8 Vision of territorial development
This Clause establishes requirements for the formation of the vision of territorial development. The objectives refined on the basis of the results of the analysis (Clause 5), the data (Clause 6), the evidence base (Clause 7) and the preliminary vision (5.6) are used. Result: the complete vision, the target scenario and the target states — the input data for the project solution (Clause 9).
The Clause does not replace the system of objectives of Clause 5, does not reproduce the composition of the data of Clause 6 and the methodology of 7.12, and does not form the project solution.
8.1 General requirements for the vision
8.1.1 Objective of the vision
The objective of the vision is to describe, as an alternative to the inertial scenario, the prospective state of the socio-economic and spatial development of the territory in which the objectives of sustainable development are implemented through balanced development, taking into account the preservation and active use of the historical and cultural potential (4.1.1; 3.3.5). The vision links the objectives refined on the basis of the results of the analysis, the values of residents, the mission of the historic settlement and its role in the region.
8.1.2 Place in the documentation cycle
The preliminary system of objectives and the objectives refined on the basis of the results of the analysis are not reopened. The preliminary vision in 5.6 is refined and is not replaced by an arbitrary new image unrelated to the objectives and the analysis.
8.1.3 Directions of sustainable development
The vision is formed along the four interrelated directions of Clause 4. Heritage is not singled out as an optional supplement to the general image of the territory (4.1.2). The vision shall not be formed along individual directions in isolation.
8.1.4 Conditions and states
The vision describes the target conditions and states of the territory and does not prescribe specific activity (4.1.4).
8.1.5 Heritage as an independent vector and a factor of cultural readiness for change
In the vision, cultural heritage is positioned as an independent vector of development and a factor of cultural readiness for change (4.1.2); the taking of this role into account in the vision is established in 8.2.5.
8.1.6 Basis in analysis and realism
The vision shall be realistic and correlated with the resource capabilities of the territory (7.5.2, 7.5.6) and with the zones of authority (5.3.2). In the zone of direct management, the vision sets obligations. In the zone of influence — objectives of coordination, partnership and stimulation. In the zone of context — monitoring and adaptation, and not unsupported obligations.
Decisions taken on the basis of incomplete data are accompanied by an assessment of the risks associated with incompleteness of information (5.8.3).
8.1.7 Uniqueness of the image
The vision is based on the strengths and the distinctive features of the given territory identified by the integrated analysis and the SWOT analysis (7.11). A typical image of another settlement shall not be transferred without a justification of applicability.
8.2 Link of the vision with the objectives of sustainable development
8.2.1 Coverage of the three groups of objectives
The vision shall demonstrate a contribution to the three groups of objectives refined on the basis of the results of the analysis (5.4.2–5.4.4). The vision does not reproduce the system of objective-setting and does not replace the refinement of objectives on the basis of the results of the analysis. The requirements of this subclause specify what contribution of the image of the future shall be shown for each group.
8.2.2 Values and mission
The vision conveys the agreed values of three levels: resident — city (historic settlement) — region, and the mission of the historic settlement (5.4.2; 4.5.1). Elements of the vision that are not traceable to any value of the stated levels are not included in the prospective image without justification.
8.2.3 Check of completeness and balance
The completeness and balance of the vision are checked by iterative analysis (5.4.5) and by traceability to the principles of Clause 4 (5.4.6). Each element of the vision shall be traceable to the objectives (Clause 5), the principles (Clause 4) and the results of the analysis (Clause 7).
8.2.4 Filling gaps in coverage
If the vision concentrates on individual directions and does not address other groups of objectives in 5.4.2–5.4.4, this is a sign of the need for additional work with the community or for the introduction of elements of the vision based on an objective assessment of the risks and the state of the territory (5.4.2.5). If coverage is insufficient, the vision is supplemented.
8.2.5 Taking into account cultural readiness for change and the priority of the preservation of heritage
The vision takes into account the determining role of cultural heritage in forming the cultural readiness of people and territories for change (4.1.2).
Taking this role into account does not replace the block of objectives in 5.4.4 and does not turn the basic objectives of 5.4.3 into sectoral protection objectives. The basic objectives of 5.4.3 reflected in the vision are checked for this readiness and for compatibility with the priority of the preservation of heritage as a common good and a resource for development (4.1.2, 4.3.1).
8.3 Spatial aspects of the vision
8.3.1 Spatial levels
The vision is formed at several spatial levels: a quarter or a district; the historic settlement as a whole; a functional territory or an agglomeration (5.3.1). The role and positioning of the territory at the level of a constituent entity of the Russian Federation, a federal district and the country, and also of an agglomeration (if any), are taken into account.
8.3.2 Cascading
The vision shall provide for the possibility of cascading objectives and targets to various spatial levels through the spatial toolkit of the territorial model (4.5.1; 5.3.1). The level of detail of the prospective image increases from the upper level (region, agglomeration) to the lower level (quarter, object).
8.3.3 Functional links and subject-matter limits
When the spatial boundaries of the vision are determined, functional links with adjacent territories are taken into account: transport, economic, landscape, tourist and socio-cultural links (5.3.1). The system boundaries of the vision may extend beyond the established boundaries of the historic settlement if this is necessary in order to take those links into account. Obligations are not set in the zone of context (5.3.2).
The subject-matter limits of the vision cover the historic environment as a whole, and not individual cultural heritage objects (5.3.3; 4.3.4). The load on historic territories is taken into account under 4.3.11. A tourist monofunction is not accepted as the sole content of the prospective image.
8.3.4 Reality of the socio-economic model
The vision shall be compatible with the reality of the functioning of the socio-economic model of the territory within the selected boundaries and constraints, as confirmed when the objectives are refined on the basis of the results of the analysis (4.1.3; 5.3.3). If the model is not viable, the boundaries, the set of constraints or the elements of the vision are subject to revision, and not to the fixing of an unsupported image.
8.3.5 Spatial image
The vision includes the spatial image of the territory:
a) priorities of socio-economic and spatial development;
b) decisions on the planning structure;
c) foundations of the architectural and spatial composition;
d) key territories and points of transformation.
In mode A, the materials of the vision are included in the conceptual part of the master plan. In mode B, the materials of the vision are used as proposals for strategic planning documents and territorial planning documents. The requirements of this standard are not reduced thereby. Detailed alignment with territorial planning documents, land use and development rules and types of permitted use is carried out in Clauses 9–10.
8.4 Time horizons and target states
8.4.1 Planning horizons
The vision is tied to time horizons: short-term — up to and including 3 years; medium-term — over 3 years and up to and including 6 years; long-term — over 6 years (5.5.1, item d; 7.9.1). The medium-term horizon may be aligned with the electoral cycle. The time horizons of the vision shall be aligned with the horizons of the strategic planning documents in force (5.5.3).
8.4.2 Target states
For each horizon, the expected target states of the territory are described by the directions of Clause 4 and by the state of the heritage. Target states are formulated in terms of conditions and measurable characteristics linked to the system of sustainable development indicators (in accordance with Annex B; 4.5.7).
8.4.3 Target gap
The vision is formulated as a justified alternative to the inertial forecast (7.9) and shall clearly demonstrate the gap between the inertial and target states of the territory by the horizons of 8.4.1. The target gap is recorded in the vision documentation and is used in forming the project solution (Clause 9) and in monitoring (Clause 12).
8.5 Scenario analysis and the target scenario
8.5.1 Purpose
The scenario analysis of this subclause ensures the implementation of principle 4.5.2 and fulfills the requirement of 5.6. Scenarios of sustainable development of the territory are developed and analyzed, taking into account the variability of the priorities and problem fields identified. The target scenario is determined as the optimal approach to achieving the vision, alternative to the inertial scenario.
This subclause establishes scenarios of development of the territory (images of the future and paths to them). The system of measures and the scenarios for its implementation are established by Clause 9.
8.5.2 Composition of the scenarios
At least an inertial scenario and two alternative scenarios of development of the territory are formed. The scenarios take into account:
a) the variability of prioritized problem fields (7.13);
b) trends and external factors (7.8);
c) resource capabilities (7.5.2, 7.5.6);
d) strengths and weaknesses, opportunities and threats (7.11.2).
Each scenario describes a coherent trajectory of transition from the current state to the prospective image and shall clearly demonstrate the gap relative to the inertial forecast (7.9).
8.5.3 Comparison of scenarios
When scenarios are compared, the following are considered:
a) the contribution to the three groups of objectives in 5.4.2–5.4.4;
b) compatibility with the subject of protection of the historic settlement and with the protection regimes of cultural heritage objects (4.3.1, 4.3.8);
c) realism and resource sufficiency (7.5.2, 7.5.6);
d) the taking into account of technological and social trends (7.8; 4.5.3);
e) the results of the assessment of effects on the subject of protection and of the additional impact assessment (7.12);
f) parity of cultural and financial value (4.3.3);
g) the reversibility or irreversibility of impacts and the presence of aggregate, secondary or synergistic impacts (5.5.2).
8.5.4 Protection constraints when selecting a scenario
Before the target scenario is selected, an assessment of effects on the subject of protection of the historic settlement is carried out (7.12.1). A scenario incompatible with the subject of protection is not accepted as the target scenario: the customer of the documentation, together with the developer, records its exclusion or reworking in the justification of the selection.
An additional cultural heritage impact assessment is then carried out (7.12.2): the indirect effect on the subject of protection and on the historic environment in a broader sense. A significant indirect effect leading to degradation requires application of the mitigation hierarchy (4.3.6) or reworking before the target scenario is selected. Mitigation measures are recorded before the target scenario is selected. This clause does not replace the state historical and cultural expert review.
8.5.5 Selection of the target scenario
The target scenario is determined as the optimal approach to achieving the vision. The justification of the selection is documented, indicating the results of the comparison under 8.5.3, the results of discussion with interested parties (8.8) and the reasons for rejecting the alternatives. Rejected scenarios are retained in the documentation as reference material for a possible revision if conditions change (8.10).
NOTE — In mode A, the target scenario is the scenario adopted in the master plan as the base scenario, in respect of the territory of the historic settlement. The constraints of 8.5.4 apply to its selection.
8.6 Taking historical and cultural potential into account in the vision
8.6.1 Target state of the subject of protection of the historic settlement
The vision includes the target state of all positions of the subject of protection of the historic settlement according to the composition in 6.2.3. This clause sets the object of the vision, and not a repetition of the inventory. The vision shall not be limited to individual layers of the historic urban landscape without taking their interaction into account (4.3.4).
8.6.2 Authenticity and integrity
The vision describes the target quality of the authenticity and integrity of the historic environment (4.3.2). Authenticity is considered as a factor of the sustainability and the demand for the urban environment and as a condition of attractiveness (5.4.3, item a).
8.6.3 Intangible heritage
The vision includes prospects for identifying, preserving and using intangible heritage as a potential for the harmonious development of the human being, the environment and the economy (4.3.5; 5.4.4, item e). The vision sets the spatial conditions for the transmission of practices: places, routes and public spaces of their living practice. Bearer communities participate in forming this element of the image (8.8).
8.6.4 Landscape quality objectives
The vision includes landscape quality objectives for all landscapes of the territory of the historic settlement, including everyday landscapes and landscapes in need of restoration (4.2.2; 5.4.4, item f). The cultural landscape is considered as the environment that forms the human being, identity and creative demand.
8.6.5 Quality of the architectural environment
The vision sets requirements for the quality of the architectural environment as a condition of the sustainable development of historic settlements (4.3.7). A high quality of architecture is considered as the basis for the capitalization of historic territories. Criteria for assessing the quality of interventions are established by Clauses 9–10.
8.6.6 Regeneration zones
The vision determines the prospective appearance of zones of possible regeneration of the historic environment, taking into account the identified regeneration potential, the subject of protection of the historic settlement and the objectives of 5.4.4, item d) (4.3.12; 7.3.4). Regeneration is directed at restoring the integrity of the historic environment, including ordinary historic development.
8.7 Positioning of heritage and socio-economic value
8.7.1 Composition of the positioning image
The vision includes the target state of positioning and of the socio-economic value of heritage (SEVH) (4.4.1; 5.4.4, item b). The image of the future includes:
a) positioning and branding of the territory;
b) social value and the development of human capital;
c) economic value;
d) formation of a comfortable urban environment;
e) strengthening of the potential of heritage.
The structure of the argumentation of 4.4.1 is not reproduced by this clause. The elements indicated are explicitly presented in the prospective image.
8.7.2 Trust, brand and integration into processes
The vision reflects the role of heritage as an institution of public trust (4.4.2). The vision includes the formation of a brand of the territory on the basis of historical experience, which may serve as an umbrella for local production (4.4.3). The vision provides for the integration of heritage into functional processes and the creative economy while ensuring its preservation (4.4.4).
8.7.3 Investment readiness and adaptive use
The vision includes the prospective level of investment readiness: a hierarchical system of investment passports, transparency of technical and economic parameters, and accessibility of information in open information resources (4.4.5; 5.4.4, item c). The vision describes the target state of the adaptation of cultural heritage objects for modern use and of the adaptive use of historic buildings, with minimal intervention in the authentic material fabric, while ensuring economic viability (4.4.4).
8.7.4 Image of the settlement and turnover of objects
The prospective image of the historic settlement is not replaced by a catalog of investment lots, by the number of investment passports, by the volume of extra-budgetary investment or by a scenario of tourist monofunction. The plan for the involvement of cultural heritage objects in economic turnover and object-based investment passports are used as input data for the analysis (6.5, 7.5) and do not replace the vision.
The involvement of objects in turnover provided for by the image of the future is checked under 5.4.4, item i). The digital catalog of investment proposals pertains to open data and does not replace the information system (11.6; 6.9.4).
8.8 Process of forming the vision and participation of interested parties
8.8.1 Composition of participants
The vision is formed with the participation of the groups of interested parties identified in 5.2.1.
8.8.2 Formats of participation
The formats of participation range from informing and consultations to the joint development of the prospective image of the territory (4.2.4; 5.2.5). Interested parties are involved in forming the strategic vision and in determining priority directions, taking into account the integration of local initiatives. The document shall not be prepared before residents are involved (4.2.1).
Bearer communities of intangible heritage participate in forming the spatial conditions for the transmission of practices (8.6.3).
8.8.3 Evidence base and verification
The results of the participation of interested parties are part of the evidence base of the quality of the vision. The results of the prioritization of problem fields (7.13.3) and the elements of the vision are verified with the target groups for conformity with their needs and expectations. The scenarios of 8.5 are presented to interested parties for discussion before the target scenario is selected.
8.8.4 Competences as a condition of participation
The development of the competence of the population, of investors and of municipal employees in the field of heritage and sustainable development is considered as a prerequisite for quality participation in forming the vision (5.2.3; 4.2.1).
8.8.5 Documentation of the process
The process of forming the vision is documented, with a record of the composition of the participants, the formats of interaction and the decisions taken.
8.9 Documentation and communication of the vision
8.9.1 Purpose of the documentation
The vision is documented in a form that ensures its use in forming the project solution (Clause 9), the implementation plan (Clause 10) and monitoring (Clause 12). The documentation shall be updated and made available for use by interested parties (4.5.10).
8.9.2 Public version
A public version of the vision is formed — an accessible account of the prospective appearance of the territory for the target groups.
This clause establishes general requirements for the public version for all stages of the documentation. The public version excludes narrowly specialized terminology and conveys the content in an understandable form. The existence of a public version does not mean that another version inaccessible to interested parties exists. The public version is updated as the corresponding document is updated and is used for the involvement of interested parties and for ensuring public support (4.5.10). Clauses 9–12 do not reproduce these requirements and establish only the specific features of their own stage.
8.9.3 Visualization
The vision is accompanied by visualization: a spatial model of the prospective appearance of the territory; visualizations of key points of growth and of transformations; interactive maps (where technical capability is available).
8.9.4 Traceability
Each element of the vision shall have a traceable link with the principles (Clause 4), the objectives (Clause 5), the results of the analysis (Clause 7) and the target scenario (8.5). Traceability is documented as part of the vision.
8.9.5 Structured results
The results of the Clause (the complete vision, the target scenario and the target states) are presented in the form of structured data in machine-readable form. The narrative text of the Clause does not replace the results indicated.
8.10 Adaptability of the vision
8.10.1 The vision as an element of a continual process
The vision is not a static document and is subject to dynamic updating (4.1.3).
8.10.2 Grounds for revision
The grounds for revision of the vision are the events specified in 5.7.2 for the revision of objectives.
8.10.3 Continuity
When the vision is revised, interested parties are involved again (8.8). Updating of the vision shall ensure continuity and shall not permit the loss of previously reached agreements, while adaptability to new conditions is maintained. The rejected scenarios of 8.5.5 may be returned to consideration if conditions change.