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