Kbir
Xrobb l-Ghagin
Bingemma
Cittadella
Xlendi
Is-Salib ta'L-Gholja
Wied il-Ghasel
Hal-Farrug
San Martin
Fomm ir-Rih
Dwejra (Malta)
Wied Lunzjata
Wied Qirda
Xghajra
Number of Mentions
3
3
3
3
3
3
4
4
4
4
5
5
5
5
5
5
5
5
5
5
5
5
6
6
6
6
7
7
8
8
8
8
8
10
10
11
13
13
13
15
15
15
16
17
17
18
18
18
18
18
18
19
Name of Locality
Pwales
Wied Id-Dis
Hondoq Ir-Rummien
Xemxija
Cirkewwa
Girgenti
Il-Munxar
Armier
Kennedy Grove
Salina
Bidnija
St Thomas Bay
Mistra
Gnejna
Wied Ghomor
Ghar Lapsi
Ta' Cenc
Il-Fawwara
Ir-Ramla l-Hamra
Dwejra
Mellieha Bay
Kuncizzjoni
Il-Mizieb
L-Ahrax tal-Mellieha
Imtahleb
Ghajn Tuffieha
Wardija
Kemmuna
Bahar ic-Caghaq
Dingli Cliffs
Selmun
Delimara
Ta'Qali
Bahrija
Chadwick lakes
Buskett
Number of Mentions
19
20
20
26
31
32
35
35
36
38
43
49
50
59
63
64
65
69
75
83
94
99
111
113
113
121
124
125
130
130
140
152
177
193
196
556
Appendix G
Legal Context for Rural Conservation
NATIONAL LEGISLATION
OBJECTIVES
Wild Thyme Protection
Regulations of 1932
Protection of the Mediterranean Thyme, a characteristic
species of the garigue habitat.
Conifer Trees (Preservation)
Regulations of 1949
Protection of conifer trees.
Filfla Nature Reserve Act of 1988
Declares the island of Filfla a strict nature reserve.
Agriculture (Plant Protection) Act
of 1966 [Act XXXIX of 1966]
Prevent the introduction of plant diseases and pests into
the Maltese Islands.
Fertile Soil (Preservation) Act of
1973
Protect soil resources by prohibiting unauthorized
transportation of soil, admixture of soil in ways which
would sterilise it, deposition of material on soil or
covering of soil with material, building upon soil,
deposition of fertile soil on land already covered with 1
metre of soil, and the deposition of soil in heaps or in
any manner which would render it unsuitable for
immediate cropping.
Dairy Farms Regulations of 1976
These regulations establish statutory requirements and
standards for animal husbandry practices:
Poultry Slaughtering Regulations
of 1995
•
Hatcheries Regulations of 1997
•
•
•
•
•
minimum dimensions and layout specifications for
the various farm structures;
minimum distances from livestock farms, industrial
(or other) development that may emit fumes or
contaminants, and habitable buildings;
protection against insects, rodents, vermin, birds and
other animals (including mandatory use of approved
pesticides);
the requirement for a mains water supply, an
electricity supply and ancillary facilities;
the provision of impervious joint less floors; and
arrangements for the disposal of liquid waste
Development Planning Act of
1992 (revised in 2001)
Empowers the Planning Authority to protect areas of
conservation value directly by means of the Scheduling
process, Conservation Orders, Emergency
Conservation Orders and Tree Preservation Orders.
Antiquities (Protection) Act of
1925
The Act aims to protect movable or immovable objects
of geological, palaeontological, archaeological,
antiquarian or artistic importance (Dr. Micallef and Borg,
1998).
Environment Protection Act of
1991 (revised in 2001)
This legislation and its subsequent regulations aim to:
•
•
•
•
•
Local Councils Act of 1993
protect various species of flora and fauna;
declare areas of ecological importance as nature
reserves (where hunting and trapping are
prohibited);
conservation and maintenance of rubble walls and
rural structures;
control off roading activities;
protect rare tree species and important group of
trees
Responsibilities with the upkeep and maintenance of
public streets and footpaths.
Responsibilities connected with the removal of refused
from public and private places.
INTERBATIONAL AND
EUROPEAN LEGISLATION
Ramsar Convention on Wetlands
of International Importance
(1971)
OBJECTIVES
Paris Convention on the
Protection of the World Cultural
and Natural Heritage (1972)
The Convention’s objective is the protection of cultural
monuments and natural sites that are recognised to be
of such outstanding value that safeguarding them
concerns humanity as a whole.
The main objective of the CITES is the preservation of
endangered species by prohibiting or/and regulating the
international market/trade of such species. The
Convention categorises species into three lists
according to their endangered status, with strict trade
regulations commensurate to the imminent threats faced
by the respective species (as implied by their
categorisation).
Washington Convention on
International Trade in
Endangered Species (1973)
The overall objective of the Convention is to provide
international co-operation for the conservation and
rational use of wetland habitats and species, especially
in relation to waterfowl.
Berne Convention on the
Conservation of European
Wildlife and Natural Habitats
(1979)
The main aims of the Berne Convention (formulated by
the Council of Europe in 1979) are to conserve wild flora
and fauna and their natural habitats, to promote cooperation between states, and to give particular
attention to endangered and vulnerable species.
Bonn Convention on the
Conservation of Migratory
Species of Wild Animals (1979)
The main objective of the Bonn Convention is the
conservation and effective management of migratory
species. The Convention defines migratory species as
the entire population of any geographically separated
part of the population of any species (or lower taxon) of
wild animals, a significant proportion of whose members
cyclically and predictably cross one or more national or
jurisdictional boundaries.
Rio de Janeiro Convention on
Biological Diversity (1992)
The main objectives of the Rio Convention established
by UNCED in 1992 focus on the conservation of
biological diversity, the sustainable use of its
components, and the fair and equitable sharing of the
benefits arising out of the utilisation of genetic
resources.
Lugano Convention on Civil
Liability for Damage Resulting
from Activities Dangerous to the
Environment (1993)
The Lugano Convention aims at ensuring ”adequate”
compensation for damage resulting from activities which
are dangerous to the environment, as well as measures
for prevention and reinstatement.
United Nations Convention to
Combat Desertification (1994)
The main objectives of the Convention focus on
preventive and remedial action to combat the effects of
drought and land degradation, which are considered as
major contributors to the desertification process.
EU Directive for the Protection of
Birds 79/409/EEC
The main European Union Directive on the conservation
of wild birds is 79/409/EEC of 1979, together with five
subsidiary directives issued in connection with (or
amending) this main Directive. The Directive obliges EU
member states to:
1.
2.
3.
4.
5.
EU Habitats Directive 92/43/EEC
protect and conserve the naturally-occurring
populations of all species of birds occurring in the
wild state in Europe, as well as their habitats;
issue regulations to ensure protective management
and control of exploitation, with particular emphasis
on rearing seasons and the various stages of
reproduction;
the prohibition of particular means of capture;
the taking of measures to preserve, maintain or reestablish a sufficient diversity and habitats for all
the species of birds, including the establishment of
protected areas; the re-establishment of destroyed
biotopes, and the creation of new biotopes; and
undertake other measures for management, both
within and outside protected areas.
European Union Directive 92/43/EEC seeks to ensure
the conservation of natural habitats and wild flora and
fauna in the EU, and also incorporates the European
Union Bird Directive 79/409/EEC. The obligations
imposed by this Directive on member states are:
1.
2.
3.
4.
5.
6.
7.
8.
designation of protected areas (including special
areas of conservation interest), and their
management;
monitoring of the state of health of habitats and
species populations through the use of appropriate
environmental indicators;
strict protection of the flora and fauna listed in the
annexes to the Directive, and controls over their
exploitation;
establishment of a system to monitor the incidental
capture and killing of animals;
regulation/prohibition of the introduction of alien
species;
prohibition of listed means of capture;
promotion of education and general environmental
information; and
implementation
of
compensatory/mitigation
measures in projects of overriding public interest,
together with mandatory requirements for
Environment Impact Assessments.
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