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SPATIUM International Review UDK 711.2(497.11) ; 502.131.1:711.2(497.11) No. 21, December 2009, p. 39-52 Review paper

SPATIAL AND OF SUSTAINABLE REGIONAL DEVELOPMENT IN SERBIA

Marija Maksin-Mićić1, University Singidunum, Faculty of tourism and hospitality management, Belgrade, Serbia Saša Milijić, Institute of Architecture and Urban & Spatial Planning of Serbia, Belgrade, Serbia Marina Nenković-Riznić, Institute of Architecture and Urban & Spatial Planning of Serbia, Belgrade, Serbia

The paper analyses the planning framework for sustainable territorial and regional development. The spatial and environmental planning should play the key role in coordination and integration of different planning grounds in achieving the sustainable regional development. The paper discusses the spatial planning capacity to offer the integral view of the sustainable territorial development. The brief review of tendencies in new spatial planning and regional policy has been given. The focus is on the concept of balanced polycentric development of . The guiding principles of spatial planning in regard of planning system reform in European countries have been pointed out. The changes in paradigm of regional policy, and the tasks of European regional spatial planning have been discussed. In Serbia problems occur in regard with the lack of coordinating sectoral planning with spatial and environmental planning. Partly the problem lies in the legal grounds, namely in non codification of laws and unregulated horizontal and vertical coordination at all levels of governance. The possibilities for the implementation of spatial planning principles and concepts of European Union sustainable territorial and regional development have been analized on the case of three regional spatial plans of eastern and southeastern regions in Serbia. The dissadvantages in implementing the strategic environmental impact assessment as an instrument for coordination and integration of sectorial planning with spatial and environmental planning have been analized. The strategic environmental impact assessment has been implemented only in the spatial planning process. Through spatial planning process its feedback effect on sectorial planning has been indirectly achieved. The priority actions in Serbia for achieving the spatial and environmental planning role in coordination and integration of different planning grounds in sustainable regional development have been given. Key words: sustainable territorial and regional development, regional spatial planning, sectoral planning, coordination and integration, strategic environmental impact assessment.

Integral strategic planning can occur solely as spatial2 and environmental planning and detach THE ROLE OF SPATIAL AND a consequence of an integral view of them into a separate block of institutions - ENVIRONMENTAL PLANNING IN development and future. It can not happen considered able to have a coordinating and SUSTAINABLE TERRITORIAL AND simply by joining social, economic, spatial and integrating role in planning and directing REGIONAL DEVELOPMENT OF THE environmental components or development development - are becoming increasingly EUROPEAN UNION1 aspects. In order to overcome partial planning emphasised. These expectations are based on or establish a comprehensive view and an The orientation towards establishing unified, organised direction of spatial systems and 2The paper is prepared as a part of the scientific integral strategic planning is currently present decision-making, one must make many projects TP 16013 “Approach and concept for in all European countries with developed assumptions (economic, political, regulatory compilation and implementation of Strategy of Spatial planning systems. etc.) which have been implemented in few Development of Serbia", and TP 16007 “Sustainable countries (the , and the Development and Organization of Spas and Other Tourist Settlements in Serbia”, financed by the Republic 1 Danijelova 29, 11 000 Beograd, Serbia Scandinavian countries). of Serbia Ministry of Science and Technological [email protected] With the development of the . development concept, tendencies to integrate

spatium 39 Maksin-Mićić, M. et al.: Spatial and environmental planning of sustainable regional development in Serbia

the necessity of integral and problem-based on the other, have both conditioned the search own right. The agenda retains all crucial approaches to planning and control over for the most suitable tool to integrate different elements of ESDP and introduces several general resources, and the necessity of aspects of general and sectoral policies and newer tasks. Orientation towards improving coordination and cooperation aimed at realise sustainable territorial development. polycentric development has been confirmed development of the respective sub-systems, and the tasks have been defined in order to Spatial planning is being promoted as one of co-existing in actual space and the contribute towards a more balanced the instruments of sustainable development environment. development, balancing quality of life across that can offer an integral view of future the population, sustainable use of resources Along with the aforementioned, it should be development of territories. The assumed and territorial capital of the region and entire kept in mind that there are significant capacity of spatial planning is based on its EU. Strengthening regional identity and better differences between the spatial planning spatial dimension and capacity to coordinate utilisation of potentials of the regionally systems of individual European Union and integrate various policies, from economic differentiated EU territory was stressed as one countries, due to differences in geographical development, transport and environmental of the crucial challenges. conditions (size and density of population), protection to cultural policies. The basic task of historical and cultural conditioning, inherited spatial planning is to plan sustainable territorial What is significant is that the Territorial Agenda patterns, the extent of urban and development as a general strategic framework introduced mandatory implementation of an , political and for general and sectoral policies. Therefore, integrated strategic territorial approach, ideological aspirations. Similarities emerge in spatial planning realises a control role as well, i.e. implementation of integral planning and relation to the consistency in recognising the because it enables decision makers to view the management for all actors in EU, especially significance of setting the framework for results and effectiveness of different policies in local and regional actors, within limits set out policies and procedures in utilisation of space, specific space, as well as to foresee their at Pan-European and national levels. The environmental protection and sustainable efficiency and necessary future adjustments establishment of the integral approach to development, and relations towards broader (Adams, Alden, Harris, 2006) guiding and managing development of the social and economic goals. This means that it European Union was also supported by the A succession of the European Union is possible to establish common frameworks revised European Union strategy for developmental documents were adopted, as and principles to develop the system of sustainable development (EU SDS, 2006). well as several Pan-European initiatives, planning and - within these limits - spatial representing a new generation of strategic The following were categorised as territorial planning, but also that the systems will documents. The largest contribution to priorities in scope of the EU development develop differently and adapted to the promoting the role of spatial planning in the process: (i) strengthening polycentric specificities of each state. This position was European Union was provided by the document development and innovation through also confirmed by recent surveys (UNECE on European Spatial Development Perspective networking urban regions and ; (ii) 2008), which do not explicitly recommend a - Towards Balanced and Sustainable establishing new forms of partnership and universal approach to strategic planning, albeit Development of the Territory of the European territorial management in developing urban and granted that the integrated strategic approach Union (ESDP, 1999). Starting from the rural areas, predominantly at the level of is present in all reformed systems of spatial fundamental goal of EU integration processes functional urban areas; (iii) promoting in European countries. to achieve sustainable and balanced competition and innovation clusters with the What is expected of spatial planning today, development of the European territory, the aim of stimulating development and primarily at the level of the European Union most important contribution of ESDP was to specialisation of peripheral and and its regions? What are the basic changes in establish the concept of balanced polycentric underdeveloped European regions; (iv) approach, policies and principles of spatial development, i.e. polycentric system of urban strengthening and spreading trans-European planning, and the possibilities of their cores, staring with the positive experiences of transport corridors, improving technical implementation in local practice? Holland and , where this concept has (especially energy) infrastructure, and been applied for more than half a century. It is decentralising services of public interest; (v) After almost three decades, spatial planning essentially an effort to restrain uncontrolled promoting Trans-European management, has, starting from local and national, taken on a metropolisation and find a counterbalance to including climate change impacts and new European dimension. At the level of the the market-initiated process of concentrating forms of managing protection of areas etc.; (vi) European Union and individual member states, economic activities and population in central strengthening environmental structures and spatial planning can still not boast sufficiently European regions. The concept of balanced cultural resources as development potential, strong political and institutional support in polycentric urban and regional development especially in regions which lag behind in relation to sectoral policies, primarily in has become one of the determinants of spatial development and in environmentally and relation to agrarian and transportation policies. planning and it exerts a large influence on culturally sensitive areas. Apart from this, the popularity of spatial strategies and policies at national and regional planning has increased over the last decade. In the analysis of crucial provisions of the levels of planning and administration (Alden, Why? Advocating the strengthening of the European documents, M. Vujošević (2008) 2006). European Union's social, economic and rightfully claims that all of them are relevant for territorial cohesion on the one hand, and The Territorial Agenda of the European Union - sustainable territorial development in Serbia. various - often adverse effects of sectoral Towards a More Competitive and Sustainable He particularly stressed the significance and policies to the desired realisation of cohesion Europe of Diverse Regions (2007), represents problems in: implementing polycentric and competitiveness of Europe as a continent - a continuation and correction of ESDP in its development; achieving equality in the

40 spatium Maksin-Mićić, M. et al.: Spatial and environmental planning of sustainable regional development in Serbia

availability of infrastructure, knowledge and land-use planning, spatial planning was more for impoverished regions and overcoming innovation; strengthening the economic base, oriented towards unifying the spatial dimension regional disparities (Alden, 2007). European quality of the environment and infrastructure of of development with economic, social, regional policy was designed so that its urban services; wise management in using environmental and sectoral policies. In a post- specific results in improving social and natural and cultural heritage, promoting industrial information society, spatial planning economic cohesion contribute to reducing the cooperation at regional, cross-border and is expected to represent a foundation for gap between developed and undeveloped transnational levels etc. Some of the problems sustainable development policies and policies states and regions. Special attention was paid and possibilities concerning implementation of that contribute to or influence sustainable to the scientific approach in regional policies. provisions and concepts of European territorial development. The basic reasons are Experiences from various European regions documents shall be indicated in this paper. as follows: indicate that the contexts of regional planning The implementation of strategic documents • Cultural and landscape diversity of and regional development are changing and establishment of sustainable territorial European space shall be of crucial interest rapidly. Within the GRIDS project (Best development is facing difficulties, partly for the future economic development of the practice guidelines for instruments of regional because spatial planning is not among the EU. The role of spatial planning and development and spatial planning in enlarged Union’s original jurisdictions, but rather falls spatially relevant policies is to determine EU) anbd IIIC program, it was under the jurisdiction of member states. Chief regionally differentiated values and perceived in several examples that traditional EU policies are the basic problem, primarily resources and protect them from regional policies did not provide expected the Lisbon strategy/treaty, prioritizing uncontrolled economic development and results in view of more balanced development macroeconomic competitiveness over social uncontrolled and unsustainable and competitiveness of regions. and environmental objectives. According to development of infrastructure systems. Discussions were held over the previous years some estimates, most basic European sectoral • Spatial planning gathers solutions for about new paradigms of regional development policies are aimed at achieving economic problems of regional development and and new approaches to resolving problems of competitiveness (from transport to urban preserving regional identity, culture, regional disparity and competitiveness. An policies) and therefore indirectly give tradition and quality of life of inhabitants. entire spectrum of topics arose within advantage and contribute to the concentration No other policy can comprehensively view theoretical contemplations of regional of economic and innovative activities in a and guide all dimensions of sustainable development - on regional competitiveness, limited number of metropolitan regions territorial development. social capital, knowledge-based economy, (Kunzmann, 2006). • High-level discussions on spatial flexible regional specialisation etc. Various Although the implementation of documents on planning in the EU shall influence the theories, concepts and models are being the Union's territorial development is not adaptation of European sectoral policies to questioned, such as the central place theory obligatory, but they rather represent a guiding, the Pan-European spatial framework and (Christaller), growth poles (Perroux), core- strategic framework to coordinate various the implementation of estimates of periphery spatial and economic development policies, experiences in their implementation territorial influence, so as to enable model (Myrdal and Hirschman) etc. The to date have been positive, primarily in guiding spatial implications of sectoral concepts of balanced polycentric regional implementing new approaches and concepts. measures and activities on regions, urban development, nodal regions - functional-urban The implementation of these documents in the and rural settlements (Kunzmann, 2006). regions - daily urban systems etc. were EU countries is based on the principle of developed on the basis of combining modified subsidiarity and developing horizontal The cohesion policy of the European Union is classical theories and models. New concepts (intersectoral at the same level of particularly targeted at regions, regional and models are being researched, such as administration) and vertical (between the levels policies and the role of regional development learning regions (Cooke), intelligent urban of administration - Union, transnational, in reducing economic and social disparities, regions, regional innovation clusters etc. national, regional and local levels) primarily in production, productivity and (ibid). coordination. From the EU standpoint, most employment, which were deepened by its The nodal region concept came into important are coordination and cooperation at territorial spread. At NUTS II level in 2005, the prominence in regional and spatial transnational and regional levels, because they proportion of gross national product was 8:1 planning. Selecting nodal regions and enable the resolution of the most important between the most developed London planned guidance of their development is one issues of developing European territory - metropolitan and the least developed European of the most important premises in the process Trans-European transport systems, region, (Growing Regions, Growing of rational organisation of space. European environmental protection, functional and Europe, 2007). functional-integration areas and multimodal economic connections between regions, Regional policy of the European Union is corridors that shall link big centres more cross-border areas etc. focused on implementing Lisbon strategy and intensively and contribute to the creation of an The ESDP document exerted a powerful the EU Sustainable Development Strategy & integral polystructural urban system of influence on Europeanisation of spatial tasks to increase productivity, employment and balanced hierarchy and powerful horizontal planning and planning methodology, which sustainable development of European regions. (spatial) and vertical (functional) connections adapted both to realising sustainable The second largest support from European have been determined. One of the intended development and territorial cohesion and funds for the period 2007 - 2013 is secured for models is also the model of European competitiveness. Different from traditional regional development policies, with a priority metropolitan regions - EMR, highly urbanized

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regions the role of which in demographic, interest or significance to equate development The regional level of spatial planning is used to economic (production, consumption, conditions within and between regions, shall interpret national policies and priorities and transport), cultural and social sense is be passed at regional or national levels of adapt them to regional conditions, to define transnational in character, and simultaneously planning or administration interregional and intraregional functional bonds represents a factor of spatial cohesion and and directions of development, set apart and Participation and coordination of the widest regional development on the continent. One protect areas with critical possible spectrum of regional and local form of EMRs are metropolitan development (strategically significant and limited sources of stakeholders in the spatial planning process is areas (Metropolitan European Growth Areas - water, minerals, natural and recreational values of crucial value for the determination and MEGAs). The future organisation EU27+2 etc.), plan the development of regional and verification of regional space protection provides for the development of 1595 subregional infrastructure systems and public priorities, improvements in infrastructure functional areas, i.e. functional urban regions, services, conduct environmental impact systems, projects of regional and subregional 74 of which are MEGAs. In each of the Union's assesments of planning options and importance and assessments of their states, the territorial reach of functional regions statements, provide guidance for the environmental impact etc. Participation in the coincides with daily population migration development of local spatial and other plans process of formulating and adopting spatial zones, outlined on the basis of national criteria etc. policies and plans enables a relativization of (Tošić, Maksin-Mićić, 2009). conflicted interests, activities and actions of Regional spatial planning is simultaneously a Spatial planning is indeed one of the more sectors at same or diferent levels of verification and coordination tool for recent and innovative activities of the public administration, local communities and the spatial/territorial impacts of all spatially sectoral in the domain of regional private sector relevant national and regional policies development. This was also contributed to by (economic development, natural resources, The implementation of the integration principle the increase in spatial strategies of different sustainable development, rural development, is significant - harmonisation, coordination and scope - from European, transnational, national heritage protection, development of tourism integration of sectoral policies for the planned to regional (Adams, Alden, Harris, 2006). and culture etc.). Support of national and area and integration of local policies, plans and Among them, most attention was drawn to the regional administration levels is necessary to projects of significance for several local regional level. The main task at regional level realise expected coordinating role of spatial communities in the region. of planning is to prepare and coordinate the planning, primarily by way of connecting regional spatial strategy for a planning horizon The proportionality principle relates to striking funding development of sectors and local of 15 to 20 years. Although European regions a balance between obligation/directiveness communities with regional spatial strategies vary significantly in respect of spatial reach, it (legal protection) and flexibility (discretionary and plans. is customary that regional planning strategies decision making) in formulating spatial The crucial and most difficult task for the and plans are developed for administrative or policies and planning statements. Obligation, planning process is to realise sustainable functional regions, such as functional urban i.e. directiveness, is neccesary when dealing development of regions by guiding areas (or daily urban systems), axes of with policies and planning statements in general/framework spatial distribution of development (or corridors), catchment areas, protection of resources, heritage and development and investments, coordinating the national park areas etc. It is recommended in environment, and in some cases is welcomed development of infrastructure, housing and spatial planning to prioritize functional areas as support for development, because of the public services, and preserving the over administrative borders. investor's legal protection. At the same time, environment and resources. Apart from the spatial policy must be flexible in order to UNECE research (2008) identified six general/framework guidelines on the adapt to the eventualities of economic, social fundamental principles of spatial planning: designation and organisation of space, a and technological development and regional spatial plan can contain boundaries of • democraticness, stimulating innovation. Flexibility can be areas/zones intended for development, achieved by way of determining criteria to • subsidiarity, revitalisation and/or protection, once they have realise planned development, in stead of been sufficiently researched and known. • participation, defining final solutions and strict of • integration, space. It is recommended to implement a Cooperation between local levels of lesser degree of flexibility i.e. discretionary administration is necessary in the planning • proportionality decision-making in conditions of insufficiently process so as to provide an overview of • prevention. developed local levels of planning and possible options for the problems and issues The implementation of the subsidiarity administration. of common interest for several local communities. Spatial development options principle is harmonized with the significance The prevention principle relates to should be the subject of public consultations and spatial influence of the problems being implementing estimates of environmental and strategic impact assessment. solved, so that only some of the decisions impacts and when defining and evaluating shall be based on local community requests planning policies and options. It also includes Strategic environmental assessment and initiatives. Decisions on main transport the determination to limit development in presents an important tool of integration corridors, protection and regulation of sensitive areas with an aim to minimise between various policies and support for the environmentally or culturally sensitive areas expected climate change impacts and preserve realisation of sustainable territorial (e.g. catchment areas, areas of natural and biodiversity, values and resources. development. By implementing a strategic cultural heritage) and other matters of public

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environmental assesment it can be determined The fourth part of the paper analyses the role Serbia (1996) set out the obligation to realise whether plans and policies have been and possibilities for the implementation of or elaborate this spatial plan with other spatial, harmonised between themselves and with strategic environmental assessments with the urban and sectoral plans, strategies, policies territorial sustainable development goals, aim of coordinating spatial and sectoral and programmes. provided it was integrated in the process of planning and realising sustainable territorial The law which regulates spatial planing and spatial and sectoral planning. Individual and regional development. management of space ought to be the basic European countries have also established an law to provide a planning basis and the environmental compensation to compensate PROBLEMS IN REALISING THE implementation of sustainable development of for the impact of new development on the ROLE OF SPATIAL AND territory and settlements. The Law on Planning environment with investments into ENVIRONMENTAL PLANNING IN and Construction from 2003 specifically environmental protection in the same or other mentioned spatial development among space (UNECE, 2008). SUSTAINABLE TERRITORIAL AND REGIONAL DEVELOPMENT OF principles for management of space. The For the development of new, or the reform of SERBIA problem is that this law did not deal in existing spatial planning systems in European management and protection of space, but the countries, and especially countries in A hierarchy (both formal and informal) in the focus was on building and legalisation of transition, it is of significance to reform the planning systems of the European countries unplanned/illegally built buildings. This is the following: was established for the planning basis, reason why this law did not provide efficiency mechanisms and procedures of harmonising in planned management and protection of • legal basis, and coordinating spatial and sectoral planning. space, and with it no foundation for sustainable • spatial planning, This means that the frameworks (concepts, territorial development. It seems that, from the • planning instruments, primarily spatial general solutions and guidelines) for the aspect of sustainable development and strategies and plans, development and regulation of space, management of space, the new law from 2009 determined at national level, are binding for offers even more unfavourable solutions. The • support to implement planning sectoral planning bases at the same levels of primary focus of that law is constructible land, decisions. planning and that they are being elaborated at i.e. placing government-owned constructible The first precondition to reform the spatial regional and local levels of spatial and sectoral land on the market, and construction of planning system is to reform the legal basis, planning and corresponding technical buildings, i.e. facilitating the acquisition of which should secure the following: the documents. The same relation exists between building permits, all with the apparent aim of implementation of an integrated strategic regional and local planning levels. Established attracting foreign investors. The law which territorial approach in the process of planning mechanisms and procedures also provide the does not protect public interest in use and and managing sustainable development, reverse course of actions in the harmonisation construction of space, and therefore not all of primarily mechanisms for horizontal and process - from local to higher levels of resources in space, can not represent the legal vertical cooperation and coordination between planning. In this process, the regional level of basis for planning and realising sustainable sectors and administration levels, and the planning plays a decisive role for horizontal territorial development. participation from stakeholders in the decision- (between local communities and sectors) and The most advanced in view of establishing making process: accountability for the vertical (between planning levels) relations on coordinating the planning basis is verification of environmental and territorial coordination. the package of laws on environmental impacts of planned development; and higher Coordination and integration of spatial, protection from 2004. The law on flexibility of the planning process and planning environmental and sectoral planning is environmental protection, modelled after the instruments etc. established by providing legal basis, and legislation from European countries, The second part of the paper considers the implementation is secured by institutional- established an integral system of contribution by previous reforms of legal and organizational arrangements. environmental protection, as well as measures planning basis to establishing a system of and instruments for sustainable management The legal basis in Serbia is extremely planning and managing sustainable territorial and protection of natural resources and extensive and uncodified, even though it has and regional development in Serbia, and heritage. The law stipulates that the Spatial been reformed for nearly a decade. The primarily mechanisms of coordination between Plan of the Republic of Serbia and the National problematics of managing space, protecting spatial, environmental and sectoral planning. Strategy for Sustainable Use of Natural the environment, resources and heritage, and Resources and Goods represent legal bases for sustainable development are directly or The third part of the paper analyses the sustainable use and protection of natural indirectly regulated by more than 40 laws. implementation of basic principles of spatial resources and heritage, whereas spatial planning, concepts of territorial development of The legal basis in Serbia has established the planning represents planning basis for the European Union and individual hierarchy of spatial and urban plans, but integrated protection of the environment, recommendations made by UNECE for the establishing relations between spatial and resources and goods. The law on strategic regional level of spatial planning on the urban plans with sectoral planning basis, as impact assessment provides for use of this example of new regional and spatial plans for well as mechanisms and procedures for their environmental tool for plans, programs and special designation areas with a macroregional coordination and integration are lacking. Only bases in the domain of spatial and sectoral dimension in Serbia. the Law on Spatial Plans of the Republic of planning of transport, energetics, agriculture,

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, fishery, hunting, industry, waste obligation to harmonise national sectoral and sustainable development. The impacts of management, water management, strategy with the Spatial Plan of the Republic of sectoral planning are manifested directly or telecommunications, tourism etc. with the aim Serbia. The new Law on Tourism (2009) is indirectly, in a coordinated or uncoordinated of avoiding or limiting negative impacts of retrograde in relation to its predecessor, manner in relation to general strategies, spatial planned decisions on the environment. The because it does not mention integral planning, and urban plans and environmental plans and problem is that in practice it is applied only in but planning the development of tourism is programs. A large potion of the sectoral the domain of spatial and . reduced only to sectoral planning which was planning basis has not been connected with not adequately connected to other forms of space and environment in Serbia, so that the The laws on planning and construction and planning. The provisions of the new law make guiding role from the aspect of use and environmental protection have not sufficiently no mention of coordination with spatial and management of space and protection of the established obligations of coordinating environmental planning, as well as with other environment, resources and heritage, i.e. planning and guiding the use and protection of sectoral planning bases. The following system sustainable development, is realised indirectly space and environment, especially between of sectoral plans and programs is established or not realised at all. spatial and urban plans on the one hand, and under the title "integral planning": Tourism the national environmental protection Formal and informal types of coordination Development Strategy of the Republic of programme, local environmental protection have been established in the planning practice Serbia, Strategic Marketing Plan of the action plans, action and sanation plans at for the process of spatial and sectoral planning Republic of Serbia, Strategic Master Plan for national, provincial and local levels on the in the domains of agriculture, water power Prioritised Tourist Spaces, Tourist Product other. Simultaneously, obligations and engineering, forestry and protection of natural Development Programme, Tourism propositions for the coordination of sectoral resources. An informal type of coordination has Development Programme and Promotional with spatial and environmental planning and been established with several other sectors Activities Programme. Only the Tourism guiding sustainable development are lacking. (transport, energetic and telecommunications Development Strategy of the Republic of Serbia infrastructure), but is undergoing difficulties The Law on Regional Development (2009) is intended to contain an analysis of impact on due to the underdevelopment of certain established a new system of regional planning cultural heritage and natural resources, but not sectoral planning basis, which have mostly for NUTS II and III planning regions - the on space and the environment. The strategic been reduced to short-term building national regional development plan, regional master plan was in no was connected with the programmes (reconstruction, modernisation development strategy and programs of funding protection of space, environment, resources etc.) and technical documents. regional development. It was intended that and heritage, but with the economic evaluation these plans be harmonised with adopted of the tourist infrastructure, tourist The problem has been aggravated over the spatial plans, as well as to represent one of superstructure, transport network and utility previous years by adopting or developing a starting bases to develop new spatial plans and infrastructure, as well as the estimate of multitude of general and sectoral strategies programmes for their implementation. In other economic justification of individual and total and master plans (with various purposes), words, there is formal talk on harmonising but investments. It was intended that the strategic which are in most cases not in accordance with not coordination of regional plans/strategies master plan represents a starting ground for the legal basis, so their contents, development with spatial planning. The manner in which the spatial and urban plans, which indicates, and is methodology, procedure of consideration and obligation for spatial plans was formulated verified in practice, that there will not be any public inclusion, obligations of harmonisation indicates that there will be no verification of verification into spatial impacts of the sectoral with spatial and environmental or other sectoral spatial impacts of regional plans/strategies, i.e. strategy, i.e. that coordination and integration planning bases remain unknown, as well as that coordinating and integration of this of this planning framework into the spatial jurisdictions in respect to how they were planning basis into the spatial planning panning process will be disabled in practice. adopted and implemented. process and the realisation of sustainable This law was also not connected with the set of After the European Union model, Serbia has regional development will be disabled in environmental protection laws from 2004, and adopted a set of general strategies in the first practice. As this law does not mention the there is no mention of the obligation to decade of the 21st century which have direct or obligation of implementing instruments of implement strategic environmental impact indirect influence over management and strategic environmental impact assessment, it assessment, so that - apart from declarative, guidance of sustainable development. These becomes cleat that environmental impact of no factual protection of the environment and are primarily the following long-term and mid- regional planning basis will not be checked. resources - including tourist resources - is term strategies: The National Sustainable Owing to this, the control provided. In other words, the new Law on Develeopment Strategy, Poverty Reduction tool - strategic environmental impact Tourism does not provide for even the basic Strategy, National Employment Strategy for the assessment - will not be able to play its part in preconditions to manage and guide sustainable period from 2005 to 2010, National Youth establishing coordination and integration of development of tourism and sustainable Strategy, Birth Incentive Strategy, Regional planning basis at regional planning level. territorial development. Development Strategy of Serbia for the period A similar constatation can be made for the new In the local planning system, sectoral from 2007 to 2012, National Economic set of laws on tourism. The 2005 Law on planning basis is comprised of general and Development Strategy of the Republic of Serbia Tourism declaratively mentioned sustainable sectoral/trade plans, strategies, policies and from 2006 to 2012, Strategy for the development and integral planning of tourism programmes which exert major influence on Development of Competitive Small and development among tourism development realisation of management of space, protection Medium Enterprises for the period from 2008 principles. That law only established the of the environment, resources and heritage,

44 spatium Maksin-Mićić, M. et al.: Spatial and environmental planning of sustainable regional development in Serbia

to 2013, National Environmental Protection current practice. Tourism Development REGIONAL SPATIAL PLANNING AND Programme and other strategies and programs. Strategy of the Republic of Serbia (2006) has SUSTAINABLE TERRITORIAL AND definitely been linked to the Spatial Plan of the The legal basis for developing and adopting the REGIONAL DEVELOPMENT IN Republic of Serbia, but not with the adopted National Sustainable Development Strategy sectoral strategies. The largest problem arises SERBIA remains unknown. It is based on generally due to the implementation of certain new accepted principles defined in the Due to the undeveloped regional policy, sectoral planning tools - such as the 'master' Johannesburg Declaration on Sustainable absence of regional administration level and plans (visit the website: Development, UN Millennium Development slowness in selecting some form of www.merr.gov.rs/dokumenti), which were not Goals and EU Sustainable Development regionalisation, Serbia does not have a in accordance with the legal basis for tourism Strategy, but the conception of sustainable developed practice of developing regional until recently. Over the past three years, 12 development of Serbia remained too general spatial plans. Two were adopted in the strategies and master plans have been and without the spatial dimension. Although previous decade, and several regional spatial developed for tourist areas. It can generally be adopted general and sectoral strategies were plans are currently being developed. On the stated that a sectoral approach is predominant used when developing this strategy, it other side, there was a continuous in these strategies and master plans, without remained unclear who and how provides their development of the practice of developing analysing the impact of planned tourism coordination and how to elaborate and spatial plans for special use areas of macro- development to the surroundings and without implement the National Sustainable and mezzo-regional scope. This is the reason assessing environmental, spatial, social and Development Strategy. One thing is certain, the paper analyses the implementation of basic cultural effects of these impacts. The overall sustainable development can not bbe achieved principles of spatial planning, the concept of structure of master plans for tourist areas, as a by partially implementing various strategies territorial development of the European Union rule, consists of the following: 'as-is' analysis and policies. and individual UNECE recommendations for (analysis of resources, capacities and the regional level of spatial planning, at the One can make a similar statement for the infrastructure, locational analyses), analysis of example of regional and spatial plans for Regional Development Strategy of Serbia for supply and demand, SWOT and PESTLE special use areas with a macro-regional the period from 2007 to 2012, which primarily analyses, benchmark analysis, competitiveness dimension for the Eastern and South-Eastern deals with the problem of regional disparities, analysis, marketing, directions for parts of Serbia - Regional Spatial Plan for but does not offer a concept of polycentric and development, tourist products, management, Southern Pomoravlje, Regional Spatial Plan for balanced regional development of Serbia, or investments and impacts of investments. Due Timočka krajina and the Spatial Plan for the represents a basis for spatial and functional to sectoral approach and partial overview of Stara Planina Nature Park and Tourist Region differentiation, specialisation and networking of developing tourist areas, substantial negative area (hereinafter: regional plans). regions, preservation and improvement of effects of tourism impacts on natural heritage, regional identity, as well as sustainable resources and environment, as well as local Developing and passing these plans is part of regional development of Serbia. community development can manifest the elaboration and implementation of the themselves in the realisation of certain master Spatial Plan of the Republic of Serbia, as well The concept of polycentric and balanced plans, especially for macro- and mezzo- as the implementation of general and sectoral regional development and network of urban regional tourist areas and natural resources of strategies, plans and programmes and their centres in our regional planning and regional Stara Planina, Golija and Kopaonik. adaptation to regional and local specificities. development practice has not been achieved The possibility to implement concepts and so far. It was only during the development of Reforms of the planning system and the priorities of the territorial development of the the Spatial Plan of the Republic of Serbia that processes of spatial, environmental and European Union was checked simultaneously an exact analysis of all elements and factors of sectoral planning to date have not secured their with the development of regional plans, and regional development was conducted and harmonisation with the approach, policies, primarily the following: strategies for the de-metropolitanization of concepts and principles of planning and Serbia and a functional balancing of the system managing sustainable and competitive • concepts of balanced polycentric of centres and settlements were defined. The territorial development of the European Union. development, i.e. polycentric system of problem is that political and legal frameworks The process of developing and implementing urban centres, for resolving issues of legislative-functional the planning graounds in Serbia is unsuitable • establishing new forms of developing subsidiarity, i.e. vertical and horizontal for guiding and managing sustainable territorial urban and rural areas at the level of distribution of competences, obligations and development of Serbia and its approximation to functional urban areas; responsibilities among levels of administration the European Union. The integrative role of • strengthening and widening the network and planning, have not been established yet. spatial and environmental planning can not be of traffic corridors, improved technical This is why the questions of functional realised due to poor coordination and absence infrastructure - energy in particular - and homogeneity, transport connectivity and of integration between various forms of decentralising services of public interest; regional networking of urban centres in Serbia planning. remain open (Tošić, Maksin-Mićić, 2009). • conserving and using natural capital (forests, waters, minerals etc.), The problem of coordinating spatial and strengthening ecological structures and environmental with sectoral planning basis is cultural resources as development most pronounced in the tourism sector in potentials in areas which lag behind in

spatium 45 Maksin-Mićić, M. et al.: Spatial and environmental planning of sustainable regional development in Serbia

development and are classified as section of corridor VII (Danube with partly territorial development, similarities can be ecologically and culturally sensitive areas. utilised waterway and unused nautical perceived among general sustainable Regional plans for areas of Jablanica and Pčinj, potentials) etc. development goals for the area in question and Zaječar and Bor counties and Stara planina Regional plans set the vision, basic concepts regional plans as follows: tourist region (part of Zaječar and Pirot and planning solutions to achieve more • responsible administration of the counties) encompasses the territory of 5 balanced regional and subregional development, management and protection counties and 23 municipalities with the total development, increase competitiveness and of space inn accordance with realistic surface of approximately 14,200 km2 integrate the area in its surroundings potentials and limitations of natural and (representing approximately 16% of the (neighbouring functional areas of Southern man-made resources, as well as the value territory of Serbia), with about 1000 Serbia and autonomous provinces, as well as and long-term requirements of economic settlements and about 800 thousand citizens with neighbouring border municipalities and and social development and protection of (Image 1). Physically and geographically, this regions in , and Macedonia). the environment; area covers most of the Basins of Južna Morava Special attention has been paid to increasing and Timok rivers, a part of lower Podunavlje attractiveness of the area for investment by • more balanced development at region and the highland dominated by the high defining planning solutions for: activating and intraregional and interregional levels, altitude Stara planina and Krajište with Vlasina mobilising territorial capital, sustainable use of stimulation for the development of massives. natural and man-made resources, long-term agriculture, tourism, energy, mining and reconstruction and development of human infrastructure, improvements on the The following characteristics of the area were resources, increasing transport availability to infrastructure corridor X and decisive to implement the concept and select Pan-European corridors, infrastructure waterway/nautical corridor of the Danube, the vision and planning solutions for installations and energy efficiency, significant improvement in accessibility of sustainable territorial and regional development of the economy and institutions, mountainous and remote parts of the area, development: protection of natural and cultural heritage as initiating cross-border programmes for border areas; • It is categorised as undeveloped and factors for the development of the area, both economically and demographically sanitation and protection of the environment • quality of life improvements and creating depressive regions; (Image 1). conditions for demographic renewal, retention and stimulation of settling and • It is peripheral to developmental axes and the largest urban centres in Serbia, with unevenly developed and functionally insufficiently networked system of settlements, predominated by medium and small urban centres; • potential cross-border area (with the state border in approximate length of 500 km) between Pan-European transport corridors X to the West, IV to the East and VII to the North, with natural and cultural areas of international significance and regions with similar development problems in Bulgaria, Romania (EU) and Macedonia; • possesses significant natural capital - exceptional hydroenergetic potentials of "Đerdap 1" and "Đerdap 2" hydroelectric plants, agricultural, cattle breeding and forestry area, minerals, natural and tourist values with exceptional potential for the development of tourism on Stara planina, Danube, Krajište with Vlasina, spas etc., Image 1. Area of regional spatial plans for Southern Pomoravlje region, Timočka krajina and Stara planina tourist region. water springs of national and regional significance with 8 existing and 7 planned Source: Spatial plan for the area of Stara planina nature park and tourist region (2008), Regional spatial plan of the Southern Pomoravlje municipalities, Spatial Plan Strategy - Concept (2009), Institute of Architecture and Urban & Spatial Planning of accumulation basins, a potential waterway Serbia; Regional Spatial Plan for Timočka krajina - Spatial Plan Concept (2009), Institute of Architecture and Urban & Spatial corridor, substantial reserves of mineral Planning of Serbia resources and developed mining industry; Starting from propositions for the national return of the population, especially into • chief transport corridors in the areas are spatial plan and taing into consideration economically disadvantaged rural areas or a section and leg of corridor X (including conceptions and priorities of the Union's centres by way of investment into partly built infrastructure systems) and a

46 spatium Maksin-Mićić, M. et al.: Spatial and environmental planning of sustainable regional development in Serbia

construction, reconstruction and development of energy and Negotin–Kladovo, to be joined by Bor) and maintenance of infrastructure, public telecommunications infrastructure. Planned regulation of the primary South Morava services, preservation and advancement of transport infrastructure construction ought to development axis (directions the natural and cultural heritage, contribute to improving transit and mediatory Preševo/Bujanovac-Vranje-Vladičin Han- development of economically viable and connections of Eastern and Southern Serbia Leskovac/Vlasotince-Niš) and regional status-appealing activities. along corridor X and on roadways to Pan- functional urban systems that link the The paper indicates only several key regional European infrastructure corridors X to the West macro-region of Niš with East Podunavlje, plan solutions to achieve general goals, and IV in the East, improving spatial and South Serbia and immediate international conceptions and principles of sustainable functional positioning, increasing surroundings; territorial and regional development. competitiveness of the region and quicker • Development of existing successful development of regional centres. The small and mid-sized enterprises that shall, It was intended to realise twofold achievement realisation of internal integration, development apart from modernising and specialising in of a greater degree of functional integration of small towns, micro-developmental rural production and environmental of areas by regional plans Intraregionally, centres, activation of highland and border areas restructuring, become leaders in economic within the space of Jablanica and Pčinj, has been supported by planning solutions for connections into regional production and Zaječar, Bor and Pirot counties, planned the improvement in the capillary, regional and service clusters that compete with qualitative changes in spatial, transport, local road network, especially transverse companies within the region and economic and social structure shall enable roadways, and their connection with trunk companies from Niš, Belgrade and other harmonisation of development and networking roads and highways in Pan-European corridors. industrial centres. Development of between subregional entities, especially economic activities and structures will be highlands and border areas with pronounced In the application of the balanced based on an increased level of investment, dysfunctions of social and economic polycentric regional development concept, technical-technological equipment, development. Interregionally, functional model of dispersed-concentrated development improvement of competitiveness, integration with neighbouring functional areas and allocation of population, economic and advancing of the knowledge pool through and Republic of Serbia shall enable the other activities was used to slow down the rate education and development of professional realisation of prioritised planning solutions of population concentration and activities in expertise, rational and efficient use of significant for several municipalities and primary development axes (infrastructure natural resources and spatial and regions, primarily for transport linking with corridor X) and stimulation for the dispersion environmental plausibility with priorities in corridors X and VII, the development of other of development in areas with significant the fields of energy, mining, transport infrastructure systems and regional cluster territorial capital and potential. Planning services, storage and logistics activities, (economy, tourism, education etc.) formation. solutions were intended to resolve the tourism, etc. Connecting and cooperating with international following issues: surroundings, neighbouring border • Development of functional urbanised • One of the main strongholds of planning municipalities and regions in Bulgaria, regions in single and dual urban centres solutions to establish new forms of Romania and Macedonia implies preparation (directions Bor-Zaječar, Leskovac-Niš, development and partnerships and realisation of cross-border programmes for Vranje-Vladičin Han), strengthening between rural and urban areas are which certain planning solutions have been regional functions in Bor, Zaječar, substantial natural resources and proposed in the domains of infrastructure, Leskovac, Vranje and Pirot and environmental structures in rural areas on energy, tourism, ecology, urban centre decentralisation of remaining functions to the one hand, and economy, scientific cooperation etc. municipal and sub-municipal and micro- research, innovative, informative, developmental, administrative, cultural and The support to realising integration, more development centres in rural areas as exponents of socio-economic development other functions of urban centres on the balanced and polycentric development of the other. area is planned by improving transport of rural communities and their functional availability and infrastructure installation integration with urban centres; The implementation of new forms of of the space. This particularly relates to • Development of spatially functional links development and partnership in rural and urban planning solutions for completing the (in Vlasotince, Lebane, Bojnik, Bosilegrad, areas will be achieved by establishing a construction, equipping and arranging the Trgovište, Dimitrovgrad, etc.), mutually nucleus of socio-economic transformation of infrastructure corridor for E-75 highway and and with regional centres in immediate and rural and poorly urbanised areas in the region connecting the area with E-75 highway cross-border surroundings (Vlasotince, (in accordance with principles of sustainable territorial development, particularly pertaining new sections in the following areas: E75- Bojnik, Lebane in the functional region of Leskovac; Surdulica, Vladičin Han, to rational use of space, resources, energy and Bor/Zaječar; E75-Stara planina; E75-Trgovište- transportation) and development of daily urban Bosilegrad; E75-Kriva Feja-Bosilegrad etc; Bujanovac, Bosilegrad, Preševo in the functional region of Vranje; Dimitrovgrad in systems (formation of functional urban completion of equipping and regulating the regions). Daily urban systems in Leskovac, section of the Danube waterway/nautical the functional region of Pirot and Sofia, etc.); Vranje, Zaječar and Bor, Negotin, Knjaževac corridor; reconstruction of existing railroad and Pirot include fifteen municipal and sub- tracks (Niš-Zaječar-Prahovo, Niš-Makedonija • Continuing work on the formation of the municipal centres, and approximately one etc.) with legs intoRomania and Bulgaria and secondary development axis in Timok hundred village community centres and building E-85 high-speed railroad; (directions Niš-Knjaževac–Zaječar–

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settlements with specific functions. It is diversification/specialisation of the tourist offer spatial planning solutions as a rule did not necessary to support job creation policies in accordance with regional plans and regional have a corrective impact on sectoral planning investment and other measures for intensifying surrounding in Serbia, Bulgaria, Romania and basis, due to unresolved issues pertaining to specific regional, economic, public and social Macedonia. The development of tourism will responsibilities and mechanisms for functions in small centres, so as to slow down provide one of the mechanisms for coordinating sectoral with spatial planning the concentration of economic and other compensating the local population for basis. activities in large urban centres and stimulate limitations of the regime for the preservation The principle of subsidiarity was economic and social development of other and protection of natural resources and implemented in the process of regional spatial centres in the urban network. heritage. planning. Furthermore, all recommendations Part of planning solutions for more even regional A portion of regional plans will base their and initiatives of local communities, concepts, development is based on economic prosperity, development on sustainable use of water solutions and local strategy priorities development and improving living conditions in resources and energy, metallic and non- (sustainable development, economic rural areas, maintaining and promoting rural metallic minerals. Planning solutions provide development, etc), plans (municipal spatial values, strengthening the economic position of for integrated protection and use of water plans, local environmental protection plans, agriculture and agricultural producers, developing resources within the scope of regional water etc), programmes and other developmental infrastructure and raising utility and public power engineering systems as a basis for rural documents in local communities were taken standard in villages. Agriculture, depending on the areas to collect substantial revenue from into consideration. availability of agricultural funds, traditional renting resource. The planed solutions further Participativeness in the process of regional dependency of local population on agriculture as stipulate utilising actual reserves in planning was only partially implemented due to an economic branch and development of agri- developmental function and continuing insufficient training and education of industrial capacities, represents one of the most research related to potential copper reserves professional planners and local management, important developmental resources. The (with offside elements of gold, coal, lead and insufficient knowledge and lack of motivation intensification of agricultural development and zinc, architectural stone, limestone, quartz on the part of local stakeholders and villages as a whole shall be based on increased sand, sandstone and rare minerals); underdevelopment of institutions at the level of market competitiveness of local agri- completing the privatisation process, regional administration. Notwithstanding above environmental assets, in accordance with specific restructuring Radio and Television Station Bor limitations, cooperation with the National conditions in rural areas, as well as on and active coal mines with ground exploitation; Spatial Planning Agency resulted in improvement of agricultural structure within the implementing measures for sanitation of consultations and assessment of respective scope of implementing integrated rural degraded environmental areas and reduction of phases of developing regional plans. development programs in accordance with the emission of pollutants to an acceptable level in Cooperation with competent municipal new model of Common Agriculture Policy of the all phases of exploitation, processing and administration authorities and services and European Union. disposal of mineral products. certain regional institutions (Jablanica and What is of particular importance for future The spatial planning process utilises an Pčinj County Development Centre, Regional development, especially pertaining to integrated approach to sustainable territorial Agency for the Development of East Serbia, peripheral and rural areas, are tourism and and regional development. On the basis of regional chambers of commerce, etc.) was complementary activities based on preserved available potential, limitations and recognised important in preparing and developing environment and tourist resources of national tendencies and requirements pertaining to concepts/strategies of the plan, and resulted in and international significance. Planning regional development, a vision of integrated improved quality and attainability of planned solutions are aimed at: (i) completion and development has been offered, and concepts solutions. Local stakeholders expressed integration of the existing tourist offer across and planned solutions for sustainable and dissatisfaction with the amount of funds the region (littoral of the Danube with Đerdap balanced regional development have been allocated by the Republic of Serbia for lake/„Đerdap National Park“, Stara planina determined. However, the process of regional development of areas covered by regional Nature Park, Vlasina Lake, Sokobanja, Vranje spatial planning did not incorporate its plans. Local stakeholders in Timočka Krajina spas, Bujanovac, Sijarina and Gamzigrad, coordinating and integrative function pertaining further expressed lack of trust and resistance archeological sites Felix Romuliana, Lepenski to the planning basis in terms of general and towards cross-border programs initiated in the Vir, etc; (ii) construction and arrangement of sectoral strategy, plans and programs. In the domain of economic cooperation and new contents to generate year-round process of developing spatial plans, principles infrastructure development, including joint exploitation of the regional tourist offer and concepts of general strategies were approach of local communities from Serbia (nautical and tourist infrastructure at the implemented and adapted to regional and local and neighbouring countries in applying for EU Danube, tourist centres and ski resort in Stara specificities, although they mostly do not funds and assistance by relevant international Planina and Besna Kobila, variety of tourism possess a spatial dimension, which associations. Initiative at the level of local options pertaining to lakes, mountains, complicates their implementation. Sectoral communities pertaining to forming and immovable cultural goods, Negotin breweries, strategies, plans and programs in the field of engaging of regional development agencies is tourist centres-towns and localities/traditional water economy, forestry, transport, economy, of high importance for planning and managing events, spas, villages and hunting grounds, communal were used and sustainable regional development. The core transitory waterways and roadways etc.); (iii) harmonised in the same manner. Perceived task of such agencies is to initiate and functional integration and problems, planning concepts and regional coordinate development programs and projects

48 spatium Maksin-Mićić, M. et al.: Spatial and environmental planning of sustainable regional development in Serbia

of interest for several municipalities. Problems ENVIRONMENTAL IMPACT • setting forth an adequate context for emerged in the cooperation between agencies ASSESSMENT AND SUSTAINABLE analysis of the impact of concrete projects, and the national administration, while TERRITORIAL AND REGIONAL including prior identification of problems cooperation with international institutions was and impacts worthy of detailed research, more successful. Due to above reasons, DEVELOPMENT IN SERBIA etc. development of regional plans prioritised Strategic environmental assessment is a Depending on the level of hierarchy of the measures for cooperation between national, relatively new tool in the planning process, planning document and specificities of the (sub)regional and local administration, both in Serbia and across the European Union. area, it is necessary to determine different including activities pertaining the construction EU Directive on Strategic environmental strategic impact analysis goals that shall be of institutional framework for managing Assessment (Directive 2001/42/EC of the used to conduct an evaluation of the planning sustainable regional development, headed by European parliament and the Council of 27th solutions in relation to specific planning regional development agencies. June 2002 on the assessment of the effects of segments (environmental protection, tourism, The principle of prevention was implemented certain plans and programmes on the infrastructure, economy etc.). The results of the in the process of regional spatial planning by environment), including the Protocol on analysis shall enable the provision of incorporating the aspect of environmental Strategic Environmental Assessment, recommendations for adopting or rejecting protection and preservation of resources and constitute European legal basis for the certain planning solutions which are not in heritage in planning concepts and solutions. implementation of sustainable development accordance with the goals of environmental This primarily relates to concepts and solutions and planning ideas. The above documents protection, immovable cultural goods, health pertaining to: prevention of degradation of constituted the basis for defining the set of and quality of life of the population. natural resources and assets and irrational use environmental protection laws in the Republic of Serbia that included the environmental The role of the strategic environmental of space (especially high-mountain areas of assessment is primarily to create a cause-and- Stare Planine and Krajište, littoral of the protection component in the planning and decision making processes. effect connection between protecting the Danube and water accumulation basins); air environment and planning development, protection, recultivation and revitalisation of Accordingly, the process of spatial planning is regulation and construction in a given space, soil in areas for exploitation of minerals drifting further from the previously by way of determining measures to neutralise (particularly in Bor and Majdanpek); protection implemented determinative towards the impacts certain activities and interventions on of agricultural and forest land from building not participative principle, given that strategic location might cause. Owing to this, strategic included in spatial plans in valleys and border environmental impact assessment ideas environmental assessment must have clear and urban zones and infrastructure corridors, etc. introduced new methodological realistic goals and indicators based on which it The effects of planned conceptions and recommendations, bringing substantial shall adequately assess variants of planning solutions were evaluated in the process of changes to previous decision making options and solutions. strategic environmental impact assessment of processes (Healey, 1997). regional spatial plans. Apart from this, representatives of all Strategic environmental assessment is an stakeholders take part in the decision-making Proportionality in planning statements has environmental planning tool that possesses a and strategic environmental assessment been achieved successfully. The only planned controlling, coordinating and integrative role in processes in the countries of the European solutions, principles, regimes and protective the planning process. Strategic environmental Union (i.e. local government, citizens, private measures with direct/binding effect are those impact assessment is a process that integrates and non-profit sectors). This provides the that impacted more balanced regional objectives and principles of sustainable planning process with a participative development, protection and sustainable use of development in spatial and sectoral planning dimension which also contributes to improving sensitive areas and areas with critical natural (of transport, energy, water power, agriculture, the quality of the planning solutions, capital, development of regional and forestry, tourism, etc.). The importance of strengthening environmental and social subregional infrastructure systems, strategic environmental assessment is dimensions of planning, and confirms the development of industrial zones, tourist reflected in the following aspects: legitimacy of planning decisions (Bedford, complexes, etc. Statements included in Clark, Harrison, 2002). remaining planned solutions and proposals • preventive role due to involvement with have streamlining capacity on the level of causes of environmental problems at the According to local practice, public scrutiny is deliberations, regulations, criteria and source, i.e. on the strategic level of mandatory concerning all affairs pertaining to recommendations, and are thus open/flexible planning – plans, strategies, policies, strategic environmental assessment - i.e. to be harmonised with developmental programs and respective projects; informing the public and its participation in the requirements, changes and innovations. • processing of issues and impacts of strategic environmental assessment report. wider significance that can not be Such responsibility and practice should be assessed at the level of respective projects introduced for strategic sectoral documents, – synergy, cummulative and social effects; both with an aim to inform and include the public, and reduce manipulation in passing • enabling assessment and evaluation of sectoral planning decisions. As this is a impacts, risks and consequences of minimalist approach to exercising citizens’ various alternative and varying fundamental rights, it should be set as widely environmental development options; as possible; also, the participative approach

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has to be developed in our system and managing sustainable territorial and regional , concepts and solutions based planning practices. development in Serbia. exclusively on the sectoral approach cannot be incorporated in planning concepts and Establishing spatial planning coordination with This will be illustrated by the example of solutions based on the integrated approach. environmental planning tools is a planning implementing strategic environmental Although strategies and master plans challenge in Serbia. Although assessment on spatial and, indirectly, sectoral pertaining to tourism development do not recommendations for developing strategic planning of the macro-regional tourist areas in require strategic environmental assessment, its environmental assessment are a legal Serbia. implementation in spatial plans may contribute requirement (Law on Strategic Environmental The overall conclusion can be that the sectoral to striking a balance between sectoral and Assessment, Official Gazette of the Republic of approach is predominant in the new generation sustainable development. Serbia No 135/04), a common methodology of sectoral tourism plans – strategies and for development of such studies has not been The role of strategic environmental assessment master plans. This is discrepant with the officially established. Owing to this, problems can be explained on the example of spatial and Tourist Organisation guidelines that emphasise occur pertaining to the implementation of sectoral plans for the Stara Planina tourist the importance of harmonising sectoral multiple criteria analyses, drawing results and region and nature park. planning in tourism with spatial planning and defining recommendations based on strategic benefits of early inclusion of tourism in the The Report on Strategic Environmental assessment. In that respect, some authors process of spatial planning – identification of environmental Assessment of the Spatial Plan (Stojanović, Maričić, 2008) provided most suitable areas for sustainable for Stara Planina Tourist Region and Nature methodology guidelines for the development of development of tourism, prevention of any Park (in further text: SEA Report) concludes strategic environmental impact assessment negative impacts of tourism on the that significant positive effects of the studies that currently - notwithstanding their environment and negative impacts of the implementation of Stara Planina Spatial Plan usefulness - do not have legal force. environment on tourism (UN WTO, UNEP, will be particularly effective in the following: Although the spatial planning practice in Serbia 2005). protection and improvement of the condition of has in the previous five years included the nature and environment; preservation, Collision between environmental and sectoral responsibility to develop strategic presentation and adequate utilisation of natural interests in tourism development strategies and environmental impact assessment as an and cultural heritage; overall economic effects master plans will increase with the integral part of spatial and general plans (in and balanced improvement of the employment implementation of the new Law on Tourism, accordance with the Law on Strategic rate in the local population (in the domain of due to the legal obligation to include sectoral Environmental Assessment and the Law on tourism, agriculture and other complementary plans in spatial plans. Planning and Construction), such documents activities); improvement and protection of are most commonly declarative due to the In these conditions, the implementation of and creation of conditions for rest insufficient systematisation and coordination of strategic environmental assessment represents and recreation. It was concluded that according laws, since strategic environmental the only control mechanism that enables to the concept for dispersed development and assessment is undertaken after the coordination of sector-oriented strategies and construction, implemented in the major part of development of strategies/concepts for master plans pertaining to the tourism the territory covered by Stara Planina Spatial development, protection and regulation of development with spatial and environmental Plan (approximately 88% of the territory), none planning area. Therefore, verification of planning. The control role of the strategic of the planning solutions will generate planning solutions is undertaken after defining environmental assessment of sectoral substantial long-term negative environmental them, and is occasionally reduced to a mere strategies and plans is implemented through impact that cannot be controlled. confirmation of already adopted solutions, identifying negative spatial, environmental and Due to existing Master Plan solutions for the without detailed analysis of the impact. social effects that may cause their uncriticised Tourist Resort of Jabučko Ravnište-Leskova, incorporation in spatial and urban plans. The Notwithstanding the above issues, the there was a doubling in accommodation coordinating role of strategic assessment integration of the strategic environmental capacities in the mountain zone and in the sub- relates to reducing or neutralising negative assessment into spatial and urban plans in mountain zone. This brought the impacts of sectoral and spatial planning and Serbia gets good results in evaluating different accommodation capacity of the tourist region coordinating planning decisions to achieve territorial development solutions and of Stara Planina near the maximum capacity for sustainable territorial development. contributing to the improvement of quality of all skiing tracks. SEA Report concludes that a life and the environment. After the adoption of tourism development concept of concentrated building was master plans for the priority tourist areas in implemented on a minor portion of the territory Non-implementation of legal requirements Serbia, a significant problem occurred in covered by Stara Planina Spatial plan pertaining to the development of strategic developing spatial plans for areas of special (approximately 12% of the territory) in the environmental assessments for sectoral plans use and regional spatial plans. The problem tourist resort of Jabučko Ravnište, resulting in represents a limitation in the implementation of relates to the obligation (which has in the negative long-term impacts on the nature and coordinating and integrative roles of strategic meantime evolved into a legal requirement) for environment, particularly in the domain of impact assessments in our planning system. the planning concepts and solutions from water supply, waste water treatment, incoming Simultaneously this jeopardises the realisation sectoral documents to be incorporated directly and internal traffic, solid waste management, of the integrative role played by spatial and into spatial plans. Without previous verification electric energy supply and accommodation of environmental planning in guiding and and achieving spatial and environmental employees, quality of life in adjacent local

50 spatium Maksin-Mićić, M. et al.: Spatial and environmental planning of sustainable regional development in Serbia

sectoral planning, as well as in relation to the shift from determinative to participative planning. Reforms to the systems of spatial, environmental and sectoral planning in Serbia undertaken so far do not enable it to be harmonised with the EU approach, policies, concepts and principles of planning and managing sustainable and competitive territorial development. Processes pertaining to the development and implementation of the planning framework in Serbia are insufficient for guiding and managing sustainable territorial and regional development in Serbia, as well as its approximation to the European Union. What is also important for the reform of the planning system, including spatial planning, is an adequate reform of the legal framework, planning processes, planning tools and support to the implementation of planned decisions. The principal precondition for the reform of the planning system and improvement of spatial planning is the reform of corresponding legal Image 2. Coordination of spatial planning and strategic environmental assessment basis that should ensure the following: communities (due to heterogeneous allocation The above example also indicated the necessity to • implementation of integrated strategic of jobs, predominant employment of integrate strategic impact assessments into the territorial approach to planning and employees from the vicinity, etc.) that are more planning process – from preparation to management of sustainable development; difficult to control than would be the case with implementation, monitoring and auditing of the concept of dispersed development that planning documentation. A proposal for the • establishing mechanisms for horizontal would be more suitable for the protected area integration of strategic environmental impact and vertical cooperation and coordination of Stara Planina. assessment into the spatial planning process can between sectors and administration levels, be seen on Image 2. as well as responsibilities of all Strategic environmental assessment provided stakeholders in the assessment of recommendations to reduce established environmental and territorial impact of CONCLUSION capacities in Jabučko Ravnište to a level that planned development to achieve the will not endanger the environment, and defined Notwithstanding the insufficiently developed controlling and integration role of spatial measures to reduce and neutralise the negative regional spatial planning in Serbia, and environmental planning; impact brought on by the implementation of implementation of the basic EU territorial • increased participation of stakeholders planned solutions. By introducing strategic development concepts related to this level of and transparency of decision-making environmental assessment instruments in the planning does exist – concepts of balanced processes in all forms of planning, and resolution of planning conflicts, a certain level polycentric development and establishment of especially sectoral planning; of compromise was achieved to reduce the functional urban areas; developing the network concept of sectoral plan, limit planned of transport corridors, technical infrastructure • increased flexibility of the planning development and its negative impact on the and decentralisation services of public interest; process and planning instruments, etc. most vulnerable area of the Natural Park, at preservation and use of natural resources, In terms of implementing the strategic least in the initial phase of developing the improvements in environmental structures and environmental assessment role, harmonisation tourist resort. cultural resources, etc. The strategic of sectoral legal basis with the set of On the basis of the above example we can environmental assessment applies exclusively environmental protection laws is sufficient for conclude that collision between sectoral interests to spatial and urban plans, but it is the implementation of legal requirements and sustainable territorial development can be insufficiently integrated into the planning related to implement above assessment to the prevented by stricter implementation of the legal process. Local practices partial implement sectoral planning framework. fundamental principles of the new EU spatial requirement to develop a strategic impact The precondition to ensure participativeness of planning concepts. Most problems are assessment for sectoral plans and programs, spatial and other forms of planning is training encountered in realising the roles of control, which would help achieve sustainability of and enabling professional planners and coordination and integration for spatial and sectoral planning concepts and solutions. personnel at all levels of administration; environmental planning within the framework of

spatium 51 Maksin-Mićić, M. et al.: Spatial and environmental planning of sustainable regional development in Serbia

informing, motivating and including the Prostorni plan područja Parka prirode i turističke citizens and other stakeholders in the process regije Stara planina (PPSP) (2008), "Službeni of decision-making and implementation of glasnik RS", br. 115/08 planned decisions. Regionalni prostorni plan opština Južnog pomoravlja (RPPJP), Strategija – Koncept Reform of the planning system should be prostornog plana (2009), Institut za focused in the upcoming period on arhitekturu i urbanizam Srbije development, coordination and integration of Regionalni prostorni plana Timočke krajine spatial and environmental planning with (RPPTK), Strategija – Koncept prostornog regional and sectoral planning to achieve plana (2009), Institut za arhitekturu i management and guidance of sustainable urbanizam Srbije development of planning regions (functional urban areas in Serbia) at NUTS II and III levels. Stojanović, B., Maričić, T. (2008), Metodologija strateške procene uticaja prostornog plana rudarsko-energetskog kompleksa na životnu REFERENCES sredinu, Institut za arhitekturu i urbanizam Adams, N., Alde, J., Harris N (2006), Regional Srbije, Beograd. str. 4-76 Development and Spatial Planning in Enlarged Territorial Agenda of the European Union. European Union, Urban and Regional Planning Towards a More Competitive and Sustainable and Development Series, Aschgate Publishing Europe of Diverse Regions (2007), Agreed on Ltd, pp. 3-16 the occasion of the Informal Ministerial Alden, J. (2006) Regional Development and Meeting on Urban Developmen and Territorial Spatial Planning, In: Regional Development and Cohesion in Leipzig Spatial Planning in Enlarged European Union, Tošić, D., Maksin-Mićić, M. (2009), Urban and Regional Planning and Development Funkcionalno-urbani region kao instrument Series, Aschgate Publishing Ltd, pp. 17-41 uravnoteženog razvoja Srbije, U: Regionalni Bedford, T., Clark, J., Harrison, C. (2002), Limits razvoj, prostorno planiranje i strateško to new public participation practices in local upravljanje, Institut za arhitekturu i urbanizam land use planning, Town Planning Review, Srbije, Beograd No3/73, Liverpool University press, Liverpool United nations Economic Commission for Europe, European spatial development perspective. UNECE (2008), Spatial Planning. Key Towards balanced and Sustainable Instrument for Development and Effective Development of the Territory of the EU Governance with Spatial Reference to (1999), Committee on Spatial Development Countries in Transition, Geneve EU, Potsdam UNWTO, UNEP, 2005, Making Tourism More European Commission (2007), Growing Regions, Sustainable – A Guide for Policy Makers, growing Europe, Fourth Report on Economic Madrid and Social Cohesion Vujošević, M. (2008), Tri nova evropska European Commision (2006), A European Union dokumenta u oblasti održivog razvoja i njihov Strategy for Sustainable Development, značaj za budući razvoj Srbije, U: M. Vujošević, ec.europa.eu/sustainable M. Filipović (red.) Nova generacija evropskih dokumenata održivog razvoja i pouke za Srbiju, Healey, P. (1997), Collaborative planning, Institut za arhitekturu i urbanizam Srbije, Macmillian press, London, p.p. 5-21 Beograd, str. 213-256 Krunić N., Tosić D., Milijić S, (2008), Problems

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