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plans and land management strategies concerning coastal areas.
The methodology proposed in this study defines a theoretical and technical approach to ICZM-related planning processes at the municipal (local) level, based on integration of strategies related to different spatial scales. Municipalities adopt spatial plans which regulate land uses in the coastal areas (PLUCs), whereas the regional and national public administrations define policies concerning environmental conservation and protection. The methodological approach is implemented with reference to two coastal towns located in South-West Sardinia, in the region of Sulcis. The outcomes highlight that PLUCs and the environmental protection-oriented plans are consistent with each other as regards themes and objectives. Three specific questions are crucial as regards the integration of social and economic development goals and sustainability objectives, namely relationships between natural ecosystems and services located in the coastal areas, ecosystem conservation and protection, and accessibility of the seashore.
KEYWORDS
Natura 2000 Sites; Coastal land use plans, Management plans of Natura 2000 Sites
RELATED TO NATURA 2000 SITES AND COASTAL LAND USE PLANS
A STUDY CONCERNING SULCIS (SARDINIA, ITALY)
FEDERICA LEONE, CORRADO ZOPPI
How to cite item in APA format:
Leone, F. & Zoppi, C. (2019). Relationships between conservation measures related to Natura 2000 sites and coastal land use plans: A study concerning Sulcis (Sardinia, Italy). In C. Gargiulo & C. Zoppi (Eds.), Planning, nature and ecosystem services (pp. 971-982). Naples: FedOAPress. ISBN: 978-88-6887-054-6, doi: 10.6093/978-88-6887-054.6
Department of Civil and Environmental Engineering and Architecture
University of Cagliari, Italy e-mail: federicaleone@unica.it, zoppi@unica.it URL: people.unica.it/corradozoppi
F. Leone, C. Zoppi
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ECOSYSTEM SERVICES DOI: 10.6093/978-88-6887-054-6
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1 INTRODUCTION
Since the 1970s, spatial planning policy of the European Union has been characterized by a marked attention to integrated coastal zone management (Saffache & Angelelli, 2010), as per Resolution no. (73)29 (26 October 1973) of the Council of Europe, which suggests implementing a holistic approach to conservation and protection of coastal heritage.
At the moment, at the international level, integrated coastal zone management is progressively increasing its relevance in theoretical and practical terms, since it is generally assumed as a fundamental point of reference to define and implement spatial policies oriented to sustainable development (Billé, 2008). The “Protocol on Integrated Coastal Zone Management”1 (ICZM Protocol) was adopted by the European Union (EU) Council in 2008,
and ratified in 2010 (Decision no. 2010/631/EU). The Protocol defines coastal zone management as a dynamic process which implements the sustainability paradigm into management and use of the coastal areas (article no. 2), by taking account of the weakness of landscapes and ecosystems, the heterogeneous mix of ongoing activities, which include maritime activities, their interdependency, and the impacts generated as regards coastal and marine contexts. Moreover, the context-specific nature of the ICZM approach should be carefully considered (Soriani et al., 2015), since costal and marine planning issues are not questions that can be addressed on anone-size-fits-all basis.
Nevertheless, integrated coastal zone management as regards the relationship between theory and practice is still a critical issue (Burbridge & Humphrey, 2003; Soriani et al., 2015) identify two kinds of problematic questions that may arise, which, on the one hand, are related to policies and strategic approaches, and, on the other hand, are connected to the implementation phases of spatial plans.
In this conceptual context, Strategic environmental assessment (SEA) may help decision-making processes related to coastal zone management to be effective in addressing the issue at stake (Rochette & Billé, 2010). The Directive of the EU concerning SEA (no. 2001/42/EC) states (article 1) that “The objective of this Directive is to provide for a high level ofprotection of the environment and to contribute to the integration of environmental considerations into the preparation andadoption of plans and programmes with a view to promotingsustainable development, by ensuring that, in accordance withthis Directive, an environmental assessment is carried out ofcertain plans and programmes which are likely to have significant
1 Available online:
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effects on the environment.” In other words, SEA processes enhance the quality of decision-making by decision-making consistent and integrated economic and social development objectives and sustainability goals (Leone & Zoppi, 2015).
Furthermore, SEA is effective in supporting national administrations in implementing the ICZM Protocol into strategies and plans related to coastal management (UNEP et al., 2011). Harvey (2000) analyzes the use of SEA with reference to Australian coastal management. Procedures based on SEA-related approaches are used on a voluntary basis in the definition and implementation of the “Strategy for integrated coastal zone management” of Portugal in 2008, as a decision-making tool (Partidário et al., 2009), even though a systematic technical procedure which integrates the ICZM Protocol provisions and the SEA procedure is not available at present.
The approach proposed in this study builds on SEA in order to define a methodology which supports spatial planning processes in implementing the ICZM Protocol into local decision-making procedures. The objectives identified in different plans, namely spatial plans which regulate land uses in the coastal areas (PLUCs) and plans related to management of Natura 2000 Sites2 (PMN2s), are examined and compared as regards their mutual coherence. Their
strategies are made consistent with each other and negative effects of PLUCs on PMN2s are highlighted and addressed. The methodological approach is applied to two case studies concerning two coastal towns located in South-West Sardinia, in the region of Sulcis. In the next section, the methodology is discussed, the documents and materials, upon which the spatial analyses are based, are identified, and the two urban contexts, considered in the two proposed case studies, are synthetically presented. The third section shows the results of the implementation of the proposed methodological approach, while implications, limits and suggestions for further research are discussed in the concluding section.
2 METHODOLOGY AND CASE STUDIES
The methodology implemented and discussed in this study focuses on building mutual consistency between PMN2s and PLUCs. It is based on the integration of strategies of PMN2s and PLUCs implemented through a logical structure (LS) which makes reference to the SEA procedure. The LS builds on the conceptual category of sustainability, mutual endogeneity of spatial planning and environmental assessment and the presence of planning alternatives, which feature SEA-based procedures according to the Italian Law concerning SEA (Decree no.
2 Three types of protected areas feature Natura 2000 Sites: Sites of community importance (SCIs) and Special areas of conservation (SACs), identified under the provisions of EU Directive 92/43/EEC (the Habitats Directive), andSpecial protection areas (SPAs), identified according to EU Directive 2009/147/EC(the Birds Directive).
F. Leone, C. Zoppi
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152 of April 2006), which embeds the EU Directive on SEA into the Italian legislative framework (Leone & Zoppi, 2015).
The LS was already used by Leone & Zoppi2 2015 and 2016, who proposed a comparison between the provisions of the city masterplans and the PMN2s based on the reciprocal consistency of their goals. Here, the relationships between PLUCs and PMN2s are assessed as regards sustainability goals, through the identification of the PLUCs’ operations which may generate negative effects on habitats and species protection-related goals identified in the PMN2s. Tab. 1 shows the diagram of the LS. The five columns refer to: i. sustainability goals; ii. thematic issues; iii. PLUC’s goals; iv. PMN2’s goals; and, v. PLUCs’ operations which may generate negative effects on habitats and species protection-related goals identified in the PMN2s.
SUSTAINABILITY GOALS THEMATIC ISSUES
PLUC’sGOALS PMN2’sGOALS NEGATIVE PLUC’S OPERATIONS Sustainability goal 1 Thematic issue 1 Goal 1 of PLUC Goal 1 of PMN2 Operation 1
Operation k Goalj of PMN2 Operation 1 Operation k Goalj of PLUC Goal 1 of PMN2 Operation 1 Operation k Goalj of PMN2 Operation 1 Operation k Thematic issue h Goal 1 of PLUC Goal 1 of PMN2 Operation 1 Operation k Goalj of PMN2 Operation 1 Operation k Goalj of PLUC Goal 1 of PMN2 Operation 1 Operation k Goalj of PMN2 Operation 1 Operation k
Tab. 1 The framework of the Logical structure (LS)
The proposed methodological approach is applied to the towns of Carloforte & Calasetta, two spatial contexts of South-West Sardinia located in the Sulcis region (Fig. 1). The small Island of San Pietro (San Peter), where Carloforte is located, is connected to the mainland by ferryboats which depart from the Port of Calasetta. These towns were selected since they identify a consistent spatial system, whose coastal and marine areas require an integrated management approach, even though each urban area is governed by an autonomous municipal administration. Furthermore, a number of Natura 2000 Sitesare located in each spatial context.
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The planning documents used in the study are:
−
the PLUC of Calasetta and the PMN2s of the following SACs: ITB042208 “tra Poggio La Salina e Punta Maggiore,” ITB042210 “Punta Giunchera”and ITB042209 “A nord di Sa Salina;”−
the PLUC of Carloforte and the PMN2 of the following Natura 2000 Sites: SAC ITB040027 “Isola di San Pietro”and SPAITB043035 “Coste e Entroterra tra Punta Cannoni e Punta delle Oche – Isola di San Pietro.”Fig. 1 The study area. (Source: elaboration by Federica Leone on an aerial photography drawn from Geoportalof Sardinian regional administration) (http://www.sardegnageoportale.it/index.php?xsl=2425&s=324505&v=2&c=14488&t=1&tb=14401)
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3 FINDINGS
The implementation of the methodological approach into the two urban contexts of the Sulcis region identifies and analyzes coastal and marine processes which combine planning strategies differentiated in terms of scale, since the local municipal administrations, which study and approve the PLUCs, and the regional and national administrations, which define and implement PMN2s, are involved at once.
The LSs concerning the PLUCs and the PMN2s related to the towns of Carloforte and Calasetta are reported in Tab. 2 and Tab. 3. Considering contents and objectives of PMN2s and PLUCs, each of the two tables shows sustainability goals concerning conservation of biological diversity, plants and animals. PLUCs and PMN2s are mutually consistent as regards goals and thematic issues. The PLUCs focus on the following thematic issues: i. relations between coastal and marine ecosystems and services provided on the beaches; ii. conservation and enhancement of coastal and marine ecosystems; and, iii. accessibility to beaches and coastal areas. For example, the objectives of the PLUC of Calasetta focus on the integration of services provided on the beaches and coastal and marine ecosystems, identifying ecosystem conservation as the core issue, whereas the goals of the PLUC of Carloforte focus on the same integration issue, assuming accessibility as the main question. This is explained by the fact that the SAC “Isola di San Pietro” overlays the municipal land of Carloforte and, as a consequence, the approval process of proposed spatial transformations is based on the Appropriate assessment procedure, established under the Habitats Directive3, which aims at
preventing negative effects of projected operations on habitats and species of SACs, SPAs and SCIs.
It has to be put in evidence that, notwithstanding PLUCs and PMN2s are mutually consistent as regards their sustainability goals, the PLUCs’ planned operations can generate negative impacts on the PMN2s.
In the case of Calasetta, the coastal and marine areas are planned both as environmental resources deserving protection-oriented measures and as factors of economic development related to leisure and tourism. The PLUC focuses on the definition of a set of planning policies to exploit tourist attractiveness (GoalC2) and on prevention or mitigation of erosional processes concerning beaches (Objective C3).
3 Any plan or project not directly connected with or necessary to the management of the site but likely to have a significant effect thereon, either individually or in combination with other plans or projects, shall be subject to appropriate assessment of its implications for the site in view of the site's conservation objectives […] [T]he competent national authorities shall agree to the plan or project only after having ascertained that it will not adversely affect the integrity of the site concerned and, if appropriate, after having obtained the opinion of the general public.” (Habitats Directive, art. 6, paragraph 3).
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The planned operations aim at developing tourism and at increasing the attractiveness of the seashores (Operations AO2, AO3, AO4, AO5, AO6, AO7 and AO8). On the other hand, the goals of the PMN2 focus on limiting tourist presence on the beaches (Objective AM3), on prevention or mitigation of the negative effects generated by human activities, animals and infrastructure on dunal habitats and species (GoalAM4), and in general, on habitats and species (GoalAM1).
Two issues characterize the case of Carloforte (Tab. 3). On the one hand, preservation of coastal waters (Goal BM1) and of Caretta caretta (Goal BM9), identified as a protected species under the provisions of the Habitats Directive, conflict with the authorized traffic of small boat charters (Operation BO1). Indeed, these boats are allowed to sail with no license or certification concerning the technical knowledge of the boaters as regards coastal ecosystems, habitats and plants, such as Posidonia oceanica seabed and other peculiar habitats, or protected species, such as Caretta caretta. On the other hand, the boardwalks installation which make it easier to access the beaches (Operation BO3), and the development of parking sites close to habitats and species protected under the Habitats Directive (Operation BO4), are likely to determine negative impacts with reference to preservation of dunes and of their habitats (Goal BM3) and to protection of habitats such as thickets, phrygana and arborescent matorral (Goal BM5).
F. Leone, C. Zoppi
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Tab. 2 Logical structure of the integration of the PLUC and of the PMN2 concerning the town of Calasetta
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4 DISCUSSION AND CONCLUSIONS
4The outcomes of the proposed methodology based on the LS show that negative effects may occur on the achievement of the goals of the PMN2s as a consequence of operations planned by the PLUCs. The LSs defined to assess the coherence of the PLUCs and PMN2s concerning the towns of Calasetta and Carloforte put in evidence that the operations planned in the PLUCs may put at risk the effectiveness of the conservation measures identified in the PMN2s, related to habitats and species, since PLUCs and PMN2s were studied and approved following independent procedures, implemented by different public administrations, that is, the municipal administrations in the case of the PLUCs, and the regional administration in the case of the PMN2s. Furthermore, the two types of plan focus on different core issues, since PMN2s deal with conservation measures regarding habitats and species of the Natura 2000 Sites, whereas PLUCs are related to sustainable coastal zone management aimed at catalyzing social and economic local development based on tourist attractiveness.
From this standpoint, this study defines, and applies to the urban contexts of Calasetta & Carloforte, a methodological approach whose scope is to integrate different plans, which take place in the local public domain, that is the Sulcis region, into a unique planning instrument which makes consistent nature protection-related and development-related objectives. The study shows, by detailed comparative appraisals of two PLUCs and related PMN2s, that the LS-based procedure entails an enormous potential in order to build consistency and, much more important, to drive the issue of conservation and enhancement of habitats and species outside the narrow boundaries of sectoral policies concerning the Sites of the Natura 2000 Network. The application of the LS makes the issue a comprehensive and fundamental question related to the PLUCs. The implementation of the PMN2-related sustainability objectives into the PLUCs through the LS approach is based on the environmental characterization of the supporting ecosystem services (ESs) supplied by habitats and species(Millennium Ecosystem Assessment, 2003). In the first place, ESs are identified in the spatial context of the Sites of the Natura 2000 Network, and afterwards, during the application of the LS approach, they become spatial and environmental characteristics of the whole coastal and marine areas (Leone & Zoppi, 2016).
The proposed LS-based approach implements PMN2s into PLUCs and, that being so, not only is suitable to assess and drive the definition and establishment of planning decisions (ex ante phases of PMN2s/PLUCs), but also to support the planning policies to be carried out, since
4 This Section partially reproduces a discussion proposed in a previous study of the authors (Leone, Zoppi, 2016, Section “5. Discussion and Conclusions”).
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the ES-related sustainability objectives entail a monitoring system based on benchmarks concerning the environmental indicators related to the ESs.
Furthermore, it has to be stressed that the planning policies concerning supporting ESs may generate conflicts related to tourism-related ESs, whose land uses may be prevented by conservative measures entailed by the PMN2s. Therefore, LS-based procedures that imply ES-based sustainability objectives should take account of supporting ESs not only in terms of conservation and enhancement of habitats and species, but also as sources of conflict between alternative land uses related to alternative types of ESs, that is supporting and tourism-related. The conflicts are expressed by the trade-offs between protection and preservation of coastal and marine species and habitats, that is, supporting ecological systems, and the pressure for increasing the provision of services for tourists and local visitors in the coastal areas, that is tourism-related ESs, which is the main focus of PLUCs (Lai & Zoppi, 2017).
The results proposed in this essay are very robust in terms of exportability to other EU contexts, since the LS-based procedure implemented into spatial plans (PLUCs) at the municipal level is always based on the same normative framework, established by the SEA Directive. Moreover, the reference of the PMN2s is always the Natura 2000 Standard Data Form, approved by the European Commission with the Decision of 11 July 20115. As a
consequence, it can be applied as such in other EU countries, even though different institutional frameworks and planning practices at the national and regional levels may possibly imply more-or-less huge differences in terms of timing and duration and public authorities responsible for the PLUCs and the PMN2s’ planning procedures, the quality of the participatory processes and the qualitative and quantitative size of the participating public and stakeholders.
NOTES
Federica Leone and Corrado Zoppi have made substantial contributions to the study’s conception, background and design remarks of section 1, and to discussion and concluding remarks of section 4. The methodological discussion proposed in section 2 is by Federica Leone. The results presented in section 3 are by Corrado Zoppi.
The study was implemented within the Research Program “TSulki: Tourism and Sustainability in the Sulcis sub-regional area”, funded by the Autonomous Region of Sardinia for the period 2018-2019, under the provisions of the Call for the presentation of “Projects related to
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fundamental or basic research for the implementation of interventions in relation to the research context of the Sulcis Plan” of the year 2015, implemented at the Department of Civil and Environmental Engineering and Architecture (DICAAR) of the University of Cagliari, Italy. This study is also presented at the AESOP Annual Congress 2019 (Venice, 9-13 July 2019), with the title “Management plans of Natura 2000 Sites and coastal land use plans: A study concerning an integrated approach to management of coastal zones in the Sulcis Area (Sardinia, Italy),” and will be published in the Congress Proceedings
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AUTHOR’S PROFILE
Federica Leone, Building engineer, is Research Doctor in Land Engineering (Italy, 2013), and MSc in International Planning and Development (UK, 2012). She is currently a research fellow at the Department of Civil and Environmental Engineering and Architecture of the University of Cagliari. Corrado Zoppi, Civil engineer, is Doctor of Philosophy in Economics (USA, 1997), Doctor of Research in Territorial Planning (Italy, 1992), and MSc in Economic Policy and Planning (USA, 1990). He is a Professor at the University of Cagliari (Sector IAAR/20 – Spatial planning). He is presently teaching at the Department of Civil and Environmental Engineering and Architecture of the University of Cagliari in the Undergraduate and Graduate Programs in Environmental and Territorial Engineering and in Sustainable Tourism Management and Monitoring (Regional and Urban Planning, Strategic Planning and Environmental planning).
