Belvedere Memorandum

8/8/2019 Belvedere Memorandum

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TheBelvedereMemorandumA policy document examining the relationship between cultural history and spatial

planning

11 June 1999


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"Wij kunnen ons nooit zoveel toekomst voorstellen als we verleden hebben"

We shall never be able to look as far into the future as we can into the past

Cees Nooteboom, Allerzielen

Belvedere is the Italian word for a 'beautiful view' but it also appears in the English dictionary as a 'pavilion or

raised turret intended to afford a general view of the surrounding area'. The Netherlands boasts countless such

towers, often graced withBelvdre (the French spelling) as part of their names. One can also draw an

association with the Belvdre quarry near Maastricht, site of the oldest archaeological discoveries ever made

in the Netherlands, some 250,000 year old.

With a little good will (and poetic licence), archaeology, building conservation and historic cultural landscapes

can be now summed up in one and the same word: 'Belvedere'. Above all, it must be remembered that a

Belvedere is a point from which to expand one's viewpoint and to look ahead.


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Contents

IntroductionCultural history policy and spatial planning

Background, status and objective of the Belvedere Memorandum

General overview

Eight examples: an introduction

1. Context and terms of reference

1.1 Introduction

1.2 The significance and vulnerability of cultural history

1.3 Private sector support

1.4 The policy context

1.5 Policy developments

2. Vision and position

2.1 Introduction

2.2 A love-hate relationship 2.3 Seeking the connection

2.4 A plethora of connections

3. Quality and dynamics

3.1 Introduction

3.2 Qualities: the cultural-historic values map of the Netherlands

3.3 The spatial dynamic: some trends

3.4 The spatial dynamic and cultural-historic values

3.5 The approach

4. Spatial policy

4.1 Introduction

4.2 General spatial policy

4.3 Specific spatial policy: the area-specific approach to rural areas

4.4 Specific spatial policy: the area-specific approach to urban areas

4.5 Policy designed to encourage the thematic approach

5. Development of knowledge and cooperation

5.1 Introduction

5.2 Accessibility and availability of knowledge and information

5.3 Integration of knowledge and information concerning cultural history

5.4 The promotion of expertise

5.5 Research into spatial trends

5.6 Social alliances


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6. The end as beginning

6.1 Introduction

6.2 Cultural history and other functions

6.3 Incorporation within government policy

6.4 The end as beginning

7. Finances

7.1 Introduction

7.2 Current budgets

7.3 Intensification

Summary

Key to abbreviations

Acknowledgements

Notes

Appendix: areas

1. Introduction and overview2. Explanation of Belvedere Map and selection of Belvedere areas

3. Rural areas: the methodology

4. Cities: the methodology

5. Consequences

6. Description of areas

7. List of Belvedere towns and cities


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Introduction

Cultural history policy and spatial planning

The Netherlands is nothing if not a country of culture. Its cultural landscape has been createdby a combination of nature and human ingenuity, gradually taking form over many centuries.

Forces and counter-forces, construction, demolition, floods and water defences, the

introduction of culture and - today - giving back to nature have all modelled the creation. The

space in which we live conceals a wealth of information concerning our cultural history and the

manner in which our environment was created. This applies equally to our towns and cities: the

Netherlands has many and various historic urban settlements.

The soil, the landscape and the built-up area contain a complex and fascinating collection of

clues to the way that people worked and lived in the past. Some of the cultural-historic

characteristics are small: windmills amid the fields, the megalithic tombs around Drenthe or old

buildings alongside a canal. Others are much larger: they represent the 'Grand Design' of our

country. These are the canal zones of cities, the polders and drainage schemes, or the militarydefences which place the cultural identity of the Netherlands into an international perspective

and which serve to define the Dutch position in the world.

There are also characteristics which are less tangible in nature, such as archaeological

information or vague remnants of an earlier landscape. These cultural-historic characteristics,

or 'qualities', not only call for careful assimilation into our modern environment but can and

should be consciously utilized in the design of our country, lest they quietly but irretrievably

disappear as a casualty of our urge to create a new environment to meet the requirements of

our age. These are essential spatial and cultural elements of our country, and are often of

enormous significance to the international positioning of the Netherlands on the world stage.

In a dynamic and vital society such as ours, the loss of historic features is sometimes inevitable.

After all, we cannot live in the past - we must build and design to meet and reflect the culture

of our own age. Planning, designing and building result in a new cultural quality, but

paradoxically that is the greatest threat of all to the past qualities. The tempo and scale at

which our environment is being adapted to meet the demands of today have become so great

that the effect can be destructive. If no deliberate policy aimed at preserving the cultural-

historic heritage is adopted, the unique quality of our country which took so many centuries to

develop will be obscured entirely by the new design. The result will be that areas in all parts of

the Netherlands will start to look very much like each other. This blurring and erosion of the

diversity in our surroundings should be a concern to everyone. We must seek strategies and

solutions whereby development and conservation can go hand in hand wherever possible,whereby the links between past, present and future will be strengthened.

Background, status and objective of the Belvedere Memorandum

The publication of the Belvedere Memorandum was announced by the Minister of Education,

Culture and Science, the Minister of Public Housing, Spatial Planning and the Environment and

the Minister of Agriculture, Nature Management and Fisheries in a formal letter submitted to

the Lower House in December 19971. The Belvedere Memorandum is an elaboration of certain

proposals contained in the general Policy Document on Culture2

and that relating to

architecture3. General statements concerning the importance of cultural history are also to be

found in the Structural Action Plan for the Green Areas

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and the revised and amended versionof the supplement to the Fourth Policy Document on Town and Country Planning5.


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In its coalition agreement, the current Dutch cabinet stated that the most important task for the

future is to find a responsible balance when making certain fundamental choices. These include

the choice between "economic power and maintaining the quality of our living environment"6.

To assist in making such choices, a number of guideline policy documents are produced, toinclude the Fifth Policy Document on Town and Country Planning, and a possible Second

Structural Action Plan for the Green Areas.(At the time of writing, no decision has been made

as to whether the first Structural Action Plan for the Green Areas is to have a successor.) In all

these various documents, and in the Initial Paper on Spatial planning 19997, concepts such as

'spatial quality' and 'cultural identity' will take a central place.

This, the Belvedere Memorandum, presents a vision regarding the way in which the cultural-

historic qualities of the physical environment can and should be addressed during future spatial

interventions in the Netherlands. It further suggests a number of measures which should be

taken with the aims of conservation and assimilation in mind. It represents a supplement and

complement to the existing sectoral policy. Cultural history is regarded as being of vital

importance to our society and to each individual citizen. The conservation and use of our

cultural heritage adds an extra cultural dimension to the spatial structure. The approach to be

adopted is one which centres around developmentrather than replacement and is an approach

which must be promoted by means of the overall spatial policy.

This memorandum forms an important basis for the forthcoming Fifth Policy Document on

Town and Country Planning. The policy described in the current memorandum will also be

reflected and developed in future governmental policy documents and plans. The Belvedere

policy must also be adopted at other governmental levels such as the regional (provincial) and

local authorities. A number of proposals and guidelines by which this can be achieved arepresented in this memorandum. There is still a long process of discussion, consultation and

experiment ahead, but the Belvedere Memorandum will, it is hoped, mark a turning point in

attitudes and action.

The main objective of the policy is:

Cultural-historic identity is to be seen as a determining factor in the future spatial

design of the Netherlands, for which the government shall aim to create appropriate

conditions.

General overview

The Belvedere Memorandum is in two parts: a policy document and an appendix. The first

three chapters of the former seek to expound and explain the vision behind the policy.

Subsequent chapters go on to describe the measures and proposals deriving from this vision.

Chapter 1 outlines the social and policy context of the memorandum. Chapter 2 sets out the

approach to be adopted, which is then examined in further detail in Chapter 3. Chapter 4

describes the various aspects to be considered under the general heading of spatial policy.

Chapter 5 looks at measures to be taken in order to promote the development of knowledge

and cooperation. Chapter 6 presents a summary of the follow-up processes, and Chapter 7

concludes the policy document section with an account of the financial ramifications.


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TheAppendix is presented as a supplement to the policy document and contains a description

of the way in which the designated Belvedere areas have been selected. The Appendix also

describes each area in detail and presents a list of the designated Belvedere towns and cities.

Eight examples: an introduction'Belvedere' is not only a useful epithet for this memorandum and the policy it describes, but is

also the Italian word for a 'beautiful view'. To make clear the view or 'vision' for which Belve-

dere stands, it is not possible to rely on words alone. There must also be something to see. At

various points in this memorandum the reader will therefore find eight examples which

illustrate the Belvedere vision. Each example has been taken from recent practice, but other

than that, they are extremely diverse in character. One small-scale, successfully implemented

plan is the redesign of Mariaplaats in the city centre of Utrecht. A more substantial project is

the 'VINEX' housing development at Leidsche Rijn, to the west of Utrecht. Besides relatively

straightforward privately-funded projects, such as the (re-) planting of native greenery in

Noordwest-Overijssel and the restoration of the public footpaths network in the Achterhoek

regions, there are plans, such as the restructuring of the Nieuwe Hollandse Waterlinie, which

involve scores of interested parties.

The various projects have been set up with different perspectives in mind. Some plans have a

primarily architectural or architectonic approach, some seek to address matters of urban

planning, while yet others are in the interests of nature development. When completed, these

projects may have a combination of functions, with people living, working and taking their

recreation in one and the same area. Such 'combination' areas include that of the terp area of

Middag-Humsterland in the Province of Groningen, where a pleasant residential environment

nestles alongside agricultural activity and some small-scale recreational facilities in a landscape

which is rich in cultural history. The reconstruction of the Oude Rijkswerf in Den Helder also

strives towards achieving a blend of the residential, commercial and recreational functions.

The examples presented in this publication are not intended as full case studies: each would

require a book of its own. Further, the selection of examples has been random: there are

countless other projects which could have been used. And just because these particular

examples have been chosen, the reader should not assume that they are necessarily all success

stories. Each project has had its own problems and complications, and even where a project

has been completed, its eventual success or failure can only be judged at some future date.

Furthermore, these examples are not intended as 'blueprints' for future projects - the only way

to proceed. That would lead to undesirable uniformity, while the ambition should be greater

inspiration and deeper thought. In short, the examples should be seen as nothing more than an

impression of what the Belvedere approach is all about.


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1. Context and terms of reference

1.1 IntroductionAs a country, the Netherlands must now find the answers to a number of major spatialquestions. This is certainly not the first time that this situation has arisen, and it will not be the

last. This is how the spatial design of a country develops, just as its economy or its artistic

achievements: through a process of constant flux between continuity and discontinuity,

sometimes gradual, sometimes in fits and starts. Evidence of the various phases of such

developments in the past can still be seen in our landscape and in our towns and villages, both

above and below ground.

The current spatial questions merely form the latest chapter in this never-ending saga of our

cultural history. The projects in infrastructure, urbanization, nature development and water

management are often extremely extensive. Previous generations too occasionally madesweeping and large-scale interventions, and the manner in which they did so still commands

our respect and admiration. We now have the opportunity to make similar achievements.

However, it remains crucial to ensure that there is a well-considered and responsible overall

design, with a policy geared towards a spatial quality in which the structures of the past can be

retained. We must avoid the large-scale destruction of the valuable features of yesteryear. A

careless approach will lead to cultural impoverishment, to a levelling to the lowest common

denominator, to the disappearance of important urban and rural characteristics and differences,

and to social and spatial 'amnesia'.

The strategy we must now adopt is therefore one in which respect for the treasures of the past

is coupled wherever possible with an offensive approach to development, with far greater

consideration for creative design and innovative solutions. In many ways, this represents a

break with the trends of the past. However, the desirability of such a strategy has become

increasingly evident of late. In both political circles and within society at large, there is a

growing awareness that 'spatial planning' must involve more than merely finding room for the

necessary utilitarian functions. As the advisory council of the Ministry of Housing, Spatial

Planning and the Environment stated in its report Stedenland-Plus8: "Spatial planning

interventions may be adjudged successful if the result embodies economic competitive strength,

social cohesion, ecological sustainability and cultural identity."

It is clearly noticeable that, as the discussion concerning the spatial design of the Netherlandsproceeds, the importance of cultural history as the expression of cultural identity and as a

quality to be incorporated into the human environment is being recognized on an increasingly

wide scale. Not only the report of the Ministry's advisory council quoted above, but similar

documents produced by the Culture Council9

and the Netherlands Council for the Rural Area10

have made important contributions to the debate. In essence, current shared opinion is that

cultural history is not only worth saving, but that it also offers exciting opportunities for

development whenever and wherever a synthesis can be found between the retention of

existing historic values and the creation of new spatial values.

The task thus becomes a joint one for both public and private organizations. It is a task which

will involve both the rural and the urban areas, but possibly with slightly more emphasis on the

rural. The urban environment offers opportunities for restructuring, for example by means of a


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revitalization of existing qualities. A crucial aspect throughout is that there must be a cohesive

national policy which provides sufficient room for cultural-historic identity to play a greater

part in determining the future design of the Netherlands.

Culture and cultural history

"Culture", according to the government's 1998 coalition agreement11

, "is of vital importance to our

society and to each individual citizen within that society. On the one hand, culture is essential to

integration and cohesion in that it is an expression of that which connects us - that which we all have in

common. On the other hand, culture offers an opportunity for differentiation and for the development of

people as individuals. Culture is essential to the development and transference of values, and to

contemplation of those values."

To this we may add that cultural history is of vital significance as an aid in viewing the greater picture:

past, present and future. Cultural history reminds us that culture with all its facets and values

(integration and cohesion, differentiation and development, transference and contemplation) is not

merely an aspect of the here and now, but has a significance which can extend decades or even centuriesinto the future. Cultural history is thus of truly vital important in that it raises the culture, the society,

and the individual above the immediate, and places them within the scale of time

Throughout this memorandum, the term 'cultural history' refers to traces, objects, patterns and structures

visible or otherwise, which form part of our everyday surroundings and which provide an impression of

a historic situation or development. For the purposes of the Belvedere Memorandum, cultural history

therefore encompasses our archaeological, architectural and topographical heritage, whereby the 'goods

and chattels' of cultural history - such as the collections of museums and archives - fall outside the scope

of this document.

1.2 The significance and vulnerability of cultural historyThe desirability of a policy geared towards greater integration of cultural-historic quality with

new spatial developments is based upon two considerations. Firstly, cultural history is not only

significant and valuable as a collective possession, but can also be utilized to further all sorts of

social ends. To under-use out cultural-historic assets will benefit no one. Secondly, the

sustainable retention and conservation of the cultural-historic qualities cannot be guaranteed

without an active policy and the cooperation of all concerned. These two considerations are

explained in further detail below.

Significance

The retention and integration of cultural-historic qualities into new spatial developments canprovide a number of advantages, both in the material sense and in more abstract terms.

Identity and sense of purpose

Cultural-historic qualities provide the inhabitants of a village, town, city, region or country

with a feeling of belonging - of an individual identity. The Netherlands Council for the Rural

Area has stated that the personal significance which an individual attaches to their surroundings

is essential in establishing the overall identity of those surroundings. "This affords an extra

dimension to the diversity within our country, while at the same time engendering a personal

involvement with the surroundings on the part of the people themselves. After all, those

surroundings do not merely comprise a random collection of interchangeable elements -

interesting though that may be in itself - but a very specific combination of elements, each withits own significance, history and personal associations."

12As we reach the end of the twentieth


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century, this is a factor which cannot be underestimated. That the Dutch attach such great

importance to variety in landscape at local, regional and national level is amply demonstrated

by such publications asRuimtelijke Verkenningen (Spatial Surveys) 1997.13

The popularity of

Geert Mak's bookHoe God verdween uit Jorwerd14

(How God disappeared from Jorwerd)

provides further evidence of the concern for variety. This book offers an insight into themechanisms which regulate human society and into the interrelationship between the physical

and social aspects of that society. The balance between these aspects, which can occasionally

be fragile, must be constantly borne in mind if we are to avoid the development of an

amorphous and anonymous society. What influence can one's surroundings environment have

on their inhabitants and their sense of involvement if they are totally indistinguishable from

countless other locations? Consideration for the identity that cultural heritage bestows forms a

logical part of the approach to all spatial questions.

The strong tendency towards an expansion of scale will, at the same time, prompt resistance

from within the community, which feels a need for nuance, recognizability and variety. The

past can function as our point of reference. The disquiet and loss of identity which so often

accompany large-scale spatial developments can be compensated - at least in part - by drawing

inspiration for our future surroundings from the past: from a clear understanding of the

continuous lines of history. The long-term perspective of cultural history enables us to put the

issues of the day into perspective.

A backlash against globalization

The desire for a historically embedded identity - a 'gradual' movement through time, distinctive

and differentiating assets, recognizability and variety - can also be seen as a backlash against

the dominant influence of a global culture with its tendency to uniformity. An approach to

spatial development which encompasses respect for cultural heritage will guarantee historic

continuity and will open up many opportunities for the retention and preservation of thecultural identity of a village, town, city, region or entire country.

A source of information.

Cultural history is an important source of information in teaching general history. Education

itself strengthens historic awareness. Cultural heritage serves as the basic material for much

scientific research aimed at unravelling the story of how our ancestors lived and provided for

themselves. For both local residents and visitors, cultural heritage provides a window on the

history of an area and its people. To preserve our cultural-historic values is therefore to

preserve information concerning the entire course of our history.

A source of inspiration

Cultural history continues to be made every day, but it falls to us to retain the information

provided by the past and to consciously incorporate it into our modern interventions. Cultural-

historic information can form an important source of inspiration for the designers and planners

of today's buildings, cities and landscapes. It provides the basis upon which one can

incorporate cultural-historic features into spatial plans to arrive at true development.

Aesthetic value

Aesthetic considerations also provide a motive for the conservation of our cultural heritage.

'Beauty' can take many forms, and can be appreciated and enjoyed by many people. Besides the

'serious' values of cultural history, such as its educational importance and its ability to providea sense of purpose, sheer pleasure is a value in itself. This applies equally to the aesthetic value


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of individual objects and to the significance of the diversity of the total gamut of building styles

and landscapes.

Ecological importance

Cultural-historic elements and patterns in the landscape (and found surprisingly often in theurban landscape as well) frequently have additional ecological value and contribute to the

maintenance of biodiversity in an area. Examples of such elements include wooded banks,

forts, watercourses, dikes and (former) country estates.

Economic importance

Cultural heritage is an important economic factor. Cultural-historic quality will often lend a

building or area a higher market value. Cultural history also offers good opportunities for

recreation and tourism, and not only involving visitors from overseas. There is considerable

interest in culture and cultural history among the Dutch population, an interest which has

increased over the past twenty-five years.

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This has resulted in direct growth in domestictourism, whereby cultural history is an important economic factor. Further growth is expected

to result from higher levels of general education and changes to the demographic composition

of the population. The past provides an extra dimension to our perception of historic cities,

villages, landscapes and even new housing developments in which cultural-historic values have

been given a place. Such areas also have a valuable role to play in recreation.

Opportunities to exploit and develop cultural-historic values to an even greater degree

currently exist, particularly in and around the urbanized regions. The area known as the

Netherlands' Green Heartis taking on the role as 'back garden' to the Randstad conurbation,

while tourism is becoming an increasingly significant factor in other regions.

Vulnerability

The renewed appreciation of cultural identity and of the diversity of our surroundings has beenaccompanied by the realization that this very identity and diversity are under pressure. One of

the conclusions of theNatuurverkenning 199716

is that the tendency towards uniformity in the

landscape, and hence loss of topographical values, has progressed rapidly. The characteristic

regional qualities of the Dutch landscape are thus under serious threat. The publication

Ruimtelijke Verkenningen 199717

also expresses strong concern for the quality of our

surroundings. It states a fear that increasing pressure on the available space "will lead to a

decline in the much-valued variety in the Dutch landscape." A similar development can be seen

in the case of the historic city centres. Our archaeological heritage in both rural and urban

areas is rapidly being undermined.

It is not only autonomous spatial processes which will affect the cultural-historic quality of theNetherlands. Implementation of the major development projects planned for the coming years

will also play a significant role. While past spatial interventions were usually carried out in

keeping with the character of the region, uniformity is now making its unwelcome presence felt

in numerous areas.

en Cultureel Rapport 1998

1.3 Private sector supportThe interest in, and appreciation for, cultural history within society at large is evident from a

wide and extremely varied range of private initiatives and organizations. There are almost one

thousand organizations in the Netherlands which in one way or another are involved in

archaeology and/or the conservation of historic monuments. The growth in their membership

reflects the increasing concern for the country's cultural-historic heritage.


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Those organizations active in the field of the cultural landscape are usually related to local

nature or folklore societies. Many are active at the local or regional level. In the 1970s, a

number of national umbrella organizations were founded. These include theNationaal Contact

Monumentenzorg (National Contact Monuments; NCM), the Stichting voor Nederlandse

Archeologie (Netherlands Archaeological Foundation: SNA) and the Platform Landschap enCultuurhistorie (Platform for Landscape and Cultural history).

The relevance of cultural history to nature and recreation is further demonstrated by the

number of large organizations, such asNatuurmonumenten, Staatsbosbeheer(the national

forestry commission) and the touring organizationANWB which now devote attention to

cultural history within their general activities in nature and recreation.

1.4 The policy contextThere is now an increasing tendency for a firm cultural history policy to be applied to questions

of spatial planning at regional level - the Dutch 'provinces'. The provinces are now active incharting their cultural-historic values and their significance, with a view to using this

information as essential input for the overall regional plan and design policy. Cultural history is

also seen as an increasingly important component of the provinces' overall cultural policy.

Similar initiatives and policy themes are now also to be seen developing at local authority level.

It is felt that central government policy has to date done too little to address the social

developments and requirements described above. Central policy is not sufficiently geared to

such considerations, one reason for which is the division of responsibility and involvement

between a large number of different departments.

Primary responsibility for cultural history is held jointly by three departments: the Ministry of

Education, Culture and Science is responsible for archaeology, the conservation of listed

buildings and the designation of protected town and city landscapes. The Ministry of

Agriculture, Nature Management and Fisheries is responsible for historic-geographic values,

the quality of the rural areas and recreation, while the Ministry of Housing, Spatial Planning

and the Environment is responsible for spatial quality and the (residential) environment, urban

regeneration and the conservation of Grade I listed buildings (i.e. those protected at national

level). In addition, a number of other departments bear responsibility for specific aspects.

These include the Department of Transport and Public Works (infrastructure and water-related

monuments), the Ministry of Foreign Affairs (Dutch heritage overseas) and the Ministry of

Defence (fortifications and historic military establishments). Yet more departments, such as the

Ministry of Economic Affairs, are involved in view of the importance of cultural heritage to(international) tourism and the business climate. Last but by no means least, the various

departments involved in implementing the Major Cities policy have a certain responsibility in

terms of those cities' historic aspects.

It should be noted that the cultural history disciplines have in the past concentrated on the

conservation of the cultural heritage, with little more than passing attention for current spatial

developments. Efforts were in the main directed towards individual buildings, and less towards

the greater cohesion of areas. An additional complicating factor is that the instruments and

manner of direction were different for each discipline.

The task now facing central government is to develop a cohesive policy aimed at future

development. Although some time has been lost in the past, the many policy themes which now


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exist enable a significant leap forward to be made. Indeed, the past few years have shown that

efforts are indeed being made in this direction, particularly by such departments as the National

Service for Archaeological Heritage (ROB) and the Department for the Conservation of Listed

Buildings and Sites (RDMZ).

1.5 Policy developmentsResponsibility for ensuring the quality of our surroundings, and hence also for cultural history,

is shared by the central government, regional and local authorities, water authorities and

private sector organizations. In order to give form to this joint responsibility, it becomes

desirable to define in closer detail the particular areas for which each should answer. It is also

possible to establish some policy trends which will provide fertile ground on which to cultivate

an integrated and balanced spatial policy to include the relevant aspects of cultural history.

Division of responsibility

The Startnota Ruimtelijke Ordening (Initial Paper on Spatial Planning) 1999 is in the nature of

an overture to the government's forthcoming Fifth Policy Document on Town and Country

Planning. Further to the WRR (Netherlands Scientific Council on Government Policy)

recommendation18

this document chooses to demarcate the areas responsibility for matters of

spatial development in the Netherlands. The concepts it sets out are to be taken as a guideline

for the further designation of tasks and responsibilities through which the position of cultural

history can be strengthened within new spatial interventions in the Netherlands. These are as

follows:

Primary responsibility for maintaining or strengthening the quality of the living environment

rests with local authorities and water (management) authorities. They will address this

responsibility by means of formal plans for area development, structuring, management and

maintenance.

The conservation and further development of special values is partly the responsibility of the

provinces. The provinces (possibly in regional alliances) are responsible for improving and

strengthening the quality of the human environment on an area-by-area basis, to include

attention for the cultural history of those areas. This responsibility will involve devising an

area-specific policy and overseeing its proper implementation.

Central government considers its responsibility to lie in assisting and supporting the otherlevels of government by means of knowledge, instruments and research in the fields of

conservation, development and the area-specific approach.

Within the field of physical planning, central government will guarantee careful and

conscientious consideration of cultural-historic interests by means of a general and a specific

cultural history policy in relation to spatial interventions, compulsory inquiry procedures

prior to spatial planning interventions, and ongoing assessment of the degree to which

matters of cultural history are incorporated into the planning policy.

In exceptional cases, it will be within central government's power to impose a protection

order, or to directly involve itself in the management of any area-specific spatial

development project.


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Private citizens and organizations share in the responsibility for maintaining and

strengthening the quality of the human environment. Proper management and maintenance

of property, participation in policy implementation, and the inception of private initiatives

are some ways in which this responsibility can be addressed.

In addition to this perspective on the joint responsibility for conservation and development of

the cultural heritage, the intention is that responsibility for policy formulation should be placed

as close as possible to the authority which will actually implement that policy. This will ensure

that the necessary (local) legislation and financing arrangements are subject to as little overlap

and additional levies as possible. It is also the intention that the agreements made should be as

concrete as possible, and should furthermore be integrated, output-oriented and linked to

physical entities, such as a specific area: in short, the area-specific policy. Appropriate to this

aim is that the contribution of private parties should be explicitly sought at as early a stage in

the policy-making process as possible. Private sector organizations are often an important

source of knowledge which is useful in devising and implementing the policy.

The international context

In the international context, Dutch cultural history has a particular significance with regard to

the country's ongoing battle against water. This is reflected by the number of areas and

structures which were placed on UNESCO's list of International Protected Heritage Sites in

1995: the Defence Line of Amsterdam (a network of fortifications), the windmills of

Kinderdijk-Elshout, the pumping station at Wouda and the former island of Schokland.19

There is also increasing concern for the maintenance of diversity in cultural landscapes, as

demonstrated by the efforts of the European Union and the Council of Europe. For example, in

1998 the Council of Europe put forward a proposal for a 'Convention on EuropeanLandscape', while the first official draft of the European Spatial Development Perspective

(1998)20

places the conservation and creative development of natural and cultural heritage

firmly on the political agenda. The emphasis here is on the cultural heritage of cities, and on the

maintenance and development of significant landscapes, both urban and rural. The overall

objective is to integrate these elements into regional and local spatial development plans in a

careful and conscientious manner.

Concern for cultural identity is also reflected by Section 112 of the Maastricht Treaty,21

which

states that all existing legislation must be re-appraised in terms of its impact on cultural

aspects.

The European Union's framework legislation for rural development, part of the Agenda 2000,

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cites cultural history (i.e. cultural heritage) as being one of the key elements in rural

development policy. The underlying thought here is that existing values should be maintained

and that cultural heritage should be utilized in order to stimulate the economic and recreational

dynamic of the rural areas. A connection is also made with landscape values, whereby a direct

relationship with agricultural activities is assumed.

Cultural policy: the vitality of the heritage

The Policy Document on Culture Pantser of ruggengraat23

('Ectoskeletal or Endoskeletal?')

1996, stresses the vital function which cultural heritage has within society, whereby its added

value to spatial quality is particularly emphasized. The document Cultuur als confrontatie;

uitgangspunten voor het cultuurbeleid 2001-2004' ('Culture as confrontation: basic principles


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for cultural policy 2001-2004)24

continues where this leaves off, and makes a call for a cultural

approach as the point of departure for urban planning and the design of the landscape.

Recognition of the significance of cultural history is taking form in various areas. The policy

regarding listed buildings is now geared towards extending its scope beyond individual

buildingsper se, to include general architecture and urban design. It also aims to improvecooperation between the various organizations, many of which currently operate in a

completely autonomous manner.25

Legislation is currently being prepared further to the Malta

Treaty26

, to ensure that archaeological interests are given adequate consideration in all spatial

planning interventions.

The Dutch government's policy on architecture includes specific attention for the relationship

between cultural history and new spatial developments. The policy documentDe architectuur

van de ruimte ('The architecture of space') 199627

, states that the cultural-historic perspective

is essential to an integrated policy aimed at quality, and is summed up as "an analysis of the

historic and spatial development".

Spatial policy: cultural history as a basic value

The cultural-historic aspects of spatial policy are touched upon in both the amendment to the

Fourth Policy Document on Town and Country Planning (VINAC, 1998)28

and the Initial

Paper on Spatial Planning (1999) 29.

"In order to maintain and improve the quality of the everyday human environment, we shall

adopt a policy directed towards safeguarding those basic values of our society which are

important in the spatial context," states the VINAC. Cultural history (in the form of historic

architecture, urban design, archaeology and historic landscape elements) is seen as one of these

basic values. In real terms, the VINAC restates and confirms the obligation on the part of all

authorities and private parties to involve aspects of cultural history in all planning activities.Here, the onus is on maintaining the form of the spatial situation which has developed through

historic processes, as well as the subterranean heritage yet to be excavated. For the rural areas,

a specific rider is stated: "spatial interventions and design activities which alter the general

character and/or actual characteristics of an area, or which are detrimental to the cohesion and

values of nature areas or characteristic landscapes, shall not be undertaken except in cases of

overwhelming social necessity."

The importance of culture and cultural history has now been confirmed in the Initial Paper on

Spatial planning 1999, which states: "Cultural diversity and heritage contributes to the identity,

the perceptual value and the international recognizability of our country. We wish to ensure the

ongoing maintenance of this heritage, while at the same time bringing about greater diversity

and creating new cultural qualities. This will provide the Netherlands with a greater focus,

greater depth and a greater understanding of its place in the passage of time." Culture is also

designated an area of special interest to be considered in the Fifth Policy Document on Town

and Country Planning, whereby cultural history is to become a cornerstone of regional

diversity and cultural identity.

Nature and landscape policy: the topographical pattern

Policy regarding landscape(s), and hence that for historic geography, is currently established by

means of the Structuurschema Groene Ruimte (Structural Action Plan for the Green Areas)30

which elaborates the spatial elements of the Nature Policy Plan and the Landscape Policy

Document31.


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The Structuurschema Groene Ruimte lays down that new spatial structures "must be based (at

least in part) on the topographcical characteristics which serve to determine the identity of the

various forms of landscape in a specific area, and on the elements present in the landscape."

This policy aims to achieve a "sustainable maintenance and development of a selection of those

patterns and elements which determine identity at a national level." This is known as thenational landscape pattern. The policy is also directed towards "the conservation and

restoration of the general character of areas which, through the presence of topographical

values, are of great significance to the quality of the landscape at national level." Such areas

are given a specific protected status within the Structural Action Plan for the Green Areas. In

the Belvedere Memorandum, this policy is further elaborated in terms of the cultural-historic

values of rural areas.

Two new policy documents are currently in preparation: 'Nature, Woodlands and Landscape in

the Twenty-first century'32

, and 'The Vital Countryside'33

. There may also be a revised version

of the Structural Action Plan for the Green Areas. All such documents will incorporate the

policy relating to cultural history in rural areas.

Recreation and tourism: a mutually beneficial arrangement

The policy recognizes the relationship between cultural history on the one hand, and recreation

and tourism on the other. The Social and Cultural Planning Bureau has stated, "Policy

concerning tourism is based on the firm conviction that our rich variety of art and culture

should be utilized in promoting domestic and international tourism."34

This 'firm conviction' has been given further form in the 'Master Plan for Cultural-historic

Tourism' (1989)35

, the policy document Ondernemen in toerisme ('Enterprise in tourism')36

(1990), countless individual projects at local and regional level, and the action plan Zee van

cultuur ('Sea of culture', 1997)37. The details and actual implementation of policy within theframework established by central government is the responsibility of the regional and local

authorities, and private organizations. The policy on recreation relies in part on the concept of

a 'mutually beneficial arrangement', whereby the cultural identity is further strengthened by

recreational and tourist facilities having a cultural-historic flavour, while the cultural-historic

features present opportunities for the development of various forms of recreation and tourism.

There are thus countless social developments which are contributing to increasing interest in,

and appreciation for, cultural history. At the same time, the social dynamic which calls for

major spatial interventions continues unabated. This combination of forces necessitates close

coordination between cultural-historic policy and spatial policy.

Such coordination is now increasingly seen at region (provincial) level, and is now also

beginning to be detected at local level. Cultural-historic policy is also a matter of concern at

national level, but has to date mainly been limited to isolated sectoral policy themes.

It therefore becomes necessary to complement the integrated policy geared towards the lower

levels of government (and the sectoral policy at national level) with a new central policy geared

towards full integration. Many of the ingredients for this are already in place. The challenge

becomes to bring them together to form a cohesive whole.


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2. Vision and position

2.1 Introduction

Cultural history and spatial planning are two separate disciplines, each with its own dynamics,its own knowledge domain, its own patterns, values, language and perspective. One is

concerned with the past, the other with the future. The basic starting point for each is the

present, but this often creates a blind spot between historic values and future perspective.

However, both disciplines are concerned with change and with continuity in time and space,

with material and abstract motives and values. Cultural history is the 'story of a country and its

culture' and is thus also the ongoing story of the spatial design of that country, past present and

future. That which is now regarded as 'historic' was once the matter of the moment, with

decisions having to be made then just as they are now.

Furthermore, the manner in which space is designed, laid out, used and appreciated can be seen

as a reflection of the status of the culture at that particular moment. The terms 'cultural history'

and 'spatial design' are in that sense closely interrelated to the point of overlapping. Although

from this perspective the relationship between cultural history and spatial planning may appear

to be close, it is more useful for us to regard it as it really is: a love-hate relationship.

2.2 A love-hate relationship The previous section stresses the closeness which canmark the relationship between cultural history and spatial planning. Spatial planning itself can

contribute to the greater significance of cultural-historic elements, perhaps though their

incorporation into some new structure, or through giving them an entirely new function. At the

same time, those within the cultural history discipline will often regard new spatial planning

interventions with distrust, suspicion or downright aversion - and sometimes not without

justification. New interventions in the spatial structure of town and countryside can often pose

a threat to cultural-historic elements, and may serve to obliterate traces of the past - the

'topographical memory' - beyond recall.

Conversely, those involved in the spatial planning disciplines have mixed feelings with regard

to cultural history. Cultural-historic information, 'stored' underground, in the buildings and in

the spatial structure itself, can form a spatial and social foundation for future spatial plans. It

can provide great inspiration for new initiatives and thus help to strengthen the identity of an

area. This is the 'love' side of the equation - why spatial planners actually appreciate cultural

history. However, they shudder at the thought of all too strong a call for the conservation of

cultural-historic values. They know the nightmare of stagnation which can affect developmentin cities, towns and landscapes of 'exceptional historic value'. Their room to manoeuvre can be

severely limited, with new functions, new architectural forms and new development processes

becoming difficult or impossible to achieve.

In other words, spatial planning is both a threat to, and a source of inspiration for, cultural-

historic quality. A cultural-historic policy may serve to promote the spatial dynamic, but is may

also serve to curtail spatial vitality. The love-hate relationship includes many dismal visions on

both sides. Such spectres may exist both within and outside the professional circles. They are

based on sincere concern, but can also be used or misused to influence opinions unduly. It is

then that the relationship demonstrates the sharp edges of its 'hate' component.

[figure]


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The relationship between cultural history and spatial planning is thus a relationship under

stress, but it is this stress which can actually provide the true value. A basic precondition for

creating a closer link between cultural history and spatial planning is the recognition of the

differences in orientation. There will always be differences in vision and perspective; there will

always be conflicts, and there will sometimes be painful choices to be made.

By avoiding confrontation for fear of the risks will lead to opportunities being missed. The

fascinating and fruitful interaction between past and future will be cut short. However,

recognition and exploitation of the tensions between cultural history and spatial planning can

avoid the adoption of the 'false romantic' approach. It is not the intention that all spatial

planning interventions should be 'steeped in history', but neither is it the intention that all

monuments should be given a new and modern function.

Here, continuity is the central, paradoxical and productive concept. It is a question of ensuring

the continued existence of old buildings and structures, the continuation of principles of design,

and a process of building further upon historic processes in relation to new forms of use. To

guarantee historic continuity will require the spatial assignments to be formulated in such as

way as to recognize the mutual relationship between cultural history and spatial planning, and

for decisions to be taken on the basis of an awareness of the past.


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This is not the same thing as 'conservation'. It is seeking a new balance between retention and

development. History itself is a concatenation of unexpected events, a process of decay and

construction, of change and perpetuation, of success and failure, of gradual development and

rapid forwards momentum. Even the 'break with the past' has a long history of its own. To

continue this process of development will create room for renewal. Indeed, it demands it. Evenradical changes, such as the urbanization of a rural area or nature development in a

predominantly agricultural region, can therefore be seen as a continuation of a cultural

'tradition'.

'Conservation through development' is the motto. By seeking new uses, old landscapes and

buildings can be saved. However, it is just as much a question of 'development through

conservation'. By using our cultural heritage in a frugal and responsible manner, we are

investing in the development and strengthening of our identity, knowledge, comfort, business

climate and potential for tourism.

The structural reinforcement of the connection between cultural history and spatial design -

between retention and development - relies on changes in working methods and attitudes. This

will require effort, but it is effort which should be seen as an investment from which future

generations will benefit. It is therefore essential that all socially involved parties devote serious

thought to the relationship between cultural history and spatial planning, and discuss this

relationship with each other. Central government aims to encourage such discussion.

2.3 Seeking the connectionThe practical relationship between the two disciplines of cultural history and spatial planning

requires each to broaden its horizons and perspectives. This will result in the existing reflective

approach to cultural history and the anticipatory approach to spatial planning being

complemented by the converse: an anticipatory approach to cultural history and a reflective

approach to spatial planning.

The current sectoral policy with regard to cultural history will continue to exist. However, to

achieve a stronger relationship between cultural history and spatial planning demands a

supplementary, integrated approach. In practice, this entails assuming an intrinsic

interrelationship between archaeology, the conservation of listed buildings and that of historic

landscapes. Independent elements and patterns are thereby to be regarded as forming part of a

greater whole. This implies a regional approach. Further, cultural history should take intoaccount future spatial developments and the opportunities for such developments, in order to

anticipate them without regarding them as a threat. This vision demands that the horizons of

spatial policy must also be widened. It must reflect on the historic processes more than has

hitherto been the case, and must recognize and accept existing elements and a rich source of

inspiration for the future.

When both disciplines widen their field of vision in this way, looking back and looking forward

will become extensions of each other and each will contribute to the forging of the link

between past and future. Without losing sight of their own specific task, cultural history and

spatial planning will 'look over each other's shoulder', both at the theoretical and practical level.

They must not be afraid to impinge on each other's territory, because there they will be able to


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develop relevant insights. It is precisely through this sort of mutual interest, exchange and

confrontation that new solutions will be found.

By adopting an anticipatory stance, cultural-historians can develop their own type of

exploration of the structural processes of spatial change. In a phase in which no direct

decisions have to be taken, they will be able to research such processes based on the specificpoint of view of their discipline. If necessary, they will also be able to explore alternatives.

Because quality and regional diversity are now major themes within spatial policy, there is also

more consideration for cultural history on the part of the planners. After all, anyone hoping to

achieve variety has a significant head start in the form of the existing cultural-historic diversity.

Each area and each location has its own unique history, with its own specific form of spatial

design and hence its own character. To build upon these aspects will at least guarantee a

certain resistance to uniformity and will also offer explicit opportunities for development of

high quality.

Research into the origins and history of a location and its physical characteristics is a useful

addition to the general preparation for spatial planning. In the general sense too, the planners

must gain an understanding of the cultural diversity of the area, perhaps using an integrated

system of cultural-historic value maps, as developed in recent years.

If we wish to draw a direct connection between cultural-historic information and the future

spatial requirements and projects in a specific area, insight into the various nuances of

significance is essential. By asking 'for whom', we automatically create the link with future

developments.

2.4 A plethora of connectionsAs stated above, spatial planners and cultural-historians must be prepared to impinge on each

other's territory, and they must permitted and encouraged to do so. They will then be able to

seek the balance between conservation and development on an ongoing basis. They will learn

to speak each other's language, to understand each other's problems. A dialogue can thus

develop.

The next stage will then be a broadening of each discipline's field of vision, resulting in a good

coordination of research programmes, planning processes and policy determination. This

coordination will rely more than anything else on a joint perspective for the development of the

available space. How can we give form to the concept of 'conservation through development'?

Only when concrete, shared ideas are held by both parties will there be a firm basis upon which

cultural history can play a full and proper part in spatial planning and design.

The process of forming such joint ideas is to be stimulated, although it will be obvious that it is

neither possible nor desirable for any prediction to be made at this stage regarding the nature

of the concepts that will emerge. It is possible that a certain specific problem or set of

circumstances will call for a course of action at one of the absolute extremes: static

conservation or uncompromising demolition and replacement. However, in practice we are

more likely to see one of the many intermediate approaches, such as:

maintaining cultural-historic values through careful use, design and management of the

space concerned. For example, new functions may be sought for old monumental buildings.

incorporating new spatial functions into the historic spatial setting. The new development

will be dominant and dynamic in itself, but will be engrafted onto some historic detail. For


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example, new construction as an extension of old urban design structures, as in the

Mariaplaats project in Utrecht.

using cultural-historic quality as a stimulus for new spatial developments. The more the

development progresses, the stronger will be the framework for retention and conservation.

Examples of this approach include the 'Hanzesteden' tourism development scheme and theuse of the Defence Line of Amsterdam as a recreational structure.

As can be seen from the examples included in this document, the principles concerned have

already been applied in various places, albeit on no large scale as yet. Further examples exist,

and there are also other principles by which a connection between the perspectives can be

established. This general development, based in part on a process of exploration, discussion

and experiment, is to be further stimulated. Subsequent chapters will return to examine ways in

which this will be accomplished.


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3. Quality and dynamics

3.1 Introduction

Spatial processes - and hence the spatial dynamics - present opportunities to create new spatialquality. In all such processes, it behoves us to make the greatest possible use of existing

qualities, including cultural-historic values, as our source of inspiration. This chapter aims to

explore the ways in which differences in cultural-historic values and spatial dynamics relate to

each other and can form the basis for different approaches to the spatial processes.

The manner in which cultural-historic values are identified and charted is described in Section

3.2. Section 3.3 goes on to describe a number of spatial trends as examples of the large-scale

dynamics which can lead to extensive transformations of urban and rural areas. Section 3.4

presents an overview of how differences in dynamics and values lend themselves to various

policy approaches. Finally, Section 3.5 looks at the policy strategy adopted and the

administrative model now in use in allocating tasks and responsibilities to the various levels of

government.

3.2 Qualities: the Cultural-historic Values Map of the NetherlandsFurther to the Belvedere project, a nationwide survey of the towns and regions most valuable

from the cultural-historic viewpoint has been carried out. This survey has resulted in the

production of the Cultural-historic Values Map of the Netherlands (see inside front cover).

No such overview previously existed. There were cultural-historic inventories, but these were

of a sectoral nature, or confined to a particular region. Further, they were inconsistent in the

level of scale, criteria and methodologies used.

A new methodology was developed for the production of the Belvedere Map, whereby a fully

integrated values map has been created on the basis of existing sectoral overviews. The

methodology is explained in further detail in the Appendix. The sectoral overviews have been

complemented by expert opinions from those in the three disciplines of archaeology, historic

architecture and urban design, and historic geography. The sectoral knowledge was then

combined, in close consultation with and between the ROB (archaeology), RDMZ (historic

architecture and urban design) and IKC-Natuurbeheer (historic geography) together with the

regional authorities (the Provinces).

For various reasons, the Belvedere Map compiled in this way is not a static one. New valuesare discovered daily, or are recognized as such on the basis of revised insights. The detailed

inventories and grading currently being conducted by many provinces will lead to yet further

new information and fresh insights. Further, the age at which a particular feature is accepted as

'cultural heritage' is subject to constant redefinition, whereby for example the first Delta works

now become eligible to be regarded as such. It should also be assumed that the methodology

introduced here for establishing cultural-historic values will itself develop further over time.

For these reasons, the map must not be regarded as 'carved in stone' and valid for all eternity.

It will be regularly revised and updated.

A basic principle in producing the Belvedere Map is that there is absolutely no town, city or

region of the Netherlands that is totally 'valueless' from the cultural-historic viewpoint. Every


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place and area forms part of the expression of local history and therefore has an intrinsic

specific value.

However, based on the criteria of rarity, condition and representatives, certain areas were

designated as being ofexceptional value within one of the three cultural-historic sectors. (See

the sectoral maps in the Appendix.) Comparison of these three sectoral maps enables us toestablish which areas may be regarded as being of exceptional value from more than one

perspective (see the Belvedere Map).

The compilers of the Belvedere Map chose to apply a further sub-classification into two

categories: areas with high combined cultural-historic values and areas with high sectoral

cultural-historic values:

Where exceptional features from more than one sector overlap each other, we can speak of

high combined cultural-historic values. Further, this category is to include areas which

have been, or are to be, submitted for inclusion on the UNESCO heritage list on the basis of

their high universal values. A new policy becomes desirable for such areas. Further to this

memorandum, these areas are to be known as 'Belvedere areas'.

A country such as the Netherlands, which has been so intensively altered - and in part even

'manufactured' - by man, must of course be seen as having great cultural-historic value in its

entirety. Although it is primarily the Belvedere areas in which a combination of high

cultural-historic values is to be seen, many areas which have not been designated a

'Belvedere area' also contain some cultural-historic values. Often, these are values which

rely on just one of the three sectoral perspectives within cultural history as a whole

(archaeology, architecture and historic geography). They are thus termed areas ofsectoral

cultural-historic values.

In determining the cultural-historic value of towns and cities, a slightly different methodology

was adopted. (See the Appendix). All aspects have been combined to form theBelvedere Map,or Cultural-Historic Values Map of the Netherlands.

A total of 76 areas and 105 towns and cities have been designated 'Belvedere areas'. These are

listed below. The Appendix describes the methods used in identifying the areas of exceptional

value. In the case of the rural areas, the physical characteristics which provide their cultural-

historic identity are described in some detail, as are the perceived opportunities in terms of

policy.


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List of the Belvedere areas

1. Terschelling

2. Western part of the Waddenzee3. Friesland terp area

4. Groningen terp area

5. Noordelijke Wouden and Westerkwartier

6. De Hemmen

7. Oldambt

8. Westerwolde

9. Old Peat Districts

10. Eelde - Paterswolde

11. Drentse Aa - Hondsrug

12. Noordenveld

13. Ravenswoud - Veenhuizen

14. Frederiksoord - Willemsoord

15. Southwestern Drenthe

16. Aalden and surrounding area

17. Southern part of the Hondsrug

18. Schoonebeek - Bargerveen

19. Reestdal

20. Staphorst

21. De Wieden - Weerribben

22. Kampereiland - Mastenbroek

23. Vecht and Regge

24. Northeastern part of Twente

25. Southern Twente

26. Northeast Polder - Urk

27. Swifterbant28. Texel

29. Groetpolder - De Gouw

30. Bergen - Egmond - Schoorl

31. Schermer - Eilandspolder

32. De Beemster

33. Zeevang

34. Waterland

35. Defence Line of Amsterdam

36. South Kennemerland

37. River Vecht and surrounding lakes

38. Nieuwe Hollandse Waterlinie

39. Nieuwkoop - Harmelen

40. Lopikerwaard

41. Kromme Rijn area and Heuvelrug

42. Nijkerk - Arkemheen

43. Speuld - Garderen

44. Graafschap

45. Souther Edge of the Veluwe

46. Aalten - Zelhem

47. Winterswijk

48. Ooijpolder - Millingerwaard

49. Land van Maas en Waal

50. Tielerwaard and Culemborgerwaard

51. Bommelerwaard

52. The Hague - Wassenaar

53. Oud-Ade

54. Zoeterwoude - Weipoort

55. Central Delfland

56. Krimpenerwaard

57. Alblasserwaard

58. Vijfherenlanden

59. Voorne - Bernisse

61. Goeree

62. Kop van Schouwen

63. Duiveland64. Tholen

65. Walcheren

66. South Beveland

67. West Zeeland Flanders

68. Brabantse Wal

69. Langstraat

70. Dommel Valley

72. Griendtsveen - Helenaveen

73. Maas Valley

74. Heythuysen - Thorn

75. Roer area

76. Heuvelland


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List of theBelvedere towns and cities

(by province)

GRONINGEN

Appingedam

Groningen

FRIESLAND

Bolsward

Dokkum

Franeker

Harlingen

Hindelopen

Leeuwarden

Sloten

Workum

IJlst

Sneek

Stavoren

DRENTHE

Assen

OVERIJSSEL

Blokzijl

Deventer

Gramsbergen

Hasselt

Kampen

Oldenzaal

OotmarsumVollenhove

Zwolle

GELDERLAND

Arnhem

Batenburg

Bredevoort

Bronkhorst

Buren

Culemborg

Doesburg

Elburg

Harderwijk

Hattem

Nijmegen

Tiel

ZaltbommelZutphen

UTRECHT

Amersfoort

Oudewater

Utrecht

Wijk bij Duurstede

IJsselstein

NORTH HOLLAND

Alkmaar

Amsterdam

EdamEnkhuizen

Haarlem

Hilversum

Hoorn

Medemblik

Monnickendam

Muiden

Naarden

Weesp

Zaanstad

SOUTH HOLLANDAmeide

Den Briel

Delft

Dordrecht

Geervliet

Goedereede

Gorinchem

Gouda

The Hague

Heenvliet

Leiden

Maassluis

Middelharnis

Nieuwpoort

Rotterdam

Schiedam

SchoonhovenVianen

Voorburg

ZEELAND

Aardenburg

Domburg

St.Anna ter Muiden

Brouwershaven

Goes

Hulst

St.Maartensdijk

Middelburg

TholenVeere

Vlissingen

Zierikzee

NORTH BRABANT

Bergen op Zoom

Den Bosch

Breda

Eindhoven

Grave

Geertruidenberg

HeusdenMegen

Oisterwijk

Ravenstein

Tilburg

Willemstad

Woudrichem

LIMBURG

Heerlen

Maastricht

Roermond

Sittard

Thorn

Valkenburg


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3.3 The spatial dynamic: some noteworthy trendsThe nature and intensity of the spatial dynamic can vary significantly from one area of the

country to another. The Fifth Policy Document on Town and Country Planning lists those

areas displaying a particularly high dynamic.38

In the general sense, there are a number of

significant spatial trends to be identified in the areas of water management, the dynamic of the

countryside, and the changing pattern of urbanization. Such developments would appear to be

ongoing, and in one form or another are likely to affect the entire country over a significant

period of time. They are in essence so powerful, so characteristic and so certain that they must

be adopted as points of departure for future cultural-historic and spatial policy.

New attitudes to water management

A rising sea level, ground subsidence, problems with disposal of rainwater and river discharges,

the increasing importance of pure water and the awareness for water as an environmental

factor: these are some of the aspects which have prompted new attitudes to water

management. In concrete terms the result can be seen in ideas, concepts and projects fordynamic coastal management, 'room for the river,' (re-)irrigation of areas to form 'purification

marshes', restructuring of waterways with due regard for flora and fauna, new lakes, mud flats,

watercourse systems and various forms of residential development under the motto 'living by

the water'. Many initiatives have proven extremely successful and are likely to be emulated

elsewhere.

This redefinition of the relationship between land and water provides excellent opportunity for

cultural-historic reflection in the Netherlands. Can historic principles of spatial design be given

a modern significance? Can those principles be used in new plans? Can existing structures and

artefacts be given new uses? Will it be useful to place new plans in a greater geographic

context and a longer timeframe?

The development of the Nieuwe Hollandse Waterlinie, for example, can provide new

opportunities for temporary water storage during the wetter periods. The 'water line' can be

given a new lease of life, and various other functions will benefit at the same time.

Dynamics of the countryside

With the functions of the rural areas now being re-examined, the structure, layout, design and

management of large areas of the Netherlands are likely to undergo sweeping changes.

Restructuring will be geared more towards nature development, recreation and water

abstraction. New forms of residential and business environments will increasingly be seen in

The agricultural sector is now going through a process of reorientation, whereby the prospects

of more extensive business operations having a multifunctional character seem to be good. The development of agriculture, recreation and tourism will lead to a reassessment of the value

of the old cultural landscape. However, large-scale nature development and construction

represent a break in the tradition of cultural history to date. Both situations involve seeking

new structures and forms appropriate to modern requirements. The Dutch countryside is

entering a new phase: the transition from production-oriented landscape to a differentiated

consumption-oriented landscape.

A new pattern of urbanization

The 'compact city' concept as a spatial model for residential and commercial environments

seems to have come to the end of its useful life. From the economic point of view, theimportance of new intersections on the outskirts of the cities is growing. The powerful


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dynamics of the mainports, especially Schiphol, are having a major effect on their surrounding

areas. Both in the existing urban environment and in the new developments outside the cities,

there is growing demand for identity in the residential setting. The rapid growth of villages

raises the question of whether their historic identity is likely to be lost in its entirety. There are

now major restructuring plans for many post-war residential districts.

The new patterns of urbanization are now beginning to become evident. The PreliminaryMemorandum mentions 'regional network towns' and contiguous urbanization in 'corridors'. In

addition, terms such as 'polynuclear urban field' and 'carpet metropole' are now doing the

rounds within the profession, in an attempt to express the real or desired developments in

concrete terms.

In the Fifth Policy Document on Town and Country Planning, due consideration is given to the

role of cultural history within the development of the spatial concepts into practical

approaches, such as those for the corridors or the ecological main structure. Cultural history is

important here in that it offers a foundation for the strengthening of the desired spatial quality

and (regional) identity. Accordingly, spatial concepts should be differentiated and worked outon a regional basis wherever possible.

In formulating spatial policy which will lead to a major transformation of the urban or rural

area, explicit attention must be paid to the basic principles of design to be adopted. This calls

for an architectonic approach. The challenge becomes to examine and research those historic

principles of planning and construction which can offer new insights into modern forms of

water management, cultural landscape and settlement. Examples of spatial policy that will lead

to such major transformation include the 'Room for the River' policy, the Ecological Main

Structure, the overall design of the areas to be urbanized, the restructuring of the existing

urban areas, the design of corridors and intersections, the major infrastructural works and the

consequences of the agricultural sectors' reorientation in terms of the structure of the rural

areas.

3.4 The spatial dynamic and cultural-historic valuesSection 3.2 draws a distinction between areas with sectoral cultural-historic values and those

with combined cultural-historic values (the Belvedere areas).

Similarly, a distinction can be drawn between areas with a low spatial dynamic and those with

a high spatial dynamic. Examples are given in Section 3.3.

Based on an approach which takes both cultural-historic values and the spatial dynamic into

account, we can identify four types of area, with the desired policy strategies for each:

Areas with sectoral cultural-historic values and a low spatial dynamic

The approach to such areas will rely on a generic cultural-historic and spatial policy aimed at

maintaining the recognizability of the situation as it has developed over time (spatial policy),

and at retaining the elements which are valuable for the cultural history point of view (sectoral

policy for archaeology, preservation of monuments and/or nature and landscape). This

conditional policy is important in guiding the autonomous and small-scale developments which

will influence the form of the area over time. Examples of such spatial developments include

small-scale urbanization, disuse of agricultural buildings and the disappearance of ditches.

Belvedere areas with a low spatial dynamic


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The approach to these areas will rely on maintenance and strengthening of the cultural-historic

quality. Regional and local structural action plans must therefore establish the physical

characteristics on and around which spatial developments are to take place, and where

necessary should include a policy assignment geared towards restoration of the cultural-

historic values and the cohesion of the area. Implementation policy will vary from area to area,

and may involve 'hitching a ride' with existing initiatives or undertaking specific new projects.

Areas with sectoral cultural-historic values and a high spatial dynamic

Here, the claims on space, and hence the economic and social factors, are dominant.

Accordingly, the siting of new developments and structuring questions will call for a clear

vision of the desired future form: in effect, the cultural history of the future is being created.

Examples include the Haarlemmermeerpolder and the 'Room for the River' scheme.

Nevertheless, cultural-historic values remain extremely important, whereby certain elements

can provide a source of inspiration for the design of such areas.

Belvedere areas with a high spatial dynamicHere the 'confrontation' is at its most marked and the stakes are at their highest. A major

transformation will involve high cultural-historic demands. The policy required is one that will

enable specific and unique solutions. In fact, there will be 'design assignment' at all levels of

scale. Depending on the level of (administrative) complexity, such areas may be designated a

specific national projectfurther to the WRR (Netherlands Scientific Council on Government

Policy) report39

. An example is the Nieuwe Hollandse Waterlinie project.

It will be clear that the nature of the spatial dynamic differs from one part of the country to

another. In some areas, a high spatial dynamic will lead to a rapid and extensive transformation

of the landscape or city, while in others the dynamic will be somewhat lower, whereupon the

transformation will be more gradual. In short, each form of dynamic will give rise to a differentassignment, the exact definitive form of which will be determined according to the provisions

of the Fifth Policy Document on Town and Country Planning.

Summary of the spatial dynamic of Belvedere areas

Below is present a summary of the most important spatial developments in each of the

Belvedere areas. This provides an indication of the spatial dynamic and the extent of possible

future developments in these areas. It then becomes a question of directing or exploiting such

developments in order to strengthen cultural history, and thus cultural identity. This summary

must be seen as being in the nature of an initial indication: it is not exhaustive. Listed are

developments in the fields of: infrastructure: major projects involving the road and railway infrastructure

water management: projects aimed on changing the structure or form of water management

large-scale urbanization: the major city expansion projects

small-scale urbanization: village expansions and the increase in non-contiguous building

agriculture under glass: the dominant presence and growth of glasshouse agriculture and horticulture

nature development: change of function to nature area or reserve, possibly involving structuring

interventions

recreation: increasing recreational (part-) use

tourism: dominant presence or growth of tourist accommodation.


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3.5 The approachLocal and regional authorities, central government, social organizations and private citizens

share a joint responsibility for the maintenance and development of our cultural heritage during

spatial developments. This responsibility is best met if it is defined in terms of complementarity.

Implementation of policy should wherever possible take place at decentralized (local or

regional) level and only at national level where absolutely essential. The involvement of central

government is selective and is usually linked to questions of national importance, for example

in the case of the 'national projects' cited in the Initial Paper on Spatial Planning 1999 and in

the case of the country's cultural-historic 'jewels'.

Responsibility for all other areas lies with the local and regional authorities. Central

government sees it as its task to indicate preconditions for projects at these levels, and to

facilitate them. The active involvement of private parties in the implementation of the projects

becomes essential. Such private parties may also act as joint commissioning client. Such an

approach is in accordance with the proposals of the Initial Paper on Spatial Planning 1999. The

framework of central government's involvement will be defined in detail in the Fifth Policy

Document on Town and Country Planning.

The subsequent chapters of this document describe the measures which are to be taken to

achieve the vision described thus far. Such measures assume that the division of responsibilities

will be as described above. Further, the following principles are observed:

Because the entire country of the Netherlands has been subject to human intervention,

cultural-historic values are present throughout. Any spatial policy involving considerations

of cultural history must therefore be applied on a nationwide basis.

Nonetheless, a distinction must be drawn between the various areas. Some areas contain

such an accumulation of (integrated) cultural-historic values that they must be given specific

attention within the policy, at the regional level of scale. Such Belvedere areas have been

designated as such in close consultation with the Provinces and complementary area-specific

policy proposals have been formulated for them.

However, it must be recognized that an area-specific approach is just one way in which the

relationship between cultural history and space can be addressed. Some cultural-historic

values and structures are distributed over a wide area, whereby a thematic approach is not

appropriate. This is the case with, say, historic infrastructure (canal towpaths, old railways,

Roman roads, medieval trading routes), the historic connections between towns and villages

(Hanzesteden, the Zuiderzee villages) and historic water works (the old dikes with their

flood chambers, waterways, locks). Based on the major spatial trends described above, the

interrelationship with cultural history can also be addressed thematically, whereby an

enormous challenge will be presented to private organizations, local and regionalauthorities, and the water (management) authorities to strengthen cultural-historic values in

relationship with each other within an overall project-based approach.

Central government accepts that it has a facilitative and stimulatory role in terms of

providing knowledge and information. Such knowledge and information must be available

and accessible in order that cultural-historic values can be properly assessed. Awareness for

the re-use and integration of cultural-historic heritage is also to be stimulated. Central

government will ensure that existing and future legislation supports the efforts of regional

Belvedere Memorandum

Documents

Transcript of Belvedere Memorandum