Osservatorio dell'agribusiness VINCENZO TODARO Agribusiness Paesaggio & Ambiente -- Vol. XVI - n. 2, Marzo 2013

The Participation of Local Communities to the Landscape Planning: a Controversial Path in

The Participation of Local Communities to the Landscape Planning: a Controversial Path in Sicily.The European Landscape Convention (Florence, 2000) foresees the integration of landscape into town planning policies and spatial planning (Art.5.d). However, landscape protection instruments (landscape plans), that are active today in many European countries, particularly in ), almost always take sectorial value, hierarchically prevailing to other planning tools and evading the democratic process of sharing with local communities. In relation to these considerations, the present paper focuses on the results of a critical reading of an experience of landscape planning in Sicily: the Landscape Plan of the Specific Area 8 in the ’s province. In this area the local community, organized in a network, in relation to the critical aspects of the landscape plan was opposed to the rigid logic of the planning process, through the “construction” of a participative process of review of the plan before its approval. Keywords: landscape planning, participation, local communities

The European Land- the landscape, where the natural and cultural scape Convention elements should be considered simultaneously. (signed in 2000 by In order to protect the landscape, the 15 European coun- Convention introduces policies aimed to favour, tries) (Council of management and planning of landscapes (Art. Europe, 2000) 5.b). Thus, the Convention establishes: defines the land- 1. «To start public participation procedures, scape, from a local and regional authorities and other parties cultural point of in the definition and the implementation of view, as «a specific the landscape policies» (Art.5.c); VINCENZO TODARO part of the territory, 2. «To integrate the landscape into the territory, so as perceived by people, whose character is urban, cultural, environmental, agricultural, derived from the action of natural and/or social and economic planning policies» human factors and their interrelations» (Art.5.d); (Art.1.a). 3. «To assess the identified landscapes, taking This definition takes into account the idea into account the specific values which are that landscapes evolve over time, due to the attributed to them by the populations and effect of natural forces and human action, and parties concerned» (Art.6.c). at the same time highlights the holistic view of Considering that the activities of the public

Department of Architecture, University of , Italy, E-mail: [email protected]

150 The Participation of Local Communities to the Landscape Planning: a Controversial Path in Sicily authorities, in relation to the landscape, cannot However, after a beginning marked by the be limited to the elaboration and application utmost clarity, it should be noted that of rigid and not shared protective tools, paragraphs 5, 6, 10 and 12 of Art. 143 of the exclusive privilege of skilled technicians, the Code show a certain ambiguity on the principle landscape has to become a matter of public of “inter-institutional cooperation” in the interest, as it significantly contributes to the formation of the landscape plan that leaves no well-being of the local communities, which are great margins for dialogue amongst the no longer willing to passively accept the different institutions that work to varying decisions taken at a high level (Clementi, 2002; degrees on the territory and the landscape. Stoeglehner & Schmid, 2007; Spigler et al., Furthermore, although the Art. 144 foresees 2008; Dejeant-Pons, 2009; Zoppi & Lai 2010; both the “institutional concertation” and «the Hernik et al., 2013). The landscape is a matter participation of involved parties and the that affects everyone and thus, it must be associations formed for the expansion of treated in a “democratic” way, starting at the common interests», however it is foreseen local level (Prieur, 2006; Priore, 2009). within the framework of the «procedures for Therefore, the recognition of an active role approval of the landscape plans», namely then of the local communities in the decisions which towards the end of the planning process and affect their own landscape, can offer them an not in the processing of the plan. opportunity to better identify with the Observing the ongoing planning experiences territories in which they live. If it strengthens especially in the last decade in Sicily, the this relationship, they will be able to consoli- situation is worse in relation to the fact that date both their identities and the local and the agreement with the other local actors and regional differences, and to be fulfilled from a interested people is in most cases yet to be done personal, social and cultural point of view. or just started. This lack or weakness of In Italy the contents of the Convention have comparison with local the communities is a been adopted under the regulatory profile by confirmation that in the ongoing experiences, the Code of the Cultural Heritage and Landscape a technocratic spirit is openly prevailed in the (Legislative Decree No. 42/04) which reco- planning process (Costantino, 2009). gnizes that the landscape plays a central role Relating to these considerations, this in the formation of individual and social well- contribution deals with the subject of the being, reaffirming the need of its safeguard, critical review of the elaboration and approval management and planning (Montini & Orlan- process of landscape plans in Sicily, focusing do, 2006). its own attention on the experience led with The Art.135 of the Code provides that the the specific area Landscape Plan 8 of the pro- State and the regions guarantee the knowledge, vince of Messina. safeguard, planning and management of the In relation to such plan, an informal territory for the different values expressed by interacting path has been activated with the different contexts which constitute it; for this local communities which have produced a purpose, the State and the regions must submit system of remarks on the Plan forecasts. Such the territory to specific legislation by landscape a path, not foreseen by the laws in force, joined plans, or rather urban-territorial plans with the active participation of the “Nebrodi, Open specific consideration of landscape values. City” Municipalities’ Network and, for the The landscape plan takes a «descriptive, relevance of the submitted remarks, led to the prescriptive and purposeful content» suspension and subsequent revision of the (Art.143.3) and, on the basis of the recognition Landscape Plan1. of the peculiar characters and aspects of the territory and of its landscape features, divided the latter into specific landscape area plans (Art. 135).

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1. The complex issue of the 1. Ecological stabilization of the environmental landscape planning in Sicily context, soil and bio-diversity safeguard; 2. Enhancement of identity and peculiarities In relation to the landscape plan process, the of a specific landscape; Sicilian Region as a special-status region has 3. Improving the fruition of the environmental exclusive competence in the field of landscape2. heritage. In the early 1990s, the Sicilian region, in order The landscape plans also contain the to protect the integrity of the regional provisions (constraints, limitations, etc.), landscape, already heavily compromised by the particularly contained in the regulative norms heavy settlement growth, which in the past addressed to: thirty years has devastated much of the regional 1. To preserve the features of the safeguard territory (particularly the coastal areas), has assets, taking also into account the started the elaboration of the Regional architectural types and materials of Landscape Plan. construction. This Plan is divided into two distinct levels, 2. To identify urban and building development but closely linked: guidelines which do not diminish the value and 1) Regional level of the Guidelines for the merit of a particular landscape. Regional Landscape Plan (Decree No. 6080 of 3. To safeguard the sites which are included in 1999), address document developed on the list of the world UNESCO heritage; thematic maps in 1: 250,000 scale affecting all 4. To safeguard the agricultural areas. the regional territory and defining the general 5. To recovery and re-qualify buildings and areas guidelines for the safeguard of the Sicilian to reintegrate the pre-existing values landscape. 6. To “build” new “coherent and integrated” 2) Sub-regional level of the specific area landscape values. landscape plans whose elaboration ended at 7. To find other actions of the landscape the end of 2008. This level comprises 18 enhancement, even in accordance with the Specific Area Landscape Plans identified in the principles of sustainable development. Guidelines. The specific landscape area plans However, in relation to the completed are based on in depth analysis of the landscape, planning experiences, we may encounter some natural, cultural and environmental resources, problems in the process of elaboration of the socio-cultural, economic and environmental, specific area landscape plans. dynamics, at different scales (1:50,000, In fact, in relation to the Guidelines for the 1:25,000 and 1:10,000), and deal with specific Regional Landscape Plan of 1999, it has been contents for the protection, enhancement and activated a special office (Office of the Plan) restoration of the landscape. Merging the which has made possible to ensure a unified individual specific landscape area plans, we vision of the starting process of the Regional would have to reassemble the overall regional Landscape Plan. framework and get in this way a single Regional The same Office should have to elaborate Landscape Plan. the specific area landscape plans. However, for Specifically, the objectives of these Specific the sub-regional level, in order to use some Area Landscape Plans are: residual funds of the Sicilian Regional

1) He who writes, he has coordi- Participation to the process of special forms of autonomy. The nated the work of the Technical formation of the 8 Specific Area special-status regions are Sicily, Table for the remarks to the 8 Landscape Plan”. Sardinia, Aosta Valley, Trentino-Alto Specific Area Landscape Plan of the 2) In Italy special-status regions are Adige/Südtirol and Friuli-Venezia and drew up those which have exclusive com- Giulia. the “Document for the “Nebrodi, petence in specific subjects (such as Open City” Municipalities’ Network the safeguard of the landscape) and

152 The Participation of Local Communities to the Landscape Planning: a Controversial Path in Sicily

Programme 2000-2006 which imposed a in the mountains and is one of the largest decentralization of expenditure in the territory, protected areas in Sicily. the drafting of the specific area landscape plans The Nebrodi Mountains fall within the has been entrusted to the nine Superintendence categories of landscape heritage as defined in (decentralized territorial organs of the Region, chapter II of the Code of the Cultural Heritage which are in nine Sicilian provinces). In this and Landscape. Particularly, it deals with way, besides the expenditure, the unitary «properties that have substantial natural beauty planning action initially started with the features» (Art. 136.1.a), of the «scenic beauties Guidelines has also been decentralized. The regarded as paintings as well as those points Superintendence have just started the process of view or public accessible belvedere from of elaboration of the specific area landscape which we enjoy the scenery of those beauties» plans referring to their competence territories (Art.136.1.d), and the “protected areas by law” in a not homogeneous way, concerning the scale (Art.142). Particularly, the territory of the of representation, methodology, analytical and Nebrodi Mountains falls within the 8 special design contents. In fact, in the drafting of these area Landscape Plan, one of the 18 areas plans, it has been found a weak technical co- identified by the Guidelines of the Regional ordination between Office of the Plan and Landscape Plan for the elaboration of the Superintendence. In the absence of such landscape plans. The Plan, which was drawn coordination, the drafting of the specific up in accordance with the Art.135.2, «defines landscape area plans has lost unity of contents (...) the interventions compatible with the and method (Costantino, 2009). landscape values, the recovery actions, and Finally, other critical aspects of the landscape properties redevelopment and the areas area plans concern the excessive flattening on subjected to the protection and enhancement the binding dimension and the weakness of the of the landscape, even in relation to the planning component, as well as the weakness prospects of sustainable development». or lack of the agreement with local actors and The Sicilian Region is currently undertaken interested people which in most cases has been in the final stage of the drafting of these just started. This lack or weakness of landscape plans. In particular, the area of the comparison with local communities is the Nebrodi Mountains (8 Specific Area further confirmation, that in the experience of Landscape Plan)3 the landscape plan has been the specific landscape area plans, is evidently drafted by the Superintendence of Messina, a prevailed the technocratic spirit referred to the decentralized body of the Region, responsible bureaucratic fulfillment of a duty, rather than for the drawing up of the plans. The process of the spirit of sharing aimed to an effective action the Plan approval foresees a phase of of the landscape protection. “institutional concertation” towards the end of the plan elaboration which only formally allows 2. The 8 Specific Area Landscape to the local communities to exchange views about the forecasts of a predefined and drawn Plan (Messina) and the “Nebrodi, up plan. This does not allow to the local Open City” Municipalities’ communities to intervene personally in the Network elaboration of the Plan. The path of “institutional concertation” The Nebrodi Mountains are a mountain range started by the Superintendence of Messina is which runs along the north east of Sicily. They divided into several regional meetings from arrange the Sicilian Apennines with the February to December 2012. Madonie and the . Since 1993, large During these meetings, the local areas of the Nebrodi Mountains have been communities, have long been held in the established as Regional Park. The park covers “Nebrodi, Open City” Municipalities’ 856.87 km2. It runs along many municipalities Network4 and have decided to redefine their

153 Osservatorio dell'agribusiness VINCENZO TODARO role in the revised landscape plan because of 8 of the landscape Plan, the partecipative the serious inconsistencies and weaknesses process for the critical review of the Plan has found in the requirements of the plan5. been aimed at a more consistent and effective The “Nebrodi, Open City” Municipalities’ action to enhance the landscape, through the Network within its institutive Convention definition of shared objectives and strategic (2010) therefore recognizes the active role of actions share in terms of recognition and local communities in the outline of territorial enhancement of the landscape of the Nebrodi development strategies in relation to the Mountains. Therefore, the activated objectives of protection and preservation of the partecipative process has been directed to environment and landscape (Art. 1 «to provide a concrete substance and constructive harmonize the activities of landscape response to the principle of the “institutional protection with the urbanization and manage- concertation” (Art. 144 of the Code of the ment of the territory»). Cultural Heritage and Landscape, Legislative To this end, the Network has set up a Decree No. 42/04), through the direct “partecipative process” for the involvement of involvement of local communities for the the local communities in the elaboration of the effective application of the principles of Landscape Plan. Within such a path, a cooperation, subsidiarity, appropriateness and Technical Table has been formally established differentiation, often simply stated. for the Remarks to the Landscape Plan and Such a path led to the construction of an drafted a document of the Municipalities of interpretative framework of remarks submitted the “Nebrodi, Open City” Network to by the municipalities of the “Nebrodi, Open participation to the process of formation of the City” Network, delivered and discussed with 8 Specific Area Landscape Plan. This document the Superintendence of Messina and the led to the suspension and subsequent revision Sicilian Region. of the Plan because of the significance of the Regarding this, we have indeed detected undertaken remarks. obvious contrasts between the levels of protection foreseen by the Plan (protection levels 1, 2 and 3)1 and the needs of socio- 3. Purposes and objectives of economic development of the territory, the “partecipative process” previously planned by the provincial, territorial planning, the planning of the Referring to the above mentioned premises, Nebrodi Park and the municipal urban compared to the contents of the specific area planning; but also contrasts with the physical

3) The 8 Specific Area Landscape Sinagra, , , Tusa, Fitalia, San Teodoro, Sant’Agata di Plan affected by the landscape plan . Militello, Sant’Angelo di , San- includes the following municipa- 4) The “Nebrodi, Open City” ta Domenica Vittoria, Santo Stefa- lities: , , Network includes the following no di Camastra, Sinagra, Torrenova, , Capo d’Orlando, Capri Le- Municipalities: Acquedolci, Alcara Tortorici, Troina, Tusa, Ucria. one, , , Li Fusi, Brolo, Capizzi, Capo d’Or- 5) The Network has already started Castell’Umberto, Cesarò, Floresta, lando, , Caronia, Castel before projects and initiatives that Frazzanò, , , di Lucio, Castell’Umberto, Cerami, take adequately into consideration the , Mirto, Mistret- Cesarò, , Floresta, Frazzanò, landscape safeguard of Nebrodi ta, Motta d’Affermo, Naso, Pet- Galati Mamertino, , Mountains, giving identity value. tineo, , , San Fratel- Longi, Maniace, Militello Rosmari- These measures have been introduced lo, San Marco d’Alunzio, San Salva- no, Mirto, , Motta d’Affer- in the 2007 Strategic Plan. tore di Fitalia, San Teodoro, Santa mo, Naso, , , 6) The landscape Plan includes 3 Domenica Vittoria, Sant’Agata di Raccuja, Reitano, , San levels of safeguard with different Militello, Santo Stefano di Camastra, Marco d’Alunzio, San Salvatore di intensity of restriction, from the

154 The Participation of Local Communities to the Landscape Planning: a Controversial Path in Sicily features of the places and their “image” shared participation of a large number of municipalities by the local communities. which have submitted several technical forms The methodological path is largely divided dealing with the plan remarks. The remarks into the following activities: contained in the technical forms are the 1. Coordination among the local institutions outcome of a comparison enabled within the within the Territorial Council (Board) of the individual municipalities, amongst the “Nebrodi, Open City” Network. administrators, municipal technicians and the 2. Structuring of a technical form for the community of citizens and residents. The identification of the Landscape Plan remarks. technical forms submitted by the municipalities 3. Technical support for the local authorities of the “Nebrodi, Open City” Network are in order to drift the technical form. represented synthetically in Table 1. 4. Evaluation and selection of the remarks. In relation to the exhibited technical forms, 5. Cataloguing and systematization of the the highlights remarks have been divided remarks. according to the following categories: 6. Preparation of the summary document. A. Remarks related to material or interpretative 7. Examination and adoption of the document errors by the Territorial Council of the Network. It is a type of evaluation largely related to the 1 8. An open meeting with the officials and lack of basic cartographic update used by the 2 technicians of the Sicilian Region and the Plan. This type of evaluation is structured as 3 4 Superintendence of Messina (December 2012). follows: 5 The technical form for the plan remarks has A. 1 Placing of symbols in an area which does 6 been designed as a descriptive tool which, in a not correspond to the actual location of the 7 simple and communicative way, allowed to the asset. 8 9 individual Institutions to identify immediately A. 2 Placing of the level of protection in an 10 and adequately motivate the remarks for the Plan. asset which is not subjected to protection. 11 It was addressed to the active involvement of A. 3 Not-represented assets. 12 the Local Authorities, which, in this way, could B. Remarks relating to inconsistencies with the 13 effectively talk with the authors of the Plan and existing planning tools 14 15 join directly in the construction of the landscape It is a widespread presence of protective 16 quality of their living environments, identifying layers on areas already targeted to specific 17 forms of degradation, proposing safeguard and functions (not just the areas A and B) by the 18 protection actions, integrated to actions for existing planning tools. 19 20 sustainable development. The technical form C. Remarks relating to inconsistencies with 21 deals with all the useful information for the other plans and ongoing programs 22 localization of the remarked areas and the It is about the presence of protective levels on 23 identification of the causes that drive to it. areas addressed to specific functions by other 24 planning and scheduling tools of supra- 25 26 4. Remarks to the Landscape municipal level too. 27 D. Remarks relating to the boundary 28 Plan delimitation of the old town centers 29 This is the boundary delimitation of old 30 31 The activated partecipative process enabled town centers covering more extensive areas 32 for the revision of the 8 specific Landscape area than those which have the feature and nature 33 Plan of the province of Messina has drawn the of the old town centre, and which also includes smallest one (level 1), which be authorized by the allowed any territory/landscape however provides that the territory/ Superintendence, to the strictest transformation. landscape transformations have to one (level 3) in which has not

155 Osservatorio dell'agribusiness VINCENZO TODARO urban networks of recent construction and 5. Conclusions large portions of suburban territory. The remarks contained in the final In relation to the formal and substantial Document delivered to the Sicilian Region are contents of the Landscape Plan, the remarks the result of a further level of verification carried submitted have helped to define broad and/or out in terms of comparison, on the one hand, methodological issues that have led to a deep with the reality of the territory and, on the other questioning of the Plan. This led to its hand, with the legislation and the existing suspension (the Plan should be approved planning and scheduling tools in the concerning definitively by 2012) due to the necessary territorial context. assessment of the submitted remarks. The “partecipative process” started by the “Nebrodi, Open City” Municipalities’ Network outlined a possible innovative approach in the Number of shared building process of the territorial Municipality Techn ic al protection and landscape petitions in a Forms 1 Acq uedolci 12 territorial text generally far apart compared to 2 Alcara Li Fusi 10 participation in planning processes. The aim 3 Capizzi 10 was not to refuse the prescriptions of the 4 Capo d 'Orlando 3 Landscape Plan, but rather to help, in the form 5 Capri Leone 2 of a real agreement, its definition in a way as 6 Caronia 19 much coherent as possible, with the idea of 7 Castel di Lucio landscape where the local communities 8 Castell'Umberto 2 (through not only planning tools) are holders, 9 Cesarò 10 Floresta building together, while respecting their 11 Fra zz anò respective competences, the most appropriate 12 Galati Mamertino 10 protection model. 13 Longi 14 Following the approval of the Plan, it will 14 Militello Rosmarino 6 15 Mirto 1 get a more effective implementation of its 16 Mistretta 1 forecasts, with the support not only of the Local 17 Motta d'Affermo 1 Authorities, but of the whole community of the 18 Naso 6 Nebrodi, which can share the reasons, effects 19 Pettineo 4 and benefits. 20 Raccuja 3 21 Reit ano 2 In fact, helping to define and sharing the 22 San Fratello 4 protection levels, the local communities 23 San Marco d'Alunzio 1 personally undertake to preserve this 24 landscape. 25 San Teodoro 26 1 In this way the Landscape Plan can become 27 Sant'Agata di Militello 10 part of a unitary planning process through 28 Santo Stefano di Camastra 12 collaborative relationships and understandings 29 Sina gra 8 between Local Authorities and local 30 Torrenova 4 communities, allowing and bringing in a single 31 Tortorici 11 32 Tusa 1 framework, the multiplicity of tools which rule 33 Ucria 2 different, often overlapping and controversial Source: Elaboration of the Autor on November, 2012 interests. Tab.1 Through this partecipative process, it was Overall synoptic overview of the evaluation meant, therefore, to contribute to the definition technical forms of the Landscape Plan of a well structured Landscape Plan around presented by the municipalities of “Nebrodi, high levels of sustainability, to integrate Open City” Network territorial and socio-economic development

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