G-FORS Project Country Case Study: Italy – WP 8 Milan Polytechnic Dipartimento di architettura e pianificazione The Italian team: Alessandro Balducci (project director) Claudio Calvaresi Valeria Fedeli Carolina Pacchi Elena Valsecchi Davide Zanoni March 2008 Introduction ................................................................................................................................ 4 Part I - Case study on SEA.Province of Milan Master Plan, 2003-2007................................... 5 I. The legal and institutional setting in the member state for the selected case studies............. 6 1. Strategic Environmental Assessment..................................................................................... 8 II. Case study on SEA .............................................................................................................. 10 1. Context and Conditions........................................................................................................ 10 2. The Action Arena................................................................................................................. 12 2.1 Involved Actors: Holders – their resources and roles .................................................... 12 2.2 Absent Actors................................................................................................................. 13 2.3 Observed modes of interaction....................................................................................... 14 3. Identifying case specific governance arrangements............................................................. 20 3.1 Governance modes/Governance arrangements .............................................................. 20 3.2 Rules in governance arrangement/ Institutional Context ............................................... 23 3.3 Changes .......................................................................................................................... 23 4. Identifying case specific KnowledgeScapes ........................................................................ 24 4.1 Dominant Knowledge Forms: content/claims of Knowledge forms.............................. 24 4.2 Knowledge holders............................................................................................................. 24 4.3 Social/Spatial distribution of Knowledge ...................................................................... 26 4.4 Excluded/Silent Knowledge forms................................................................................. 26 4.5 Relevance of reflective knowledge ................................................................................ 27 5. Identification of interfaces/interaction between Knowledge and Governance Arrangements .................................................................................................................................................. 27 5.1 Synergies/contradiction between Governance arrangements and knowledge forms..... 27 5.2 Relationship between Modes of interaction and knowledge forms ............................... 27 5.3 Relationship between governance arrangements, knowledge forms and learning Processes .............................................................................................................................. 28 6. Identifying “Governance for Sustainability” ....................................................................... 29 6.1 Assessing Sustainable Development in the selected case .............................................. 29 6.2 Assessing the Legitimacy of Policy-Making in the selected case.................................. 31 6.3 Synergies/Contradictions between governance arrangements and knowledge forms on the one side and sustainability and legitimate policy-making on the other side.................. 33 Attachment ............................................................................................................................... 35 Part II - Case study on particulate matter Milan Urban Region………………………………38 0. The legal and institutional setting in the member state for the selected case studies .......... 39 0.1 Regulatory Framework................................................................................................... 39 1. Context and Conditions........................................................................................................ 41 1.1 Context and conditions: Two Storylines for a ‘special untreatable context’? ............... 42 1.2. Case history, Rules, regulation, themes and problems.................................................. 47 1.3 Role of media ................................................................................................................. 61 2: The Action Arena................................................................................................................. 64 2.1 Involved Actors: Holders - their Resources and Roles and modes of interaction......... 64 2.2 Absent Actors ................................................................................................................ 72 2.3 Observed Modes of Interaction ..................................................................................... 74 2.4 Discourses...................................................................................................................... 74 3. Identifying case specific governance arrangements............................................................. 77 3.1 Rules in use/institutional context .................................................................................. 77 3.2 Governance Modes/ Governance Arrangements........................................................... 78 2 3.3 Changes ......................................................................................................................... 80 4. Identifying the case specific knowledgescapes.................................................................... 82 4.1 Dominant Knowledge Forms: Content/Claims of Knowledge Forms .......................... 82 4.2 Knowledge Holders ....................................................................................................... 87 4.3 Social/Spatial Distribution of Knowledge..................................................................... 87 4.4 Excluded/Silent Knowledge Forms............................................................................... 89 4.5 Relevance of Reflective Knowledge ............................................................................. 90 4.6 Synergies/ Contradictions between Knowledge Forms................................................. 91 4.7 Silent Knowledge/Knowledge deficits.......................................................................... 92 4.8 Changes in Knowledge Formations............................................................................... 93 5. Identification of Interfaces/Interaction between Knowledge and Governance Arrangements .................................................................................................................................................. 94 5.1 Synergies/ Contradictions between Governance Arrangements and Knowledge Forms ............................................................................................................................................. 94 5.2 Relationship between Modes of Interaction and Knowledge Forms............................. 95 5.3 Relationship between Governance Arrangements, Knowledge Forms and Learning Processes.............................................................................................................................. 96 5.4 Changes ......................................................................................................................... 97 6. Identifying ‘Governance For Sustainability’ ....................................................................... 98 6.1 Assessing Sustainable Development in the Selected Case............................................ 98 6.2 Assessing the Legitimacy of Policy-Making in the Selected Case ............................. 100 6.3 Synergies/Contradictions between Governance Arrangements and Knowledge Forms on the one side and Sustainability and Legitimate Policy-Making on the other side ....... 101 Bibliographic references ........................................................................................................ 104 Interviews............................................................................................................................... 106 3 Introduction The Italian team has developed the empirical work concerning the two selected case studies: The SEA of the Territorial Plan (Piano Territoriale di Coordinamento Provinciale – PTCP) in the of the Province of Milan (2002-03; 2006-ongoing), and the air pollution control policy in Milan area. Both cases concern Milan metropolitan area. We have selected this territory because it is the largest metropolitan area in Italy (for population and size), and the most dynamic in terms of economic development. Consequently the problem of urban growth management is particularly critical, and the application of Strategic environmental assessment to the new Territorial Plan has seemed to us a good example for testing the effectiveness of SEA procedure in a ambitious planning initiative. The firs case is relevant for GFors because the implementation of SEA passes through different conceptual definitions and governance arrangements as the process