THE LANDSCAPE PLAN OF THE TUSCAN REGION: IDENTIFICATION, ROLE AND
PROJECT OF THE IN-‐BETWEEN SPACES
Massimo Carta
11Vice president of MHC, spin-‐off of the University of Florence (Italy) carta.massimo@google.com
Abstract
The assumption that drives our discourse is that the form of contemporary European cities, the broad metropolitan areas, is still "under construction": it is a huge amount of buildings and infrastructure, a patchwork of different landscapes, unfinished territories and indistinct spaces. The huge number of unfinished items immobilizes the capital invested for their realization; it makes evident the many mistakes made in the planning phase. For some of these spaces, maybe is recognizable a sort of rhythm, derived from what these spaces were previously, such as rural areas marked in the past by modifications, adaptations, reclamation. More frequently, we face an ubiquitous and unfinished "non-‐project" that has expanded enormously in the open spaces (in the natural areas, in the countryside) changing its meanings, and often erasing the possibility of referring to the past to find the right way to design the future. Therefore, our approach to address the conference themes, involve the interscalar aspect of the perceptive dimension of the landscape, that in Italy is a very important field of research, also for the urban planning; in fact, through the landscape planning in Italy we try to overcome some difficulties of regional planning like coordination between municipal plans, infrastructure policies, management of housing in rural areas, etc. Huge elements (i.e. large industrial areas, linear infrastructure, sprawled residential areas) they determine the emergence of spaces in-‐between, still to be submitted to the interdisciplinary statutes of urban planning. Sprawled urban areas, strongly infrastructured and low-‐skilled, parts of mutilated suburbs, almost uninhabited city centers, abandoned rural areas, over-‐exploited fringe areas... this elements wonder about the next step to take. The urban project, and the landscape design, at a different scale, could create some order over this work in progress, this unfinished immense "construction site": but the difficult task is to orient a completion that would give meaning of entireness, that would reanabled this powerful cumulative number of different parts to function as a well-‐built environment. The challenge is to involve residents and city users community to share a common goal. This action on the city resembles the retrofitting of a poorly constructed and never working apparatus: acting by addition, subtraction and finishing, working where it is necessary to give new meanings to existing materials (vegetation, water, soil) and providing new volumes built, new roads and paths, new infrastructures. This operation of repair involves all the ways of living, all manner of use the built environment, in its interactions with the different natural elements; this involves the integration between urban and rural dimensions, which are the interaction fields not only from the physical point of view, but also sociologically and scenically. The work that we present is based on these assumptions, and investigates the ways of qualifying contemporary urban areas in central Tuscany, considering to the principles of the new Landscape Plan.
The work examines some types of recurrent urban tissue in the flat portions of denser settlement, assuming minimal but key actions for elevating their landscapes' quality: continues in reporting some possible new spatial configurations, drafted in specific guidelines, that are now become official recommendations for urban planning in Tuscany.
1
THE LANDSCAPE PLAN OF TUSCANY REGION (PIT/P)
In Italy, the Cultural Heritage and Landscape Code, Legislative Decree 42/2004 (called "Codice"), revised in 2008, has once again raised the issue of the regional landscape plans, introduced by n°1497/1939 law and then specified by n°431/1985 law (the 'Galasso' Law). The European Landscape Convention (ELC, Florence 2000, ratified by Italy in 2006), considering the landscape a living environment, «an important part of the quality of life for people everywhere: in urban areas and in the countryside, in degraded areas as well as in areas of high quality, in areas recognised as being of outstanding beauty as well as everyday areas» (Preamble of the European Landscape Convention), has helped change the way in which public policies consider the landscape, as well in Itay the "Codice" requires the landscape plans to deal not only with excellent landscapes and their preservation, but 'everyday landscapes' (like ELC "concerns landscapes that might be considered outstanding as well as everyday or degraded landscapes") (Lucchesi and Carta 2010).
The Government of Tuscany region, like most other Italian regions, in 2007 prepares its own plan as landscape integration to the already existing "Territorial Address Plan (PIT)", which was adopted in 2009 at local level without the required agreement with the central government (in Italy the protection of the landscape is a national competence, according to Article 9 of the Constitutional Law), but it has never been definitively approved, also because of this missing agreement.
In 2011, the new administration has started the drafting of the PIT which serves as landscape plan (from now PIT/P): it appears therefore as a regional planning tool that maintains its own recognizable
identity 1. The contents of the Landscape Plan converge in the statutory part of the Plan, that is the
part oriented to bring out those values and long-‐term relationships that characterize the Tuscan territory and its landscape (Carta 2010): the connecting element between the structural dimension (territory) and perceptive dimension (landscape) is identified in the structural invariants ('Invarianti strutturali', in italian) already present in the previous plan and reformulated in the new "statute" of the Landscape Plan. The main features of the new PIT/P are:
-‐ the reorganization and rewriting of legal safeguards, in coordination with the MIBACT (Ministry of Cultural Heritage and Activities and Tourism);
-‐ the articulation of the statutory part of the plan, at the regional scale, which incardinate policies and actions to raise landscape's quality;
-‐ the directions to be supplied to municipalities to achieve its quality objectives, related to the twenty areas in which it was divided the Region (called "ambiti di paesaggio");
-‐ a renewed cartographic representation of the territory and regional landscapes;
-‐ the disputed effort to communicate the content of the Plan and to involve stakeholders in addressing the plan itself.
This paper investigates the perspective taken by the PIT/P editors in the drafting of the various parts of the plan, especially the part related to the structural description of regional urbanization ("The polycentric and reticular systems of urban settlement and infrastructures"), for the definition of a better quality of contemporary urbanized tissues, without neglecting the contribution from other topics (rural dimensions, geology, ecology). It is in this part that is argued somehow of the spaces in-‐ between, as we will see below. This part of the PIT/P is very interesting, albeit not unambiguous: like
1
The PIT/P was drafted from 2011 to 2015 by the Regional Offices, coordinated by the Regional Minister, Professor Anna Marson; the
regional offices have been supported by a consortium of all the Tuscan universities, the CIST (Inter-‐University Centre of Territorial Sciences), composed by professors and researchers. The urban planner who most influenced the setting of the PIT/P is the professor Alberto Magnaghi, one of the prominent members of the CIST. For the CIST, as a researcher, I am the autor of the «Guidelines for the redevelopment of the urban tissues of the contemporary city», Annex No. 2 to the PIT/P. The comlete work group is reported in plan documents: http://www.regione.toscana.it/-‐/piano-‐di-‐indirizzo-‐territoriale-‐con-‐valenza-‐di-‐piano-‐paesaggistico.the definition of "contemporary city" and its difficult relationship with the historic structures2. This involves the calling into question of interpretative models of the contemporary city.
It is clear the emphasis put in highlighting the interruption of continuity between the traditional old settlements in the mid-‐twentieth century (recognized by comparative sequence of historical cartography and found to be corresponding by the autors to good growth rules), and the contemporary city, successively built. Right from the start, the plan's documents clearly states how the Tuscan landscape is a result of an extraordinary stratification of history, which produced "a variety of landscapes united by essentiality and measure" at least "until a recent period" (page 10 of "Relazione Generale"). The Plan locate in the 50's the time for this change in settlement patterns, defining the structures in settlement system resulting in the long historic period "as still recognizable in the fifties of the twentieth century" (see page 25 of the "Documento di Piano").
The plan describes this historyc structures: in the map that summarizes and interprets the forms and types of historical settlement ("Carta del sistema insediativo storico e contemporaneo" -‐ map of the historic and contemporary settlement system -‐ 1:250.000) and in two specific "abacuses": (i) the
abacus of the different formal types of historical settlement3; (ii) the abacus that organizes the
different types of contemporary urbanization, starting from the urban expansion of the historic town.
1.1
Historics and contemporary rules
The Regional Plan attempts to define the rules of the transformation of the territory and the landscape quality objectives (as ELC defined: «Landscape quality objective” means, for a specific landscape, the formulation by the competent public authorities of the aspirations of the public with regard to the landscape features of their surroundings» Art. 1, "Definition") by interpreting the historical rules that have generated this settlement system (Regional Abacuses, page 91). The planners have shared among themselves an historical-‐structural method, using the various sources available. They fulfil a schematic analysis of each territorialisation phases, for specify the "historical depth" of each point of the regional pattern represented in the map ("Carta delle figure componenti i morfotipi insediativi 1:250.00"). In the documents that constitute the plan, they acknowledge the 'consequences' of socio-‐economic processes and the plan itself is oriented to act to counter the welding processes between cities and the ubiquitous urbanization of the countryside, protecting and consolidating the environmental and landscape characteristics, along with the network of «ecological corridors that characterize the variety and vitality of vegetation and wildlife» (pag. 35 documents of the Plan). It emerges a problematic aspect of the PIT/P, in my opinion, which is that the observation of "morphological structures", detected by comparing the maps of the territories, prevails on the systematic study of the factors that led to the materialisation of that settlement, the "reasons" of the urban forms that today appear. For example: why and how (from the point of view of the decisions about the land use) have been encouraged or contradicted the "forms" of the historic city? And how accurately we can attribute to the shape of the historic city a coherent intentionality? What kind of intentionality, regulation, planning decisions has supported these forms over time? What were the dynamics of the formation of the spaces in between?
These are aspects to be clarified. Perhaps, it emerges from the draft at the regional scale of the "third invariant" (see "Abachi Regionali") an excessive formalism and a certain arbitrariness in the choice of the settlement system element's descriptors, which does not affect the disciplinary interest in this plan, but appears slightly effective from the regulatory point of view of the PIT/P itself. This both for the rigid separation of the contemporary city from the historic structures (on which the contemporary city has been grafted in the recent past) and also for the purposes of a full implementation of the European Landscape Convention, which indicates the need for "integration" among the different landscapes, also degraded. This point is important about our interest in the way
2
Worked on this invariant the following people: Alberto Magnaghi (scientific coordinator, DIDA/UNIFI), Gilles Callegher, Elisa Cappelletti,
Gabriella Granatiero, Emanuela Morelli, Giovanni Ruffiniit was created the contemporary urbanization, and its resulting forms at a larger scale. Having taken note of the discontinuance of the PIT/P to investigate any evolutionary sense of contemporary urbanizations, the latter are relegated over a time considered "critical" and contradictory, as they have produced different outcomes compared to the historical settlement; the generative rules of the contemporary settlements, in our opinion, should instead be studied with the utmost attention, precision and care.
However, may be envisaged in the plan some directions of research for the intervention on what we have called "the interrupted yard of the great transformation", the form of contemporary cities, the broad metropolitan areas, that are still "under construction", also in Tuscany: it is a huge amount of buildings and infrastructure, a patchwork of different landscapes, unfinished territories and indistinct spaces, represented here by the contemporary city fabrics, but incorporating structures and elements of the "historic city" (Calafati 2014). From this point of view we treat the two most interesting tasks -‐ although not free from contradictions -‐ brought into play by the PIT/P:
-‐ the detection of the limit of the urbanized areas;
-‐ the draft of the abacus of the urbanized tissues of the contemporary city.
Figure 1 Part of the PIT/P map "Carta delle figure componenti i morfotipi insediativi", scale 1:250.000
2 DETECTION OF THE LIMIT OF THE URBANIZED AREAS AND DRAFTING OF THE ABACUS
OF CONTEMPORARY CITY TISSUES
The PIT/P attempt to find "the form" (or patterns) of the Tuscan cities: this attempt is operated through the work carried out, as seen before, for the "third ivariant", through the topics of the individualizations of the historic settlements and of the margins of the urbanized areas and hence of the urban sprawl. The individuation of urbanized borders (or urban fringe) is central in urban planning, at both national and regional levels: due to a problem relating to the limitation of land use (In Italy, the government is working on a national law to limit the soil consumption), for the maintenance of ecological functions, for (as in the case of the Tuscan Plan) the contrast of urban sprawl as an agent of trivialization and contradiction of historic settlements structures.
It is uncertain that the definition of the perimeter of the urban areas is sufficient everywhere (for example, in large metropolitan areas) to distinguish what can be considered "city" and whose re-‐use does not involve new land consumption, from the countryside or the land used for agricultural
purposes, with environmental and multi-‐functional values; but this operation it is certainly useful and perhaps necessary, and it concerns the very concept of what can be considered "the city" today. 2.1
The definition of the limits of the urbanized areas
The definition of the boundaries of the urbanization, which is in the vision of the PIT/P what helps to determine the urban "form", is apparently an easy operation regarding the "historic city", but becomes more and more complex when one faces the dispersed urbanization of the contemporary city and its urban fringes. The PIT/P provides (addressing mainly to municipalities) an operational contribution to the identification of the limit of the urbanized area through the definition of a specific map (see the map "Carta del territorio urbanizzato", scale 1:50.000). This operation relies on a geostatistical model (Giusti, Angeletti et al. 2012), based essentially on indicators of continuity and density of the urbanized area (pages 133-‐135 of the Abacus). Aside from the obvious difficulties of scale in a large region like Tuscany, the processing is valid therefore as indicative framework for which a subsequent specification work is needed; it will be necessary a survey to check and specify, to be carried out during the drafting of the urban plans of Tuscan municipalities.
There are some minor critical issues noted by the autors of the plan: this perimeter includes settled areas ("urbanized countryside" and "inhabited campaign", as defines the PIT/P) which properly concern the rural area, and the definition of "urban" used in the model makes it contradictory and detrimental to the objectives provided in the landscape plan, that do not contemplate new urbanization.
But the most critical problems, in our opinion, lies in the difficult and unresolved relationship between what the plan identifies as 'historic' and what it identifies as 'contemporary'; an element that emerges in the way the plan identifies the contemporary urbanization fabrics.
Figure 2 Example of a contemporary urban tissue of the PIT / P: current status
2.2 Defining urbanized tissues within urbanized areas
The map introduced above is one of the devices put in place by the PIT/P, that would allow, when specifically indicated by the objectives for each recognized type of urban tissue, of not simply assumes the boundary as identified and currently configured, but to intervenes on it in redefining a margin of greater landscape's quality. The task of defining the limits of the urbanized areas has necessarily resulted in the identification and description of what are the various elements that
constitute urbanized areas, with the classification of what are called the "contemporary urban tissues."
The classification criteria that led to the identification of the different tissues on the regional territory consider their location and their main function, the fabric structure, the relationship with the road and the degree of functional complexity, the prevalent building type, the location of the tissue and is edges. Given the extent of the regional territory, the exact location of each separate type of identified urban tissue was made approximately, referring to the further specification of municipalities plans.
For each type of identified urban tissue, there is a specific sheet in the abacus containing the planimetry and an aerial photograph of some real existing illustrative tissues from which is derived the type itself; the type in turn is represented by an abstract sketch, representative of its specific characters; there is also a description, referring to the sketch and a list of critical issues and objectives for the specific type.
Figure 3. Example of a contemporary urban tissue of the PIT/P: undesirable outcome
2.2.1 Historical Vs Contemporary
After discussing briefly of the work that led to the identification of the different types of contemporary urban tissues, the choice to differentiate the "contemporary" urban tissue from the rest of the tissues (ie all those that were present to 1954, according to cartographic sources available today) results, as already noted, some problems: one of which is that some tissue in the real context is also made up of "historical" components whose clear distinction is not possible, nor desirable. This concerns the meaning itself of the term "contemporary". Namely, this emphasizes the irrelevant role who have had the urban tissues of the contemporary city (taken into consideration all together) in the identification of territorial types listed in the map quoted before ("Carta delle figure componenti i morfotipi insediativi 1:250.00", Fig.1), at smaller scale: in this elaboration the contemporary urban tissues (or, the city) appear as a sort of "ambient noise" in any manner considered useful to the structural quality of the settlement. This is an extremely significant aspect in this landscape plan, which still reveals the cultural position of the authors (Magnaghi 2005) which ties the quality consideration of the settlement to its "duration". For example, the ideal condition for the PIT/P is when is present an historic fabrics still adjacent with the countryside, where there is no doubt (according to the plan) that the existing boundary between the urbanized areas and the countryside is semantically necessary in order to signify the settlement itself, and therefore understand the
nature of the same settlement (page 133 of the Abacus). The urban settlement's understanding is so connected in a fairly automatic way to the relationship between the countryside and the historic settlement; this leads to some confusion in the plan among the terms "urban settlement" and "urban tissue"; what is old is called "settlement", what is not historic is called "tissue". Afterwards we shall argue that it is more useful for the purposes of landscape planning thinking about the contemporary city tissues as something that includes the historic city, not as something distinct from it.
3 INTERVENING IN THE URBAN FRINGE, IN IN-‐BETWEEN AREAS, IN URBAN TISSUES: THE
GUIDELINES FOR THE REDEVELOPMENT OF THE URBAN TISSUES OF THE
CONTEMPORARY CITY
The decision to locate on the map the boundaries of urbanized areas has great importance for the purpose of PIT/P, also from the point of view of its rhetoric and cultural setting. Both the implementing rules (in Italian "Norme Tecniche di Attuazione") that the plan report highlights this aspect, or how important it is to pay attention to the different qualities of margins (fringes) of contemporary urbanization. The "Guidelines for the redevelopment of the urban tissues of the contemporary city" (which constitutes annex n°2 of the plan) are intended to provide, through a series of graphical representations, a first contribution for this purpose.
Figure 4 Example of a contemporary urban tissue of the PIT / P: desiderable outcome
In the Guidelines are represented possible spatial outcomes of good and bad planning actions, measured according to the landscape quality objectives of the PIT/P; the Guidelines are addressed in the first place to the planners working on the plans of the municipalities, especially structural plans (PS) and Operative Plans (PO). Among the objectives of Guidelines are:
-‐ an attempt to anticipate the possible criteria and ways of landscape's qualification of the different tissues of the contemporary urbanization, with particular reference to their borders with the rural spaces and/or natural spaces, and more generally to the margins with vacant lot, or in between spaces, in urbanized tissues themselves;
-‐ the best specification of the urbanized area, an operation entrusted by law to the plans of municipalities, though at this level it does not decide anything about the assets of the property;
-‐ serve, in general, to the regeneration of urban tissues, and not only of its margins, comprising therefore -‐ albeit implicitly -‐ some criteria for the realization from scratch of urban parts;
-‐ enable assessments of the perceptive aspects of the urban tissues: the representation of the prevailing spatial qualities of the urban fabric can help to envision the consequences of planning decisions on the visual aspects (landscape).
3.1 Representing the characteristics of urbanized tissues
Even with regard to this last point, for a more effective communication of values and critical issues associated with each urban tissues, in the Guidelines is accomplished an effort of abstraction and generalization, using common techniques, such as 3D block diagrams. Representations reproduce the characteristics of the existing urban tissues classified in the abacus; then simulate some actions that increase the critical aspects, and some other actions which enhance landscapes quality. The models simulate territorial portions of 1km x 1km, or smaller portions of 800m X 800m and 500m X 500m; The terrain forms have been simplified by reproducing flat areas.
The Guidelines attempt to represent:
(i) the distribution of the continuous urbanized lots, performing a generalization of their morphological conformation, which determines, in the interaction with the local contexts, the type of fabric to recognize and deal with. Attention is paid in the models to the design of building types, shape and arrangement of built lots, the indication of permeable or impermeable soils. This allows the models of discriminating the types of buildings that make up each prevailing urban tissues, including the modalities of relationship of the tissues with the streets and the single lot;
(ii) different spatial quality of the individual tissue, which is composed of different types of buildings (coverage proportions, sealing of ground surfaces, presence or absence of public spaces, presence of common use areas or private spaces, relationship with the rural space, etc .).
3.2 Foresee the change to guide the landscape effects of the plan choices
Models we made for the Guideline represent the most relevant features of each classified urban tissue: subsequently, on that basis, we performed alternative simulations:
a. we have highlighted (in red, Fig.3) the choices that could exacerbate the problems concerning each theme identified in the landscape plan, with particular reference to the quality of the urban fringes: the highlighting of critical issues is expressed through the representation of planning behavior not consistent with the own PIT/P goals.
b. we envisioned (in blue, Fig.4) hypothesis of modification in response to the most obvious and recurring problems, or assumptions consistent with the PIT/P goals. We assumed volumetric additions (buildings) and soil amendments (in the design of aggregated lots, infrastructure and vegetation, linked to an assumptions of the provision of urban standards) that do not consume new soil or they do so within a framework of protection of the landscape and in a general elevation of "ecological" quality of the urban tissues.
4 OUTCOME AND RESEARCH PERSPECTIVES
The first outcome of the «Guidelines for the redevelopment of the urban tissues of the contemporary city» is to lead to reconsideration of the potential value of some urbanisations of the contemporary city. The guidelines integrate in a certain way the operational accuracy of the PIT/P to a scale not easy to manage, also from the point of view of a possible effectiveness of the Guidelines as "rules" for the project of the landscape; focus themselves on the transition from a small scale to a larger scale; stress the need not to demean the significance of urbanized fabrics as an integrated entity in the historic structures. It is not allowed to go back in the past, restore the past, it is not possible unravel the tangle and come back to a "primal" order. It is a new paradigm, in urban places and situations different from those we are used to consider; for example different from the situation
in the historical centers, with respect to which there has been in Europe a very depth discussion on the relationship between the new and the old settlement.
The Guidelines deal as "contemporary" the city made up of recent tissues grafted on former territorial structures often recognizable and identifiable by their documented "long duration", by the presence of roads, public spaces articulated around episodes of collective architectures, obvious signs of traditional crops, etc. So, the Guidelines express the need to experience the contemporary urbanizations for the way these interact for the better with the historical structures, but not necessarily the contemporary urban fabric is subordinated to the enhancement of the historical settlement's recognisability. The work done illustrates how a wise modification of the existing settlement («build on existing buildings») could lead to a better quality of the entire urban settlement; this result can be achieved by looking for the better relationship with the in-‐between spaces, with few actions applied in this area. The regional plan tries to provide evaluation of the changes affecting the "historic" urban fabric through improvement of contemporary urban tissues, which implicitly recognizes the importance of the latter. The advancements we have tried to introduce through the Guidelines are referred to the operating mode by which we can contribute to the «landscape regeneration of urbanized tissues of the contemporary city».
Figure 5 Example of a contemporary urban tissue of the PIT/P: comparison of the three representations above.
4.1 Connecting historical and contemporary urban fabrics
Thus, the Guidelines also try to represent some configurations of spaces that can be recognized in the long duration, in their relationship with the contemporary urbanized tissue, assuming interactions in turn critical or virtuous in their cumulative effect. In this sense, the guidelines attempt to deal with the proper balance of the 'edge' of the city, in its various possible meanings, depending on the type of urban tissues that determines it: the building types and their arrangement on the lot, the articulation of the lots, the road network and the relationship with the open and close space around, are some of the elements that determine the type of edge of urban tissues; it can be in turn a well-‐defined line constituted by an infrastructure or other type of barrier; or they may be a strip, even connecting landscape elements.
The fringe area, the in-‐between space are also in the tuscan plan, and specifically in the guidelines we designed, the place of paths and connections of various types and nature: pedestrian and cycle paths, connections with the nearby countryside and with natural space; the margin is often
constituted by elements (such as riverbanks, small roads in the countryside, etc.) that can be used as paths between the urban tissues and its surroundings.
A particularly important factor for the purposes of this essay is the attempt to represent the shapes of urbanized tissues, in mutual relationship with the countryside: the importance and role of the latter is not underestimated by the PIT/P, which has a specific section dedicated to 'survey' of the
rural landscape types4. In this urbanized tissues are present the in-‐between areas: are rural areas
and/or residual natural areas, surrounded by urbanization. The PIT has assigned to these particular areas a very high value, as they often guarantee the permanence of natural character, allow agricultural features, act as multifunctional spaces used by local communities. Thus, albeit with a different assessment of the "goodness" of the different tissues, the PIT/P has assigned to these non-‐ urbanized areas a core function. The identification of the limits of the urbanized areas created by the plan through an automatic processing (cfr. above) leave out from urbanized areas the big in-‐between areas (both agricultural areas and natural areas), allowing for a different treatment compared to their potential edification, given the development pressure to which are subjected these areas in Italy (Rovai, Agostini et al. 2013).
In conclusion, the experience of the drafting of the Guidelines, shows that, even in situations with a renowned quality as the Tuscan landscape, the attention is to be placed on the conservation and protection of historical settlement forms; but it must also take as a certain the fact that the human settlement has changed profoundly, both in its form and in its meaning. This evolution is incomplete and dispersed: affects even the heart of the art cities such as Florence, resulting in changes of meaning, in tourist specialization, in abandonment, or in museification or gentrification; but it is an evolution that forces us to consider more carefully the possibility of relevant completion and modification of the existing contemporary urban tissues, which gives new meaning to the cities considered in the full arc of their historical evolution, and helps to fulfilment of the transformations within to the large «building site» which we used as a metaphor at the beginning of this essay.
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