Clause 5

Clause 5. Setting objectives and determining the scope

Full text of the clause of the draft standard.

Draft national standard “Sustainable development of historic settlements. General requirements”, edition v7 of 2 October 2026. Until it is published by Rosstandart this is not an approved GOST R. The text is a guide to the draft, not a legal opinion and not a substitute for Federal Law No. 73-FZ or the state historical and cultural expert review. This English text is a translation of the Russian draft, not an adopted ISO standard.

5 Setting objectives and determining the scope

This Clause establishes the procedures for setting objectives and determining the scope. The normative reference points for objective-setting are the principles of Clause 4. Collection of source data is carried out in accordance with Clause 6; comprehensive analysis, in accordance with Clause 7; formation of the vision, in accordance with Clause 8.

Objective-setting is carried out in two stages:

- preliminary setting of objectives (before the collection of source data and the analysis) — recording of the context, the interested parties, the boundaries of the scope, the preliminary system of objectives and the assignment for collection of the data necessary for refinement of the objectives (5.8); - refinement of objectives on the basis of the analysis results (after Clauses 6 and 7) — refinement of measurable objectives, and their linkage to indicators and to the problems of the territory.

The preliminary system of objectives does not substitute for the evidence base for the refinement of objectives on the basis of the analysis results. Refinement of objectives on the basis of the analysis results does not require re-approval of the boundaries of the scope if the boundaries have not changed.

Each objective is checked for consistency with the principles of Clause 4 (5.4.6).

5.1 Understanding the context of the historic settlement

5.1.1 Analysis of internal and external factors

Internal and external factors affecting the sustainable development of the territory are identified, including the political and legal, economic, social, technological and cultural contexts. The features of the natural landscape and of the historic environment of the settlement are regarded as constraining and guiding factors of objective-setting.

External and internal tasks that relate to the sustainable development objectives and affect the ability to achieve them are determined. Interested parties are engaged at an early stage (5.2).

5.1.2 Degree of formalization of the status of the historic settlement

The depth and specificity of objective-setting depend on the presence or absence of approved boundaries, a subject of protection and requirements for urban-planning regulations. The higher the degree of formalization of the status (from the fact of recognition as a historic settlement to approved boundaries, a subject of protection and urban-planning regulations), the more specifically the objectives are formulated as regards the preservation of heritage and the more detailed the constraints that shall be taken into account in the development of the territory.

Where the formalization of the status is insufficient, the gaps are recorded in the assignment for the collection of source data (5.8) and are included among the objectives. Completion of formalization (approval of the boundaries and of the subject of protection, and development of requirements for urban-planning regulations) should be combined with the formation of development programs and measures and with a check of the reality of the socio-economic model of the territory within the boundaries and constraints being established. The standard does not make the approval of acts of protection conditional on the existence of an economic model of the sustainable development documentation. Recommendations on the development of the boundaries of the territory, the subject of protection, requirements for urban-planning regulations and the historical and cultural reference plan are given in Annex D.

5.1.3 Heritage as an independent vector in the analysis of the context

The context of the historic settlement is described taking into account the positioning of cultural heritage in accordance with 4.1.2. Simplified positioning of heritage shall not be applied as early as the stage of setting the task and forming the preliminary system of objectives.

5.1.4 Modes of application of the standard

This standard is applied in one of two modes.

Mode A is applied if a master plan (3.3.1) is being prepared or amended whose territory includes a historic settlement. A separate document is not developed alongside the master plan. The results of the sustainable development documentation as regards the territory of the historic settlement are included in the parts of the master plan:

a) the objectives, the vision of territorial development and the justification of the choice of scenario — in the conceptual part;

b) key projects with the expected effects and the results of the assessment in accordance with 7.12 — in the priority projects;

c) the information in 9.6.1 and 9.6.2, item a), — in the provisions on territorial planning, the schematic maps of 9.6.3 — in the maps;

d) the implementation plan (Clause 10) — in the list of measures for implementation of the master plan;

e) if the master plan does not provide for substantiating materials, the analysis and the assessments, to the extent necessary for an understanding of the decisions, are included in the conceptual part.

If the composition of the parts of the master plan differs from that listed, the results are distributed according to the content of the parts. The correspondence is given in Annex E (E.3).

The assignment for the collection of source data (5.8), the baseline (6.1.2), the comparison of options (9.4), the structured results (9.12) and the graph model (Annex C) are not included in the master plan. They are stored as traceability materials and are transmitted to the authorized body (3.3.8).

Mode B is applied when a master plan is not being prepared. The sustainable development documentation is developed as an independent document. Its results are taken into account in the general plan (the unified document of territorial planning and urban-planning zoning), the strategy for socio-economic development of the municipality and the plan of measures for its implementation, the land use and development rules and programs (9.6, 9.10.2, 10.2.6, 10.6). When a master plan is to be prepared, the sustainable development documentation is used as source data: work that has retained its relevance is not repeated.

The documentation is developed under an assignment of the customer. The composition and form of such an assignment are not established by this standard. The correspondence of the typical blocks of the assignment to the Clauses and clauses of this standard is given in Annex E.

5.1.5 Rapid analysis for the start of the work

To start the development of the documentation, a rapid analysis of the territory is carried out by the directions of sustainable development (5.4.5), taking into account the degree of formalization of the status of the historic settlement and the key constraints of protection. The rapid analysis serves as the basis for the preliminary system of objectives and for the formation of the assignment for the collection of source data (5.8). The rapid analysis does not replace the collection of source data (Clause 6) or the comprehensive analysis (Clause 7).

5.1.6 Differentiation of the depth of development of the documentation

The depth of development of the documentation is determined in two stages.

The first stage is carried out at the preliminary setting of objectives. The initial depth of development is established according to the degree of formalization of the status of the historic settlement (5.1.2) and the results of the rapid analysis (5.1.5) and is recorded in the assignment for the collection of data (5.8). The composition of the data and procedures may be reduced if the reduction is recorded in the assignment and does not reduce the priority of preservation of cultural heritage objects, identified cultural heritage objects and the subject of protection of the historic settlement (4.3.1). The assessment of effects on the subject of protection and the additional impact assessment are carried out in accordance with 7.12.

The second stage is carried out in two steps that do not narrow the initial depth:

a) on the basis of the results of the prioritization of problem fields (7.13.4), the depth of development of Clauses 6 and 7 is confirmed or extended;

b) on the basis of the composition of the selected measures (9.4.7), the detailing of Clauses 10–12 is extended.

The customer of the documentation, jointly with the developer, takes the decision on each step and draws it up as a supplement to the assignment under 5.8, indicating the grounds. A repeated full cycle of Clauses 5–12 is not carried out for Clauses already completed.

5.1.7 Work under the standard in master plan procedures (mode A)

The procedure for the preparation and amendment of a master plan is established by the legislation of the Russian Federation. This standard does not establish that procedure. When sustainable development documentation is developed in mode A, the following should be done:

a) include in the decision on the preparation of the master plan and in the assignment for development: the degree of formalization of the status of the historic settlement (5.1.2), the results of the rapid analysis (5.1.5), the depth of development (5.1.6), the composition of the work for the territory of the historic settlement and the procedure for engagement of interested parties;

b) ensure the participation of the cultural heritage protection authority in the work of the commission (or other body) coordinating the preparation of the draft master plan;

c) transmit the results of the engagement of interested parties to the said commission as proposals of interested persons (5.2.7);

d) complete the assessment in accordance with 7.12 and the cross-check of the project solution with the target groups (9.4.5) before the draft master plan is submitted for public discussions or public hearings;

e) before endorsement of the draft master plan, obtain the position of the cultural heritage protection authority on the conformity of the draft, as regards the territory of the historic settlement, with the approved subject of protection — within the scope of clause 7 of Article 60 of Federal Law No. 73-FZ of 25 June 2002 "On cultural heritage objects (monuments of history and culture) of the peoples of the Russian Federation" [1], if concurrence of the draft master plan with the cultural heritage protection authority is not established by the legislation of the Russian Federation. This standard does not establish a new type of concurrence;

f) publish the list of measures for implementation of the master plan if it is approved as a separate document (10.8.2);

g) after approval of the master plan, in the first instance bring the land use and development rules into conformity with it as regards the territory of the historic settlement, with concurrence of the draft land use and development rules with the cultural heritage protection authority (clauses 5–7 of Article 60 of Federal Law No. 73-FZ [1]; 10.2.2, item h));

h) carry out monitoring of implementation as regards the territory of the historic settlement as part of the monitoring of implementation of the master plan (Clause 12);

i) when amendments that affect the historic settlement are made to the master plan, including amendments for which public discussions or public hearings are not held, and amendments in connection with integrated development of the territory, carry out the assessment in accordance with 7.12.3 and the revision of the project solution in accordance with 9.14.

5.2 Identification and analysis of interested parties

5.2.1 Identification of interested parties

Identification of interested parties is carried out in order to identify, for each party, its objective-setting, values, intentions and competence. The results of identification serve as the initial basis above all for formulating the sustainable development objectives of the historic settlement as a whole (5.2.2–5.2.5, 5.4, 5.6; 4.2.1, 4.2.3, 4.2.4).

Interested parties are identified, including: residents; business; public organizations (including non-profit organizations in the field of heritage); state authorities and local self-government bodies; owners and users of cultural heritage objects; investors; the professional community (architects, restorers, urban planners); educational and scientific organizations; bearers of intangible heritage and communities of practice; persons and groups bearing the costs of protection encumbrances.

Planning is regarded as an open process in which interested parties are engaged; the document shall not be prepared before residents are engaged (4.2.1, 4.2.4).

5.2.2 Determination of needs and expectations

The interests, needs and readiness of interested parties to participate in socio-economic and spatial changes are identified. Potential conflicts of interest between groups of interested parties are determined, including between the tasks of preservation, development and investment and the everyday life of residents.

5.2.3 Assessment of the competence of interested parties

The level of awareness and competence of interested parties in the field of sustainable development and the preservation of heritage is assessed. Development of the competence of the population, investors and municipal employees is included among the objectives as a prerequisite for effective participation (4.2.1). The formation of a competent community capable of determining the development of the environment is regarded as a condition for the sustainability of participation (4.2.1).

5.2.4 Mapping of interests, influence and intentions

An "interests — influence — intentions" matrix should be formed for all groups of interested parties. The key groups capable of having the greatest impact on the achievement of the sustainable development objectives are determined. Problems and expectations are identified systematically through public consultations and other formats of participation.

5.2.5 Engagement of interested parties in objective-setting

The participation of interested parties in the formation of the sustainable development objectives is ensured — from the preliminary system of objectives to the refinement of objectives on the basis of the analysis results. The formats of participation range from informing and consultations to the joint elaboration of decisions. The results of engagement are part of the evidence base for the quality of the objectives (4.2.4).

A territorial assessment with the participation of interested parties precedes the refinement of objectives on the basis of the analysis results. The preliminary system of objectives is formed with the early engagement of the parties and is not deferred until the full collection of data has been completed.

5.2.6 Social risks of displacement and asymmetry of the burdens of protection

When parties are identified and objectives are formed, account is taken of the asymmetry of the burdens of the protection regime on owners and residents of historic territories, the risks of displacement of residents and of gentrification, and inequality of access to support instruments (4.2.5). The preliminary system of objectives includes the tasks of social protection, equal access and the physical and information accessibility of cultural heritage objects.

5.2.7 Engagement and public procedures

Engagement of interested parties under this standard begins at the analysis stage, precedes public discussions or public hearings and does not replace them.

In mode A, the results of engagement are transmitted to the commission (or other body) coordinating the preparation of the draft master plan, as proposals of interested persons. The materials record the account taken of the proposals and the reasons for rejection of proposals that have not been taken into account.

In mode B, the results of engagement are transmitted in the same manner during the preparation of the general plan and the land use and development rules.

5.3 Determination of the scope and boundaries

The scope of the sustainable development documents records the territorial and functional boundaries of the scope and the zones of authority, within which the system of objectives is formulated (5.4), and the limits beyond which objectives are not set as obligations of the body responsible for the development and implementation of the documentation. The results of 5.1 and 5.2 are used as source data; the result of this subclause is the boundaries and zones of authority within which the preliminary system of objectives is formed (5.4).

5.3.1 Territorial and functional boundaries of the scope

The formation of the boundaries of sustainable development may be carried out taking into account the information in the historical and cultural reference plan of the territory. Where approved boundaries of the historic settlement exist, they are taken into account as the initial boundaries. Recommendations relating to the historical and cultural reference plan and to the boundaries of the territory of the historic settlement are given in Annex D.

In mode A, the territory of development is the territory of the master plan. In mode B, the territory of development is the historic settlement with its functional links (5.3). If there are no data on the historic settlement, indicators are calculated for the municipality, with this level indicated (Annex B, B.3.1.2). In both modes, the territory of the historic settlement is a zone of special requirements (5.4.4, 7.12, Annex B, subclause B.1). If several historic settlements are located within the territory of development, a zone of special requirements is established for each of them.

Objectives are formulated at several spatial levels: a block or a district, the historic settlement as a whole, a functional territory or an agglomeration. Targets shall provide the possibility of transfer (cascading) to various types of architectural and planning formations through the spatial toolkit of the territorial model (4.5.1). The detailing of the objectives increases from the upper level (region, agglomeration) to the lower level (block, object).

The system boundaries of objective-setting may extend beyond the established boundaries of the historic settlement where it is necessary to take into account functional links (transport, economic, landscape, tourism and socio-cultural) with adjacent territories. When the scope is determined, the territorial boundaries of the community and the scale of interaction with external systems and territories are taken into account.

5.3.2 Zones of authority

A distinction is made between the zone of direct management (the powers of the body responsible for the development and implementation of the documentation), the zone of influence (the possibility of affecting the decisions of other entities) and the zone of context (external factors not amenable to direct management). For each objective, the zone of responsibility is determined according to these zones: in the zone of direct management, obligations are set; in the zone of influence, objectives of coordination, partnership and stimulation are set; in the zone of context, monitoring and adaptation are set. The distribution of responsibility ensures the realism and feasibility of the objectives.

5.3.3 Subject-matter limits of the scope

The scope covers the historic environment as a whole, including the interrelated layers of heritage, and not individual cultural heritage objects (4.3.4, 4.3.12). The load on historic territories is taken into account in accordance with 4.3.11 and is measured by the indicators of Annex B (B.2.1.6, B.2.2.2). A tourist monofunction is not accepted as the sole content of the preliminary system of objectives.

When the objectives are refined on the basis of the analysis results, the reality of the functioning of the socio-economic model of the territory within the selected boundaries and constraints is confirmed (4.1.3). If the model is not viable, the boundaries, the set of constraints or the set of objectives are subject to revision, and not to the fixing of requirements that are not secured. The boundaries, constraints or objectives may be revised on the initiative of public authorities or interested parties.

5.4 System of sustainable development objectives

5.4.1 Directions of objective-setting and heritage as a driving force of sustainable development

The system of objectives of the historic settlement is formed along the four directions of objective-setting of Clause 4: person and community; environment and heritage; heritage economy; management. The objectives ensure a balance of the interests of the person, the environment and the economy (4.1.1). The four directions are the basis of objective-setting, and not a separate group of objectives and not a list of sectoral tasks.

On this basis, three groups of objectives are formulated:

- objectives through the hierarchy of values (5.4.2); - basic objectives of sustainable development (5.4.3); - objectives of preservation and integration of heritage (5.4.4).

Cultural heritage is not set apart as an optional supplement to the general objectives. It is regarded as a driving force of sustainable development and as an independent vector of sustainable development (4.1.2). The third group of objectives (5.4.4) sets the conditions of this active role (4.1.2, 4.1.4, 4.3.9). At the same time, heritage acts as a factor of cultural readiness for change, and the basic objectives of 5.4.3 are checked for compatibility with the priority of preservation of heritage as a common good and a resource of development (4.1.2, 4.3.1). This compatibility check does not replace 5.4.4 and does not turn the objectives of 5.4.3 into heritage objectives.

The attainability of the objectives is checked by iterative analysis (5.4.5). The completeness of the system of objectives relative to the principles of Clause 4 is checked by traceability (5.4.6).

5.4.2 Hierarchy of values (first level of the formation of objectives)

The first group of objectives is formed through comparison and alignment of values at three levels: person (resident) — city (historic settlement) — region (4.5.1). This clause sets the first level of the formation of objectives. At the city level, the mission may be regarded as independent objective-setting. The hierarchy of values extends to each of the four directions of 5.4.1 and does not replace the basis of objective-setting formed by these directions. The link of the values with the basic objectives and with the conditions of the active role of heritage is established by iterative analysis (5.4.5).

##### 5.4.2.1 Values of the resident (person level)

Values are identified through socio-cultural analysis (4.2.3) and mechanisms of participation (4.2.4) and include: quality of everyday life (safety, comfort, accessibility of services); identity and belonging; social cohesion and readiness for joint transformation of the environment; development and self-realization (education, creativity, entrepreneurship); attitude to heritage (perception of the authenticity of the environment as a value); expectation of a fair distribution of the costs of protection (4.2.5).

##### 5.4.2.2 Values of the city (scale of the historic settlement) and the mission

The values of the city are formed at the intersection of the identified values of residents, the historical and cultural potential of the territory and the functional model of the city, and include: attractiveness of the territory for residence, business and visiting; preservation and development of the historic environment as a common good (4.3.1); authenticity and integrity as a competitive advantage (4.3.2, 4.3.7); economic viability through the creation of conditions, and not a prescription of business (4.1.4); public trust through a careful attitude to heritage (4.4.2); integration of heritage into functional processes and demonstrability of the contribution (4.4.1, 4.4.4).

The values of the city are manifested through four directions: person — environment — economy — management. The stability of the objectives may additionally be ensured when they are relevant to the leadership (a link to the formalized assessments of the activity of governing bodies that are in effect on the date of development of the documentation, 4.5.9), attractive to residents (demonstrated effectiveness in solving everyday problems) and adaptive over time.

The role and positioning of the historic settlement in the regional context may be formed at the level of the mission of the city. The mission ensures demonstrability of the contribution of cultural heritage to the development of territories and of human capital and sets logical chains of transmission of historical and cultural potential into urban-planning and socio-economic processes (4.4.1). The brand of the territory may be formed on the basis of comprehension and interpretation of historical experience (4.4.3).

The mission is recorded at the preliminary setting of objectives as a working formulation and is refined when the objectives are refined based on the results of the analysis.

##### 5.4.2.3 Values of the region

The values of the region define the external context within which the historic settlement positions its mission, and include: the role of the historic settlement in the regional settlement system and in the economy; the contribution of the heritage of the settlement to regional identity and the brand; conformity with the strategy of socio-economic development of the region; the "umbrella" brand of the territory and the intangible asset of the historic settlement (4.4.3).

##### 5.4.2.4 Mechanism of comparison and alignment of values

The process of objective-setting is built as an iterative alignment of the three levels of values and includes:

a) identification of values at each level independently: the values of residents — through socio-cultural analysis, surveys, consultations, mapping of values (5.2; when the objectives are refined based on the results of the analysis — by the data of Clause 6 and by the analysis under 7.2); the values of the city — through analysis of the historical and cultural potential, the functional model, the subject of protection (7.2–7.10); the values of the region — through analysis of strategies of socio-economic development, regional programs and positioning (5.1);

b) comparison and identification of zones of coincidence and of divergence: zones of harmony (the values of all levels coincide) — the priority basis of the objectives; zones of conflict (for example, the value of preservation of the environment and the value of rapid economic development) — require a search for balance through sustainable integrated conservation (4.3.13); zones of unawareness (the values exist but are not articulated) — require development of the competence of interested parties (4.2.1);

c) formation of objectives on the basis of aligned values: each objective is traceable to at least one level of values; priority is given to objectives supported by the values of all three levels; objectives with a conflict of values are accompanied by a mechanism of conflict management;

d) cascading (transmission) of objectives — targets are transmitted to various types of architectural and planning formations through the spatial toolkit of the territorial model (4.5.1); mapping and taking into account of the values of residents are ensured; the search for a balance in respect of values and objectives is modeled.

##### 5.4.2.5 Link of the hierarchy of values with the criteria of completeness

The four directions of objective-setting (5.4.1) and the traceability of objectives to the principles (5.4.6) jointly serve as criteria of completeness in the alignment of values. If the values of interested parties are concentrated around individual directions and do not affect the others, this is a sign of the need for additional work with the community or for the introduction of objectives based on an objective assessment of risks and of the state of the territory.

5.4.3 Basic objectives of sustainable development

The basic objectives of sustainable development form the second group of objectives. These are desired states of the territory and of the community, taking into account the specific features of historic settlements. The objectives are considered jointly. An objective should not be left without analysis only because it is not on the current agenda of interested parties. The link of the objectives with the directions of the iterative analysis and with the groups of 5.4.2 and 5.4.4 is established by the iterative analysis (5.4.5). This clause does not replace the basis of objective-setting under 5.4.1 and does not replace the first level of the formation of objectives (5.4.2).

a) Attractiveness — an increase in the attractiveness of the historic settlement as a place of residence, of doing business and of visiting; an appeal to citizens and other interested parties, including investors; formation of a sense of belonging; culture and a sense of identity; authenticity of the historic environment as a factor of attractiveness (4.3.2); quality of the architectural environment as a strategic imperative (4.3.7).

b) Preservation and improvement of the environment — preservation of the historic environment and of the natural surroundings; improvement of indicators of the state of the environment; heritage is regarded as a multilayer system (4.3.4); management takes into account all layers in their interaction.

c) Resilience (adaptability) — the ability of the historic settlement to prepare for, recover from and adapt to shocks and stresses; readiness for economic shocks; social development; development and analysis of scenarios of sustainable development of the territory, taking into account the variability of the identified priorities and problem fields (4.5.2); indicators for resilient cities (see GOST R ISO 37123).

d) Responsible use of resources — sustainable consumption, distribution and management of resources; improved management of land resources; recovery, reuse and recycling of materials; heritage is regarded as a non-renewable resource; account is taken of the interests of future generations (4.1.5).

e) Social cohesion — ensuring public accessibility, diversity and fairness; social inclusion; elimination of inequality; rootedness and a sense of belonging; heritage as a factor of social cohesion; identity determines the connectedness of people with culture and the territory (4.2.3); preservation of heritage is regarded as a process of development of society (4.2.1).

f) Well-being — access to opportunities; creativity, education; a healthy environment; improvement of human resources; quality of life; safety; prosperity; objectives in the format "person — environment — economy" (4.1.1); a comfortable environment for the person is formed predominantly through preservation and successive development of the historic environment (4.2.3).

5.4.4 Objectives of preservation and integration of heritage

For historic settlements, a mandatory group of objectives is formed, aimed at ensuring the conditions necessary for cultural heritage to act as a driving force of sustainable development (4.1.2, 4.1.4, 4.3.9). The group is formed by the questions of preservation of heritage and ensures implementation of the principles of subclauses 4.2–4.4 and of the special requirements for sustainable development documentation (4.1.3). It is not a sectoral list of protection measures and is not a supplement to the basic objectives of 5.4.3. The list a)–j) sets the content of the said questions: these are the conditions of the active role, and not a requirement to "protect separately". Without this block, the system of objectives of the historic settlement is not considered complete, even if 5.4.2 and 5.4.3 are filled in. Implementation of the block is checked by iterative analysis (5.4.5) and by traceability (5.4.6).

a) Building up of historical and cultural potential — creation of organizational, legal and other conditions conducive not only to preservation, but also to the planned building up of potential, predominantly through advance historical and cultural, socio-cultural and architectural and urban-planning studies (4.3.10).

b) Demonstrability of the contribution and socio-economic value of heritage (SEVH) — identification, assessment and integration of the SEVH into urban industries and functional processes; conveying the value to the participants in the processes in the language of effects (4.4.1).

c) Investment readiness and predictability of conditions — a hierarchical system of investment passports; transparency of technical and economic parameters and of organizational and legal parameters; completeness of registration documentation as a condition for involving objects in turnover; recording of the characteristics of the environment that are to be preserved at the early stages of the investment cycle (4.4.5).

d) Regeneration of the historic environment — a system of measures for restoration of the integrity of the compositional structure of the historic urban landscape, taking into account the identified zones of possible regeneration; the historic environment as a whole is subject to preservation, including ordinary historic buildings (4.3.12).

e) Intangible heritage — identification and taking into account of practices, ways of life, crafts, traditions and historical experience, including those that have no material expression at present; ensuring of spatial conditions for the transmission of practices; participation of bearer communities; intangible heritage is not reduced exclusively to tourism (4.3.5).

f) Landscape quality objectives — objectives in respect of the quality of all landscapes of the historic settlement (not only outstanding ones), including everyday landscapes and those in need of restoration; the cultural landscape as the environment of formation of the person (4.2.2).

g) Active conditions of preservation — a transition from the formula "it is forbidden to destroy" to the formula "conditions for preservation are ensured", including maintenance, monitoring and sources of financing for key elements of the subject of protection (4.3.9).

h) Management of load — explicit objectives for regulation of the load, diversification of functions and prevention of a tourism monofunction (4.3.11).

i) Social protection, equal access and counteraction to displacement — compensation of the costs of protection, physical and information accessibility of heritage, taking into account the risks of gentrification (4.2.5).

The involvement of objects in economic turnover in the territory of the historic settlement is checked, at all stages of the documentation, for the risks of displacement of residents, gentrification and a tourism monofunction (4.2.5, 4.3.11). This requirement applies in Clauses 8–12 and is not reproduced in them.

j) Synchronization of protection and development — consistency of the decisions of cultural heritage protection authorities and of development authorities; simultaneity of the establishment of restrictions and of development programs (4.5.4).

5.4.5 Iterative analysis of attainability and of refinement of objectives

Iterative analysis is a preliminary assessment of the relevance and attainability of the formulated objectives and a mechanism for their refinement. It does not replace the collection of initial data (Clause 6) and the comprehensive analysis (Clause 7) and is not reduced to filling in a matrix for the sake of form.

The directions of sustainable development do not form a separate group of objectives and are not a program of work. They serve as the axes of the iterative analysis, along which it is assessed how the three groups of objectives (5.4.2–5.4.4) may be implemented. The choice of directions is preliminary. It is carried out on the basis of a brief analysis of the functioning of the urban model (express analysis — 5.1.5; the area of responsibility and the reality of the socio-economic model — 5.3.2, 5.3.3), and not after the full collection of initial data under Clauses 6 and 7.

A direction should not be discarded only because it is not on the current agenda of interested parties, if a brief analysis of the model shows its significance. The specific list of directions may be refined taking into account significance (5.5.2) and the specific features of the heritage and revised when the objectives are refined based on the results of the analysis.

Directions of sustainable development:

a) management, powers and involvement — an integrated approach to management and active participation of interested parties (4.5.5, 4.2.4);

b) education and development of competence — education and development of human capital on the basis of processes of preservation of heritage; development of the competence of the population, investors and municipal employees (4.2.1, 4.2.2);

c) innovation, creativity and research — conditions for building up historical and cultural potential through advance studies; integration of heritage into the creative economy (4.3.10, 4.4.4);

d) health and safety of the community — a healthy environment and safe living conditions;

e) culture and identity — identification and taking into account of cultural customs, practices and values; preservation and use of intangible heritage (4.2.3, 4.3.5); preservation of local communities of residents connected with the territory;

f) living together, interdependence and mutuality — a balance of preservation of the value of heritage, sustainable development of the territory and public consensus (4.3.13);

g) economy, sustainable production and consumption — integration of investment planning; investment transparency, readiness and predictability of conditions (4.4.7, 4.4.5);

h) environment of living and activity — creation of favorable conditions for development of the territory; improvement of the quality of life while preserving historic identity (4.1.4, 4.2.3);

i) safety and security — safety and security of the territory, objects and the population;

j) community infrastructure — development of infrastructure aimed at creating conditions for life activity and development of the territory (4.1.4);

k) mobility — accessibility and connectivity of the territory, taking into account predicted technological and social changes (4.5.3);

l) natural surroundings and landscape — preservation, restoration and successive development of the natural surroundings of the historic settlement.

Iterative analysis along the selected directions of sustainable development is carried out as follows:

1. For each selected direction, the main question is formulated: "In what way, along this direction, may the objectives of the three groups be implemented (see 5.4.2–5.4.4)?" This approach focuses not only on the search for a direct correspondence to the objectives already in existence, but also on the identification of opportunities and ways of strengthening their implementation through the prism of the selected direction. 2. The following questions are then analyzed: - whether, among the formulated objectives, there are any that contribute to development along this direction; - whether individual directions (or all of them) require the setting of new objectives or the adjustment of existing objectives; - whether there are contradictions between them, especially from the standpoint of the priorities of preservation of heritage. 3. At the first stage, the express analysis is used (see 5.1.5) and, upon refinement, the results of the compilation of initial information and of the comprehensive analysis (Clauses 6 and 7). The iterative analysis is repeated after the data have been refined; the questions may be made more specific and more complex. 4. If, as a result of the analysis along any direction, no corresponding objectives are found, or an objective is not disclosed through the relevant directions, a gap ("gap analysis") is recorded, and either the objectives should be added or refined, or the directions should be revised.

5.4.6 Traceability of objectives to the principles

Traceability of objectives to the principles of Clause 4 is a method of checking the completeness of the system of objectives. The iterative analysis (5.4.5) answers the question of whether the objectives are attainable along the selected directions. Traceability answers the question of whether the system of objectives is complete relative to the principles.

The check is carried out in two opposing passes.

From objectives to principles. Each objective of the three groups (5.4.2, 5.4.3 and 5.4.4) is traced to at least one principle of Clause 4, with an indication of the clause. Objectives that are traceable neither to a principle nor to a value of at least one level (5.4.2) are not included in the system of objectives.

From principles to objectives. All the principles of Clause 4 are gone through and it is checked whether there is a linked objective. A principle without a linked objective is a completeness gap: an objective is formulated (for the principles of subclauses 4.2–4.4 — as part of the mandatory block of 5.4.4, if the content of the principle is covered by this block) or it is recorded why the principle is taken into account otherwise (a general principle of subclause 4.1, deferral until refinement of the objectives based on the results of the analysis).

After refinement of the objectives based on the results of the analysis, each objective is linked to the specific states and problems of the territory at which it is aimed.

5.5 Criteria for the formulation and selection of objectives

5.5.1 Requirements for the formulation of objectives

The sustainable development objectives of the historic settlement shall:

a) be aligned with the sustainable development policy;

b) be measurable through the system of indicators (in accordance with Annex B; 4.5.7);

c) provide the possibility of cascading to spatial levels — from the level of the historic settlement to the level of a quarter or an object (4.5.1);

d) be linked to time horizons: short-term — up to and including 3 years, may be linked to the electoral cycle; medium-term — more than 3 years and up to and including 6 years; long-term — more than 6 years. The horizons are aligned with clauses 19 and 20 of Article 3 of Federal Law No. 172-FZ of 28 June 2014 "On strategic planning in the Russian Federation" [5]. In mode A, the long-term horizon does not extend beyond the period of the master plan. Reference points beyond this period may be admitted in the vision of territorial development and are not provided for by the measures of the implementation plan;

e) be based on factual data of the comprehensive assessment, monitoring and analysis (4.5.6); for the preliminary setting of objectives, a preliminary system of objectives based on the express analysis (5.1.5) may be used, with mandatory refinement of the objectives based on the results of the analysis;

f) be compatible with the subject of protection of the historic settlement and with the protection regimes of cultural heritage objects (4.3.8);

g) be formulated predominantly in terms of conditions and states (4.1.4);

h) be tracked;

i) be communicated to interested parties;

j) be updated when conditions change;

k) ensure parity of cultural and financial value when assessing options, including in the integrated development of territories on historic territories (4.3.3);

l) ensure a balance of preservation of the value of heritage, sustainable development of the territory and public consensus (4.3.13).

5.5.2 Criteria for the selection of directions and for prioritization

When determining the significance of the directions of sustainable development for the iterative analysis (5.4.5) and selecting priority objectives, account is taken of relevance to interested parties, the contribution to the sustainability of the community, being within the zone of powers or influence of the body responsible for implementation of the documentation, the availability of means and technical feasibility, substantiation from the standpoint of the environment, the economy, finance and culture, the availability of resources, measurability of achievement, compatibility with heritage protection regimes and with the subject of protection of the historic settlement, the scale and severity of impacts, the period of time during which the impact occurs, the reversibility or irreversibility of impacts, and the presence of cumulative, secondary or synergistic impacts. All other things being equal, priority is given to objectives aimed at preventing irreversible impacts on the subject of protection and at ensuring the conditions of preservation (4.3.1, 4.3.9).

5.5.3 Alignment of objectives with strategic planning documents

The sustainable development objectives of the historic settlement are linked with the Spatial Development Strategy of the Russian Federation, with the territorial planning documents of the Russian Federation and of a constituent entity of the Russian Federation, with regional Sustainable Development Goals (if any), with the strategies of socio-economic development of the region and of the municipality, with the master plan (if any) and with other documents developed in accordance with Federal Law No. 172-FZ [5]. In mode A, the objectives of this standard are included in the objectives and tasks of the master plan and do not form a separate system of strategic objectives.

5.6 Preliminary vision as a target image

As part of Clause 5, a preliminary prospective image of the territory is formed, as an alternative to the inertial scenario, in which the sustainable development objectives are implemented through balanced socio-economic and spatial development, taking into account the preservation and active use of historical and cultural potential (4.1.1). The preliminary vision is based on the three groups of objectives (5.4.2–5.4.4). The preliminary vision is formed with the participation of interested parties (4.2.4).

The full vision, scenario analysis, the target scenario and target states are formed after the collection of initial data and the analysis — in Clause 8. Clause 5 does not replace Clause 8.

5.7 Ensuring continuity and adaptability of objectives

5.7.1 Objectives as an element of a continual process

Sustainable development is regarded not as the development of a final static document, but as a continual process of modeling, adaptation and improvement (4.1.3). Objectives are not static and are subject to dynamic updating, taking into account changes in trends, tendencies and the way of life of residents.

5.7.2 Mechanism for the review and updating of objectives

A built-in cycle of checking and adjustment of objectives is ensured on the basis of the PDCA cycle (Plan–Do–Check–Act). The grounds for review of the objectives are: a substantial change in external conditions (economic, social, legal); achievement or systematic non-achievement of targets; a change in the priorities of the community or the emergence of new challenges; a change of the management team; the results of monitoring of trends and tendencies (4.5.3); a change in the boundaries of the territory of the historic settlement, in the subject of protection or in the requirements for urban-planning regulations; decisions on the integrated development of the territory within the boundaries of the historic settlement; changes in the territorial planning documents of the Russian Federation and of a constituent entity of the Russian Federation; in mode A — preparation of amendments to the master plan.

5.7.3 Link of objective-setting with the monitoring system

Each sustainable development objective (after refinement of the objectives based on the results of the analysis) has a link to measurable indicators from the system of sustainable development indicators (in accordance with Annex B; 4.5.7). Indicators should be correlated with the standardized indicators of GOST R ISO 37120 [6], and for indicators of digitalization and of resilience — with the indicators of GOST R ISO 37122 and GOST R ISO 37123, respectively; calculation of the full set of indicators of the said standards is not required (in accordance with Annex B, B.3.5.1). Indicators assess the impact on the required systems and states, and not only the degree of implementation of the measures laid down, and illustrate cross-sectoral impact.

It is periodically assessed whether strategies, programs, projects, plans and services contribute to the achievement of the objectives of 5.4.2–5.4.4.

5.8 Assignment for the collection of data necessary for refinement of the objectives

5.8.1 Purpose

On the basis of the results of the preliminary setting of objectives, an assignment is formed for the collection of data necessary for refinement of the three groups of objectives on the basis of the results of the analysis. This subclause does not establish the methodology of collection, the composition of the data and the requirements for the format: they are set in 6.1–6.9. The assignment is drawn up before the start of work under Clause 6.

5.8.2 Content of the assignment

The assignment determines which data are necessary for confirmation, adjustment or deferral of the objectives of 5.4.2, 5.4.3 and 5.4.4, taking into account the iterative analysis (5.4.5). Collection is carried out under Clause 6; the composition is refined by the preliminary system of objectives and by the degree of formalization of the status (5.1.2). This clause does not reproduce the lists of 6.2–6.8 and the requirements of 6.1 and 6.9.

5.8.3 Data gaps as a basis for objectives

Types of data that cannot be obtained at the time of drawing up the assignment are recorded as gaps, with an assessment of the effect on the refinement of the objectives and on the reliability of the subsequent analysis. The filling of critical gaps (including advance studies of the subject of protection, of attributes of value, of intangible heritage and of registration documentation) is included among the objectives (4.3.10) and is not masked by expert assumptions without an indication of the degree of reliability.