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Archaeological Sites and Land Use Planning in Finland

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Archaeological Sites and Land Use Planning in Finland TEIJA TIITINEN The Finnish Heritage Agency Cultural Environment Services Archaeological Sites and Land Use Planning in Finland ABSTRACT: The Finnish Antiquities Act is a very strong law, mandating the protection of all an- cient sites immediately after they have been found. However, it is very inefficient in preserving the surrounding environment or landscape of the ancient sites. All land use in Finland is gov- erned by plans. The Local Master plans are the most important for defining the allowed land use in the vicinity of ancient sites. This paper explores how ancient sites and their environment have been treated in these plans. The analysis showed that a significant portion of the ancient sites covered by the Local Master plans are situated in environments that can be characterised as modern. In addition, the places that are situated in economically less important and less modern environments are those that will be best preserved in the future. KEYWORDS: Ancient remains, cultural landscape, cultural environment, land use planning, local master plans. INTRODUCTION The Finnish Antiquities Act is a very strong law. It automatically protects, without separate Ancient monuments are the oldest historical layers measures required, all antiquities which are within of the landscape. It is not only the visible structures the definition of the act, and prohibits action that that are part of the landscape, but also those struc- might endanger the preservation of these antiqui- tures which are hidden under soil or water. A very ties. It also takes into account the requirements the important question is: how can we preserve those Valletta Treaty (entered into force in Finland on 25 ancient features of the landscapes, and how do we May 1995). However, the Finnish Antiquities Act manage to pass them on as an inheritance to our de- is already over 50 years old, and in many ways it scendants? There are archaeological sites which cov- is obsolete. In 2003 the Archaeological Society of er the last 10,000 years in Finnish soil. The oldest Finland organised a seminar about the Act. In some remains are dated to the end of the last Ice Age, and presentations it was stressed that the law is very the youngest are close to the present day. In Finland, strong and provides good tools for the protection of archaeological sites are protected by the Antiquities antiquities (Purhonen 2005: 12–16), however the Act of 1963. The Act extends automatic protection flaws of the Antiquities Act were also brought into to all ancient monuments and sites. According to question (Schauman-Lönnqvist 2009: 17–21; Läh- the law, they must be taken in to account in land use desmäki 2005: 22–266; Lavento 2005: 26–35). planning (Schauman-Lönnqvist 2009: 125–130; The matter came up again in 2013, 50 years Maaranen 2004: 46). after the law came into force. It was pointed out Teija Tiitinen that the law is problematic when applied to land use not possible, and therefore the change should be planning. If we accept the idea of the cultural en- managed so that their characteristic attributes do vironment as a unified whole, we cannot deal with not disappear, even if the details do. Landscapes ancient monuments as separate dots and layers, as are one of the components that create our identity currently other different elements of the cultural en- (Dejeant-Pons 2002: 13–24; Howard 2011). There- vironment are protected by different laws (e.g. En- fore, the loss of landscape diversity is experienced as qvist 2013: 9; cf. Kumpulainen & Silen 2016). One threatening. The meaning of the landscape as one of of the weakest points of the Act has turned out to the most important pieces of our identity is com- be the fact that the definitions are inadequately de- monly acknowledged (Fairclough 2002: 25–37). fined (Halinen 2013: 20–25; Enqvist 2016: 133– The fact that landscapes are becoming uniform 144). The Antiquities Act also has shortcomings all over the Europe is the result of similar and mu- in its relation to constitutional property rights, the tual social and political processes in different coun- Land Use and Building Act (132/1999, amendment tries. Because of this trend, it is generally accepted 222/2003 included), and the Environmental Pro- that the unique aspects of the European landscape tection Act (527/2014). Due to this, the Nation- need protection. In order to protect the European al Board of Antiquities has set a working group to landscape, the Council of Europe has developed consider what the Act’s strengths and weaknesses the European Landscape Convention, which aims are, and how it should be developed (Haapala 2012: at promoting European landscape protection, man- 16–17; Maaranen 2016: 18). agement, and planning. The Convention has also In addition, because the development of ar- established the principle that landscape is a com- chaeological research has increased at a rapid pace mon cultural resource, and that the maintenance of since 1963, our understanding of the ancient sites landscape diversity is an important goal. (Fairclough has changed. The Antiquities Act considers an- 2002: 25–37.) The signatory states are committed cient sites simply as structures and layers, but when to implement the Convention both at the nation- it comes to the surrounding landscape of the site al and international levels, and also at local and re- the law does not provide any tools for preserving gional levels, by establishing and implementing pol- it (Schauman-Lönnqvist 2009: 128). This is despite icies aimed at good care of landscape. They are ex- the fact that the landscape is often a crucial part of pected to set out the tasks and measures for which the ancient site, and the monument cannot be fully each level is responsible, and lay down the rules of understood without its original context, as the ques- such measures where town planning and regional tion of why the site was situated where it was can- planning instruments are concerned (Antrop 2008: not be answered without it (Barford 2000: 85–91). 57–58; Dejeant-Pons 2002: 13–24). In Finland, the Therefore, it is important to ensure that the archae- treaty came into force in 2006, and at the time that ological heritage in the landscape is dealt with prop- this article was written, in 2015, there were 38 sig- erly, through sustainable development and land use nature countries. planning (Fairclough 2002: 25–37). In Finland, land use is steered by the Land Use Landscape can be viewed horizontally, as a con- and Building Act, passed in 2000 (MRL 132/1999). temporary document that illustrates the past, or it It constitutes the legal procedures in land use plan- can be viewed vertically, as a historical document ning processes. According to this Act, the cultural that shows us how we arrived at the present. Land- environment should be taken into account in plan- scape structure can be used to explain the present ning and construction, and other activities changing landscape, but it could also be used as an archive for the environment should be done in a manner that reconstructing the past landscape (Howard 2011: does not lead to the decrease of the value of the cul- 16). Landscapes are continuing to change, because tural environment (Ekroos & Majanmaa 2005: 15, there are many simultaneously occurring natural 56, 110–110). and cultural processes which affect them (Antrop According to the Land Use and Building Act, 2008: 59). Freezing them at some point in time is land use in Finland is directed by land use plans. 10 MASF 6 • 2018 • 9–27 Archaeological Sites and Land Use Planning in Finland If the planning bodies have enough good will to chaeological authorities during the planning pro- protect the cultural heritage and environment, the cess. Land Use and Building Act provides the tools to do so. If there is good will, it would be reasonable to as- sume that measures that cause considerable impacts LAND USE PLANNING IN FINLAND on the environments of ancient sites should also be avoided. In the end, it depends on the politics and The Finnish land use planning system is organised the economic potential of the area, which goals and hierarchically, and divided into four administrative standpoints are emphasised, and how well the pro- levels. The higher planning levels steer the lower lev- tection of the cultural landscape is carried out in the els. At the highest level, there are the national land land use planning (Mäntysalo 2000: 117–118). use guidelines, which have been approved by the It is important to recognise how well the prin- Council of State. The guidelines concern, for exam- ciples of the Convention have been brought into ple, issues which have more than just regional bear- practical use. In this article, the focus is on the type ing on regional structure, or those which have a sig- of land use the planners have directed to the are- nificant impact on national cultural or natural her- as where ancient features and sites are located. This itage (Ekroos & Majanmaa 2005: 101). The main study tries to find out the changes that are happen- guidelines concerning cultural heritage are listed in ing now, and suggest what they indicate for the fu- the inventory of nationally important cultural his- ture. The research area is the most southerly part of torical environments (RKY 2009). In those areas, Finland, the region of western Uusimaa. It covers planning and developing must be done in a manner eight municipalities/towns, each of them with their preserving their cultural value. own land use strategy. The material for the analysis The regional land use plans are guided by the consists of the local master plans for land use that national land use guidelines (Fig.
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