Management of Historic Centres

Robert Pickard

• Publisher: Taylor & Francis
• Year: 2013
• eBook ISBN: 9781135158736
• Edition: 1
• Topic: Architecture
• Subtopic: Urban Planning & Landscaping

This book examines key themes for the management of historic urban centres within a representative sample of centres in different European countries. The twelve historic centres that have been chosen are spread throughout Europe. They are diverse in character and the range includes small towns, cities and urban centres within cities. Some have been designated by UNESCO as World Heritage Sites or Cities, whilst others have recognition, or have been proposed as European Cities of Culture. The centres have all faced different problems and a variety of approaches have been utilised which are also examined.For each of the historic centres in the book the authors broadly cover a number of common themes: the policy and planning framework; management and regeneration action; environmental management; tourism and heritage management; and sustainability.

Robert Pickard

Introduction

Context of the Study

At the Second Summit of the Council of Europe held in Strasbourg in October 1997, the Heads of State and Governments of the member states of the Council of Europe reaffirmed the importance attached to ‘the protection of our European cultural and natural heritage and to the promotion of awareness of this heritage’. An Action Plan adopted by the summit decided on the need to launch a campaign on the theme Europe, A Common Heritage to be held ‘respecting cultural diversity, based on existing or prospective partnerships between government, education and cultural institutions, and industry’ (Fig. 1.1). This campaign, which was launched in September 1999 to last for one year, takes place 25 years after the European Architectural Heritage Year (1975).

Fig. 1.1 Europe – A Common Heritage: a Council of Europe Campaign 1999–2000 (campaign logo).

The 1975 campaign marked the start of the Council of Europe’s activities that gave rise to the European Charter of the Architectural Heritage. The charter identified the fact that the structure of historic centres is conducive to a harmonious social balance and that by offering the right conditions for the development of a range of activities our old towns can be helped to become a favourable environment for social integration. The subsequent Amsterdam Declaration of the Congress on the European Architectural Heritage (Council of Europe, 1975) which introduced the concept of ‘integrated heritage conservation’ emphasized that all areas of towns form part of the architectural heritage and that there is a responsibility to protect them against the threats posed by neglect, deliberate demolition, incongrous new construction and excessive traffic. It further stated that the rehabilitation of old areas should be carried out in a way which ensures that there is no need for a major change in the social composition of the residents. Integrated conservation involves an acknowledgement of their responsibility by local authorities, the participation of citizens, legislative reform to ensure action to safeguard both individual buildings and architectural complexes in the urban context, administrative measures to plan and co-ordinate actions, and appropriate financial mechanisms to support such action.

The concept of integration is now enshrined in two founding texts. The contracting parties to the Convention for the Protection of the Architectural Heritage of 1985 (the Granada Convention) (Council of Europe, 1985) have undertaken to take statutory measures to protect the architectural heritage, satisfying certain minimum conditions laid down in the Convention. These include the maintenance of inventories, the adoption of integrated conservation policies and the establishment of the machinery required for consultation and co-operation in the various stages of the decision-making process (including both cultural associations and the public), the provision of financial support and the fostering of sponsorship and non-profit making associations (the latter has been further explored in Council of Europe, 1991). The European Convention on the Protection of the Archaeological Heritage (revised) (1992) (the Malta Convention) (Council of Europe, 1992) took note of the fact that the growth of major urban development projects made it necessary to find ways of protecting this heritage through integrated conservation methods.

Since 1975 the Council of Europe has been actively involved in promoting the concept of integrated conservation. More recently the Cultural Heritage Department’s Technical Cooperation and Consultancy Programme for the integrated conservation of the cultural heritage has provided technical assistance for urban pilot projects in several coun-tries, most recently to help the new member states of central and eastern Europe. Since 1998 it has run a series of workshops on ‘rehabilitation in old centres as a factor of social cohesion and economic development’ and it is planned to hold a conference on this theme in Lisbon, Portugal, in May 2000.

The Congress of Local and Regional Authorities of Europe (CLRAE), which is an advisory body within the institutions of the Council of Europe, has held a number of European Symposia on Historic Towns since 1971 in which there has been an exchange of experiences between the authorities of the historic towns of Europe. Moreover, in the context of the campaign Europe, A Common Heritage the CLRAE is responsible for the organization of a transnational project to establish a European Association of Historic Towns. The aims of this project include: to assist in the establishment of national associations of historic towns, to share experiences of good practice on urban conservation and management, to promote viability and sustainability, to encourage partnership and co-operation between historic towns and collaboration with institutions, to raise public awareness and uphold the principles of democratic particip-ation in the management of historic cities, and to promote the develop-ment of appropriate national legislation which protects and enhances the historic heritage.

Other international bodies have also emphasized the importance of the conservation in historic centres. In 1976 UNESCO recommended that the necessary steps should be taken to ensure the protection and restoration of historic towns and areas and to ensure their development and harmonious adaptation to contemporary life (UNESCO, 1976). Furthermore, the ICOMOS Washington Charter states that the conserv-ation of historic towns and urban areas ‘should be an integral part of coherent policies of economic and social development and of urban and regional policy at every level’ (ICOMOS, 1987).

Themes of the Study

Within this context the aim of this study is to examine the following key themes for the management of historic urban centres within a representative sample of centres in different European countries. The twelve historic centres that have been chosen are spread throughout Europe, each one from a separate country. They are diverse in character and the range includes small towns, cities and urban centres within cities. Some of the centres have been designated by UNESCO as World Heritage Sites/Cities, or have applied for such designation, whilst others are recognized as European Cities of Culture or are seeking to be chosen as such. The centres have all faced different problems and a variety of management approaches have been (or are being) utilized and will be the subject of examination. For some centres the process of developing a management strategy is at an early stage, in others it is well advanced.

The campaign Europe, A Common Heritage provides the appropriate vehicle and timing for this study.

The Policy and Planning Framework

The recording of the condition of the immovable heritage within historic centres, areas and quarters can be a useful starting point for co-ordinating action to revitalize the heritage and to recognize its potential not only in terms of cultural value but also in terms of functional, economic or other values. Some countries have established specific programmes to identify the relative condition and the occupancy and vacancy position of architectural monuments as a starting point for more concerted programmes of action for the conservation, repair, restoration, regeneration and management of historic environments. For those centres initiating such strategies this will be an important part in the process.

The Amsterdam Declaration identified that ‘integrated conservation necessitates the adoption of legislative and administrative measures’ and the need for co-ordination at different levels. The ICOMOS Washington Charter further identified the need for ‘multidisciplinary studies’ on historic centres. It stated that ‘resultant’ conservation plans should address all relevant factors including archaeology, techniques, sociology and economics. The extent to which this has been achieved will provide an insight into the progress made in individual centres. The idea of introducing conservation management plans may be in the early stage of development but there should be some form of administrative co-ordination for effective historic centre management.

As a minimum there is likely to be some method to define an area and to designate monuments, groups of buildings, sites and areas within a centre, including urban complexes or even separate historic districts. Consideration of policies to define the centre may be identified as well as the system for monitoring demolition, large-scale alterations and new construction work. Moreover, the idea of managing ‘change’ within an area will be an important step in the process of keeping an area alive.

It is likely that management schemes will be integrated within a wider framework of urban planning policies to ensure the protection of the heritage (as recommended by both the Granada and Malta Conven-tions). In this context the following issues may also be relevant.

• Policies on applications for new development including the circum-stances in which it may not be permitted; the compatibility of new functions within the area; respect for the historic context in terms of volume, scale, form, materials and quality of design.
• Specific safeguards to protect views, vistas and settings, and historic street layouts.
• Control procedures and sanctions and coercive measures to safeguard the built fabric and other areas of recognized importance (including sites of archaeological importance, open spaces and historic parks and gardens).
• Strategies to enhance the appearance and character of the area through the use of design guides and development briefs for sites that have may been regarded as having a negative or neutral impact within a centre.

Management and Regeneration Action

The management of a historic centre will require the formulation and implementation of some form of plan mechanism and may include a specific ‘conservation plan’ or ‘action plan’ and the use of an economic development and regeneration strategy to encourage the maintenance and re-use of historic buildings and environmental improvements. The improve-ment or rehabilitation of buildings for housing, and the encouragement of compatible businesses, are likely to be two basic objectives of conservation as they may help to ensure that an area is kept alive. In this respect, action taken to preserve single monuments as well as groups and sites will be equally important. This will require some consideration of the levels of vacancy within heritage assets, and an assessment of the whether historic buildings are sufficiently flexible to accommodate new uses without damag-ing their essential character.

National and local authorities and other agencies may need to take part in the management process and this may involve the establishment of specific management agencies (public, private and joint venture) for the co-ordination of policies to revitalize a historic centre. Housing rehabilitation organizations, commercial organizations and voluntary bodies may also have a role to play in this context.

Specific financial arrangements will be needed to encourage preservation action, environmental improvements and regeneration activity, including funding partnerships or joint venture arrangements between the public authorities and private organizations perhaps their involvement of foundations. Such arrangements maybe more directly linked to urban renewal and regeneration organizations and mechanisms.

Environmental Management

Comprehensive environmental erosion caused by heavy traffic and inappropriate traffic management measures, and other pollutants, can have a significant impact, not just on individual buildings, but also on the whole environment of a historic centre. It will be important to consider oppor-unities for reducing pollution and vibration, to remove traffic and reduce congestion, and to improve the physical fabric of the environment including road surfaces, street furniture and other features such as landscaping and open spaces, and by the use of pedestrian priority schemes and the planning of parking areas.

Thus, it can be seen that the co-ordination of the authorities responsible for the construction of new roads, other transport facilities and a range of environmental protection issues will play an important role in safeguarding a historic centre.

Tourism and Heritage Management

Tourism can prove to be economically beneficial to historic centres. It can create positive gains for hotels, shops and other businesses and it can positively support conservation action. It also needs to be balanced against the needs and wishes of the local population. An over-emphasis on sup-porting tourist activity may damage the balance of existing communities and damage cultural assets themselves. Tourism can create pressure for new services and associated development. The extent to which tourist activity can be supported needs to be carefully planned and controlled. Heritage management is also important for maintaining the cultural identity of historic centres.

Sustainability

Taking into account the foregoing themes, the question of sustainability arises. The aim today should be to ensure that the management of historic centres is sustainable in terms of utilizing and safeguarding heritage assets for future generations through rehabilitation, maintaining a social balance and employment opportunities, environmental considerations, the manage-ment of tourist activity and participation by he community. Integrated con-servation approaches encourage this process. Moreover, in some countries policies for ‘sustainable development’ have now been developed in relation to land-use planning and heritage management.

The extent to which this approach is now filtering through to particular management strategies in historic centres is uncertain. In some cases, specific policies will have been implemented, in others sustainable goals may be implicit or at a preliminary stage. One aspect of this is the realization that not only is it important to preserve cultural assets per se, but also whether the capacity to allow change within the historic centre can be preserved. Change within a historic environment may often be the key to long-term preservation and sustainability.

Summary

Through these themes the present study seeks to provide evidence of different approaches to the management of historic centres within Europe. The analyses of a number of individual centres and a review of the key principles for historic centre conservation and rehabilitation will provide an opportunity to reflect on and assess the types of management tools and approaches that are required in order to sustain the quality of historic centres as assets of the ‘common heritage’.

References

Council of Europe (1975): Amsterdam Declaration: Congress on the European Architectural heritage, 21–25 October 1975.

Council of Europe (1985): Convention for the Protection of the Architectural Heritage of Europe (3 October 1985) (ETS, No. 121) (Granada Convention).

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Table of contents

• Cover
• Half Title
• Title Page
• Copyright
• Contents
• Foreword
• 1. Introduction
• 2. Bruges, Belgium
• 3. Telč, Czech Republic
• 4. Ribe, Denmark
• 5. Rochefort, France
• 6. Old Tbilisi, Georgia
• 7. Erfurt, Germany
• 8. Dublin, Ireland
• 9. Venice, Italy
• 10. The historic centre of Riga, Latvia
• 11. Historic centre management in Malta
• 12. Santiago de Compostela, Spain
• 13. Grainger Town, Newcastle upon Tyne, United Kingdom
• 14. The management of historic centres: towards a common goal
• Index