ENVIPLANS GUIDELINES - European...

ENVIPLANSGUIDELINES

Integrated and sustainable planning and management of the urban environment

ENVIPLANSGUIDELINES

Integrated and sustainable planning and management of the urban environment

November 2006

Co-ordinator of the project: Eriuccio Nora,Director of Coordinamento Agende 21 Locali Italiane

The text has been prepared by Maria Berrini and Lorenzo Bono from Ambiente Italia – Istituto di Ricerche, Milano (Italy)[email protected];[email protected];www.ambienteitalia.it

Inputs to the text have been managed and supervisedwith the help of Sarah Mc Mahon, Pete Fryer, Dave Tuffery and Ian McCormack (Bristol Council, UK) www.bristol-city.gov.uk/ccm/portal

The Guidelines have been elaborated thanks to the contributions and debates derived from meetings between ENVIPLANS’ participating cities and organised by the project partners: Coordinamento Agende 21 Locali Italiane, Comitè 21 andForum of Adriatic and Ionian Cities and Towns.www.a21italy.itwww.comite21.org www.adriatic-ionian.org

AKNOWLEDGEMENTS Coordinamento Agende 21 locali italiane(leader of the project)• Emilio D’Alessio, President• Eriuccio Nora, Director and Co-ordinator of the project• Filippo Lenzerini, Project Manager• Maria Elisa Zuppiroli, Emanuele Buda, Secretarial office • Giordano Cuoghi, Webmaster

Further collaboration: Elisa Baldet, Roberta Castri,Marco Malaguti, Marina Krajina

Comitè 21• Eric Guillon, President• Anne-Marie Sacquet, Director General • Antoine Charlot, Project Manager of the programme

«Territoires durables »• Anne Lemaire, Administrative Manager• Christine Delhaye, Communication Manager

Further collaboration: Jennifer Sonneville, Elisa Baldet,Fulvia Cugini, Yasmine Bourjlate, Cécile Drouillet,Alexia Nauleau.

Forum of Adriatic and Ionian cities and towns • Bruno Bravetti, Project Manager• Pier Roberto Remitti, Technical Expert for the project,

Manager• Marina Krajina, Secretarial office

Further collaboration: Anna Laura Lacerra

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CORE GROUPAgglomerato Urbano Cosenza - Rende:Leo Acri, Laura CipparroneComune di Firenze:Riccardo Pozzi, Armanni OberdanComune di Padova:Francesco Bicciato, Patrizio Mazzetto,Daniela Luise, Cinzia Rinzafri, AndreaAngrilli, Michele ZuinCommunauté d’agglomération OuestProvence:Bernard Granie, Suzanne Marceau, PatrickBoullay, Marie-Claude Dho-Fiandinio,Mireille FernandezCittà di Rijeka:Doris Sosic, Tanja Saulig, Ljubomir Stojnic,Lorena Mekic

ADVISORY GROUPComune di Ancona:Piero Remitti, Claudio CentanniComune di Ferrara:Michele Ferrari, Giovanna RioComune di Genova:Alberto Santel, Cristina VerdacchiComune di Lucca:Mauro di Bugno, Cecilia Martini,Francesca VianiComune di Modena:Giovanni Franco Orlando, NadiaPaltrinieri, Ana Maria Solis, BeatriceBruzzone,Bruna Paderni,Alessandro PelligraComune di Palermo:Giovanni Avanti, Ornella Amara

Comune di Pavia:Pinuccia Balzamo, Gianni MittinoComune di Roma:Mauro Degli Effetti, Alessandro SaloneComune di Trento:Massimo SimoniComune di Venezia:Beatrice Nazzari, Eliana Caramelli, DennisWellington, Cristiana ScarpaA.U. Cesano Maderno, Desio, Meda, Seveso:Marzio Marzorati, Sabrina Bobbiesi, RaffaellaMariani, Sara Geromin, Mariepa FavonioA.U. Chieti-Pescara Provincia di Chieti, Provincia di Pescara,Comune di Chieti, Comune di Francavilla alMare (CH), Comune di San Giovanni Teatino(CH), Comune di Pescara, Comune diCepagatti (PE), Comune di Manoppello (PE),Comune di Montesilvano (PE), Comune diSpoltore (PE), Comune di Cappello sul Tavo(PE): Massimo Luciani, Mauro Latini, UgoEsposito, Bernardo Appignani, MariangelaAppignani, Rudy D’Amico, Edoardo De BlasioC.A. Ouest Etang de Berre:Gaby Charroux, Jean-Edouard Dutech,Marie-Pierre Tignel, Serge Pons, FrédéricBoullerne, Jean-Edouard DutechC.A. Garlaban Huveaune Sainte-Baume:Alain Belviso, Robert Abad, Joëlle LaborrierC.A. Dracenoise:Max Piselli, Francis Aynaud,Sophie PerrymonC.A. Pole Azur Provence:Jean-Pierre Leleux, Catherine Jouve, KatiaTorelli, Hélène Noharet

Koper (Slovenia):Bruna Pisot-SaksidaIgoumenitsa (Grecia):Costantin CalfelisPatras (Grecia):Konstadinos Konstadakopoulos,Konstadinos KarpetasSplit (Croazia):Bozidar Capalija, Ljubomir Urlic,Nikola Horvat, Marina Kuzmanic PetresBar (Montenegro):Cazim Nikezic Durres (Albania):Sokol Kokomani, Eda CaushiLezhe (Albania):Pjeter KolaNeum (Bosnia):Djuro Obradovic

DISSEMINATION GROUPAPAT:Silvia Brini, Patrizia Franchini,Rosalba Silvaggio, Pace ManuelaDEXIA CREDIOP Italia:Giovanna Amato, Angelo Galasso FORMEZ:Antonio Saturnino, Cinzia Di Fenza,Annaelisa Fersini Banca Popolare EticaGruppo di Lavoro Città Sostenibili:Vanni Bulgarelli, Catia Mazzeri,Alessandro GhinoiRete Agende 21 della Toscana:Michela Di Matteo,Concetta Musumeci

Integrated and sustainable planning and management of the urban environment4

OTHER PARTECIPANTS:Giorgiana Palman,Ville de Hyères(Adelaïde Brieuc), PSA Peugeot Citroen(Allot Philippe), C.A. Mulhouse Sud Alsace(Arnold Fabienne), Communauté decommunes Marne et Chantereine (BuquetNadége), Eurocities (Allen Creedy),UNESCO (Peter Dogse),Ville deNarbonnes (Etero Mariline), DEXIA(Flamand Eric, Orjebin Caroline,VerdierAxelle), Università Paris Dauphine (Forster-Busson Ulrike),Ville de Lille (GueguenIsabelle), Conseil Géneéral de l’Essonne(Letheule Séverine),Veolia Water(MaurelDelphine),AMGVF (Piron Ludovic), CAdes Hautes de Biévres (Recouvreur Daniel),Insula (Prima Judith), MEED (SaintenyGuillame), Institut Angenius (SpleeRabehanta Stéphane), Facoltà di Economiadi Split (Maja Fredotovic), Istituto di SalutePubblica-Dip.Ecologia di Rijeka (NadaMatkovic, Dusanka Cuzela-Bilac), RegioneMarche (Michela Tonucci,Valentina Jacan),AAP2020 (Zorana Radetic), Undi (GjokeGjini), Caritas Svizzera (Nikolin Ujka), KlubEkologhe (Zef Imeraj), Shojety UjedisEdulim (Gjerg Elezi), Quarku Lezhe (NdrecGjini), D.K.SH.P. Lezhe (David Malci),Drbu Lezhe (Vlash Toma, Gjyste Mdoci),Shoqata Ekoturizmit (Vladimir Prenga),

Comune di Bari (Francesco Muciaccia),Comune di Brindisi (Mauro D’Attis),Comune di Casarano (Claudio Pedone),Comune di Cormano (Sonia Truant),Comune di Lecco (Carlo Castelli,AngeloRicchetti), Comune di Monfalcone (RadaOrescanin), Comune di Ravenna(Alessandra Di Maggio, Maria CristinaInnocenti, Raffaella Rosetti)), Comune diRimini (Laura Massari, Karen Visani),Comune di Salerno (Vincenzo Maiorino,Angela Magliacano), Comune di SanBenedetto del Tronto (Paolo Canducci),Comune di Torchiarolo (Giovanni Golia),Provincia di Lucca (Piero Manconi),Provincia di Salerno (Angelo Paladino),Provincia di Bologna (Valentina Beltrame),Regione Liguria (Laura Tubelli), RegioneLombardia (Olga Talamucci, CarlottaSigismondi, Marta Vailati, SimonettaRoncari, Debora Dazzi, Sandra Zappella),Regione Umbria (Paolo Camerieri,Nicoletta Tasso), Gruppo di LavoroNetwork CLEAR (Alessandra Vaccari),Agenzia Innova 21 (Simone Paleari),Ministero dell’Ambiente (Mara Cossu),Arpa Emilia-Romagna (Paolo Cagnoli),ANAB (Aldo Scarpa), Matteo Mascia,Domenico Mazza, Salvatore Quattrocchi,

Eirla (Ali Brahimi), Sh.a UjsjellesKanalizima (Zef Maci), Flokal (NikollLleshi), Seksioni Skerbue (Nikoll Gjoni),Biolog Eirla Lezhe (Jak Gjini),Agenia100% Shqip (Edmond Vlashaj), UretrojaShesbimit Pyia (Petrit Marku), DrejtanDraejtanis Fin. (Mark Zefi), Nikujeta Ikq(Gjovelin Gjeloski), Città di Scutari(Zemaida Castrati), Città di Zadar(Miljenko Pericic,Anita Grzan-Martinovic,Zana Klaric), Cistica Zadar (Ivica Vidov,Tomislav Curko),Tehnik D.O.O. (DubravkoHorvat,Valdo Balent), Ured DrzavneUprave Zadar (Milan Miocic-Stosic), OtokUgljan D.O.O.(Mladen Lucin), ECDelegation Croazia (Mojca Starc), DvokutEkro (Marta Brkic), Cistica Zadar (DaniloSkoric), HGK Zadar (Mato Ostojic), CisticaZadar (Dusan Cerina), Ind-Eko Rijeka (IlijaSmitran), Cisti Otok-Opcina Vir (ZeljkoBuskulic), Zavod za Prosterno PlaniranjeZadar (Igor Ramov), Zadarska Zupanija(Nives Kozulic),Tehnic (Djuro Horvat, DujoCerina, Konrad Gunther), Civil EngineeringInstitute of Cratia (Miljenko Weiss), Facultyof Chemical Engineering and TechnologyZagreb (Igor Sutlovic), Uniadrion (GiorgioPraderio).

The staff of Comité 21 would sincerely like to thank Région Provence-Alpes-Côte d’Azur for the support given to theENVIPLANS project.

Preface 6

Overview 9

1 Introduction 111.1 What it is about 12

1.2 The role States and Regions of southern 14Europe are asked to play

1.3 The South-EU Urban ENVIPLANS project 14

1.4 ENVIPLANS Guidelines 15

2 Getting started to launch or relaunch 19the planning process2.1 Baseline review: understanding the context. 20

ENVIPLANS’ Pre-audit method

2.1.1 Pre-audit: the steps to follow 202.1.2 Pre-audit: contents of the report 212.1.3 Pre-audit: main environmental aspects 212.1.4 Pre-audit: self-evaluation 22

2.2 ENVIPLANS Pre-audit: findings 22

2.2.1 Other plans to be taken into account 22

3 Considering organisational and institutional 25aspects for the development of the plan3.1 Defining what constitutes the planning cycle 26

3.1.1 The Plan’s themes 263.1.2 Profile and level of analysis 283.1.3 Which local scale should be adopted 293.1.4 Time frame of the planning cycle 29

3.2 Defining the relationship with other existing plans, 30regulations and statutes

3.2.1 Taking into account both existing and pending 30plans and tools

3.2.2 Level of binding commitment and institutional 30power of the Plan

3.3 Resources and terms needed to develop 32and implement the Plan

3.3.1 Organisation: who initiates the process and how 323.3.2 Activating internal and external resources 333.3.3 Setting up, motivating and training technical staff 333.3.4 What financial resources can be counted on 34

3.4 Activating participative processes 34

3.4.1 The main actors of the planning process 343.4.2 Who decides, and how 363.4.3 How can participative processes be best organised 363.4.4 Raising citizens’ awareness and participation 37

4 Initial assessment evaluation: 39directing it towards the development of the plan4.1 Collecting and communicating baseline information 40

4.1.1 How to organise and present information. 40What reporting format to use

4.1.2 How to select indicators for reporting 414.1.3 Getting hold of the required data 424.1.4 How to communicate information 43

5 How to develop and detail plan’s contents 45and direct them towards action5.1 Defining objectives and setting targets 46

5.1.1 What is a target and what is it used for 46

5.1.2 Definition criteria 47

5.1.3 What steps to take 47

5.2 Preliminary outline and selection of possible actions 48

5.2.1 How to generate and select actions 48

5.3 Defining roles and responsabilities, 49drafting the plan’s operational programme

5.3.1 Who should take on responsibilities 49for the implementation of the Plan

5.3.2 How to structure the operational programme 50

5.4 Detailing financial aspects 51

5.5 Closing the circle: monitoring, accounting, 52auditing, assessing results, reviewing objectives

6 Annex 556.1 The 5 Case Studies 56

6.2 Further reading 56

6.2.1 Air 566.2.2 Mobility 576.2.3 Energy and climate 596.2.4 Noise 606.2.5 Waste and procurement 616.2.6 Urban planning (green spaces and built environment) 63

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INDEX


The President of the Coordinamento Agende 21 Locali Italiane

Emilio D’Alessio

PREFACE

European policies for sustainable development inurban areas have always been an important

source of reference for Italian cities. OurCoordinamento Agende 21 Locali Italiane wascreated and strengthened on initiative of manyItalian cities and has grown by confronting itself withother European networks and thanks to the supportof the European Commission’s activities.The 300 local authorities and more, taking part in theCoordinamento Agende 21 Locali Italiane, believein a new model of governance, participativedecision-making, transparency of procedures andconsultation of citizens. They believe in a new visionof development, one which encourages a rationaluse of resources, social equity, co-operation andsussidiarity. The hundreds of Italian Local Agenda21 experiences have proved a great potential andmeet the requirements for participation andconsultation, an aspect which traditionaladministration and planning models cannot fulfil.For us, the Aalborg Commitments, agreed on in June2004 at the 4th European Conference on SustainableCities represent an important reference and urge usto activate or relaunch new assessment procedures,the adoption of targets and the development ofparticipative action plans.It is for these reasons that we committed ourselvesto the ENVIPLANS project. The running of thisproject has, in fact, helped to keep alive the interestof many European cities in attempting integratedenvironmental planning processes. Current planningtools (and their clear limitations) were examined,and the most suitable requisites for each site-specificcircumstance were sought. The exchange ofexperiences, the analysis of the different modelsexisting in southern Europe, the participativedrafting of these “Guidelines on sustainableplanning and management of the urbanenvironment” constitute the fundamental steps andoutcomes of ENVIPLANS.

Of course, this is not enough.We need the support ofEuropean and National strategies. The EuropeanThematic Strategy on the Urban Environment, setup with the idea of turning into a Directive forMember States, gradually weakened and turned intoa communication. Still, it bears some interestingpoints, which, however, need to be developed in amore functional way. The recent Resolution of theEuropean Parliament confirms the need to raise theefforts which initially gave rise to the developmentof a European Strategy.From our side, our appeal goes to regional andcentral governments, in particular to those of thecountries of southern Europe involved in theENVIPLANS project, and await a clear stance,coherent with the recommendations proposed inthese Guidelines.Cities and local communities are the driving force ofeconomy and represent the testing ground of socialand political progress. Important managementthemes, such as energy and mobility policies,education and training, services to citizens, land useand other resources, social inclusion and safety, needto be dealt with through coherent and systematicnational and regional strategies and a share ofcommitments and responsibilities at the differentinstitutional levels.There is also a need to find ways to strengthen therelations that have come to life between cities of theMediterranean basin. Here, the partnership which hasgenerated the ENVIPLANS project is an importantexample and element. Their recommendations, manyof which have been reported in these Guidelines, mayfind a mean of expression in a Mediterranean UrbanStrategy. This latter challenge of driving andcoordinating a wider group of nations should, in ourview, be taken on by Italy, due to its naturalgeographical bridging function in this area.While waiting for others to take on theirresponsibilities, we will continue to play our part.

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The President of the Forum of Adriatic and Ionian Cities and Towns

Luciano D’Alfonso

As president of the Forum of Adriatic andIonian Cities and Towns, I am very pleased to

introduce the first Guidelines on integrated andsustainable planning and management of the urbanenvironment developed as a result of the SouthEU Urban Enviplans project.This important and innovative document wasdeveloped thanks to the commitment and work ofmany competent and professional people, whodedicated their time to research and broaden thegoals set out by the Thematic Strategy on theUrban Environment.The implementation of the recommendationsprovided by the Guidelines constitutes a strategiccommitment, essential if you are to guarantee thatthe concepts underlying sustainability becomecentral to decision-making in urban planning. Thisis not only true for those countries which havecontributed to the drafting of these guidelines andwhich, nevertheless, present many differences in

their regulation system.The Forum of Adriatic and Ionian Cities has beenengaged for years in defining common strategieswhich focus and direct the development of citiestowards sustainability, as not to deteriorate thealready vulnerable quality of life and worsen thenatural environment in the years to come.For those local authorities wishing to adopt anIntegrated and Sustainable Management Plan forthe urban environment, these guidelines representthe main tool and are an ambitious challengetaken on by Enviplans towards the actualimplementation of a lasting sustainabledevelopment.May the local communities of Adriatic and Ioniancities, and in future, all cities of the EuropeanMediterranean region, adopt and implement thisdocument in full, as to develop a common groundon which to tackle such fundamental themes. Thisis what the Forum hopes to achieve.

ENVIPLANS’ Guidelines were launched as a project in January 2005 on request of the European Commission, with the clearintention to anticipate and develop on the field the concepts underlying the preparatory documentsof the European Thematic Strategy on the UrbanEnvironment (finally adopted in 2006)1.

ENVIPLANS’ Introduction outlines the context,the reference models used, and the step-by-stepdevelopment of the Guidelines.The Chaptersthat follow provide the reader (politicians,administrators, consultants in the field of localsustainability) with numerous recommendationsand suggestions, developed on the basis of “hands-on” experiences and confrontation betweenthe cities of southern Europe involved in theENVIPLANS Project.They offer advise on how to carry out and optimise the various steps of a planning cycle concerning “integrated and sustainable planning and management of the urban environment”, while taking into account the situation of southern Europe.

The Guidelines have been integrated withinformation Boxes reporting:

■ brief statements made by participants(Comments)

■ references to web sites or documents and case studies for a more in-depth study of themes discussed only in brief by theGuidelines (Further reading)

■ direct links from which to download tables,guides and examples that might be useful for developing the steps proposed by the Guidelines (Tools Archive andDocuments Archive)

The Guidelines’ Annex takes you to the archivecontaining the Final Reports produced for the 5 case studies, which have accompanied the project. These comprise also a selection of Resources that might be useful for a morein-depth analysis of specific “themes”.

9

OVERVIEW

Note

1. Link to the website: http://ec.europa.eu/environment/urban/thema-tic_strategy.htm; Link to the communication on the Thematic Strategyon the Urban Environment - 11.1.2006 - COM(2005)718 final versionhttp://ec.europa.eu/environment/urban/pdf/com_2005_0718_en.pdf

11

1Introduction


1 Introduction

Prior to a more in-depth account of the proposalsdeveloped by ENVIPLANS in the next chapters,this introduction aims to clarify the followingaspects to the reader:■ To what model do we refer when we talk about

tools for “integrated and sustainable planningand management of the urban environment”

■ What role are States and Regions of southernEurope asked to play, what do local governmentsexpect from them

■ How did the project ENVIPLANS come aboutand how did it evolve

■ What are the four essential pillars on which theplanning process builds and for whichENVIPLANS Guidelines provide some specificoperational recommendations

1.1 What it is about

First of all, what do we mean, to what models do werefer, when we talk about tools for “integrated andsustainable planning and management of the urbanenvironment”?The final communication of the European ThematicStrategy on the Urban Environment2, adopted inJanuary 2006, represents an officially recognisedreference.On request of the European Commission,the ENVIPLANS project was launched (January2005) one year prior to the adoption of theCommunication on the Strategy, with the clear aimto anticipate and develop on the field the conceptsunderlying the preparatory documents of thestrategy. These preliminary documents define anurban environmental management Plan as follows:“An urban environmental management plan is astrategic document that sets out the short, mediumand longer term environmental objectives andpolicies. It defines a clear vision, and the overallstrategy and action plan to achieve quantifiedobjectives and targets, as well as timetables, which arenecessary to guide and steer daily managementdecisions”3. Furthermore, the 2006 Communicationconfirms the explicit intent of the EuropeanCommission to promote “an integrated approach tothe management of the urban environment”.In fact, the Communication declares that “…the most

successful local authorities use integrated approachesto manage the urban environment by adopting long-term and strategic action plans”.Even the preparatory document drafted in February2006 by the Working group set up by DGEnvironment4, well underlines the importance ofPlans capable of adopting “…a more comprehensiveor holistic approach to urban policy (public andprivate), so tackling the contradictions due tocompartmentalisation of sectoral policies”.The Aalborg Commitments5 are another source ofreference. Here, the signatory cities acknowledge awider concept of Local Sustainability (which sees theinclusion and integration of environmental aspectsinto socio-economic considerations) and committhemselves firmly to the development of integratedand participative planning approaches:■ Commitment no. 1 - Governance: “energise

decision-making processes through increasedparticipatory democracy…”.

■ Commitment no. 2 - Management: “implementeffective management cycles, from formulationthrough implementation to evaluation…”.

Additionally, during the end stage of theENVIPLANS project (26th September 2006), theEuropean Parliament resolution on the thematicstrategy on the urban environment6 was approved.This is an important point of reference for theMember States and a key input for relaunching theStrategy, which will have to be integrated intoEuropean and National strategies.The contents of the Resolution somehow representthe “legal base” on which the ENVIPLANSGuidelines develop. Especially in those passagesstating (in line with the preliminary documents ofthe Strategy) the need to provide urban areas withSustainable Management Plans and to use them as atool to obtain European Funds.In the Resolution, the European Parliament :1. welcomes the communication from the Commissionon the TSUE; however, considers that it is notsufficient to achieve the goals set in the 6th EAP;4. regrets that, contrary to the intentions of the 6th

EAP, there are no legally binding measures anddeadlines proposed by the Commission to addressany of the goals set out by the 6th EAP;7. stresses that the Commission, in co-operation with

the national authorities, should encourage everyagglomeration having more than 100,000 inhabitantsto establish a Sustainable Urban Management Plan(SUMP) and a Sustainable Urban Transport Plan(SUTP).14. calls on the Member States to prioritise withintheir national strategic reference frameworks andtheir operational programmes funding for projectswhich implement sustainable urban management andtransport plans, as well as projects limiting greenfieldand promoting brownfield developments, and topromote the planting of street trees and designation ofmore green space;51. endorses the Commission’s recommendations thatan integrated approach be taken to managing theurban environment and takes the view that, if appliedat local level with the support of the Member States,such an approach should be taken as one of thecriteria for the granting of Structural Funds resourcesand loans from the European Investment Bank(EIB);52. calls on the EIB to improve its lendinginstruments to effectively support sustainable urbandevelopment and to prioritise in existingprogrammes urban projects which implementSUMPs, in particular in the area of energyefficiency, renewable energies, and sustainableurban transport infrastructure; further calls on theEIB to ensure that investments funded by it do notcontradict sustainable urban managementobjectives.

In our areas – the areas of southern Europe – anintegrated and sustainable planning andmanagement approach for the urban environment,provided with resources, eligibility and capable ofprevailing over other interests and politics in thelong run, does not exist yet.However, some voluntary based planning initiativesand environmental management tools exist insouthern Europe and partners of this project havesupported their dissemination (the EnvironmentalCharter Charte pour l’Environnement in France,Local Agenda 21 processes, environmentalaccounting and reporting in Italy, EMAS in allMember States…). Still, these experiences representpioneering efforts and do not, in any case, receivethe attention they deserve.Of course, we need to bear in mind that otherplanning tools – urban planning tools, but not only –have undergone some adjustments in recent years.In some cases, these changes have been positive(unfortunately not everywhere). The fact that Plansare becoming subject to environmental assessmentprocedures – thanks to the European Directive2001/42/CE on Strategic Environmental Assessment– pushes them, or will in the future push them,towards innovation, forcing them to consider andinclude environmental issues as a “stringent factor”in their planning process.However, the Thematic Strategy on the UrbanEnvironment, and even more explicitly the EuropeanParliament Resolution, seek to develop something of

F. BicciatoEnvironment Councillor, City of Padova

Environmental policies are successfulonly if developed and integrated intoother policy areas and with theinvolvement of citizens. In Padova, thanksto the set up of a Local Agenda 21process, we have been able to create theright conditions to develop ideasbetween citizens and the differentOffices of the administration, and to gainsupport. In fact, this is the approach weare currently using to develop our EnergyPlan (in co-operation with the School andour Construction Service); we havestarted a participative planning process

to develop an urban green park (with thesupport of the inhabitants of the area andour Urban Planning Department); wehave launched a campaign on GreenProcurement (with the support of theSports Department and SportAssociations); we have starteddiscussing with the Mobility Departmentand the farmers about the possibility ofusing biofuels for local public transport.

Comitè 21 France

These plans need to be incorporated intoa participative planning process andcontinuos improvement cycle, in line with

the recommendations set out by theAalborg Commitments. Aim of theENVIPLANS project was to provide localcommunities with a new culturalapproach: participative democracy andtackling the interconnection ofenvironmental challenges. Furthermore, inorder to set up a common frame ofreference for the development of urbanenvironmental planning and managementtools, the project has built on localexperiences and has even gathered andconsidered local requests in relation toEuropean regulation and funding systems.The Local Agenda 21 approach has beenused as a source of reference.

COMMENTS

1 Introduction 13


higher relevance. They make reference to tools suchas a Plan (and to a continuous management system)capable of putting environmental policies at thecentre of its planning process through an integratedapproach (with other policy areas). The Plan shouldtherefore provide the local community with a widersustainable development strategy, including “clearlydefined objectives, public consultation, acceptedresponsibilities, procedures for monitoring progress,review, audit and reporting…”7.

The Strategy recommends to prioritise the followingthemes in urban planning and management: “toprotect our climate, to protect nature and biodiversity,to promote the quality of life, the sustainable use ofnatural resources such as water, energy, waste”. TheEuropean Parliament Resolution reinforces the 4themes on which the Strategy had initially beenlaunched: Sustainable Urban Management,Sustainable Urban Transport, Sustainable UrbanPlanning, Sustainable Urban Construction.The challenge launched by the AalborgCommitments – and acknowledged by theENVIPLANS Guidelines – is even higher:“Commitment 2.4 Ensure that sustainability issues arecentral to urban decision-making processes and thatresource allocation is based on strong and broadsustainability criteria”.

The Thematic Strategy, the European ParliamentResolution, as well as the many Europeanexperiences pursuing this concept (“…severalMember States have legislated or put mechanisms inplace to require integrated management of the urbanenvironment”)8, represent a challenge, whichENVIPLANS has decided to take on and to developfurther as follows: provide local administrations witha Management Plan – integrated and sustainable – ofthe urban environment, which does not just identifyone area or the landscape to protect, but ratherdefines in a more active way, “what to do”. All this, inorder to spread a new culture and awareness, restoreand upgrade environmental resources, make a moreefficient and just use of them, innovate settlementmodels, mobility, economy and construction industryin the light of sustainability.Next to highlighting the most pressing factors inregard to the urban environment, these Plansidentify synergies and mutual benefits, define a set ofpriorities, allocate resources and activate partnersfor implementation.

1.2 The role States and Regions of southern Europe are asked to play

According to the 2006 Communication, it is theresponsibility of the Member State and the Regionsto adopt the recommendations expressed by theStrategy:“... The Commission strongly recommendslocal authorities to take the necessary steps to achievegreater use of integrated management at the local leveland encourages national and regional authorities tosupport this process…”They must therefore trigger effective strategies,create financial incentives (by directing funds anddeveloping related calls for proposals) andmethodological tools to support local authorities inthe development of urban environmentalmanagement plans.

Thus, the city networks and local authorities involvedin the ENVIPLANS project now expect a clearcommitment from sides of States and Regions(possibly fixed by a binding date). One possiblecommitment, for example, may be the definition ofnational and regional strategies for the urbanenvironment via adequate consultation of the citiesand their representatives (of course, by formulating itdifferently in the different States, and by taking intoaccount each specific context). What is hoped to beachieved is the development of national and regionalstrategies with measures aiming at a clear result.Where necessary, this may mean the introduction ofthese plans and approaches into existing localadministrative planning procedures, or the adoptionof supportive measures and incentives to stimulatethe spread of these approaches in all urban areas orin those reaching a certain size. All this, within agiven time frame, which still needs to be defined.

1.3 The South-EU Urban ENVIPLANS project

While awaiting the adoption of theserecommendations by the States and Regions, andthe development of effective solutions,ENVIPLANS’ project partners9 have startedmaking their own considerations and proposals.Many ideas and practical experiences have beendeveloped in the past years through meetings,working groups or pilot projects10. Nonetheless, theSouth EU Urban ENVIPLANS project, started in

2005 and co-financed by the EnvironmentDirectorate-General (DG) of the EuropeanCommission11, has been expressively set up to assess,anticipate, improve and spread the word adopted bythe European Strategy on the urban environment.These Guidelines develop the recommendations ofthe Strategy and apply with coherence the requestslaunched by the European Parliament Resolution.ENVIPLANS’ aim is therefore to encourage,especially in southern Europe, the development,exchange and implementation of practicalexperiences in matters of preparing plans,programmes, and integrated management systemsfor the urban environment12.

The need for a common and specific action insouthern Europe is due to the absence of well-defined and supportive national and regionalpolicies in several Mediterranean countries,causing southern Europe to lag behind manycountries of central and northern Europe.Meanwhile, the central role played by localauthorities as an active part in the formulation ofsustainable development actions, as well as apossible cultural “bridge” for countries of EasternEurope, Northern Africa and the Mediterranean, is

gradually emerging in southern Europe. In fact, the 3local authority networks (Italian, French and easternAdriatic comprising Greece, Slovenia and other nonEU countries), involved as project partners ofENVIPLANS, have taken on this positive role.

1.4 ENVIPLANS Guidelines

ENVIPLANS has promoted and co-ordinated theresearch of integrated planning and managementapproaches for the urban environment in five urbanareas (Core group)13 and an exchange of ideasbetween approximately 30 cities of southern Europe– from Italy, France and the Adriatic (Advisorygroup), helping out in identifying requisites andsolutions needed in southern Europe.

The added value of these Guidelines resides in thefact that they have been developed “in the field” viaparticipation and approval of its end-users, as well asby drawing on practical experiences from some ofthe most advanced local authorities in southernEurope, directly involved in formulating theseGuidelines.To this end, during the 2-years running ofthe project, the partners’ networks have organised

ENVIPLANS partecipating cities

1 Introduction 15

several meetings and thematic seminars (involvingtherefore Italian, French and Adriatic-Ionicmembers), and represented an opportunity to callfor a discussion between the Advisory and CoreGroups on particular aspects of the planning processand on integrated management approaches or otherspecific intervention fields.

For ENVIPLANS the starting point was to viewenvironmental planning and management as acircular process, subject to continuous improvement.However, the cities participating in the projectdisplay differing situations. Some cities have alreadycompleted the entire cycle, some have only juststarted. Nevertheless, it is important for all of them,to strengthen their experiences, to improve tools andto take up all possible opportunities to relaunch thecycle of continuous improvement.

According to the framework developed for thisproject, the planning cycle itself must cover thefollowing 4 steps in order to be effective:

1. Start or relaunch of the planning process2. Baseline Review and identification

of preliminary aims and priorities3. Development of contents of the Plan4. Implementation of the Plan

Having this framework in mind as a generalreference, a comparison between ENVIPLANScities was carried out by trying to answer thefollowing questions:■ What should the nature of the Plan be and how

should organisational and institutional aspectsbe incorporated and directed towards thedevelopment of the Plan?

■ How can an initial assessment be followed up anddirected towards the development of the Plan?

■ How should contents of the Plan be detailed inorder to facilitate its implementation?

■ How should evaluation tools and monitoringpractices be adopted?


Baseline Review/Pre-audit: assess the starting situation

Set up the institutional structure (local community area,reference plans, authorities)

Set up the organisational structure, involving politiciansand staff of the local authority

Launch (or relaunch) participative approaches

Select or integrate themes and indicators

Collect or up-date information

Identify compliance, environmental priorities and targets (draft version)

Select intervention areas and general objectives

Define actions and targets (final version)

Identify tools to harmonise actions, as well as otherPlans, develop operational details of actions

Formal commitment, partnership, responsibilities

Accounting, assessing actions, reporting and reviewing(continuous management system)

Keep a regular and formal updated record

IMPLEMENTATION OF THE PLAN

CONTINUOUS IMPROVEMENT

FORU

MSTART / RELAUNCH

OF THE PLANNING PROCESS

DEVELOPMENT OF CONTENTS

BASELINE REVIEW IN DETAILAND PRELIMINARY TARGETS

1 Introduction 17

The recommendations described in the followingchapters are the result of this exchange of ideas andcan be summarised in 10 key ideas. They also sum upthe general principles proposed by ENVIPLANS:

1. Understanding the context – Identifying priorites2. Adequacy of human and organisational

resources 3. Adoption of a – long term – wider community

area - Strategic Vision4. Moving towards action – defining implementation

tools5. Clear definition of targets and indicators to

achieve and monitor progress6. Integration and improvement of existing

planning and management procedures7. Political legitimacy and support 8. Communication and consultation in participative

planning processes9. Widespread responsibilities in implementing the

Plan10. Monitoring and assessment of progress and

barriers – Continuous improvement

Just as indicated by the European Strategy,ENVIPLANS suggests to adopt the above 10 ideasas key requisites for a “minimum” good practiceplanning and to make reference to the models andterminology adopted by the most recent andinnovative environmental management toolsdeveloped (EMAS, ISO, Environmental Accounting,etc.), as well as to the commitments subscribed by theEuropean Cities at the Aalborg Conference in 2004(Aalborg Commitments).

The Guidelines summarise the outcome of this workand report the main observations derived fromdiscussions between the cities. They have beenintegrated with additional proposals or with furtherreading suggestions.

The Chapters of the Guidelines have been structuredaccording to the 4 steps previously outlined:■ Chapter 2 and 3 (Starting or relaunching the

planning process)■ Chapter 4 (Baseline Review in detail and

identification of preliminary targets)■ Chapter 5 (Development of contents and

Implementation of the Plan)

Note

2. Link to the website: http://ec.europa.eu/environment/urban/thematic_strategy.htm; Link to the “Thematic Strategy on the Urban Environment” -11.1.2006 - COM(2005)718 final report http://ec.europa.eu/environment/urban/pdf/com_2005_0718_en.pdf

3. Link to the website: http://ec.europa.eu/environment/urban/towards_com.htm ; Link to the report “Towards a Thematic Strategy on the UrbanEnvironment” - 11.2.2004 - COM(2004)60 final report http://eur-lex.europa.eu/LexUriServ/site/en/com/2004/com2004_0060en01.pdf

4. Link to the website: http://ec.europa.eu/environment/urban/experts_working_groups.htm;link to the report http://ec.europa.eu/environment/urban/pdf/fin_rep_urban_emps.pdf;

5. 10 Commitments towards sustainability signed by around one hundredEuropean local administrations: link to the websitewww.aalborgplus10.dk; www.europa.eu.int/comm/environment/urban/aalborg.htm; the ACTOR Project http://www.actor.sustainable-cities.org.uk/ is developing a website (www.localsustainability.eu)containing documentation and tools helpful for implementing the 10Aalborg Commitments.

6. To read the integral version seehttp ://www.europar l .europa.eu/s ides/getDoc.do?pubRef=-//EP//TEXT+TA+P6-TA-2006-0367+0+DOC+XML+V0//EN

7. Thematic Strategy on the Urban Environment - 11.1.2006 -COM(2005)718 final version

8. Belgium (Flanders), Denmark, France, Hungary, Poland, Slovenia:legislation; Cyprus, Czech Republic: are studying the mechanism; UK:some elements; in Slovenia, the adoption of an environmental Plan hasbecome a binding obligation for its main cities.

9. ENVIPLANS’ project partners:COORDINAMENTO NAZIONALE AGENDE 21 LOCALI ITALIANE – thisorganisation was constituted in 1999 in order to co-ordinate Italian LocalAgenda 21 processes and to promote sustainable development models.

Official website: www.a21italy.itCOMITÉ 21 – the French Committee on Environment and SustainableDevelopment was established in 1994. Its main objective is tocontribute to the implementation of French Local Agenda 21 processes.Official website: www.comite21.org,www.agenda21france.orgF.A.I.C.T. - FORUM OF ADRIATIC AND IONIAN CITIES & TOWNS –association of cities and States of the Adriatic and Ionian area,promoting economic, social, cultural and scientific integration. Officialwebsite: www.adriatic-ionian.orgAMBIENTE ITALIA – a Scientific Research and Consulting Group,operating in the field of local and environmental planning, assessmentand project development. Official website: www.ambienteitalia.itBRISTOL CITY COUNCIL – situated on Britain’s western coast, the city ofBristol has adopted a development strategy based on the protection ofenvironmental resources such as air, water, soil and energy, in order toguarantee a healthy future to its citizens, children and wildlife faunapresent in the city. Official website: www.bristol-city.gov.uk

10. Examples for Italy are the CLEAR project (www.clear-life.it), theTANDEM project (www.provincia.bologna.it/ambiente/tandem/) andSustainable Cities Working Group (www.cittasostenibili.it); an examplefor the Adriatic area is the ADRIATIC ACTION PLAN (www.aap2020.net).

11. Other projects have been funded by DG Environment for this purpose. Aclose collaboration with the projects Liveable Cities http://www.eurocities.org/liveablecities/index.php and MUE25 http://www.mue25.net has been activated.

12. www.enviplans.net 13. ENVIPLANS’ experimental Core Group:

The urban area of Florence (Italy)The urban area of Padova (Italy)The urban area of Cosenza/Rende (Italy)The urban community of Ouest Provence (France)The city of Rijeka (Croatia)

2Getting started to launch

or relaunchthe planning process

19


2 Getting started to launch or relaunchthe planning process

As outlined in the previous paragraphs, the weakplanning and management capacity of the urbanenvironment in southern Europe urges for thedevelopment of new tools.However, any new definition or developmentmust bear in mind the strengths and weaknessesof current planning tools in these countries.For this reason ENVIPLANS decided to place therunning of a so-called “Pre-audit” as the first stepof the planning process.

2.1 Baseline review: understanding the context. ENVIPLANS’ Pre-audit method

ENVIPLANS’ Pre-audit undergoes a processcalled “Peer review” (an evaluation completed byequals), generally carried out by one or more“auditors”: an expert in the field, one or morecolleagues from another local authority (andsomebody appointed with the task of arrangingand reporting back findings).The aim of the Pre-audit is to develop a preliminary Baseline reviewand evaluate initial conditions, strengths andweaknesses, before starting a new integratedplanning cycle.

During the assessment, the auditors, along withthe technicians and city administrators, will:■ identify local challenges and priorities on which

to act on;■ examine the possibility of integrating existing

plans;■ specify the key passages needed at local level to

develop an integrated environmental planningcycle;

■ identify the human and financial resourcesneeded to start the planning cycle;

■ define the Road Map and guidelines needed tolaunch (or relaunch) the planning cycle.

2.1.1 Pre-audit: the steps to follow

Identify an internal “referee / co-ordinator”■ He/she will play a crucial role in helping the city

preparing and carrying out an audit and willinteract with the external auditor. This personmust:• be acquainted with the city, the working of the

public administration and its internal andexternal key contacts;

• ensure that all key persons (politicians,officers, head of departments, consultants)have been contacted and manage relationswith the external auditor;

• help to explain and to interpret correctly theinformation requested by the Pre-audit report;

• ensure information collected is correct andmade available in time.

■ These arrangements should not take up morethan 3-4 days. The efforts made will help savetime later on and are an efficient way oflaunching the planning process in the rightdirection.

Assistance ■ The external auditor will contact directly the co-

ordinator appointed by the city. However, if thecity hasn’t yet nominated a co-ordinator, thenthe auditor will have to make the additionaleffort of identifying more subjects and involvethis wider group.

■ Contacts occur via e-mail or phone and aim atclarifying final goals of the Pre-audit.

■ Plan a site visit and arrange interviews which willtake up approximately half a day. Or else, sendvia mail some instructions on how to completethe Preaudit report, asking the local authorities tocollect and organise the documents andinformation needed.

■ Once the first information has been collected,the auditor sends either the minutes of theinterview or a preliminary draft of the Reportto the referent of the city. At last, the auditorreviews the final version of the Report.

21

2.1.2 Pre-audit: contents of the report

Socio-economic frame (latest up-date)■ Population density and number of inhabitants

(it is suggested to cover a wider area, such as ametropolitan area or a cluster of annexingmunicipalities etc.)

■ Main economic sectors and vocation (suitability)of the local area

■ Demographic and socio-economic trends(income, employment, social cohesion. etc.)

Institutional and organisational aspects■ Time frame of the elected administration■ Internal organisation (especially of departments

and services dealing with environmental issues)■ Availability of human resources working on

environmental issues (internal staff and externalconsultants)

■ Presence of development agencies and publicutility service companies

■ Level of decentralised competencies (delegatedat district-level etc.)

■ Existence of partnerships between annexingadministrations (metropolitan authorities etc.),generating better conditions for vertical/horizontal co-operation

General priorities and political commitment towards the environment ■ Existence of formal acts committed to

sustainability (for example, signing-up to theAalborg Commitments, municipal resolutions,joining of a network, aiming at activating aLocal Agenda 21 process, etc.)

■ Political commitment towards the environmentby the public administration (mandate’sprogramme, council’s resolutions)

Planning tools dealing with environmental issues (binding)■ Urban Area Plans, Waste Management Plans,

Mobility Plans, Energy Plans, etc. (even thoughthey do not directly fall under the publicadministration’s activities, operational plans ofpublic utility service companies should also beconsidered, especially if under public control;higher institutional plans – for example, provincialplans – should also be considered if relevant forimproving co-operation at institutional level)

Participative planning tools, of environmental relevance (voluntary)■ Strategic Plans, Local Agenda 21 processes, etc.

Management and reporting tools (voluntary)■ ISO14001, EMAS, RSA, regular environmental

accounting, etc.

Solutions adopted to promote the integration of environmental and local policies■ Harmonisation (aiming at implementing Local

Agenda 21 processes or other sustainabilitystrategies) of different Departments or UnitOffices (internal Forum), joint decision-makingprocedures, impact assessment of local strategieson the environment (SEA or similar tools)

Participation and partnerships■ Existence of citizen’s Forum, consultation

structures and participative processes■ Agreements, arrangements and protocols

between the public and private sector

Financial resources■ Allocation of funds for the running of

assessments, concerted actions, implementationof environmental planning tools, Local Agenda21 processes etc.

2.1.3 Pre-audit: main environmental aspects

Using all the data, information and reportsavailable, a preliminary description of existingweaknesses should be possible (critical points,non-compliance with norms etc., even a simplequalitative analysis is sufficient).Main aspects to consider:■ Air■ Water■ Noise■ Natural resources and biodiversity■ Land use■ Cultural heritage and built environment■ Waste■ Local development ■ Mobility■ Climate Change and energy■ Enterprises■ Other themes (for example those covered by

the Aalborg Commitments)

2 Getting started to launch or relaunch the planning process

2.1.4 Pre-audit: self-evaluation

The local administration carries out a SWOT(Strengths, Weaknesses, Opportunities, Threats)analysis, based on the information gathered in thefirst part of the report. It should consider thefollowing points:■ Strengths: success stories experienced inside the

administration, on which it can further built on(competencies, resources, best practises,successful policies etc.)

■ Weaknesses: factors inside the administrationthat could hinder the development of theplanning process (lack of staff involvement, badorganisation, slow decision-making etc.)

■ Opportunities: external factors that couldinfluence positively the planning process (newsynergies and co-operation opportunities,positive political trends etc.)

■ Threats: external factors that could harm thedevelopment of the planning process (lack ofpolitical support at higher levels, oppositionfrom strong parties, etc.)

☞ TOOLS ARCHIVE Accessible via linkGO TO THE PREAUDIT CHECKLIST http://www.a21italy.it/a21italy/enviplans/guidelines/tools

The Local Evaluation 21 Project14 website proposesan interesting method to assess the quality ofparticipative approaches (Local Agenda 21,Participative Planning etc.). As the informationprovided aims to highlight strengths and weaknessesof present planning processes, the website might beof interest to administrators and auditors.

2.2 ENVIPLANS Pre-audit: findings

The Pre-audit experimented with the 5 Core Groupcities (followed by an examination of results by the30 advisory cities) turned out to be very useful andhas revealed a very varied situation. Findings aresummarised in the report “ENVIPLANS Pre-audit –integrated reading and summary evaluation of the 5case studies” – which represents a first step towardsthe drafting of a Baseline Review, as recommendedby the Aalborg Commitments.

☞ DOCUMENTS ARCHIVE Accessible via linkGO TO ENVIPLANS PRE-AUDIT (INTEGRATED READING ANDSUMMARY EVALUATION OF THE 5 CASE STUDIES), AS ANEXAMPLE OF HOW TO DEVELOP A PRE-AUDIThttp://www.a21italy.it/a21italy/enviplans/guidelines/tools

However, the interesting feature worth a mention,and common to all 5 cities, is the presence of a setof planning tools, which differ for their function,theme and intervention scale, but to which thenew planning cycle needs to link up and relate in acoherent and systematic way.

2.2.1 Other plans to be taken into account

First of all, it must be said that, thanks to Europeanpolicies, southern Europe has started, in recent years,to adopt sectoral environmental Plans (at municipallevel or as urban agglomeration). These defineactions focusing on the protection of specificenvironmental compartments (in Italy, for example,there are Noise Control Plans, Clean Air Plans,Electromagnetic Radiation Control Plans, EnergyPlans etc.). Executive plans of public utility servicecompanies (especially when under public control)also need to be included – even if not directly fallingunder the public administration’s tasks. This is alsotrue for higher institutional plans – for example,provincial ones – if they represent an opportunityfor improving institutional co-operation.Other local Plans, of a more established tradition,are those defining strategies and procedures formanaging development patterns which influencethe environment (Urban Traffic Plans, WiderUrban Area Plans, Trading Plans etc.).Some of these Plans are rather weak in terms ofstrategic weight (environmental) or executive power


2 Getting started to launch or relaunch the planning process 23

(local). Above all, however, these Plans do not linkup with each other and do not approach problems inan integrated and participative way. Nevertheless, allthese plans have usually a regulatory function andare generally (but not always) provided withresources and state clear objectives, at least, inregard to their main area of interest.

Secondly, it is worth remembering that localadministrations in southern Europe are finallystarting to adopt internal “management” tools: inItaly these are represented essentially by the so-called “Piano Esecutivo di Gestione” (PEG) or“Work programme”, setting the administration’sobjectives and targets, and by the “BudgetPlanning”. Ideally, these tools stem from morestrategic programmes and plans (although currentlynot much developed, unless in form of a shortmandate programme) and aim at allocatingadministrative activities and human resources in theshort and medium term. Cases, in which these toolshave been integrated or influenced by moreinnovative management tools, concerned withenvironmental priorities (such as the production ofenvironmental and sustainability reports andenvironmental accounting) are still rare. However,these latter are the tools to which the planning cycleneeds to refer in order to guarantee itsimplementation and management in the long run.

Furthermore, in recent years, there has been aspread of more innovative planning tools, whichadopt integrated approaches and which are morein line with the Thematic Strategy’s proposal of anintegrated environmental plan. In Italy, theformulation of Action Plans, as a result of LocalAgenda 21 processes has been practised for thepast 10 years, while in France, local participativeenvironmental strategies, called Chartes pourl’Environnement15, have been developed since1992 and are voluntary-based and similar to LocalAgenda 21 processes. Recently, the adoption ofStrategic Plans has become more popular in bothcountries. Either as a result of voluntary-basedinitiatives coming from some larger cities, or else,as a result of European Commission policies,which consider it a pre-requisite for allocatingStructural Funds. However, from a decisionalstandpoint, initiatives are “weak” in the majorityof cases. They lack in executive and institutionalpower, compared to other decisional tools.

Nevertheless, in some cases the starting-up ofthese processes is launched by a formal, politicalcommitment (for example, a City Council orBoard resolution acknowledging the AalborgCommitments, or environmental commitmentsstated in the mandates’ programme).However, they set out overall visions andstrategies which have been developed throughlocal consultation and by addressing communityinterests rather than “strong powers” or individualinterests. Therefore, they are much more wide-ranging than traditional planning approaches.Thus, they represent the best “source” for thedevelopment of urban environmentalmanagement Plans, characterised by a widervision and by a bottom-up approach.

The fact that local Plans, along with all othersectoral Plans, are becoming – thanks to a EuropeanDirective – subject to Strategic EnvironmentalAssessment (SEA) procedures, pushes them, or willin the future push them, towards innovation, forcingthem gradually to include environmental issues. Themajor obstacle in applying a SEA procedure toPlans is often due to the absence of environmentalobjectives and strategies (in other words, the lack ofa local environmental plan), on which to base anddevelop the required (impact and continuous)assessment. In the absence of an environmentalplan, the SEA procedure needs to formulate a set ofobjectives for itself. However, the setting ofobjectives is considered part of the planningprocedures the SEA is supposed to assess. Thus it isnot eligible (and generally, the SEA neither has theautonomy, nor the time or the resources to do it)and usually ends up developing an assessmentwhich is self-referring (only of internal coherence,based merely on the Plan’s objectives it is self-assessing). Recalling the SEA is therefore justuseful to highlight the urgency to produceenvironmental plans and strategies as acomplementary tool to guarantee the correct andindispensable application of the SEA.

Finally, although still carried out on a voluntarybasis, a reference needs to be made to theEnvironmental Improvement Plans required byEMAS or ISO registration. If adopted by the localauthority, they represent a planning model(provided with a management system, an externalaudit scheme and a regular updating record), very

similar to the one proposed by ENVIPLANS.Hence, any (rare) presence of an environmentalmanagement system would constitute the basis onwhich to built an environmental management Planprovided with a strategic vision. In the reversedcase, an EMAS registration would be a nearlynatural outcome of the Plan’s development.

In this context it is worth mentioning the fact that,in its recent Resolution, the European Parliament,”considers that the SUMP should take intoconsideration, among others, the followingdocuments:■ Waste management plan (directive 75/442/EEC

on waste, as amended16

■ Noise maps and action plans, if available(Directive 2002/49/EC relating to the assessmentand management of environmental noise)17

■ Local air pollution plan or programme ifavailable (Directive 96/62/EC on ambient airquality assessment and management)18

■ Local Environmental Plans and Programmespursuant to Directive 2001/42/EC on theassessment of the effects of certain plans andprogrammes on the environment19

Other important aspects that have emerged fromPre-audit findings and which need to beconsidered, are the institutional and organisationalassets of each case study: time frames of theelected administration, internal organisation,availability of human resources working onenvironmental issues, the presence of developmentagencies and public utility service companies,decentralised competencies at municipal level,partnerships between annexing administrations,possible organisational or administrative solutionsto promote the integration of environmentalpolicies into other local policies. All aspects which,as we will see in the next chapters, will play animportant role in influencing institutional andorganisational choices.


Note

14. http://www.localevaluation21.org/index.php?language=en15. Established by the ministerial communication of 11 May 1994,

Environment Charters are documents of a “contractual” nature. Thelocal authority commits itself to improving the environment and thequality of life of its community, while the State guarantees compliancewith the objectives, acknowledges the political and executive roleplayed by the local authority and provides financial assistance (duringthe set-up and implementation phase). The Environmental Charters usea participative approach and – similar to Local Agenda 21 processes -

consist of 3 key steps: assessment (Report on the State of theEnvironment), identification of strategic goals; drafting of an ActionPlan under the guidance of a pilot committee, constituted by theregional and local authorities concerned.

16. OJ L 194, 25.7.1975, p. 39. Directive as last amended by Regulation (EC)No 1882/2003 (OJ L 284, 31.10.2003, p.1)

17. OJ L 189, 18.7.2002, p. 1218. OJ L 296, 21.11.1996, p. 5519. OJ L 197, 21.7.2001, p. 30

3Considering organisational

and institutional aspects for the development of the plan

25


3 Considering organisational and institutional aspects for the development of the plan

3.1 Defining what constitutes the planning cycle

3.1.1 The Plan’s themes

Above all, planning and management should focuson the most pressing environmental problems of aspecific urban area. However, their correlationwith regional and global questions of sustainabledevelopment should not be disregarded.The European Thematic Strategy for the UrbanEnvironment lists them in regard to Europeanpolicies, as follows:

■ Climate protection ■ Protecting biodiversity, the natural

and urban landscape, the cultural heritage ■ Promoting quality of life■ Preventing noise and air pollution■ Sustainable use of natural resources such

as soil, water, energy, waste■ Sustainable transport■ Energy efficiency in the building industry■ Controlling urban sprawl and soil

impermeability■ Reuse of brownfield sites■ Green public procurement.

Taking into account existing toolsHarmonisation with other plans Enforcement level, authority

Themes

Defining main characteristicsType and level of analysis

Local community area

Time frames

Launching the process

Setting organisational procedures

Internal and external resources

Motivating technical staff

Financial resources

Identifying the actors

Activating participative processes

Clarifying decision-making procedures

Organising and managing participation

Raising citizens awareness

The results of the 5 Pre-audits, outlined in theprevious chapter, have been discussed byENVIPLANS’ Core Group and participants.Through concerted action they sought to define thenature and ideal qualities of an integrated planningand management cycle for the urban environment.

They also took into account the harmonisation withother existing management tools, as well as thespecific context of each situation.The overall observations produced have given rise tothe following “Guidelines”. They are aimed at thewidest number of European local administrations.

Also worth mentioning are the Urban EnvironmentAccords20 promoted by the United Nations andsigned in San Francisco during the WorldEnvironment Day in 2005. These identify thefollowing intervention themes:■ Energy ■ Waste■ Urban Design ■ Urban Nature ■ Transportation■ Environmental Health■ Water

Another important source of reference are theAalborg Commitments21, which develop further theenvironmental themes listed by the Strategy, using amore integrated approach and extending issuestowards:■ economic implications (encourage employment

and promote good corporate practice in business,industry, trade, tourism)

■ social implications (equity, cohesion, gender, safety)

and by renewing efforts in matters of■ Governance (transparency and involvement of

citizens in decision-making processes) and■ Management (action plan, definition and setting

of objectives and targets, monitoring progress,relaunching the planning cycle).

Themes covering social aspects (poverty,education, health etc.) are also the main issuesdealt by the Millennium Development Goalscampaign promoted by the United Nations andsigned by many city networks.22

To clearly define priority actions, it is advisable toseek the Pre-audit’s findings (the AalborgCommitments refer to a “Baseline Review” whichwe discuss in Chapter 2) and to broaden contents byelaborating a Report on the State of theEnvironment and Sustainability (similarly, EMASrequires an initial environmental assessment and inChapter 4 some recommendations are made inregard to it) and to update it periodically in an

3 Considering organisational and institutional aspects for the development of the plan 27

Equity

Social cohesion

Gender

Safety

GOVERNANCE

MANAGEMENT

Employment

Local products

Sustainable Tourism

Environnemental Innovation

Global climate and Energy efficiency

Quality of life and Sustainable Mobility

Reduction of noise and air pollution

Natural resource protection (air, soil…)

Control on land consumption and requalificationof brownfield sites

Promotion of Green Public Procurement (GPP)

ENVIRONMENT(priority)

SOCIETY ECONOMY

objective and well-documented way, in order tohighlight priorities, progress and problemsencountered.

3.1.2 Profile and level of analysisThe level of analysis reached by the planning cyclestrongly depends on the context. However, threedifferent situations can be identified:

■■ CASE 1. IDENTIFYING A NEW LONG-TERM STRATEGYIf no wide-ranging “sustainable” planning tools (such as forexample the Aalborg Commitments or an Agenda 21 Plan) doyet exist at local level, then a management and planning toolis needed, which allows to move towards a wider, mediumand long-term vision, as well as towards sustainability.

■■ CASE 2. STEERING AND INTEGRATING EXISTINGSTRATEGIES THROUGH INTERVENTION PRIORITIESIf a strategic Plan already exists (mandate’s programme,local development Plans, voluntary-based strategicPlans) without, however, being directed towardssustainability, it still represents a good starting point.However it will need some integrations, specifying whichaspects need most improvement in the light of referenceframes such as the Aalborg Commitments.

■■ CASE 3. IMPROVING IMPLEMENTATION OF EXISTING STRATEGIESShould these strategic and sustainable tools alreadyexist, instead of duplicating efforts, it is important toadopt tools capable of improving management andimplementation procedures of these Strategic Lines.


A-M. SacquetComité 21

The UEMP should refer to the following 6thematic goals:1 Reduce the ecological footprint2 Regenerate ecosystems3 Invest in sustainable development

economies4 Ensure well-being and safety

for everybody5 Promote for a competent

and responsible community6 Exchange and co-operate with

other cities of Europe and the World

■ Garlaban Huveaune Sainte-Baume. These plans must refer toparticular local problems. The UEMP mustinclude objectives and not simply list anindex of measures.■ SAN Ouest-Provence. The conceptof ecological footprint is a way to expressconcern for different environmentalimpacts: energy consumption, wasteproduction, food production etc. Footprintcalculations help to raise pro-activeinvolvement of the actors of the project.■ Ouest Etang de Berre. Urbanspatial scale should be taken intoaccount, as it is a cross-sectional theme,

which covers many of the challenges ofsustainable development: trafficcongestion in cities, air pollution, energyconsumption, loss of biodiversity etc.■ Dracénie. One cannot talk abouturban environment without consideringarchitecture and urban design■ SAN Ouest-Provence. Car trafficcauses safety problems, pollution, climatechange and health problems. The car isalso the cause for the disappearance ofurban centres: the exclusion of pedestrianareas, the closing down of small shops,due to the location of supermarketsoutside urban centres

E. NoraProvincia di Modena

The UEMP must focus at once on well-defined environmental themes, as well ason the wider context of sustainability. TheUEMP should not be simply seen as a tool

to solve environmental emergencies atlocal level, but should incorporate theconcept of sustainability itself. Having across-sectoral approach, it embraces amultitude of aspects and modifies theinterpretation of environmental issues.

For instance, the use of materialsextracted from a quarry outside the localcommunity’s boundaries produces large-scale environmental impacts, which mustbe considered when making decisions.

COMMENTS

3.1.3 Which local scale should be adopted

As has been stated, different situations may needdifferent solutions; but overall it can be said that:■ In regard to the definition of strategies and goals,

planning should refer to a homogenous localcommunity area, usually of a higheradministrative level (this is true, in particular, fortopics such as air, mobility and water, which, bytheir nature, are not linked to the administrativeboundaries of a single municipality).

■ From a more operational standpoint, actionsshould be run by the authority closest to the areaof competence, and need to specify this aspect.Nowadays this position is generally held atmunicipal level (except for cases in which anaggregation of municipalities holds some effectivepowers, such as the Union of Municipalities andCde Agglomeration in France, or, as in othercountries, the decentralisation of municipalitiesinto district-zones etc.)

The Interim Communication “Towards a ThematicStrategy on the Urban Environment” (as well as theEuropean Parliament Resolution) identified urban

agglomerations – as classified below – as priorityintervention areas. It suggested that Member Statesshould appoint (in accordance with regional andlocal bodies) the pertinent authorities and structuresresponsible for the development and implementationof the plans, as well as define the geographic areacovered by each plan: “portion of territory with apopulation of more than 100.000 inhabitants and/orwith a population density for which the Member Stateconsiders it alike an urban area. All capital cities andcities with more than 100.000 inhabitants areincluded”.

The final Communication “Towards a ThematicStrategy on the Urban Environment” makes nolonger an explicit reference to this definition.Instead it undertakes the role of disseminatingintegrated urban environmental managementapproaches ”by recommending to all Europeanurban areas the adoption of management plans andsystems to ensure the effective implementation ofintegrated approaches”.

3.1.4 Time frame of the planning cycle

Planning should develop over two time frames: along-term planning period (in which to developstrategies and pursuit in full the goals set) and ashort-term planning period (in which to plan theachievement of a given set of actions and to reachthe prefixed intermediate targets).

According to the Expert Group on UrbanEnvironment, the “UEMP must define strategieswhich have a time horizon of 15-20 years. Thereupona more detailed programme must be drafted, takinginto account the long term vision and the specificshort and medium term targets coherent with theoverall strategic goals. The Plan has to be up-datedevery 4-5 years, just the same way as provided bynational/regional law for the other plans”.


The French advisors present at the Draguignan and Martigues meetings

Urban conglomerations (intercommunalité) seem anappropriate scale, as they get hold of the competenciesand financial resources needed. However, cities remaina crucial base for social support (nearer to its citizens,quality of services).

Italian advisors present at the workshop held in Venice

For the Italian case study, the two time frames couldlook as follows:a long-term strategic planning period (5-10 years), lastingbeyond the political mandate of an administrationa short-term operational planning period (1-3 years)The executive programme of the UEMP should be linkedup to the financial and human resources programme ofthe authority (for example, the annual or 3-years’ PEG). Itis advisable not to overlap time horizons of the UEMPwith the time horizons of politics.

COMMENTS

3.2 Defining the relationship with other existing plans, regulations and statutes

3.2.1 Taking into account both existing and pending plans and tools

The new integrated planning cycle should provide amore organic structure to the overall planningsystem present at local and “inter-municipal” level,in order to influence environmental sustainabilityof the area and to overcome contradictionsderiving from an excessive fragmentation ofsectoral policies23. Well co-ordinated and coherentmanagement solves not only potential conflicts, butprovides furthermore an opportunity to strengthendifferent sectoral policies.

The integrated Plan represents, therefore, thedocument where existing goals and strategies aredrawn up into a methodical plan. It completes theframe in cases where environmental policies havenot yet been developed or are not appropriate,and – at the same time – where environmentalstrategies are already in place, it integrates andrelaunches them with more detail.

The Plan defines its own structure also by takinginto account time frames and the need for othertools. For this reason it is fundamental to producea sort of map of existing environmental planningprocesses, in order to gain a broad vision of thestarting situation. The Pre-audit phase representsa first step in this direction. Once the mostrelevant planning system has been identified andselected, it is possible to proceed with theproduction of maps in a more systematic way andthe creation of a record of public Plans/Projects(including private projects, see chapter on“Participative methods”). Following points shouldbe highlighted:■ Hierarchy of plans (if known, otherwise

highlight possible overlaps)■ Themes dealt with (stating the level of analysis

and state of implementation, if known)■ Time horizons scheduled and persons

responsible for its implementation

3.2.2 Level of binding commitment and institutional power of the Plan

While waiting for Member States to take on therecommendations proposed by the ThematicStrategy and by the European ParliamentResolution (and by these guidelines), and to turnthem into legislative and administrative practices,the Plan can be formalised and become morebinding at local level by different means:■ A formal act (a resolution signed by the City

Council or Board);■ by formalising the decision to consider the

recommendations made (by the City Council orBoard) and to include them into the frameworkof more official local Plans;

■ by allocating economic resources and budgetexpenses expressly for the implementation of theactions (or part of actions) defined by the Plan;

■ by linking it up to the general managementprogramme (“Work Programme, settingobjectives and targets”);

■ by joining an environmental certificationscheme (ISO or EMAS – procedures anddocumentation needed to achieve thesecertifications do not differ from those describedin these guidelines)

If there is the wish to create an interaction betweendifferent environmental plans in order to drawthem into one methodical plan and avoid the planto be treated as marginal, then the obstacle derivingfrom sectoral competition and fragmentation – atboth political and administrative level – must,however, be overcome from the start (by organisinginitiatives to raise politicians’ and technicians’awareness).



Ouest Etang de Berre and Pole Azur Provence

It is hard to imagine another co-ordination document, in addition to theSCOT. The UEMP may nevertheless bea further elaboration of the SCOT,specifying environmental approaches.

Garlaban Huveaune Sainte-BaumeThe Plan must be integrated intoexisting planning tools. What isneeded is a method of environmentalcoherence – a Roadmap definingambitious objectives.

DracénieExisting regulatory measures alsoneed to be considered, such as, forexample, the local sustainabledevelopment Plan and its impactassessment studies.

Ouest-ProvenceThe Environment Charter can helpdevelop a Plan capable of directing

the SCOT towards “environmental”issues.

Pôle Azur ProvenceOur Action Plan, developed on thebasis of the Charte, includes oneobjective entitled “keeping an eye oncross-sectoral approaches” in orderto ensure that environmental aspectsare being integrated in everyplanning document.

Urban agglomeration Chieti-Pescara (IT)Participation generates politicalrelevance. In fact, plans developed byLocal Agenda 21 processes do actuallyraise the role of environmental andsustainability themes in Urban orStrategic Planning (as ENVIPLANS’case study in Florence has shown).

Working Group on Sustainable Cities (IT)The environmental Plan must be aconstituent of the PSC (MunicipalStructural Plan or equivalent urban

planning tool: the PRG, in the case ofItaly – or other analogous tools in othercountries of the Mediterranean area)and a point of reference for wider-arealocal planning. For this reason it shouldexert the same binding power. It is notenough to act on building codes.Regulations on urban planning, as wellas on land use destinations, should bedirected by the environmental Plan.The “urban design”, which comprisesthe architectural project or urbantransformation, should thereforecomply with an environmentalevaluation of energy performances ofbuildings (SEA). The environmentalPlan should also help extendparticipative approaches to urbanplanning. The environmental Planshould intersect with the main urbanplanning tools. Of course, in order to dothis, it must be able to provideresources and define objectives viaformal access to annual budgets orinvestments.

COMMENTS

IITALYItaly: Environmental policies in Italian citiesIn 2005, CERIS-CNR/APAT carriedout an analysis on planning toolsexisting at local level, subdividingthem into three macro categories.The report also proposes amapping system. ■ Plans, programmes and lawsconcerning specific environmentalsectors: energy master plan,renewable energies, noise zonationand abatement, public lighting,methane pipelines, green areas,electromagnetic pollution.

■ Urban planning: urban masterplan (PRG), executive plans, districtplans, construction regulations,integrated intervention plans (PII),urban regeneration plans (PRU),urban regeneration and localsustainable development plans(PRUSST), European URBANprogramme, district contracts,urban redevelopment plans.■ Mobility and congestion: urbanmobility plan (PUM), urbancongestion master plan (PGTU),urban parking plan (PUP), 3-yearslocal public transport plan, home-work mobility plan, time schedulesplan. www.areeurbane.apat.it

FRANCEThe SCOT - Schéma de Cohérence Territoriale With the introduction of the law onSolidarity and Urban Renewal (SRU)in 2000 in France, the SCOT (Schémade Cohérence Territoriale) has theaim to ensure coherence betweenthe different local urban plans (localurban planning, urban mobilityplans, local construction plans etc.)developed by the municipalitiesbelonging to the same urbanagglomeration.

FURTHER READING

3.3 Resources and terms needed to develop and implement the Plan

3.3.1 Organisation: who initiates the process and how

In order to obtain the necessary political support andresources to implement the Plan, a structural solutionat organisational level can be sought. For example:■ the Mayor and the most important councillors

take on the political responsibility of promotingthe Plan and pass the mandate on to theDirector General

■ the Director General networks with the variousdepartments and services and hands theformulation of the Plan (this task must be

inserted into the administration’s overall “Workprogramme, setting targets and objectives”)over to a technical Co-ordinator (a Headofficer, provided with resources and staff).

■ the Co-ordinator organises the necessaryresources and constitutes a “Plan Unit Office”,characterised by an inter-sectoral workinggroup (the most appropriate staff members areselected with the joint approval of the Directorand of the other Senior officers)

It is important that the public administration sets upits own working group (for other Plans the term“Plan Unit Office” is frequently used), via co-ordination by the appointed Senior officer, whoworks out (directly and with the support ofconsultants) all the technical steps (or part of it, if


COMMENTSCesano Maderno, Desio, Meda and SevesoThe objectives of the Plan need to besupported by the Mayor and theDirector General. Their approval mayhave a driving effect on theadministration.

PadovaThe political involvement of theCouncillor is crucial: working with aCouncillor who is aware of theimportance of sustainability and ofthe meaning of the Plan, benefitsinternal performance.

CosenzaThe Director General is the one leadingfigure inside the local authority mostsuited to involve the political class andto co-ordinate the offices.

The French advisors present at the Draguignan and Martigues meetingsThe entire staff of the administrationshould be engaged in the set up of thePlan (cross-sectoral approach).However, the administration mustselect one co-ordinator responsible forkeeping the process alive and formonitoring progress, as well as for

evaluation and continuous maintenanceof the process in time.

Pôle Azur ProvenceThe Services Department shouldmanage the process.

Ouest Etang de BerreThe Services Department shouldmanage the process, while theEnvironment Department shouldmanage its application.

DracénieThe most suited person to manage thePlan would be the SCOT co-ordinator.

Italian advisors present at the workshop held in VeniceTo achieve the ideal structure and“Statute” of the “Plan Office”, the mostappropriate solutions to minimise risksshould be sought:• an internal working group,purposely constituted, with staffderiving from various services of thepublic administration. This solutionencourages a cross-sectoral approach.However, it risks immobilisation.• an internal office, that already exists,

has the task to gradually involve allinterested sectors, as the projectadvances. From an operational point ofview, this might be a rather effectivesolution. However, it risks failing theinvolvement of some key offices.• an external agency, purposelyconstituted (fulfilling technical co-ordination tasks). This solution helps toopen towards the outside, but riskslowering the sense of responsibilityinside the administration.

The French advisors present at the Draguignan and Martigues meetingsA “steering committee”/working groupshould be set up, made of electedmembers of the public administrationand institutional partners (RegionalCouncil and Province, GovernmentServices, Chamber of Commerce andIndustry, Chamber of Professions,associated enterprises etc.)

the public administration chooses to transfer sometasks outwards. See below).Some passages of the Plan (for example: the Pre-audit phase, some in-depth assessments, publicconsultation, set up and subsequent monitoring of aForum) may be handed over to an “external” figure(outside the administration).This choice may also beuseful in situations where it is crucial to keep themost disparate stakeholders of a network together“equably” (the municipalities of a metropolitan area,socio-economic interest groups, etc.). In this case, amore structured organisation (a permanentCommission, an Agency, an Association betweenprivate and public sector, a Foundation), accepted ordirectly appointed by the public administration, maybe set up. The fact of being a permanent structure,open to the local community, will furthermore raiseits importance.

3.3.2 Activating internal and external resources

With often scarce internal resources, optimisationshould be sought. Offices should be provided withthe necessary competencies and understanding


COMMENTS

Italian advisors present at the workshop held in Venice Training courses must be improved in order to raisestaff’s participation and productivity.

PaviaInternal training programmes (seminars, professionalexchanges) are the best solution for managing plans andprojects, as they generate competencies, motivate internalstaff and raise participation.

VeniceAttendance of seminars and courses may conferprofessional credits to the staff.

The French advisors present at the Draguignan and Martigues meeting:■ Ouest Etang de Berre. Information and awareness-raising events (handbooks, presentations etc.) should beorganised for all persons carrying responsibilities for the Plan.■ Pôle Azur Provence. Staff should be informed aboutthe various local community targets – energy, waste,transport, etc. – in a cross-sectoral way, but without beingtoo general.■ Ouest Etang de Berre. There is a real need for trainingof elected members.

and should avoid the duplication of efforts, byeliminating functions no longer required and byconcentrating responsibilities.External consultants – if needed – should beemployed mainly during the most difficult andinnovative phase of the planning process, in order tohelp transfer knowledge and operational methods tothe public administration. This will guaranteecontinuity in future management and up-datingactivities.

3.3.3 Setting up, motivating and training technical staff

Training of staff members, as well as of the electedconstituency, is of fundamental importance, if youare to improve their understanding of the problemsto be solved, increase their motivation and the levelof participation. Training programmes must refer tospecific themes (management and up-dating tools or

TrentoThe internal working group must be made up of memberswith a certain sensitivity towards the topics that are dealtwith, as motivated persons guarantee better results.

PaviaTo include only motivated persons into the development ofthe Plan could be a bad choice, since the implementationof the Plan calls for the involvement of many interestgroups, especially persons holding key positions.

The French advisors present at the Draguignan and Martigues meetingsPrivate partners may join the working group to defineobjectives of advancement and common evaluationindicators. All enterprises having an environmentalimpact should be identified: authorised dealers, publicservices, private enterprises, industrial areas

Ouest Etang de BerreThe private sector may represent a developer for goodpractices.

COMMENTS

methodologies to implement specific actions of thePlan) and to their practical implications. They mustinvolve the staff in “hands-on” project experiences(under the guidance of instructors and experts).Training programmes may be supported by award-winning incentives. For instance, the acquisition ofknow-how, followed by practical implementation,may represent an award-winning incentive.

European funds, provided they represent someinnovative approaches (e.g. funding opportunitiesthrough LIFE programmes or the 7th ResearchFramework Programme24) and strengthen theexchange between European countries (e.g.INTERREG funding25).

To implement the actions provided by the Plan,funding opportunities must be sought within the localauthority’s available budget (for example, byinternalising environmental costs of projects run byother sectors) and through external funding (ad hocnational, regional and EU funds, Foundations andBanks, private sponsors who are interested inimproving their image, in receiving tax relief, or havinga direct return from participating in the initiative).

3.4 Activating participative processes

The use of participative approaches in the set up ofan Environmental Management Plan is a distinctivefeature of the planning process. The reason for usingparticipative processes in the definition of strategies,adoption of objectives and selection of priorityactions lies in the fact that it represents the key tosuccessful implementation of the Plan.

3.4.1 The main actors of the planning process

The role taken up by the public administration iscrucial to the definition of strategies. However, atlocal level, some active networks and interestgroups (forums, associations, agencies representingthe system of local associations, enterprises etc.),capable of producing a strategic vision for thecommunity, already exist. These positive drives can


3.3.4 What financial resources can be counted on

The development of the Plan must be financed byinternal budget, through the activation of ad hocservices or by using those resources of the budgetcovering strategic and environmental managementactivities. Generally, areas falling under the EURegional Policy Objective, are provided with thenecessary support to activate such procedures(Structural Funds, run by regional authorities).

Some phases of the planning process (participativeapproaches, specific analysis, development ofmanagement tools, etc.) may be supported by

The experience of Pôle Azur Provence To develop the Environment Charter, we have invited alloffices to participate in each step of the process. Staffmembers were informed using the following means: 1) a meeting in which to present the project;2) various reminders, inviting them to join workinggroups;3) weekly meetings with the direction: each Head ofUnit organises a weekly meeting in order to discussprojects from other Units.

FURTHER READING

COMMENTSDexia CrediopTo activate mechanisms of project financing, it isfundamental to group together many projects in order toachieve the minimum required scale. Thus, the role playedby the Councillor and the offices administrating financialresources becomes essential: they can raise financingopportunities and foster privileged conditions from banks,as well as act as a contact for managing the demand andoffer of funds.

■ Handbook on Environmental Project Funding EU- Spring 2005 - CE (many projects refer to calls forproposal 2000-06), ■ EU Funding for Environment - A handbook for the2007–13 programming period – April 2005 – WWF■ Further information: http://europa.eu.int/comm/environment/funding/intro_en.htm or, through service on payment http://www.eucenter.org

FURTHER READING


BristolInteresting and well-structured are the participativeapproaches used by the Community Strategy adoptedby Bristol and described at the following address:http://www.bristolpartnership.org/

Actions and strategies towards an inter-municipalLocal Agenda 21 Forum. Report on the public consultations run by the municipalities of Cesano Maderno, Desio, Meda, Seveso In the municipalities of Cesano Maderno, Desio,

Meda and Seveso a series of actions have beencarried out to involve citizens in the Local Agenda 21process. Meetings adopted a participative approachand thus, opinions and responsibilities were sharedbetween the various interest groups. This improvedcommunication between institutions and citizens,helped identify priority themes for the community andthe rules needed to run the Forum itself.Download the report: http.//agenda21intercomunale.it/docs/Sintesi_Def_WS_BN.pdf Website: http.//agenda21intercomunale.it

FURTHER READING

COMMENTSItalian advisors present at the workshop heldin Venice further enquiredShould the selection only considerstakeholders from the most relevantinterest fields or should it open to singleactors and to particular situations?Opinions differed much over theconcept of “being representative”.

PadovaNo limits should be given torepresentatives of interest groups, aslong as they are more or less qualified.

Pavia, Cesano Maderno, Desio, Meda and SevesoParticipation should be qualified: bothfor know-how and interest groups.

TrentoAs the process advances, a naturalselection occurs on the basis of what hasto be produced and done: those who arereally interested and responsible remain.

AnconaTwo levels of participation exist and

must be guaranteed: expert knowledge(analysis of the local area) and generalknowledge (consensus-building).

Ouest Etang de BerreDistrict councils and Developmentcouncils constitute a real tool forinvolving stakeholders.

DracénieIdeally, two levels of concerted actionshould take place: the first includescitizens, while the second includes legalauthorities, as these can even committhemselves, besides from bringingabout changes through good practices.

Pole Azur ProvenceDevelopment councils are an excellenttool. Although they are open to theentire population, not everybody joinsthem. Thus, participation must beintegrated with the presence of localauthorities.

The French advisors present at the Draguignan and Martigues meeting

Local authorities must base on existingmeasures of concerted action:Development council, District council.They may even organise sectoralworking groups and invite stakeholderswhich are not included in these councils(students, retailers, etc.). Stakeholdersthat could join are:• internal stakeholders (enterprises,

authorised dealers, suppliers)•decentralised government structures•environmental associations

and social action groups•research Institutes•the education sector

(teachers, parents’ associations)•young people•environmental education centres•local enterprises (local

representatives or Regional directors)•retailers•representatives for the Province

or Region•public Institutes: Environment and

Energy Agency (ADEME), Wateragency, etc.

•the Fire Brigade, the National Forestry Organisation (ONF), etc.

be incorporated, supported or even be organised bythe public administration itself. Furthermore,consolidating these co-operation networks ensurescontinuity to the planning process.

The involvement of the various stakeholdersactively engaged in the local community is criticalto success for the planning cycle. In fact, a soundlevel of participation from sides of the most

dynamic part of the community, raises awarenessand civic engagement. This represents a solidfoundation for collaboration during the executivephase – and may see the involvement of a widesegment of the community.

From the range of actors representing specific localinterests, those capable of giving some significantinput should be selected for the participativeplanning process: scientific, institutional, business,civil world etc.Furthermore, it has to be borne in mind that thestrategic choices must be shared even with otherlocal actors: higher institutional bodies, annexingadministrations. Besides, numerous experiencesdemonstrate the possibility of activatingparticipative processes directly at local district andward level.

It is advisable to involve stakeholders and theinterested community from the start. However, anykey route may be suitable for participativeapproaches: from the definition of wider strategicoptions (a route in which it is useful to clarify whatcommon vision of the future is being envisaged), tothe observation of results derived from initial analysis(a route in which priorities and objectives are set) upto the planning of single actions (in this route it isimportant to place responsibilities on the singleactors, in order to ensure their implementation).

☞ TOOLS ARCHIVE Accessible via linkGO TO THE CHAPTER ON MAPPING STAKEHOLDERS OF THE FINAL REPORT OF THE INTERACT PROJECThttp://www.a21italy.it/a21italy/enviplans/guidelines/tools

3.4.2 Who decides, and how

The game’s rules need to be set right from thestart. It might be useful to adopt a code. However,it is still useful to make participants share someaspects such as: the number, place, hour andlength of meetings; decision-making conditions,the name and role of the co-ordinator(s).Before initiating the work, it might be useful toorganise some seminars in order to motivateparticipants’ utmost co-operation and to provideco-ordinators with the basic facilitationtechniques.

3.4.3 How can participative processes be best organised

The identification of potential stakeholders can turninto an important occasion for mapping thoseprojects that are already in force and which do notfall under the competence of the publicadministration, but rather of the private sector(associations, enterprises etc.). In this way, hidden


COMMENTSUrban agglomeration Chieti-PescaraPublic participation is, above all, amoment of mutual listening. Theresponsibility of actual decision-makingmust remain with the publicadministration.

FlorenceThe participation of experts capable ofgiving important scientific advice caninfluence the choice of strategies.

Cesano Maderno, Desio, Meda and SevesoWhen a public administration initiates a

participative approach to achieve thedefinition of common strategies, it issomehow bound to acknowledgesubsequent results.

PadovaThe process of formulating jointdecisions is slow. Hence, time, as afactor, has to be guaranteed.

RomeIt is useful to adopt a code of conduct onparticipation (PRG Roma). Since eachparty participating represents a group ofinterest, a set of rules is needed in orderto avoid that one particular private point

of view prevails over a strategic decisionwhich concerns the entire community.For example, a participative process maygenerate a series of alternative optionswhich are submitted to a finaljudgement by the public administration,bound to choose between one of them.

The French advisors present at the Draguignan and Martigues meetingThe “steering committee” is made ofvarious local actors. Thus, each rolemust be defined by a charter. However,the final decision is made by the electedmembers of the administration

expectations and capacities are made visible andcan be converted into an important source ofenriching contents and resources of the Plan. Themapping may be drawn up by the actors themselves,called to fill in some specific forms, or by organisingsurveys and entering information into a regularlyup-dated database, accessible via Internet.

☞ TOOLS ARCHIVE Accessible via linkGO TO THE SPREADSHEET ON PROJECT MAPPING AND ONPROJECT DESCRIPTIONhttp://www.a21italy.it/a21italy/enviplans/guidelines/tools

Several regulatory tools, demanding participation,already exist (e.g.. service conferences, strategicplans). Thus, it is fundamental to use and enhancethese results. Analogous participative efforts (incontents and timing), already developed by otheradministrations or actors, should not be duplicated.

It is useful to organise preliminary talks andmeetings – even separate – with the various actorsand authorities, in order to overcome mistrust, raisemotivation and awareness over individualresponsibilities. In this way a more “qualified”engagement in representing the community’sconcerns by the stakeholders is guaranteed.


COMMENTSPadovaThe process is kept alive by formulating common projectsthat involve stakeholders in a direct way and expect thepublic and private sector to accept their responsibilities.

The French advisors present at the Draguignan and Martigues meetingAssociations with qualified competencies and which aresocially acknowledged, must be activated.

Ouest Etang de BerreIt is very difficult to give voice to everybody. Workinggroups for each type of actor should be set up: an“enterprise” group, an “association” group, a “publicadministration” group.

COMMENTS

Italian advisors present at the Workshop held in VeniceDifferent ways for raising awareness and encouragingcitizen participation exist. These are:• organising meetings to raise awareness and trainingprogrammes on specific themes• presenting success stories to the public• carrying out surveys and organising publicconsultation initiatives open to a large public (usequestionnaires, radio etc.)• for important issues, use a language which isaccessible to non-experts• organising wider communication: events, participativeaccounting, evaluation of results• involving groups of citizens in the planning andachievement of tangible projects

The French advisors present at the Draguignan and Martigues meetingLocal authorities could organise annual campaigns(posters, call for projects, school contests, etc.).Campaigns organised by associations should also receivesupport.

Pôle Azur ProvenceTo activate citizens, rely on associations.

Garlaban Huveaune Sainte-BaumDevelopment councils are an excellent tool forconcerted action, as well as an opportunity to raiseawareness and educate the civil society.

3.4.4 Raising citizens’ awareness and participation

The development phase of the Plan alsorepresents an excellent occasion for sharing ideasand raising awareness inside the community, aswell as to promote (or consolidate, if alreadyexisting) the participation of the citizens – anessential resource for its future implementation.

☞ TOOLS ARCHIVE Accessible via linkGO TO THE EASW HANDBOOK http://www.a21italy.it/a21italy/enviplans/guidelines/tools


Note

20. http://www.wed2005.org/pdfs/Accords_v5.25.pdf21. www.aalborgplus10.dk22. http://www.cities-localgovernments.org;

http://www.millenniumcampaign.org/site23. From the final report of the Thematic Strategy: “By inserting these plans

into a strategic framework programme, integrated at local level, synergiesbetween different strategic sectors can develop and may improve results,both for the environment and the quality of life in urban areas”.

24. http://europa.eu.int/comm/environment/life/news/futureoflife.htm#li-feproposal;http://ec.europa.eu/environment/integration/research_fund_en.htm

25. http://ec.europa.eu/regional_policy/index_en.htm

Managing partnerships, participation and networks(Italian and English); from the “Interact Guide” alsoavailable in French on the project’s websitehttp://www.interact-network.org

The “Convention on Access to Information, PublicParticipation in Decision-making and Access toJustice in Environmental Matters”, signed in theDanish city of Aarhus in 1998, has come into force in2001 (implemented by the 2003/35/EC, ratified by theCouncil in February 2005 and recurring also in theDirective 2001/42 on SEA). It is an importantInternational tool, aiming to increase environmentalawareness and involve civil society inenvironmental issues. 39 Countries, members of theUnited Nations Economic Commission for Europe(UNECE) and the European Union have signed it.

FURTHER READINGA practical Guide in French and English is available.Aarhus Convention:http://www.unece.org/env/pp/welcome.html

Implementation of the Directive 2003/35/EC: http://europa.eu.int/comm/environment/aarhus/

Good practices (REC countries and the UK):http://www.unece.org/env/pp/newcastle.handbook.htm

The “European Awareness Scenario Workshop(EASW)” initiative has been launched in 1994 by theEuropean Commission. It is a standardized model forpromoting the development of a shared vision of thefuture of one’s local community:http://cordis.europa.eu/easw/home.html

39

4Initial assessment evaluation:

directing it towards the development of the plan

4.1 Collecting and communicating baseline information

4.1.1 How to organise and present information.What reporting format to use

Reporting has different aims and functions;however, it is essentially a tool to stimulate anddirect a process of continuous improvement and tomonitor on-going developments, progress andproblems.To start off with, both the Aalborg Commitmentsand Environmental Management Systems require

a “Baseline Review” or an “Initial EnvironmentalReview”. The EMAS regulation Guidance definesthese requirements26. In order to be in line withthe Aalborg Commitments, the required BaselineReview must address those themes as outlined bythe 10 commitments. This can be achieved througha simplified version (for instance, as proposed byENVIPLANS’ Preaudit) or by drafting a morestructured Sustainability Report.

The Report on Environment and Sustainability usesstructured and clearly legible models (for example: aprofile for each indicator, figures and tablesfeaturing sources and methods used, short written


4 Initial assessment evaluation: directing it towards the development of the plan

Reporting formats to be used

Review and report: collectand communicate information

Selection of indicators

Data collection

Communicating the information

COMMENTSModenaDecision on what type of format to usedepends on what end-users the reportwishes to address: politicians,technicians, citizens, adults, children.

Cesano Maderno, Desio, Meda and SevesoAfter producing a technical report(preliminary Report on the State of theEnvironment), a summary report,addressing the population, wasextracted. This Report is also beingused for formatting a database that canbe continuously up-dated.

LeccoReporting should be directed, above all,towards citizens, as they represent theone interest group that needs mostly to

get hold of environmental information(for other groups alternative informationchannels already exist).

FerraraAs for the language – unavoidablytechnical – every effort must be madeto render it interdisciplinary.

Ouest Etang de BerreIt is necessary to define globalindicators (guide indicators), althoughthey should be limited in number.

Pole Azur ProvenceThese indicators must be defined on thebasis of given targets. For our Charte del’Environnement (Environment Charter)indicators demonstrating the state ofthe environment have been developed.

These indicators are global and notquantifiable. Then, for each action andmain theme, some sub-indicators havebeen developed, measuring theeffectiveness of the action. Theseindicators evaluate the significance ofa strategy and allow for someimprovements in case results appearunsatisfactory.

Garlaban Huveaune Sainte-BaumeIt is not useful to have too manyindicators. Rather, they should beaccessible to everybody. Indicatorsshould determine an administration’ssituation at a given point in time, yetallow the measurement ofdevelopments. Indicators evaluatingthe process should also be adopted.

texts to summarise results), as well as morewidespread dissemination formats (summarycomments, integrated reading, symbols).The Report may constitute the base for thedevelopment of other information products,depending on the end-users one wants to address (forexample media, schools, etc.). If the system ofindicators is very broad, it can be presented in a morelegible way, by “extracting” a limited number of KeyIndicators (selected from a set of most relevant ones).

☞ TOOLS ARCHIVE Accessible via linkGO TO THE CHECKLIST FOR DEVELOPING A REPORTINGMETHOD (EEA GUIDE)http://www.a21italy.it/a21italy/enviplans/guidelines/tools

☞ DOCUMENTS ARCHIVE Accessible via linkGO TO THE EXAMPLE ON REPORTING ADOPTED BY BRISTOL(USEFUL FOR FINAL REPORTING, AS WELL AS FOR THESELECTION OF INDICATORS)http://www.a21italy.it/a21italy/enviplans/guidelines/tools

It is important to guarantee for continuity in thereporting activities. Hence, next to the production ofthe report, a system of different databases, that canbe continuously up-dated, must be created.Agreements with the agencies producing the datamust also be sought, as well as agreements on up-dating procedures.

4.1.2 How to select indicators for reporting

Indicators can be selected on the base ofinternationally consolidated sets, but need to beadapted to the local situation. Furthermore, applyingbenchmarking (site-specific comparison) as aselection criteria could be helpful.In its recent Resolution, commenting theCommission’s Communication on the ThematicStrategy on the Urban Environment, theEuropean Parliament:8. demands that the Commission guidancedocument incorporate core common indicators inline with obligations and targets under relevantexisting EU environmental policy (e.g. air, noise,water and waste directives, energy efficiency andclimate policy) to allow for comparisons andbenchmarking between European cities;

The selection of Indicators must be mutuallyagreed on, internally and externally to theadministration.

☞ DOCUMENTS ARCHIVE Accessible via linkGO TO URBAN ECOSYSTEM EUROPE (USEFUL FOR SELECTINGINDICATORS AND AS A BENCHMARKING MODEL)http://www.a21italy.it/a21italy/enviplans/guidelines/tools

4 Initial assessment evaluation: Directing it towards the development of the plan 41

COMMENTSTrento, Cesano Maderno, Desio, Meda and SevesoInternational sets are useful, however, they must beadapted to the specific local context.

FlorenceThe European Common Indicators are a useful reference.

ModenaBoth quantitative (usually, more accessible) andqualitative (often entailing surveys addressing citizens)indicators may be selected.

Urban agglomeration Chieti - PescaraTo begin with, attention should focus on those themes,where data already exists.

FerraraDo not limit your choice on the base of existing sets. Onthe one hand, there is the possibility of achieving newinformation over already existing data, maybe collected ina non-structured way; on the other hand, the choice of anindicator, not fully applicable at the given point in time,might itself generate the need to access new information.

Pole Azur ProvenceThe adoption of measurable, quantitative indicators isnecessary. Yet, also qualitative indicators need to bedeveloped. These relate to citizen’s and tourist’sperception and opinions about the local area.

Ouest Etang de BerreOur Comunité de Agglomeration is already using someindicators: percentage of separated waste, use of publictransport rate, water and soil consumption etc.

4.1.3 Getting hold of the required data

Often, part of the information needed is alreadyavailable, and to some extent, also structured. Hence,the first step is to identify who retains this data and toexpose to them clearly your requirements.

The person (or group) responsible for datacollection has to be backed-up by a clearinstitutional “mandate” as to acquire institutionalpower. However, the person or group will alsohave to engage in maintaining and improvingcollaborative relations between colleagues.The collection of data must not represent anoccasional effort; its ultimate aim is to be able to setup a joint database, shared by other offices and tomake data accessible for a direct up-date by thosewho hold the information.This perspective enhancesmotivation and approval inside the administration.


COMMENTSModenaMutual agreement may be encouraged by exposingdifferent models and practical experiences to a workinggroup of technicians from various sectors.

Cesano Maderno, Desio, Meda and SevesoIt is important to negotiate the set of indicators throughparticipative approaches such as Local Agenda 21 processes.

Pole Azur ProvenceFor our Charte de l’Environnement we have created a grouphosting elected members and technicians. This allows us toobtain two visions.

Ouest Etang de BerreGlobal indicators, which can be shared with the community,must be developed. For example the Ecological Footprint.

COMMENTSPadova, Urban Agglomeration Chieti - Pescara In order to collect and co-ordinate data, a pertinentstructure/working group should be established (forPadova, this group has been created inside theEnvironment Department).

Ferrara and othersTthe person responsible for data collection must beempowered with a clear “mandate” from higherinstitutional ranks (the Mayor, Director General...), in orderto gain authority with respect to his/her colleagues.

Modena Explain for what purpose the data is needed and how itwill be used. The person who supplies the data (andhis/her supervisor) should be informed about the end-product sought, as this will ultimately contribute to a morecareful processing of the information requested. Acommon database must be created, managed by oneperson, which will be responsible for inserting andorganising the collected data and giving it a standardformat that is accessible to everybody (for example theSIT database). Setting-up an Intranet website may also bea fast and simple solution for optimising the managementof data, while guaranteeing real-time up-dating of sharedinformation.

Lecco and othersIn order to obtain willingness to co-operate, internalawareness-raising and structuring are of fundamentalimportance. Make top management aware of theirresponsibilities and inform them in meetings aboutdifficulties encountered during data collection.

COMMENTSModenaMuch of the environmental data needed is alreadystructured and organised into a database system or hasbeen published internally by the public administration orby an external authority (ARPA – report on air quality,ATO, public utilities services). Some of these reports areeven being updated on an annual base.

ModenaThe request of data must be formulated very carefully, asto avoid receiving different information from what wasexpected. It must be stated clearly and explicitly whatkind of reference measures and methodology will beused to describe the data (or else, ask to specify whethera different method has been adopted).

Ouest Etang de BerreIn order to gather information, local authorities shouldaddress themselves at observation centres (air quality,economic development, etc.).

Accessibility to information held by third partiesmust be guaranteed. In case of privatised publicutility services (transport, water, energy etc.), forexample, contracts stipulated should containobligations in regard to the supply of data to thepublic administration as a recipient of the service.When collecting external information, of a more“qualitative” nature, such as for example subjectiveperceptions – make use of interviews, focus groupsand surveys (via questionnaires, internet or phone).

4.1.4 How to communicate information

Communication strategies must involve various toolsand channels, for example:■ dissemination of a summary report (which will

include concise tables and graphic symbols, such

as arrows, faces, traffic lights etc.), to be send to aselected list of addresses.

■ large-scale dissemination through press releases,television, radio, brochures

■ organisation of conferences in public spaces,schools, universities, enterprises etc.

■ organisation of events at local district level (evenduring happenings such as exhibitions andfestivals)

■ set-up of focus groups dealing with specificthemes and involving representatives from thevarious interest groups concerned

■ advanced communication technologies (forselected end-users, young people, interest groups):Internet web pages, video conferences on veryspecific topics

■ set-up of information centres in order to establisha more direct relationship with the public.

4 Initial assessment evaluation: Directing it towards the development of the plan 43

COMMENTSIn order to obtain datafrom external authorities: Modena, Padova, FerraraUse contracts and agreement protocolswhen dealing with the service agency.

Cesano Maderno, Desio, Meda and SevesoConstitute a board, to which the variousutility services are called.

In order to obtain information andopinions directly from citizens: Urban agglomeration Chieti-PescaraQuestionnaires and/or on-line surveyson the local authority’s web page.Dissemination through decentralised

structures, such as local districts orinterest groups.

Modena, FlorenceOrganise meetings and interviewsinvolving likely interested parties, usingsimple, schematic questionnaires.

ModenaSet up a database reporting on-goingrequests expressed by citizens duringthe various initiatives held in thedifferent sectors (local workshops,participative planning, focus groups…)

Cesano Maderno, Desio, Meda and SevesoUse the forum to obtain subjective

impressions on the SoE data.

FerraraUse existing records from officialstatistical sources in order to insertissues into the questionnaires thathave not ever been discussed beforethen.

APAT (Italian Regional Environmental Protection Agency)The involvement and participation ofRegional Environmental ProtectionAgencies in defining indicators, actionsand measures needed to tackle thoseenvironmental priorities identified bythe Urban Environmental ManagementPlan, is very useful.

COMMENTSTrento, Padova, Florence and othersCommunication differs depending on theaudience it is addressing (politicians,technicians, citizens, schools), as well ason the given situation and the goals itaims to achieve.

PadovaThe soundness of a communicationstrategy depends very much on theavailable budget.

Modenagood communication is an essential

prerequisite for education andinnovation.

Pole Azur ProvenceIndicators must be legible. They allowto inform and to communicate withthe population.


Environmental communicationLo Sportello Ecoidea della Provincia di Ferrara:http://www.provincia.ferrara.it/ecoidea/

Website of the European Environmental Agency(EEA) on environmental reporting:http://themes.eea.europa.eu/Actions_for_improvement/reporting/reports

Selected set of indicators and benchmarking■ ECI – European Common Indicators:http://ec.europa.eu/environment/urban/common_indicators.htm ■ ACI – Adriatic Common Indicators:www.aap2020.net

INSPIRE project – (INfrastructure for SPatialInfoRmation in Europe) This project, started in 2002, aims to develop a

European Spatial Data Infrastructure, concerningenvironmental problems. This initiative, carried outby the Joint Research Centre in Ispra, Italy, hasproduced a proposal for a Directive to the EuropeanParliament and to the Council, which introduces aninfrastructure on spatial information – COM(2004)516 final, 23.07.2004. The intent of INSPIRE is not tolaunch a wide programme on new data collection inMember States. Its objective is to optimise theexploitation of existing data, by enforcing adocumentation of existing spatial data, bydeveloping services which render this data moreaccessible and exchangeable and by overcomingthose obstacles that limit their use. Website: http://inspire.jrc.it/home.html

In Italy, implementation of this project is managedby the Soil protection Unit of the Ministry for theEnvironment: www.pcn.minambiente.it

FURTHER READING

Note

26. http://www.inem.org/new_toolkit/Temporary access to the STATUS websit

45

5How to develop and detail plan’s contents and direct

them towards action

5.1 Defining objectives and setting targets

The observations that follow are a summary of theGuidance drafted for the STATUS project -Sustainability Tools and Targets for the UrbanThematic Strategy. Findings are available on theweb27 and advisable for a more in-depth consultation.The project has been financed by DG Research andcommissioned by DG Environment, in support of theThematic Strategy. Contents have also beendeveloped on the base of comments received from avast number of cities and their networks28.

5.1.1 What is a target and what is it used for

One crucial step in any planning activity is thedefinition of objectives to be achieved. “Withoutobjectives and targets, the environmental policyprobably will not make a difference! Objectivesand targets turn the theory of the policy into shop-

floor practice. They mark the goals to be achievedand the ‘stepping stones’ along the way. Theyprovide the day-to-day tasks that the workforce hasto achieve (DGENV-EMAS tool kit)”.

The adoption of clear objectives and targets hasbeen identified even by the Aalborg Commitments29

as one of the chief responsibilities of signatories“…we agree to set individual local targets within 24months following the date of our signature, takinginto account the Aalborg Commitments Annex as aninspirational resource, and to set time frames relatedto the targets that are suitable to demonstrate progresson our Commitments”.

What now follows are some important definitionsof targets:■ “objectives are overall goals, and targets are a

series of stepping stones toward these goals. Ineither case, both elements should be measurablewherever possible” (DGENV EMAS web site,EMAS Toolkit for Small organisations).


5 How to develop and detail plan’s contents and direct them towards action

Definition of targetsDefine goals, select targets

Selection criteria

Monitoring

Closing the planning cycle Assessment

Reporting

Reviewing objectives

Generate and select inputs

Develop and select potential actions

Select on the basis of priorities

Appoint responsibilities

Specify financial aspects

■ “the target can be viewed as a point on a graphthat shows the more advanced step a localauthority intends to reach on the indicator lineprogression. The indicator shows the currenttrend, whereas the target represents the new –more advanced – value that the communityintends to meet by a specified deadline, throughthe implementation of dedicated actions”(STATUS Guidance, 2006).

5.1.2 Definition criteria

The definition of overall objectives and targetsshould derive from a coherent first assessment ofmain patterns, strengths and weaknesses of thegiven local context. The assessment’s aim is in factto allocate the right level of importance to eachaspect, integrating stakeholders’ perceptions withobjective data.

However, the definition of targets and objectivesis also a cultural and political fact. Exploration ofthis new ground may be shared with otherEuropean realities and be inspired by the AalborgCommitments (consisting of 10 main objectives,subdivided into more specific objectives), as wellas by the priorities set out by the ThematicStrategy on the Urban Environment30.

The STATUS project31 offers access to an on-lineToolkit and website containing a selection ofobjectives and indicators in line with the AalborgCommitments and the Thematic Strategy. Of course,their methodology does not need to follow the exactstructure fixed by these references, but may adapt tothe specific context.

5.1.3 What steps to take

The STATUS Guidance has developed some simpleand essential recommendations, which are heresummarised:

■ set targets related to issues that you have thepower to influence (directly, due to yourinstitutional power, or indirectly, involving otherpartners)

■ For each given target remember to identify ameasure of success (a performance indicator).Theindicator should be simple and understandable,verifiable and relevant

■ base target setting on an evaluation of alternativeactions you could adopt to accomplish theobjective. Compare alternative actions withreference to their feasibility (in terms ofeconomic, technical, institutional, social aspects),so you are able to determine the best means toachieve targets

■ pay special attention to the definition of timeframes: Is the target time frame sufficient toachieve the desired level of environmentalimprovement? Is the time frame achievable andrealistic? How long will it take you to implementa programme or an action, which includesmobilising citizens, training people, changing oldwork procedures, acquiring equipment, orestablishing new operational controls?

■ set some targets that are “easy to achieve” or,more realistically, “achievable in the short term”.It is important that target feasibility isdemonstrated within a reasonable period of time.Evidence of success in achieving targets is the bestway to involve and keep the interest of relevantstakeholders

■ remember that targets – generally limited innumber – could be just a “key” to realising thebroad vision towards sustainability. They cannotrepresent all the complexity of the localconditions (not all can be quantified). Targets

5 How to develop and detail plan’s contents and direct them towards action 47

COMMENTSItalian advisors present at the Workshop in ModenaItalian administrations might not be ready yet for this newtype of approach. Much work needs to be done in order tocreate “a culture for accounting” and “practicalknowledge for adopting targets”, currently only used inthe economic field.

PadovaA first step towards “putting into practise” and conforming

local strategies to these objectives may be reached by cross-checking the Local Agenda 21 Action Plan and the AalborgCommitments (and by adopting the latter as generalobjectives). A second step could be to push the PEG (theadministration’s “Work programme”) in this direction. In fact,it is possible to include general objectives and correlatedtargets (on management and on outputs) into the PEG. Thisprocedure is becoming popular and is carried out byadministrations, which have adopted the CLEAR method.

cannot substitute a wider strategy, rather theyshould be a part of it.

■ The selection and development of a set oftargets – which is realistically achievable –needs contribution from a wide variety ofdifferent actors. Very often, it is not easy to findunanimous agreement over targets. In any case,a target which has been selected under someform of consultation, will be perceived by thelocal community as more eligible.

5.2 Preliminary outline and selectionof possible actions

5.2.1 How to generate and select actions

The development of actions needed to achieve theagreed objectives is a creative process, entailing thegeneration of ideas, followed by a selection andsupplementary improvements.The best solution is probably the one supporting themost participative approaches (Forum, Workinggroups), where internal, more technical procedures(technical – administrative round-tables) are backedby opportunities to exchange ideas (mixed Thematicworking groups).

The development of actions must be mutuallyagreed by the stakeholders (integrating orimproving existing ones or identifying new ones, ifnecessary). Thereafter, the public administrationmust carry out a feasibility analysis and completethe work by seeking a final participativeassessment, involving all the stakeholders.

A framework might be of help in selecting actions.The frame of reference should be rearranged into adocument containing: critical points, preliminarytargets, the local authority’s budget, existing actions,higher institutional programmes, availability andmanagement of resources. Once the document hasbeen drafted, priority actions are selected accordingto their suitability for achieving the set targets, theireconomic feasibility, their level of sustainability, theavailability of resources and actors called toparticipate.

In order to identify and select actions, it isimportant to start by looking at the priorities thathave emerged from the initial assessment findings.However, motivation of politicians and local actorsis fundamental (if there is no real interest, actionswill hardly be of success).


INEM: EMAS Toolkit for Small organizationsThis toolkit addresses the implementation ofenvironmental management systems in small andmedium enterprises and recommends for objectives tobe “SMART”. SMART stands for Specific, Measurable,Achievable, Realistic, Time-bound:■ Specific: Focus on important performance factors;

avoid broad expressions like ‘being moreenvironmentally friendly’

■ Measurable: Remember: What hasn’t beenmeasured cannot be managed. Consequently,objectives must be quantitative in order to bemeasured. Choose measurements carefully to gainfeedback on progress

■ Achievable: If your objectives are set too high it isunlikely that they will be realised and this will de-motivate those involved. You should also avoidsetting too many goals

■ Realistic: On the other hand, if objectives are settoo low, you may not be reaching your full potentialfor action

■ Time-bound: Objectives should always include atime limit to enable you to decide if they have beenmet

Website: http://www.inem.org/new_toolkit/

FURTHER READING

5.3 Defining roles and responsabilities, drafting the plan’s operational programme

As for the development of the operational aspectsof the Plan, inspiration might be sought in themodels proposed for the formulation ofenvironmental improvement Plans ofEnvironmental Management Systems (see, forexample, the EMAS regulations). Consequentlywe believe that the adoption of an UrbanEnvironmental Management Plan represents themost direct step towards achieving an EMASregistration. Yet, the procedure proposed byEMAS seeks a continuous selection of bestpractices, once integrated environmental planningapproaches have become a common routineinside the public administration. Therefore, itrequires additional documents and procedures, aswell as a regular check by an external EMASverifier, belonging to an official EMASaccreditation body32.

The wide range of experiences gathered anddeveloped in recent years in the field offormulating Action Plans, correlated managementsystems, accounting, reporting and continuous up-dating activities in Local Agenda 21 processes, areanother useful source of reference.

5.3.1 Who should take on responsibilities for the implementation of the Plan

Responsibilities for the implementation of thePlan must be clearly stated and need to belegitimised by a political mandate. Furthermore itdemands an appropriate allocation of resources(staff and external services).


COMMENTSCesano Maderno, Desio, Meda and SevesoOne must start with a technical-administrative planning round table, andinvolve the Director General and staffmembers of the Resources and PlanningDepartment.

Trento.The involvement of too many personsmight not be very effective, as it makes itmore difficult to identify and includespecific responsibilities in existingmanagement tools (for Italy, this wouldbe the PEG).

Padova and CosenzaOne has to start by opening up as muchas possible. The preliminary selection ofactions should not be directed towardsinternal, administrative managementtools. The involvement of citizens shouldnot be limited to the participation oforganised interest groups (stakeholders),but should push further: as actions are ofan operational nature, even small groupsof citizens, such as district workshops,may be helpful in this phase. The aim isto produce a wide range of ideas, hintswhich may develop into alternativeactions in a second round, if possible in aconcerted way.

FlorenceFirst of all, it is necessary to start aninternal exchange of ideas betweenworking groups from various sectors, inorder to assess and to ordersystematically actions deriving fromexisting planning processes. Participationwill build on this basis, by callingexternal figures to correct/integrate theactions elaborated by the publicadministration: stakeholders will beselected and divided into groupsaccording to their different interests.

COMMENTSGenova, TrentoThe co-ordinator of the Plan should preferably be internalto the administration (a Head of Unit) and be confirmed bya political act. This co-ordinator may then select internalor external staff to develop and implement each action.

Cesano Maderno, Desio, Meda and SevesoResponsibilities for implementing the Plan must beappointed to a specific person and thus it’s mandate mustderive from a political decision of the administration. Theactual implementation of each action, though, may behanded over to external competencies.

CosenzaNext to the transfer of responsibilities, it is fundamentalto allocate a structure and resources.

The person in charge must pursue theimplementation of the Plan also by seekingparticipation and involvement of the otherstakeholders.

The person responsible for the implementation ofthe Plan, must demonstrate some distinctive skills:■ His/her position (leadership) must be recognised

by the organisation■ He/she must be particularly motivated and

therefore capable of involving, even in aninformal way, the highest possible number ofpeople

■ He/she must have a good general knowledgeover the themes covered by the Plan

Implementation responsibility must bestrengthened through existing management tools(the administration’s “Work programme”).However, the evaluation and communication offindings (rewarding in public those who haveachieved results) is another key factor.

5.3.2 How to structure the operational programme

The implementation of each action must follow awell-defined operational programme, and must bedetailed, at least preliminarily, in a concerted waywith the person responsible for its implementation.

In regard to the structure of the document, itslayout may be drafted in different ways:■ on the basis of environmental compartments

and human activities (similar to the themesdiscussed in the Environmental orSustainability Report),

■ on the basis of sectoral competencies of thelocal authority,

■ on the basis of common strategic lines, whichbring together interrelated themes,

■ on the basis of general objectives,or by taking into account all of the above criteria.

To guarantee the effectiveness of this tool,however, the UEMP must include a cause-effectapproach in order to strengthen existing synergiesbetween actions aiming at the same objective.

The Plan is centred above all on findings derivedfrom previous assessments (as discussed in otherparagraphs of this text: mapping of plans andprogrammes, the State of the Environment andSustainability Report, a reference framework). Thusit will make reference to these findings, but will only


COMMENTSFlorenceSomehow, the responsibility must be mutually agreed on.As many people as possible must participate, and internalco-ordination groups must interact with external groups.

Padova e TrentoOne person must be made responsible for a summaryoutline and implementation, but relations with the othersenior must be maintained.

Cesano Maderno, Desio, Meda and SevesoIt is useful to concentrate responsibilities on one person,but this person should expose his/her evaluation work to aco-ordination table.

CosenzaThere must be one person responsible for theimplementation of the Plan and one person responsible forrunning public relations with external actors.

COMMENTSCesano Maderno, Desio, Meda and SevesoIt is important to motivate staff members. Hence, objectivesof the Plan should be included into the administration’smanagement goals (PEG). Objectives should be concrete,feasible. An adequate financial budget should also beavailable. Responsibilities must be supported by economicincentives and the institutional power played by the person incharge must be recognised inside the organisationalstructure. Another incentive may derive from trainingopportunities.

PadovaHowever, incentives must be managed with care,guaranteeing transparency. Training programmes are, bycontract, a right, thus they can’t be considered as incentives.

present them as a brief summary, in order to explainthe choice of strategies and actions proposed.

This draft of the Plan therefore makes a strategicvision explicit (comparable to the “EnvironmentalPolicy” statement applied in the EMAS regulations),and is developed on the basis of consultation of theForum or through the acceptance of other forms ofstrategic commitment (for example through thesigning of the Aalborg Commitments and thedrafting of a political mandate or the developmentof a Strategic Plan strongly oriented towardssustainability).

At this point, the Plan can be developed into anoperational programme and should:■ derive specific intervention actions from the

overall Strategy ■ indicate, for each specific objective or set target, a

time frame and qualitative and quantitativemeasures

■ define the tools necessary for implementingactions

■ state who will be directly accountable for, orsupporting the implementation of each action

■ state possible economic resources or financial aids■ define the indicators to be used for monitoring

progress■ define priority interventions and time frames


COMMENTSItalian advisorsWhile indications on actions remain general, theorganisational programme should state clearly timetablesand financial resources.The Plan may comprise extremely detailed actions, as well asactions deferring operational aspects towards other tools.

TrentoThe operational programme must consist of Action Sheets,detailing the various features: • possible linkage with other actions• person accountable for the action• technical competencies• internal resources and partners from the civil society• economic resources• time frame• targets• performance indicators/report

COMMENTSPadova e Cesano Maderno, Desio, Meda and SevesoDefine activities, identify available resources, draft abudget timetable according to priorities.

GenovaThe Plan’s budget should be detailed into “standing/supplyservices”, the same way as other EU projects.

Cesano Maderno, Desio, Meda and Seveso and GenovaThe financial resources needed to implement the Planshould be partitioned between the various sectors. Whatis important is to identify in the city council’s budgetwhich “supply services” have been allocated to the planand name them specifically. The Service Unit will thendecide how to distribute these resources.

CosenzaFor municipalities of southern Italy, the Plan and itsimplementation may be financed by European StructuralFunds.

The operational programme must be transferred toalready existing management tools (in Italy, thePEG), by integrating goals and strategies and, aboveall, by shaping contents and details of the actionsprovided.

5.4 Detailing financial aspects

Each action and related operational programmeneed an adequate Budget Plan, which definesfinancial requirements to implement actions andidentifies how to achieve them (time, type ofexpenses, application procedures etc.).The budget must comprise all expenditure types:wages of staff members and consultants, travel costs,costs of permanent goods (such as electronicdevices) and consumable goods (stationary, etc.)management costs (telephone, insurance etc.).Furthermore, the budget states clearly who providesthe necessary resources (it might be European funds,national, local etc.) and how they are obtained andtransferred (co-financing, “in kind” contributions,etc.). The Budget Plan needs regular book-keepingand checks.

5.5 Closing the circle: monitoring, accounting, auditing, assessing results, reviewing objectives

The cycle ends with an evaluation of the progressachieved in regard to the targets set. If the keyfactors of success and the barriers that havehindered the achievement of the expected resultscan be identified, then future decision-makingprocedures (as well as the up-dating of targets) canbe conducted in a more proficient way, thanks to thelessons learnt.

The implementation of the Plan is not accomplishedin a short time period and does not necessarilyproduce, from the start, significant results in termsof overall sustainability. However, sometransformation and signs of change may beregistered even in the short term. Providing someevidence on changes and small improvements ishelpful in motivating actors participating in theLocal Agenda 21 process and directly involved inthe implementation of these actions.

Assessment of the level of implementation of thePlan is carried out through monitoring procedures,based on expressly selected indicators (called Keyor Monitoring Indicators) and on the objectives andtime frames set to complete the actions. In this way,both actual and expected results can be identifiedand quantified.Weaknesses will also emerge.Thus, itwill be possible to assess the effectiveness of eachsingle action and the overall outcome. In order to

monitor progress, those actors implementing thePlan and internal or external to the publicadministration, as well as participants to the Forum,must be directly involved.

In order to point out the results reached, annualmonitoring reports, containing information onindicators, advancement of each single action and ofoverall strategies should be produced. For the lattercase, a “state of advancement” chart may helpidentify in a very concise way, the level ofimplementation reached in relation to the steps andtime frames planned.As for the steps to undertake, following pointscould be of reference:■ find and outline an agreement between the actors

that will be responsible and co- promoters of thesingle strategy or action;

■ define the operational programme;■ implement the main steps, possibly according to a

time schedule (reporting eventual changes orwithdrawal from a strategy or action);

■ bring the strategies and actions to an end;■ draw conclusions on the results achieved through

the strategy or action.

In Italy, the introduction of the environmentalmanagement system LIFE CLEAR has been animportant contribution towards spreading a newculture of “giving account” over activities (in formof objectives or targets). The CLEAR methodologyexpects politicians and administrators to give anexplicit account of strategies, priorities and


CLEAR: City and Local Environment Accounting and ReportingCLEAR is the first European project on environmentalaccounting aimed at local authorities. It expects todevelop and to approve “green budgets” in a wide sampleof Italian municipalities and provinces. The project, whichended in October 2003, has developed a practical methodto be used by public administrations and local decision-makers in order to make environmental policies moreeffective and efficient.The CLEAR method builds on the adoption of anenvironmental accounting system, in order to provideadministrators with an operational support, as well as toinduce a process of liability and transparency in regards

to the policies adopted.Criteria for data collection are defined (Counting), as wellas their organisation into specific areas (Accounting).They are entered into an unequivocal environmentalbudget system, approved by the authority. In this way,year after year, the budget plan turns into a new form ofGovernance, capable of acting in regards to theenvironment.The CLEAR method, co-financed as a LIFE Environmentproject, has been developed thanks to the co-ordinationof 18 partners, together with the Regione Emilia Romagnaand the international association Les Eco Maires.

Website: http://www.clear-life.it

FURTHER READING

indicators adopted in relation to their policy, and toevaluate environmental impacts. Thus, it obligesadministrations to continuously define objectivesand targets (consequently, for a local authority thisbecomes a politically binding commitment) and toensure a monitoring process and a publiccommunication campaign on the year’s financialbudget.

Monitoring progress and drafting of a correlatedreport make an evaluation possible. Or rather, theyenable an exchange of ideas with the Forum. Thelatter can adopt actions needed to remove obstaclesthat hinder implementation, add new actions ormake some adjustments. Changes emerging fromthese evaluations must, however, be communicatedas to avoid misunderstandings. Adjustments to aninitially mutually agreed programme may suddenlyappear arbitrary and unjustified, leading todisaffection and loss of interest in the process by thecitizens.

Monitoring and evaluation results serve as a basefor undertaking a review of the entire process, andthus allow an up-date of the Plan. The Plan shouldtherefore not be seen as a stagnant and definitetool. Rather, it is an open document, which mustseize opportunities and be able to adapt to complexdynamics. Reviewing and up-dating the processresults in the identification of new targets and evennew strategies or single actions.

The entire action process therefore forms a virtuouscircle, which repeats the same passages, without,however, falling back to the starting point. Itproceeds towards local sustainability and allows forthe local community to reduce their impact on thelocal and global environment. Besides, sustainabilityin itself is a dynamic condition of equilibrium andnot of stagnation. The local and global environmentwill always face new pressures and changes, and willrequire continuous adjustments.


Note

27. Temporary access to the STATUS website, containing a projectpresentation and the on-line Toolkit: http://www.sustainable-cities.org.uk/status/index.html. This, until the activation of the definitewebsite www.localsustainability.eu.

28. The project has been co-ordinated by UNN –Northumbria University anddeveloped by the following partners: ABO Academy, ICLEI, AmbienteItalia, UBC, Trinity College Dublin, VTT.

29. www.aalborgplus10.dk; www.europa.eu.int/comm/environment/urban/aalborg.htm

30. www.europa.eu.int/comm/environment/urban/thematic_strategy.htm31. http://status-tool.iclei.org/index.php until the activation of the official

site: www.localsustainability.eu 32. http://europa.eu.int/comm/environment/emas/about/summary_en.htm

55

6Annex

6.1 The 5 Case Studies

The 5 case studies (Cosenza, Florence, Padova,Rijeka and Ouest Provence) assessed during thedevelopment of ENVIPLANS, represent a usefulresource for everybody. Their differing situationsreflect the wide range of urban realities found insouthern Europe. Their difficulties, their solutionsand results achieved offer inspiration to those whohave attempted analogous experiences.

☞ THE 5 CASE STUDIES Accessible via linkGO TO THE PRESENTATION OF THE 5 CASE STUDIEShttp://www.a21italy.it/a21italy/enviplans/guidelines/5case

6.2 Further reading

What follows is a selection of resources that mightbe useful for a more in-depth analysis of specific“themes”. The available resources are:■ Existing Guidelines (published by the European

Commission or as an outcome of EuropeanProjects)

■ website or database developed by city networks ■ Projects (or work in progress) developed by the

city of Bristol, the English partner ofENVIPLANS.

The selection has been subdivided by theme:■ Air ■ Mobility■ Energy and Climate■ Noise■ Waste and procurement■ Urban planning (green spaces and built

environment)

☞ FURTHER READING Accessible via linkhttp://www.a21italy.it/a21italy/enviplans/guidelines

A selection of additional resources, well-structuredand referring to the 10 Aalborg Commitments willbe available starting in September 2007, as a result ofthe ACTOR project.

6.2.1 Air

Guide for the cities. IntegratedUrban Management and Air Quality Managementin Europe (EN, IT, FR, ES, FI, PL) – 2005

The Project INTEGAIRE –Integrated UrbanGovernance and Air Quality

Management in Europe – was established andfunded under the Fifth Framework ResearchProgramme of the European Union.Published in February 2005, “Guide for the cities”has been drafted by a network of experts in airpollution working for public administrations ofvarious cities (such as Athens, Seville, Venice) andEuropean research institutes. The guide focuses onpositive management policies, the so-called “goodpractices” and considers the following topics:Governance■ Geographical integration■ Participation of stakeholders■ Resources for air quality management■ Collaboration between city departments■ Tools for air quality management■ Collaboration between regions and citiesLegislation■ Legislation and interpretation of directives■ Implementation of EC air quality directivesAssessment■ Air quality monitoring methods■ Air quality assessment tools and methodsPlanning and measures■ Air quality strategies and action plan

development■ Traffic measures■ Land use measures

All topics can be read and understood on their own.Each topic ends with a recommendation, and manytopics have one or more practical examples.Examples can be consulted directly on the website.Website: http://www.integaire.org


6 Annex

Air Quality Action Plan for Bristol(EN) – 2004

Published in April 2004, thisplan focuses primarily onreducing emissions from roadtraffic. Some measures totackle industrial and domesticsources of pollution are also

included. The Plan identifies 27 “top up” measures,listed under four main headings: Information andPromotion, Promotion and Provision of Alternatives,Managing the Road Network, and EmissionsManagement. The Appendix sets out the publicconsultation that has been undertaken in order todevelop the Action Plan.Website: http://www.bristol-city.gov.uk/ccm/content/Environment-Planning/Pollution/air-quality-action-plan-for-bristol.en

6.2.2 Mobility

Developing Sustainable Urban Land Use and Transport Strategies – A Decision Maker’s Guidebook (EN 2005; FR, IT, ES, 2003)

This Guidebook wasdeveloped as part of theEuropean project

PROSPECTS – Procedures for RecommendingOptimal Sustainable Planning of European CityTransport Systems – by carrying out a survey onpractices used in some 60 cities. The guide reviewsthe challenges cities face and considers the decision-making context, including the freedom cities have todevelop their own policies.A number of possible approaches to decision-making are outlined, as well as their relativemerits. This, in order to encourage cities to choosethe one which suits them best. A logical structurefor decision-making follows, and the Guideidentifies the key steps of that process: objectives,indicators and performance targets cities might setfor transport and land use strategies; range of landuse and transport policy instruments.Furthermore it outlines overall strategies that can be

formulated using packages of policy instruments toovercome barriers and reviews the range ofanalytical techniques available for assessing thesestrategies.Four case studies, which have adopted some or allof these approaches, are presented.The Guide is accompanied by two additionaldocuments:1) The Methodological Guidebook, which is moretechnical and treats some of the issues in a morein-depth way.2) The Policy Guidebook, which assesses theworking of specific policy instruments on thebases of an empirical analysis of case studies.The guide is interactive and webbased:http://www.elseviersocialsciences.com/transport/konsult/index.html Website: http://www.ivv.tuwien.ac.at/?id=2550

Cycling: the wayahead for townsand cities (EN, IT, FR) – 1999

This guide addressespoliticians andadministrators of

medium and large-sized cities of the EuropeanUnion and proposes a series of tools for spreadingthe use of the bicycle in urban environments. Issuesin this guide range from sociological aspects (how topromote the idea and raise awareness) to technicaladvice (how to institute a pro-cycling policy and itscosts).The themes considered are:■ the success factors which characterise best

practice examples of “cycle-friendly cities” atEuropean level

■ balancing the demand for cycling facilities onthe one hand and the requirements of car trafficon the other

■ reducing risks for cyclists to a minimum ■ costs of a pro-cycling policy■ making the best out of existing synergies with

the civil society■ tools needed to start and first interventions to

be made.Website: http://ec.europa.eu/environment/cycling/cycling_en.htm

6 Annex 57

The European Greenwaysgood practice guide – Practical Tips for the LocalDecision-Makers (EN, FR, ES) – 2005

This Guide has been publishedby DG Environment in 2005on initiative of the EuropeanGreenways Association and

outlines some interesting case studies on thedevelopment of urban “green routes” in 20 Italian,French, Belgian, Spanish, English and German cities.Experiences coming from both large cities, such asRome and Paris, or smaller ones, such as Charleroi,Chambery o Gijon, are outlined. Some cities such asBristol embarked on a similar experience some yearsago, while others such as Ferrara or Ghent have juststarted to take the first measures within theframework of a wider mobility plan.Website: http://ec.europa.eu/environment/cycling

Reclaiming city streets for people. Chaos or quality of life?(EN) - 2004

This Guidebookbrings together 8

success stories in which European cities havetackled their problem of road congestion byredistributing road space in favour of non-carmodes. The experiences concern:Opportunities for regeneration■ Kajaani (Finland)■ Wolverhampton (England)■ Vauxhall Cross - London (England)From urban smog to urban life■ Nuremberg (Germany)Creating space for sustainable transport■ Strasbourg (France)■ Ghent (Belgium)■ Cambridge (England)■ Oxford (England)Website: http://ec.europa.eu/environment/pubs/pdf/streets_people.pdf

Greater Bristol Joint LocalTransport Plan 2006/07- 2010/11(EN)

The Bristol LocalTransport Plan was draftedin March 2006 after aconsultation process whichlasted approximately 1

year and which has involved a considerablenumber of local stakeholders.The document focuses on four Shared Priorities:■ congestion■ accessibility■ road safety■ air qualityAccompanying the Joint Local Transport Plan are19 supporting documents, covering a wide rangeof modes, from walking to cycling and inter-modalsystems, from school travel to goods and watertransport. Each document outlines what type ofstrategy to adopt in order to meet the four SharedPriorities set out by the general Plan.An Environmental Report was published togetherwith the Local Transport Plan. It identifies the mainenvironmental impacts of transport in the area,estimates the spread of such effects across the area,and their severity, tests the performance ofalternative strategies for their environmental effects.Website: http://www.greaterbristoltransportplan.org/ltp_home.html


6.2.3 Energy and climate

Sustainable energycommunities and sustainable development (EN) – 2005

The SUSCOMproject, financed by

the EU programmes Altener and Save, evaluates thepossibility of inserting actions concerning energysustainability into local planning processes. Byassessing 21 different experiences from 7 Europeancountries: Austria, Bulgaria, France, Poland, UnitedKingdom, Spain and Sweden. The report identifiesthe key to success (and failure) for:■ making energy become a priority■ integrating energy policies into local planning

processes■ taking the necessary steps to achieve a wide-

ranging, participative local strategyWebsite: http://suscom.energyprojects.net/

Municipal EnergyManagement(EN,IT)The ClimateAlliance has set upthis detailed starterpackage on

municipal energy management containing:■ software (an excel sheet), that enables you to

start with your energy book-keeping at once ■ a list of contact addresses where you can get

information and further advice ■ a list of relevant literature ■ short guidelines, available at your national

Climate Alliance OfficeWebsite: http://www.klimabuendnis.org/english/municipal/frameset.htm

Guidelines for Municipalities:Adapting to New Roles in a Liberalised Market (EN) – 2003

Local authorities fulfil theirfunctions in the energysphere via a number of roles:– as a consumer of energy, –as a producer of energy, – as

a distributor of energy, – as a trader of energy, – as aregulator, planner and policy maker regardingenergy using activities, – as an awareness raiser ofthe issues relating to energy use and – as a providerof incentives to improve energy performance.There are impacts of liberalisation on each of theseroles: local authorities can however improve goodpractice in all of these fields. In most, liberalisationhas not actually changed what they do, only thedegree of attention that should be given to it.Website: http://www.energie-cites.org/meels/

European ClimateMenu - tool on line(EN)

Since June 2004 it ispossible to consultthe EuropeanClimate Menu(ECM), an on-line

tool elaborated under the EU Altener programmeto help local authorities develop policies to reduceCO2 emissions and achieve the targets fixed by theKyoto Protocol. For each theme on energy policiesand climate protection, the ECM proposes a seriesof targets and aims, and reports how to shorten thedecision-making process and make it compatiblewith other policy areas, while still addressing theneed to achieve consensus. The ECM contains adatabase of success stories in reducing CO2emission. The Dutch Government has launched aparticular version of the ECM as part of its nationalclimate programme and has already been used bymore than 170 local authorities.Website: http://www.climate-menu.com

6 Annex 59

Local Energy Action - EU Good Practice 2004 – 2005(EN)

This brochure contains 12examples of good practicefrom energy agencies acrossEurope. Each has beenselected on the basis of theircontribution to the promotion

of energy efficiency and/or renewable energy use,and for their strong possibilities of replication. Thevarious agencies involved have chosen to work withvery different “target groups”, ranging fromindividual households, up to working directly withpublic authorities.Website: http://www.managenergy.net/gp.html

ENERGIE CITES,database of good practices(EN, FR)

Good practicedatabase wheremore than 500case studies can besearched by theme(Integrated action,

energy efficiency, renewable energy, urban mobility)or by city, by country or by project.Website: http://www.energie-cites.org/page.php?lang=en&dir=5&cat=1&sub=1

Bristol Climate Protection and Sustainable Energy Strategy Action Plan 2004/6(EN)

Since 1991, Bristol CityCouncil has a self-fundedEnergy Management Unit.The local authority hasdeveloped its own Climate

Protection and Sustainable Energy Strategy, aimingto reduce city’s greenhouse gas emissions by 60%in 2050.The drafting of this strategy and its Action plan2004/6 has seen an extensive consultation process,

involving local stakeholders and many organisationsbeing national leaders in the field of energy saving.The city of Bristol is a member of the “Councils forClimate Protection” association and is one of the 16local authorities which has been selected bygovernment to take part in the “Carbon Trust’sLocal Authority Carbon Management Programme”Website: http://www.bristol-city.gov.uk/ccm/content/Environment-Planning/sustainability/climate-change.en

6.2.4 Noise

Good Practice Guide for Strategic Noise Mappingand the Production of Associated Data on NoiseExposure(EN, FR) – 2006

The purpose of this PositionPaper is to help MemberStates and their competent

authorities to undertake noise mapping and toproduce the relevant data as required by Directive2002/49/EC of the European Parliament and of theCouncil of 25 June 2002 relating to the assessmentand management of environmental noise(commonly known as the Environmental NoiseDirective and hereinafter referred to as ‘the END’).It provides advice on specific issues that were raisedinitially by Member States and more recentlythrough consultation.Website: http://ec.europa.eu/environment/noise/home.htm#2

Inventory of noise mitigationmethods (EN) – 2002These Guidelines werepublished by the Workinggroup on noise pollutionabatement. They have beendeveloped in order to helplocal authorities draft andimplement noise abatementplans. The guidelines can be

applied to the entire municipality or to parts of it.They contain an inventory reporting various noisemitigation methods available, such as land useplanning, speed limits, car free areas, noisebarriers(providing a quiet rear side), porous road


surfaces, tunnels, controlling certain activitiesduring the day, permits, noise monitoring, roadpricing, etc.Website: http://ec.europa.eu/environment/noise/home.htm#2

SMILE project: ‘Guidelines for road traffic noise abatement’ (EN, ES) – 2004

These Guidelines have beenpublished as part of theEuropean SMILE project(Sustainable MobilityInitiatives for Local

Environment) on sustainable mobility. Noiseabatement measure focus on urban traffic, an aspecton which local authorities can act on. Aim of theseGuidelines is to facilitate planning at operationaland technical level (reduction of heavy traffic, use ofnoise-absorbing asphalt etc.), as well as on a morestrategic level (co-operation between stakeholders,harmonisation with other planning tools etc.).Website: http://www.smile-europe.org/frame1.html

Network CALM II (EN)

The European Commissionhas supported the creation ofthe project “CALM II – Co-ordination of EuropeanResearch for AdvancedTransport Noise Mitigation”which is based on the activitiesand results of the completed

thematic network “CALM – Community NoiseResearch Strategy Plan”. CALM II aims at enhancedand cross-sectoral co-ordination of the Europeantransport noise research involving the most relevantstakeholders.The overall objective is the synchronisation andencouragement of European transport noiseresearch through a holistic system approachinvolving all related research areas. Based onintensive networking, the main aims of CALM II are:■ optimising research efforts ■ identifying synergies between noise research

and development in the different transportmodes

■ identifying new technology requirements andremaining research needs.

Website: http://www.calm-network.com

6.2.5 Waste and procurement

Preparing a waste management plan(EN,SL) – 2003

Guidelines published by DGEnvironment reviewinglegislation in force andpractical recommendationsfor drafting a wastemanagement plan. As it has

been developed in order to be used by a wide rangeof administrations and organisations, many sectionsindicate the administrative level they are addressing.The Guidelines contain a step-by-step model for thedrafting of a waste management plan and examplesof existing plans. Furthermore, chapters 3 to 5contain a checklist on the most relevant aspects tobe considered during the planning process.Website: http://ec.europa.eu/environment/waste/index.htm

Buying green! A handbook on environmental public procurement (EN,FR,IT,ES,SL) – 2004This is a handbook dealingwith green publicprocurement, published bythe European Commission.

It considers following topics:■ green purchasing strategies ■ organising public procurement ■ defining the requirements of the contract ■ selecting suppliers, service providers or

contractors ■ awarding the contract ■ contract performance clauses Website: http://ec.europa.eu/environment/gpp/guidelines.htm

6 Annex 61

RESOURCITIES a tool kit for urbandecision-makerson waste and resources in cities(EN,FR,ES)

This website hasbeen developed

with the aim to provide local administrators with auseful tool for implementing recycling and wasteprevention policies. The initiative is part of theEuropean project “Sustainable Consumption inCities – a European Campaign on Productswithout Waste and Recycled Products”.This website provides interesting information onurban sustainability to stakeholders, in particularon waste and natural resources management andenvironmentally friendly products.Website: http://www.acrplus.org

Waste prevention success stories database (EN)

This database ofthe EuropeanE n v i r o n m e n t a lAgency presents a

wide range of successful waste preventioninitiatives. Initiatives can be searched by followinginterest areas: “policy measure”, “field ofapplication” or “target group”.Website: http://waste.eionet.europa.eu/wastebase/prevention

Environment, success storieson composting and separatecollection (EN,FR,IT,ES) – 2000This report has beenproduced as part of aproject supported by DGEnvironment. It identifies anumber of successfulinitiatives in matters of

centralised and home composting schemes ofbiodegradable waste in the following six MemberStates: Spain, France, Ireland, Italy, Portugal andthe United Kingdom.The report describes a range of initiatives and casestudies being carried out in the six Member States.Key elements for success of each case study andwaste collection schemes are reported in this guide,in order to supply key parameters for other localauthorities involved in biodegradable wastereduction.Website: http://ec.europa.eu/environment/waste/publications/index.htm

Bristol’s household waste management strategy2000 (EN)

A long-term strategy (25years) aiming at minimisingimpacts of household wasteproduction.The document focuses onthe 8 priorities set out by the

national strategy:■ an integrated approach to waste management■ a reduction in the quantity and hazardous

nature of waste■ increase re-use■ increase recycling and composting■ increase energy recovery■ improve technologies (pyrolysis

and gasification, anaerobic digestion)■ increase citizen participation

in decision-making processes■ environment and human health protectionWebsite: http://www.bristol-city.gov.uk/ccm/content/Environment-Planning/Rubbish-waste-and-recycling/recycling-statistics-and-strategies.en


6.2.6 Urban planning (green spaces and built environment)

The place of periurbannatural spaces for a sustainable city(EN, FR) – 2004

This report on the role playedby green areas in urbanenvironmental sustainability,commissioned by DGEnvironment, has studied 149green areas present in 19

European cities. The report makes a classification ofdifferent types of green spaces present in urban areasand traces their main characteristics by looking attheir:■ environmental function: biodiversity, micro-

climate stabilisation etc.■ social function: leisure, sport, landscape etc.■ economic function: agriculture, fishing, mining etc.■ “service” function: electricity lines,

telecommunications, transport infrastructures…The Annex reports 25 case studies, mainlycontaining examples from Italian, Spanish andFrench cities.Website: http://www.fedenatur.org/index.aspx?lng=en

Biodiversity by design – A guide for sustainable communities (EN) – 2004

Aim of this guide is toprovide tools for biodiversitymaximisation in urbanplanning. The guide providessome 20 International case

studies (mainly The Netherlands, United Kingdomand Germany) involving local authorities ofdifferent sizes.In particular, it explores the possibility ofconnecting green areas and different types ofhabitat present in urban areas. Furthermore, itlooks at how these areas, which are crucial toguaranteeing a certain level of urban biodiversity,may cohabit with artificial ones.Website: http://www.bristol-city.gov.uk/ccm/navigation/environment-and-planning/parks-and-open-spaces/wildlife/

Bristol Parks and Green SpaceStrategy (will be ready in December 2006)

Bristol’s futurestrategy on Parksand Green Spaces

will be a document subdivided into two parts. Thefirst addresses the Urban planning departmentand aims at protecting green spaces. The secondpart aims at improving the quality of servicesprovided by urban parks. For example, areas forchildren, sport facilities, cultural events.An important goal, on which the strategy will payparticular attention, is to guarantee citizens equalaccessibility to the different types of green areas.Website: http://www.bristol-city.gov.uk/ccm/content/Environment-Planning/Parks-and-open-spaces/bristol-parks-and-green-space-strategy.en?#internalSection1

Sustainable Building Designand Construction(EN) – 2006

This report is one of a seriesof documents drafted as partof Bristol’s local developmentstrategy. It makes reference to5 key objectives in sustainableconstruction:

■ reduce overall energy consumption andmaximise renewable energy use;

■ minimise waste production and maximise re-useand recycling during construction, as well asonce the building is completed;

■ improve water quality and conservation;■ minimise discharges into water, air and soil and

minimise noise and light pollution;■ maximise the use of materials deriving from

renewable resources.Website: http://www.bristol-city.gov.uk/ccm/content/nvironment-Planning/sustainability/sust-build-design-construction.en?page=2#internalSection3

6 Annex 63

This project has been co-financed by the European Union. The sole responsibility for thecontent of this publication lies with the authors. It does not necessarily reflect the opinion ofthe European Communities. The European Commission is not responsible for any use thatmay be made of the information contained therein.

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