The Belvedere Memorandum

A 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 with Belvédère (the French spelling) as part of their names. One can also draw an
association with the Belvédère 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

Introduction
Cultural 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 overview
2. 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 created
by 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 military
defences 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 Areas4 and the revised and amended version
of 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, to
include 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 development rather 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 are
presented 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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The Appendix 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 Introduction
As a country, the Netherlands must now find the answers to a number of major spatial
questions. 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 made
sweeping 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 Netherlands
proceeds, 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 centuries
into 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 history

The 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 can
provide 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 with
its own significance, history and personal associations."12 As 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 as Ruimtelijke Verkenningen (Spatial Surveys) 1997.13 The popularity of
Geert Mak's book Hoe God verdween uit Jorwerd14 (How God disappeared from Jorwerd)
provides further evidence of the concern for variety. This book offers an insight into the
mechanisms 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 the
cultural 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 provide
a sense of purpose, sheer pleasure is a value in itself. This applies equally to the aesthetic value
 11

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 the
urban 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.15 This has resulted in direct growth in domestic
tourism, 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 Heart is 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 been
accompanied by the realization that this very identity and diversity are under pressure. One of
the conclusions of the Natuurverkenning 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 the
Netherlands. 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 support
The 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 the Nationaal Contact
Monumentenzorg (National Contact Monuments; NCM), the Stichting voor Nederlandse
Archeologie (Netherlands Archaeological Foundation: SNA) and the Platform Landschap en
Cultuurhistorie (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 as Natuurmonumenten, Staatsbosbeheer (the national
forestry commission) and the touring organization ANWB which now devote attention to
cultural history within their general activities in nature and recreation.

1.4 The policy context

There 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 in
charting 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
 13

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 developments

Responsibility 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 other
levels 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 European
Landscape', 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 2000,22
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
 15

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
buildings per se, to include general architecture and urban design. It also aims to improve
cooperation 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 document De 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
Document 31.
 16

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 the
national 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 the
framework 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.
 17

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 can
mark 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 development
in 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]
 18

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.
 19

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. Even
radical 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 connection

The 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 into
account 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
 20

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 specific
point 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 connections

As 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
 21

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 the
use 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.
 22

3. Quality and dynamics

3.1 Introduction
Spatial processes - and hence the spatial dynamics - present opportunities to create new spatial
quality. 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 Netherlands

Further 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 values
are 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
 23

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 of exceptional value within one of the three cultural-historic sectors. (See
the sectoral maps in the Appendix.) Comparison of these three sectoral maps enables us to
establish 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 of sectoral
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 the Belvedere 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.
 24

List of the Belvedere areas

1. Terschelling
2. Western part of the Waddenzee
3. Friesland terp area 38. Nieuwe Hollandse Waterlinie
4. Groningen terp area 39. Nieuwkoop - Harmelen
5. Noordelijke Wouden and Westerkwartier 40. Lopikerwaard
6. De Hemmen 41. Kromme Rijn area and Heuvelrug
7. Oldambt 42. Nijkerk - Arkemheen
8. Westerwolde 43. Speuld - Garderen
9. Old Peat Districts 44. Graafschap
10. Eelde - Paterswolde 45. Souther Edge of the Veluwe
11. Drentse Aa - Hondsrug 46. Aalten - Zelhem
12. Noordenveld 47. Winterswijk
13. Ravenswoud - Veenhuizen 48. Ooijpolder - Millingerwaard
14. Frederiksoord - Willemsoord 49. Land van Maas en Waal
15. Southwestern Drenthe 50. Tielerwaard and Culemborgerwaard
16. Aalden and surrounding area 51. Bommelerwaard
17. Southern part of the Hondsrug 52. The Hague - Wassenaar
18. Schoonebeek - Bargerveen 53. Oud-Ade
19. Reestdal 54. Zoeterwoude - Weipoort
20. Staphorst 55. Central Delfland
21. De Wieden - Weerribben 56. Krimpenerwaard
22. Kampereiland - Mastenbroek 57. Alblasserwaard
23. Vecht and Regge 58. Vijfherenlanden
24. Northeastern part of Twente 59. Voorne - Bernisse
25. Southern Twente 61. Goeree
26. Northeast Polder - Urk 62. Kop van Schouwen
27. Swifterbant 63. Duiveland
28. Texel 64. Tholen
29. Groetpolder - De Gouw 65. Walcheren
30. Bergen - Egmond - Schoorl 66. South Beveland
31. Schermer - Eilandspolder 67. West Zeeland Flanders
32. De Beemster 68. Brabantse Wal
33. Zeevang 69. Langstraat
34. Waterland 70. Dommel Valley
35. Defence Line of Amsterdam 72. Griendtsveen - Helenaveen
36. South Kennemerland 73. Maas Valley
37. River Vecht and surrounding lakes 74. Heythuysen - Thorn
75. Roer area
76. Heuvelland
 25

List of the Belvedere towns and cities

(by province)

GRONINGEN Nijmegen Rotterdam

Appingedam Tiel Schiedam
Groningen Zaltbommel Schoonhoven
Zutphen Vianen
FRIESLAND Voorburg
Bolsward UTRECHT
Dokkum Amersfoort ZEELAND
Franeker Oudewater Aardenburg
Harlingen Utrecht Domburg
Hindelopen Wijk bij Duurstede St.Anna ter Muiden
Leeuwarden IJsselstein Brouwershaven
Sloten Goes
Workum NORTH HOLLAND Hulst
IJlst Alkmaar St.Maartensdijk
Sneek Amsterdam Middelburg
Stavoren Edam Tholen
Enkhuizen Veere
DRENTHE Haarlem Vlissingen
Assen Hilversum Zierikzee
Hoorn
OVERIJSSEL Medemblik NORTH BRABANT
Blokzijl Monnickendam Bergen op Zoom
Deventer Muiden Den Bosch
Gramsbergen Naarden Breda
Hasselt Weesp Eindhoven
Kampen Zaanstad Grave
Oldenzaal Geertruidenberg
Ootmarsum SOUTH HOLLAND Heusden
Vollenhove Ameide Megen
Zwolle Den Briel Oisterwijk
Delft Ravenstein
GELDERLAND Dordrecht Tilburg
Arnhem Geervliet Willemstad
Batenburg Goedereede Woudrichem
Bredevoort Gorinchem
Bronkhorst Gouda LIMBURG
Buren The Hague Heerlen
Culemborg Heenvliet Maastricht
Doesburg Leiden Roermond
Elburg Maassluis Sittard
Harderwijk Middelharnis Thorn
Hattem Nieuwpoort Valkenburg
 26

3.3 The spatial dynamic: some noteworthy trends

The 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 for
dynamic 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, the
importance of new intersections on the outskirts of the cities is growing. The powerful
 27

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 Preliminary
Memorandum 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 out
on 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 values

Section 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

 28

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 dynamic

Here 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 project further 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 different
assignment, 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.
29
30
31
 32

3.5 The approach

Local 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 regional
authorities, 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
and local authorities and private parties. Finally, it will also be able to encourage all parties
to fulfil their responsibilities through offering appropriate incentives.

The proposed measures will serve to achieve the central objective of policy, namely:
 33

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.

This central objective can be seen in terms of the following subsidiary aims:

1. To recognize, and to maintain the recognizability of, cultural-historic identity in both rural
and urban areas, as a quality and basic starting point for further developments (General spatial
policy)

2. To strengthen and exploit cultural-historic identity and the qualities which go to define such
identity, in those areas of the Netherlands which are most valuable in terms of cultural
history, the so-called Belvedere areas (Specific spatial policy)

3. To create appropriate conditions for the initiatives of third parties aimed at a thematic
strengthening of cultural history

4. To disseminate knowledge concerning cultural history and to promote opportunities

whereby cultural history can be used as a source of inspiration in spatial planning and design

5. To promote cooperation between citizens, organizations, local and regional authorities and
government (departments)

6. To improve the practicality and use of existing instruments.

 34

4. Spatial policy
4.1 Introduction
This chapter describes the measures which can and will be taken with regard to the relationship
between cultural history and spatial planning. The central government's general spatial policy
and its effect on the spatial policy of other levels of government is examined (Section 4.2.)
whereafter the area-specific policies for rural areas (4.3) and urban areas (4.4), as introduced in
Section 3.2, are described. To conclude this chapter, a brief summary of the measures aimed at
a more thematic approach to cultural history is given (4.5).

4.2 General spatial policy

Objectives
To recognize, and to maintain the recognizability of, cultural-historic identity in both rural and
urban areas, as a quality and basic starting point for further developments (General spatial policy)

To improve the practicality and use of existing instruments.

The issue
Cultural identity is one of the basic principles for spatial planning and design. Maintaining the
recognizability of the situation as it has developed over time is already one of the basic
principles of existing spatial policy. However, it is now the case that planning aims to
incorporate cultural-historic qualities in spatial interventions deliberately, fully and at an early
stage. This relies on there being specific planning procedures within spatial policy whereby
explicit attention is devoted to the value and potential of cultural history and the manner in
which cultural-historic values can be incorporated into the spatial developments. This does not
entail 'a restrictive regime aimed at resisting spatial developments', but rather 'the
formulation of preconditions for the design of spatial developments'. For the Fifth Policy
Document on Town and Country Planning, the consequences of this approach include
conscious design of the cultural dimension of spatial plans with appropriate inclusion of the
cultural-historic heritage.

Solutions
1. The guaranteed early and full consideration of cultural-historic values in spatial planning
procedures, structuring and management, aimed at strengthening the cultural-historic
identity and historic-spatial cohesion.
2. The full involvement of cultural history in planning procedures and processes.
3. The encouragement of the use of supporting planning diagrams.
4. The optimization and coordination of existing legislative (conservation) instruments.
5. An investigation into the desirability of a revision of existing management instruments.

Notes
1. Early and full involvement
Existing spatial policy as stated in the VINAC is based on the proposition that the maintenance
and strengthening of our human environment, along with the basic values of our society insofar
as these are of spatial significance, must be safeguarded. Cultural history (in the form of
historic buildings and urban planning, archaeological and historic landscape elements and
 35

structures) is regarded as one of these 'basic values.' Therefore, the VINAC should be seen as
placing an obligation on all public and private parties to devote due consideration to cultural
history fully in their planning processes. In doing so, the maintenance of the recognizability of
the spatial situation as it has developed over time and of the archaeological information to be
found underground is to be seen as a priority. For the rural areas a specific rider has been
added, whereby: "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.40

Further to the above, local authorities in both rural and urban areas are asked to indicate in
their area development plans the extent to which they intend to maintain historic-spatial
cohesion. They are further requested to relate the choices made within their development plans
to the cultural-historic key qualities of their area (i.e. the key features of the historic-spatial
structure), whereby an assessment can be made of such choices in terms of location, structure
and design. They must also, of course, work within the general framework of regional cultural-
historic spatial policy. These requests are to take the form of a concrete policy decision in the
Fifth Policy Document on Town and Country Planning.

For the urban areas, it is possible that specific and structured attention will be devoted to
cultural history within the Investeringen Stedelijke Vernieuwing (Investments in Urban
regeneration: ISV) programme. This would be geared towards enabling assessment of the
degree to which cultural-historic aspects have been included in development and investment
schemes.

Assessment of planning by central government in terms of the stated policy will, as usual, take
place within the legislative framework of the Town and Country Planning Act. Within RPC
(National Land Use Planning Commission) and PPC (Provincial Land Use Planning
Commission) frameworks, there will be increased supervision of observance of governmental
spatial policy, which will entail closer coordination between the regional directorates of the
Ministry of Agriculture, Nature Management and Fisheries, the policy implementing
departments of the Ministry of Education, Culture and Science, and the Spatial Planning
Inspectorates. Such interdepartmental coordination has already been given form with reference
to the National Land Use Planning Commission, while the inclusion of the cultural aspect in
spatial planning discussions is guaranteed by means of the RROM.

2. The full involvement of cultural history in planning procedures and processes

In addition to cultural history enjoying a prominent position within spatial policy further to the
(revised) Town and Country Planning Act, it is also important that cultural-historic qualities
and potential are given due consideration within other sectoral legislation. Not only can such
qualities potential influence overall cultural-historic quality, but cultural history itself provides
opportunities for design of the highest quality.

This consideration is particularly relevant to the land structuring procedure (as defined by the
Land Structure and Design Act) and the Environmental Impact Report procedure. However,
similar objectives will form the basis of other procedures.
 36

With regard to land structuring, cultural history should be part of the inventory and analysis
phase. Indeed this is already often the case, but closer attention must also be given to its
inclusion in the overall design of the land (re-) structuring project.
The Environment Impact Report Decree lays down that projects of a certain extent must be
subject to the environmental impact report procedure. Not infrequently, cultural-historic
aspects are also considered as part of this report. The environmental impact report procedures
for the dike reinforcement projects revealed that cultural history can play a significant part in
the development of alternatives. However, in practice this is not the case as often as it should
be. Cultural-historic information is often incomplete and does not play a full part in the
development of alternatives. Better incorporation of cultural-historic aspects in the
environmental impact reports could be achieved by the promotion of expertise and by
increased attention to such aspects during the assessment of the reports. The amendment of the
Environment Impact Report Decree as it affects 'sensitive areas' will explicitly include the
legally protected archaeological monuments.

3. The encouragement of the use of supporting planning diagrams

Historic and spatial cohesion is rarely confined to one particular local authority's boundaries. It
is therefore important to coordinate cultural-historic policy between all local authorities
forming part of the same region or landscape. Supporting planning diagrams at a higher level
of scale are therefore made available to the local authorities concerned.
Local authorities can, for example, make use of landscape policy plans and structure plans as
the basis for their local development plans. Cultural-Historic Impact Reports and/or Cultural-
Historic Surveys can also help in the formulation of policy, whereby a greater insight can be
gained into the potential of local cultural heritage.

Advice provided by the various cultural history disciplines in connection with actual
development projects already makes use of various sectoral instruments, such as the Standard
Archaeological Inventory. There is currently no comparable instrument for historic geography.
Ways of increasing coordination between the various instruments are to be explored.

In the broader context, the use and further development of other integrated instruments, such
as the cultural history impact assessment, is to be stimulated. Several local authorities have
used this particular instrument to effect in recent years. It is flexible in its use and can therefore
be adapted to suit the specific local situation. Further, its strength lies in its communicative
aspect, whereby cultural-historic information and expertise can be placed 'on the drawing
board' at an early stage. The Council for Culture has expressed the desirability of separate
legislation for the cultural history impact report, parallel to that already in force for the
environmental impact report41. However, such legislation will not be forthcoming: local
authorities are fully responsible for the manner in which they involve cultural history in their
planning procedures. A legislative measure is not seen to be appropriate.

4. Optimization and coordination of existing legislative conservation instruments

For some time, the Monumentenwet (Monuments Act) has provided an instrument for the
conservation of historic elements within towns and villages. It has been used, or will shortly be
used, to designate the relevant urban areas at the proposal of the relevant local authorities. The
new Natuurbeschermingswet (Nature Conservancy Act) offers for the first time an opportunity
to designate protected landscape elements in the same way. This will be the responsibility of
the provincial authorities, which are requested to identify protected landscapes, particularly
 37

with a view to the conservation of cultural-historic qualities in the areas indicated on the map.
It has been decided to conduct a study into the desirability and possibility of streamlining the
procedures involved in designating protected buildings, archaeological monuments, village and
town elements and landscapes. A development-oriented approach to cultural heritage further
calls for reconsideration of the manner in which the various policy instruments are deployed.

5. Investigation of the desirability of a revision of existing management instruments

It is not only new spatial developments which influence the quality of the urban environment
and the landscape: the subsequent management of those developments also plays a crucial role.
With regard to the management instruments now in use, there would seem to be a somewhat
uneven approach to the various areas of cultural history. The management of archaeological
values falls to the owner of the land, who receives no remuneration or compensation from
central government. It is also the owner who is primarily responsible for natural landscape
values, but in this case a financial contribution is to be introduced as part of the Management
Programme42. In addition, much of the maintenance of landscape elements is undertaken by
(subsidized) organizations set up for this purpose at provincial level. The management and
maintenance of privately owned historic parks and gardens is undertaken by the Stichting tot
Behoud van Particuliere Historische Buitenplaatsen (PHB Foundation: Foundation for the
Conservation of Privately-Owned Historic Estates) for which it receives a direct subsidy. There
are also financial contributions and tax concessions available for the restoration and
maintenance of listed buildings.
In view of the large variation in financial contributions for management and maintenance
activities, both in terms of the amount and the manner of payment (see also Chapter 7), an
investigation is to be held into the desirability of revising the management instruments now in
use.

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

Objective
To strengthen and exploit cultural-historic identity and the qualities which go to define such
identity, in those areas of the Netherlands which are most valuable in terms of cultural history,
the so-called Belvedere-areas (Specific spatial policy)

To improve the practicality and use of existing instruments.

The issue
While the existing sectoral policy on cultural history, geared as it is towards cultural-historic
elements, is to be continued, extra policy measures become desirable for the Belvedere areas.
This policy is to be formulated in view of the high concentration or cohesion of cultural-
historic values in such areas, and in view of the necessity to involve this cohesion in spatial
planning at a higher regional level of scale, based on patterns and structures. The areas in
question are described in the Appendix, whereby the most important features in terms of
spatial and historic cohesion are listed.

Solutions
 38

Any active cultural-historic spatial policy adopted by all levels of government to cover the
Belvedere areas (i.e. areas with a high concentration of cultural-historic values) must be geared
towards maintaining and further developing the cultural-historic identity and the qualities
which go to define that identity. Implementation of the policy for Belvedere areas will proceed
along the following lines:

1. Sustainable maintenance of the existing cultural-historic values through the grounding of

policy in national spatial policy and in regional and local area development plans.
2. Strengthening of cultural-historic identity through the proper exploitation of opportunities
during (new) spatial developments in these areas, through a policy-based approach if
necessary.
3. This is to be achieved through more effective and targeted use of instruments by central
government and regional authorities.

Notes
1. Sustainable maintenance
Existing cultural-historic values and their spatial cohesion must be maintained by means of an
area-specific approach. The use of instruments to ensure the continued existence of qualities
and their spatial cohesion will vary from case to case. The exact action to be taken will depend
on the character of the values present and the necessity of conservation in relation to the
spatial dynamic. Maintenance of cultural-historic values will proceed along the following lines:
• Further to general spatial policy, local and regional authorities will be asked to formulate
specific policy for the Belvedere areas within their respective development plans. This
policy should be directed towards maintaining identity and, where necessary, should involve
strengthening the spatial and historic cohesion of the relevant cultural-historic elements.
This requirement will be explicitly stated in the Fifth Policy Document on Town and
Country Planning and in any revised version of the Structural Action Plan for the Green
Areas.
• The regional authorities (provinces) will be asked to establish the culture historic
characteristics of these areas (including the essential features as listed in the Appendix to
this memorandum) in the regional development plans, in order to provide a framework for
the assessment of location, structuring and design choices.
• Under the terms of the Town and Country Planning Act, local authorities will be required to
observe the policy thus formed.
• Central government's assessment of regional and local development plans will involve
explicit attention for the above.
• The regional authorities will be asked to ensure that the grounding of policy in the regional
development plan offers sufficient protection, and further to optimize the protective
measures through possible use of instruments such as the Nature Conservancy Act (in the
case of protected landscape elements) or Article 35 of the Monuments Act (for the elements
within towns and villages). The provinces will also be asked to give priority to the
Belvedere areas when applying the Nature Conservancy Act.
• Further to the Fifth Policy Document on Town and Country Planning and any revision of
the Structural Action Plan for the Green Areas, a study is to be made to identify any
Belvedere areas which are eligible for further protection by means of a Key Planning
Decision (KPD). In principle, the Belvedere areas will not be subject to any automatic extra
protection imposed by central government, which is not seen as being in keeping with the
development-oriented approach. However, in those areas in which large-scale spatial
interventions or a combination of several small-scale interventions are made, these being
 39

incompatible with the intended retention and development of the cultural-historic identity,
extra protective measures may nevertheless be appropriate.
• Central government will, in close consultation with the other levels of government, continue
to propose areas for inclusion on UNESCO's list of World Heritage Sites. The extent to
which this 'tentative list' is to be revised or expanded by areas on the Belvedere Map is to be
further examined.

2. Area-specific development
Central to this memorandum are the strengthening and future development of cultural-historic
identity by means of a development-oriented approach to cultural-historic qualities.
Development of the cultural-historic identity requires a case-by-case approach and will
primarily be undertaken within existing spatial developments and area-specific projects, or in
exceptional cases by means of actually initiating certain area-specific projects based on
cultural-historic qualities.

A strengthening and further development of cultural-historic quality can best be achieved

through (existing) area-specific projects. These might be in the nature of land (re-) structuring
projects, strategic greenery projects, nature development projects, those addressing valuable
cultural landscapes, spatial and environmental interventions, countryside development projects,
those further to the realization of the Ecological Main Structure, and those within the ongoing
programmes to improved the quality of sanded areas in the south and east of the Netherlands.
In addition, it is important that the opportunities presented by ongoing spatial interventions,
such as infrastructural projects and urbanization at all scales, are fully exploited.

The regional authorities are invited to further define the aspects of cultural history policy to be
considered within such projects, and to direct the further development of cultural-historic
identity within such projects.

If it is not possible to address aspects of cultural history through ongoing projects, then an
area-specific approach for the Belvedere areas which is based on cultural history itself should
be considered. In this case, the regional authorities will be invited to give further form to the
approach as appropriate. The deployment of an 'area agent' to bring the objectives, resources
and parties together, may be a way of facilitating the commencement of such projects. An area
covenant will often prove useful in ensuring further progress.

Central government considers it extremely important that private sector organizations, both
commercial and non-profit-making, are involved in the area-specific development of cultural-
historic identity. The government expects the initiators of development projects to involve
private parties at an early stage, and it further expects the private sector organizations to
participate fully in the projects, both in the material sense and in a more advisory capacity.

Based on the above, the regional authorities are asked to direct and supervise the projects,
certainly those in the Belvedere areas, and to formulate an active policy which is geared
towards implementation and towards the strengthening of (the physical elements of) cultural-
historic values.

Further to the Fifth Policy Document on Town and Country Planning (and other statutory
measures), there will be another investigation to consider:
• which Belvedere areas will be eligible for a national project aimed specifically at developing
cultural-historic values. Central government may itself consider implementing an area-
 40

specific approach in the case of an extremely limited number of areas, namely those with
both a high concentration of cultural-historic values (the Belvedere areas) and/or those with
a high spatial dynamic combined with a complex configuration in spatial and administrative
terms.
The selection of areas for such 'national projects' will be made on the basis of the Fifth
Policy Document on Town and Country Planning and NLB21, and possibly the 'Vital
Countryside' memorandum and the SGR2. One project that may be adopted at national level
is that for the Nieuwe Hollandse Waterlinie. Concrete proposals will be made in
consultation with the appropriate authorities and organizations.
• the manner in which cultural-historic objectives are to be incorporated in various spatial
concepts and other area-specific projects (such as the creation of corridors or the
reconstruction of the sanded areas). In further defining such spatial concepts, regional
differentiation based in part on cultural-historic values, will be sought. When further
defining these concepts at regional level, the relevant cultural-historic values must therefore
be identified.

3. More effective and targeted use of instruments

A targeted use of instruments will be essential to support area-specific conservation and
development efforts. Such instruments are those designed to promote conservation, (re-)
structuring, restoration and management, together with the resources required to initiate and
implement area-specific processes.
Central government expects that, alongside a prioritization of the use of instruments at national
and regional level, an important contribution can be made by private investors, for example
through enabling commercial functions in buildings of cultural-historic significance.

Central government intends to deploy the following instruments in the Belvedere areas:
• Wherever possible, area covenants will be entered into with regional authorities in order to
enable an integrated area-specific policy which includes attention for the strengthening of
cultural-historic identity.
• Further to the Management Programme, management packages for certain cultural-historic
landscape elements will be introduced. It is to be examined whether the Belvedere areas can
be brought within the scope of the existing subsidy scheme for agricultural, nature and
landscape management.
• The Belvedere areas will, wherever possible, be given preference in the designation of
protected archaeological and architectural monuments.
• It is to be examined whether government resources are also essential for the management of
valuable archaeological elements.

Proposed policy strategies

The table below sets out the proposed policy strategy for each Belvedere area. The current and
desired policy instruments aimed at strengthening aspects of cultural history are indicated.
These are:
• Regional and local area development plans: provincial and local authorities will be asked
to incorporate the Belvedere policy into their respective area development plans.
• Continuation of the Key Planning Decision strategy: the Key Planning Decision strategy
must be continued, especially in the case of the Waddenzee, the Green Heart and the
designated national buffer zones.
• Introduction of Key Planning Decision schemes: this relates to an extension of the Key
Planning Decision scheme for the Waddenzee to include the sites of shipwrecks, and the
 41

introduction of new Key Planning Decision schemes for the Defence Line of Amsterdam
and the Nieuwe Hollandse Waterlinie.
• Consideration of Key Planning Decision schemes: there area number of areas in which the
pressure on available space is likely to become so great that it becomes appropriate to
consider introducing Key Planning Decision schemes in order to direct future developments.
The Fifth Policy Document on Town and Country Planning may indeed call for such Key
Planning Decision schemes to be put in place, depending on various factors including the
spatial pressure.
• Supplementary legislative protection: this refers in particular to the application of the
instrument of protected landscape elements. However, other conservation instruments such
as those addressing urban and village elements and (archaeological) monuments may also be
applicable.
• Nomination for World Heritage Sites list: this relates to those areas and smaller sections
within the Belvedere areas which have already been placed on the 'tentative list', together
with those areas being considered for nomination.
• Introduction of an area-specific approach at national level: for the time being, only the
Nieuwe Hollandse Waterlinie is proposed as a 'national project'.
• Introduction of an area-specific approach at provincial level: the relevant provincial
authority will be invited to initiate an area-specific project aimed at strengthening cultural-
historic aspects.
• Consideration of an area-specific approach at provincial level: the relevant provincial
authority will be asked to consider initiating an area-specific project.
• An area-specific policy further to ongoing initiatives: those conducting an ongoing area-
specific project will be invited to devote extra attention to the strengthening of cultural-
historic aspects.
• Explicit expansion of the involvement of private investors and non-governmental
organizations: in principle, this relates to all areas but is of particular importance in certain
specific areas.
42
43
44
 45

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

Objective
To strengthen and exploit cultural-historic identity and the qualities which determine such
identity, in those areas of the Netherlands with the greatest cultural-historic value: the so-called
Belvedere areas (Specific spatial policy)

Issue and solutions

Those towns and cities shown on the Belvedere Map call for extra attention (in terms of
policy) for the maintenance and development of their cultural-historic identity and the historic
elements and structures which determine such identity.

As in the rural areas, the implementation of policy for the urban areas will proceed along
various lines:
1. Sustainable maintenance of the existing cultural-historic values through the grounding of
policy in national spatial policy and in area development plans.
2. Strengthening of cultural-historic identity through the proper exploitation of opportunities
during (new) spatial developments in these areas.

Notes
The strengthening of cultural-historic identity will take place primarily through the exploitation
of opportunities presented by (ongoing) spatial developments. Here, it becomes important to
integrate historic spatial structures into new urban design concepts and restructuring plans,
based on an awareness of the historic continuity of urban development. Spatial policy geared
towards the sustainable retention of cultural-historic identity will provide a framework of
spatial conditions enabling this to take place (see Section 4.2).

Further development of cultural-historic identity, and hence of the historic structures, will in
any event play a role in the development of the city centres, the design of public spaces, the
restructuring of industrial premises and residential areas, and the design of new urban
expansion developments. The relevant local authorities are therefore asked to specify the
manner in which historic structures are to be approached within the development and
investment plans they submit to the ISV. They will further be asked to justify the approach
adopted by means of a historic analysis, which will preferably consider not only spatial
elements but also the economic and social aspects. Central government will assess such plans
on the basis of cultural-historic considerations.
 46

4.5 Policy designed to encourage the thematic approach

Objectives
To recognize, and to maintain the recognizability of, cultural-historic identity in both rural and
urban areas, as a quality and basic starting point for further developments (General spatial policy)

To create preconditions enabling third-party initiatives aimed at a thematic strengthening of

cultural-historic aspects

Issue
In addition to the sectoral and area-specific approaches, it is also important that there should
be a thematic approach to cultural history. Two types of theme are involved:
• The three distinct spatial trends (as identified and described in section 3.3). These
necessitate future research into the effective integration of spatial developments and cultural
history.
• Cultural-historic themes, such as the historic infrastructure (e.g. canals and towpaths,
waterways, old railways, Roman roads, mediaeval trading routes, etc.), historic connections
between towns and villages (e.g. the 'Hanzesteden' and the Zuiderzee fishing villages),
historic water works (e.g. old dykes with their flood chambers, drainage canals, locks, etc.)
and other themes such as 'Holland, Country of Flower Bulbs' or fortified towns or cities.

These themes do not lend themselves to being indicated as areas on a map. The area-specific
approach is therefore not entirely suitable. However, they do lend themselves to a thematic
approach aimed at strengthening cultural-historic qualities and cohesion.

Solutions
Central government is to invite other parties to implement a systematic approach to various
specific themes. The government will restrict itself to implementing a stimulatory policy to
encourage and support thematic initiatives and example projects on the part of private
organizations, local and regional authorities and water (management) authorities.
 47

5. Development of knowledge and cooperation

5.1 Introduction
Objectives
The dissemination of knowledge concerning cultural history, and the stimulation of
opportunities presented by cultural history as a source of inspiration for spatial structure and
design

The promotion of cooperation between private parties, organizations and all levels of
government

Issue
The vision presented in this memorandum, as well as the policy based on this vision, can only
be brought to fruition if there is an adequate level of support within society as a whole, and
only if the government can act in concert with private parties. Central government wishes to
encourage others to assume joint responsibility for our cultural-historic heritage. The basic
principle remains sustainable conservation by means of a development-oriented approach.
Historic awareness and the availability of knowledge and information become essential. After
all, knowledge is usually the starting point of any action. Relevant development of knowledge,
the availability and accessibility of integrated information, and understanding of the ways it can
be used are essential to the proper integration of cultural history and spatial policy. In addition
to gaining knowledge, its transfer to others is also of importance: knowledge must be not only
available but also accessible.

Solutions
The measures to be taken to promote the development of knowledge and cooperation are
primarily in the following areas:
• Improved integration of available knowledge and information
• Improved accessibility and usefulness of cultural-historic knowledge and information
• Increased expertise concerning the applications of the 'development-oriented' approach to
cultural-historic information in spatial issues
• Development of understanding concerning the dominant spatial trends and their possible
effects on the cultural-historic qualities, and hence on the development of cultural-historic
perspectives for the approach to spatial developments
• Involvement and mobilization of private-sector organizations (social alliances) in the design
and implementation of policy.

5.2 Integration of cultural-historic knowledge and information

In the Netherlands, knowledge and information concerning cultural history is divided among
the various disciplines involved, despite the various fields being in direct interrelationship in
actual day-to-day practice. In terms of spatial planning, the practice can only benefit from
integrated inventories, value assessments and recommendations.

At national level, knowledge and information concerning cultural history is divided among at
least four specialist institutes, or 'centres of knowledge': the Department for the Conservation
of Historic Buildings and Sites (RDMZ), the National Service for Archaeological Heritage
 48

(ROB), The Information and Information and Data Centre of the Directorate for Nature
Conservation (IKC-N) and the Staring Centre, which is a division of the Agricultural Research
Department (DLO-SC). It is not only this division itself, but also the imbalance in terms of
attention and approach, which forms a complicating factor. For instance, in making cultural-
historic inventories, surveys and value assessments, there are great differences in methodology,
level of scale and criteria. All this stands in the way of objective and effective assessment.
Furthermore, these institutes apply different instruments when producing recommendations
concerning spatial interventions. There is absolutely no instrument whereby sound independent
advice concerning the historic landscape can be provided.

In terms of methodology, expertise must be radically improved over the coming years.
Instruments already deployed by the governmental departments in their recommendation
processes (such as the cultural-historic exploration and the archaeological inventory) will be
better coordinated with each other, with specific attention for the aspect of the historic
landscape. To improve coordination of inventories and assessment systems, the departments
will examine ways of arriving at an integrated system of cultural-historic surveys and value
assessments. This will again revolve around the development-oriented approach.
The Incentive Programme for the Conservation of Archaeological Remains, currently in
preparation by the Netherlands Organisation for Scientific Research (NWO), is also likely to
contribute to the development of such methodologies.

5.3 The accessibility of knowledge and information

To increase the opportunities within spatial planning, the development of a uniform and
integrated system of knowledge and information provision is essential. However, the
accessibility of the knowledge, to both private parties and governmental departments, is a
precondition for the early and full involvement of the cultural-historic aspect.

Policy development and implementation at local and regional level will depend on the bringing
together of the 'supply and demand' of knowledge concerning cultural history. It is therefore
important that the knowledge from each of the disciplines can be offered in an integrated form.

A number of Dutch provincial authorities how have some form of agency to provide support in
the conservation of monuments, while others are in the process of setting up such agencies.
The ROB and the RDMZ take an active part in such organizations. However, there is as yet no
direct contribution by the government in issues concerning the historic landscape. Here, there
may well be a part to play for the regional policy directorates of the Ministry of Agriculture,
Nature Management and Fisheries.
The provincial support agencies may be able to assist in brining together the 'supply and
demand' in the field of cultural-historic knowledge. They could act as the central point of
contact, offering the knowledge from the various sub-disciplines in an integrated form.
It is still undecided whether there should be some form of central information service at
national level. Such an organization would act primarily as a referral service, maintaining
contacts with an extensive network of relevant institutes and other sources of information. The
need for such a national organization must be further examined, with particular regard to its
potential added value compared to the provincial support agencies and existing centres of
knowledge, and the form that such a national organization would take.

A higher priority at this time must be the further development of digital databases containing
cultural history information within the various centres of knowledge, and making these more
 49

widely accessible. The possibility of linking such databases and making them accessible via the
Internet is already being explored. It is hoped to achieve a national network of linked databases
containing information relating to archaeological and architectural monuments, and to link this
in turn with the historic-geographic database currently being developed by IKC-N and DLO-
SC. The ROB and the RDMZ will continue to make their contribution in the form of
information and knowledge to support the provinces in producing cultural-historic value maps.
Uniformity of information and the possibility of linkage with existing information is of great
importance in this. The Belvedere Map presented in this memorandum will be further
substantiated and refined over the years ahead.

It is also the intention that a Cultural History Handbook be produced, in collaboration with
various partners. This will set out the applicable rules and regulations, opportunities and
restrictions for various users.

A precondition for better accessibility and use of knowledge and information is intensive
communication between the various actors in the field. A strengthening of the network will
contribute greatly to this aim, and this is primarily a task for those in the field themselves.
However, support will be provided in creating a list of the (networks of) relevant actors.

5.4 The promotion of expertise

The day-to-day practice is to be facilitated by means of the integration of information, and by
advice and support provided by central governmental agencies and provincial support agencies.
At this level, the knowledge and interests of government, local and regional authorities,
entrepreneurs, project developers, owners, designers, private sector organizations and
scientists converge. An open dialogue between the parties involved will lead to greater
understanding and expertise concerning a development-oriented approach to cultural history
within spatial plans, at all levels of scale. The promotion of expertise among all actors is
therefore an essential requirement. Central government wishes to facilitate open dialogue in the
areas of (professional) training, planning, design and management.

One reason that cultural history is not yet an automatic consideration in planning and use of
available space is that professional training devotes too little attention to history in general, and
to the opportunities presented by cultural history in particular. This omission seems to be most
apparent in training for the design disciplines, such as urban and rural planning, architecture
and landscape architecture. The relationship between the disciplines is also somewhat
neglected.
Similarly, historians and cultural-historians are not adequately schooled in spatial problems,
which results in insufficient attention being devoted to the opportunities for the conservation of
cultural heritage which are presented by a development-oriented approach.
Given that the form of courses is primarily the responsibility of the educational institutes which
offer them, they are urged to incorporate the relevant aspects into their existing programmes.
The government will initiate a dialogue with the relevant institutions, the eventual aim being to
arrive at an attitude of 'exemplary clienthood' demonstrated by, in particular, architects,
landscape architects, urban planners and cultural-historians.
Further, the government wishes to contribute to an intensification of the dialogue between
cultural-historians, planning consultants, urban planners, landscape architects and project
developers. Organizations such as the Nederlands Architectuurinstituut will be asked to direct
their activities accordingly.
 50

Also in the interests of promoting a more interdisciplinary approach, explicit attention will be
requested for action based on historic awareness and respect for the past. Here, the potential of
cultural history and the merits of the development-oriented approach will form a point of
departure.

The development-oriented approach to cultural history seems to be enjoying a broader level of

support, but it has yet to become the standard approach. It is important that local and regional
authorities, private sector organizations, commissioning clients and designers all gain
experience with this method of working. It is also important that the practical knowledge
gained is made available to others. After all, learning from other people's experience is
frequently shown to provide the best results, as in the case of the 'Example Plan' project
conducted by the Ministry of Housing, Spatial Planning and the Environment. Furthermore,
various social parties and local authorities regularly stress the importance of learning from past
experience. Central government will therefore make resources available to stimulate and
support example projects at local level, such projects to be geared towards greater involvement
cultural history in various aspects of planning and policy development, such as design,
structuring, management, changes of use, maintenance and restoration, recreation, and
tourism.

The government will also contribute towards other support activities, such as master classes,
competitions and symposia. It will do so in association with various social and private sector
organizations, such as Architectuur Lokaal, the Platform for Landscape and Cultural history,
the Council for Dutch Archaeology (SNA), National Contact Monuments (NCM), the National
Restoration Fund, the Boekman Foundation, the Professional Organisation of Urban Designers
and Planners (bnSP) and the Dutch Association for Landscape Architecture (NVTL).

5.5 Research into spatial trends

In Section 3.3, three significant spatial trends were identified: changing methods of water
management, the dynamic of the countryside and a changing pattern of urbanization. Such
trends have already been the subject of much research within professional circles. The Fifth
Policy Document on Town and Country Planning and similar government papers will seek to
direct the developments.
Those involved in the field of cultural history must anticipate these trends, based on their own
interests, perspective and expertise. However, the discipline has no great tradition of targeted
research. It is more accustomed to reaction rather than anticipation. It is therefore essential
that this situation is reversed in order to ensure that the cultural-historic aspect can take a
prominent place in the discussions concerning the future of our space. Together, the
responsible government departments must develop suitable options for an anticipatory form of
cultural and/or cultural-historic research. However, the development of new knowledge is not
only a task for the departmental centres of knowledge; the broader scientific field must also be
involved. The obvious course is therefore to seek collaboration with the Netherlands
Organisation for Scientific Research and other relevant institutes such as ARCHON
(specializing in architectural research), the Institute of Art History (which will be able to throw
light on the historic (urban) planning aspects), the Inter-University Centre for Geo-Ecological
Research (for questions of historic geography) and NETHUR, the Netherlands Graduate
School of Housing and Urban Research, for the spatial aspects.
 51

5.6 Social alliances

Conservation of the cultural heritage represented by buildings, landscapes and archaeological
sites is not an activity that can be undertaken in the museum. Conservation can only be
achieved through ensuring that there are adequate spatial and economic 'supports', while at the
same time making a connection between the interests of cultural history and those of other
disciplines. This means that the sustainable conservation of the cultural heritage can not be the
responsibility of the government alone: it must be given form through purposeful cooperation
with market parties, regional and local authorities and special interest organizations. Each
practical case will involve forming a different form of coalition or alliance depending on the
local situation. From the organizational point of view, it becomes a question of forming
cooperative alliances between different levels of government, between government and private
sector organizations, and between private sector organizations themselves. Such cooperative
alliances will be within a region displaying some form of cohesion in its cultural-historic
aspects, and in such specialist areas as cultural tourism, landscape management, rural
revitalization and so forth.

The area-specific approach offers significant opportunities for all public and private parties to
play their own part in the processes. A broad range of cooperative alliances is both desirable
and possible. Further, social organizations are invited to form their own thematic alliances.
Such thematic alliances can be important for both cultural-historic themes and spatial themes
and there may also be links with other sectors such as nature, recreation, residential
development or water management.

Private sector organizations involved in cultural history have a large and active membership
and a great wealth of specific knowledge and information about certain aspects of cultural
heritage and about local and regional history. To date, these organizations have mainly centred
their activities on gaining further knowledge in their specialist field. That knowledge is not
sufficiently utilized in local and regional development plans. This is in marked contrast to the
nature and environmental organizations, which have been able to take an active part in projects
(e.g. by means of the public consultation procedures), in strategic action (contribution at an
early stage, development of independent visions and plans) and public mobilization (by means
of campaigns, etc.) The cultural history organizations can nevertheless make a significant
contribution both at local and thematic level in that they are able to present a strong and
substantiated case for their particular field in policy and decision-making process of local and
regional authorities, as well as those of central government.

Cultural history organizations often experience the confrontation between their field and
questions of spatial design as a complex issue. It would be beneficial if these organizations
were to be more closely involved in spatial questions. This will entail their gaining a greater
level of knowledge concerning spatial processes and procedures, the input of their knowledge
in developing appropriate visions, a quest for cooperation with other organizations, and
participation at an early stage in local development plans and area-specific plans or projects.

A broad range of cooperative alliances is desirable. Central government, in partnership with the
provincial authorities, wishes to play an active role in mobilizing private sector organizations.
They are invited to join in thinking about the form of spatial developments and to make a
contribution to training courses, public excursions, research and the formulation of quality
plans, etc. The government is therefore to make the participation of private and social
 52

organizations a condition for the allotment of funds to local initiatives and to the area-specific
projects within the Belvedere areas.
 53

6. The end as beginning

6.1. Introduction
Better utilization of cultural history can have a significant added value for various areas of
policy. This is particularly true in the case of a carefully considered combination of cultural
history and spatial policy.
As stated in Chapter 1, spatial policy can itself make extensive use of existing social and policy
trends. This memorandum seeks to set in motion a process of amalgamation by which elements
which were previously separate will be brought together. This is based on the firm conviction
that the whole will be greater than the sum of the parts.
However, the individual areas of policy will also be able to benefit from the overall policy thus
engendered. There are great gains to be made if the potential of cultural history is explicitly
involved in both existing and future policy.
This chapter describes those functions in which cultural history has a significant role to play
(Section 6.2) and how cultural history can be incorporated in the policy governing such
functions (6.3). The chapter concludes with a summary of the measures which will be taken
further to this memorandum, and which will be elaborated as part of the action taken
subsequent to the publication of the memorandum (6.4).

6.2. Cultural history and other functions

Cultural history is not an independent function. Spatial functions such as habitation, industry,
agriculture, nature, recreation, infrastructure and water management each have their own
history, and lend provide their own cultural-historic value to the human environment. Cultural
history is therefore always linked to other spatial functions. The assessment of cultural-historic
values can only take place in retrospect. However, attempts to create cultural value is not
pointless. For all these functions, conditions can be created to promote the creation of quality,
and hence increase the likelihood of today's interventions being viewed as cultural heritage in
the future. Furthermore, the existing cultural heritage forms a sound foundation and a rich
source of inspiration for the design of spatial functions.

• Urban design and landscape architecture

The urban environment is the result of a collaboration between the commissioning clients and
those they commission - the designers and contractors. The influence of the clients and
financiers on our surroundings is often under-recognized. It is they who have determined the
overall appearance through their choice of location, their choice of architect and the budget
they made available. Both in the existing urban areas and in city expansions, their views and
attitudes are a significant factor in achieving the desired quality of the human environment.
That high quality is economically possible has been proven on numerous occasions. The high
quality is not only attributable to the skills of the designers (architects, urban planners and
landscape architects) but also to their good professional attitude and ability to look beyond the
bounds of their own discipline. Today's spatial interventions and urban development will be
tomorrow's cultural heritage.
The challenge facing us is to take development - the constant changes in the function and
purpose of the spatial structure - as the starting point for sustainable conservation and a
strengthening of the position of our cultural heritage. This entails that the qualities presented
by the heritage must play a central part within spatial developments.
 54

• Nature and landscape

The form of the Netherlands' nature has largely been determined by man. Even in the most
'natural' areas, the influence of man is unmistakable. In the Dutch context, any boundary line
drawn between 'nature' and 'culture' is disputable and ambiguous. Even the new nature areas
(the Nature Policy Plan43 proposes fifty thousand hectares) are above all an expression of the
culture of the late twentieth century, reflecting how we currently approach our landscape and
the demands we place upon it. Any distinction between nature and culture in the Netherlands
of the future is likely to remain a complex issue, and the question arises whether to draw such
a distinction in the rural areas is in any way useful.
Nature areas contain countless cultural-historic values, and countless cultural-historic values
are in themselves 'natural' or have a function connected with nature: copses, ponds, bunkers
and city embankments. The conservation of nature areas is frequently undertaken in concert
with the conservation or cultural values. Extra attention for the cultural-historic component
can lead to a greater perceptual value of nature and to greater diversity in nature. This applies
equally to the nature development projects and 'Strategic Greenery Projects'44. However, it is
currently the case that the cultural-historic values present play a subordinate role in the design,
structuring and management of such areas. Here too, the combination of nature and cultural
history can serve to increase the intrinsic value. Nature development areas and Strategic
Greenery Projects are, after all, intended not only to serve nature, but also to serve mankind.
Nature conservancy organizations, such as the Vereniging Natuurmonumenten (Society for the
Preservation of Nature Reserves in the Netherlands), Staatsbosbeheer, the World Wide Fund
for Nature and the provincial and national landscape management organizations can make an
important contribution in this regard.

• Agriculture
A significant part of the Netherlands has been designed by farmers and agriculture is an integral
part of the Dutch landscape. Forms of land usage going as far back as the Middle Ages can still
be detected from the position of hedgerows and boundaries, the shape of villages and the
pattern of roads and waterways. Below ground, beneath the ash trees of the southern and
eastern Netherlands for example, traces of even earlier agricultural settlements are still to be
found. The rural areas also have their own characteristic styles of building, such as farmhouses.
Country estates and the historic gardens once belonging to the 'gentlemen farmers' are also part
of our cultural heritage. These serve to provide each region with its own identity and are
certainly worth preserving.
Not all cultural-historic qualities are adequately recognized as such. This is particularly so in
the case of the invisible archaeological monuments. Land restructuring, modernization of
agricultural methods and the encroaching urbanization have affected or transformed large parts
of the heritage. Against this we see that an increasing number of Dutch people now appreciate
the value of the characteristic old agricultural landscapes. Conservation and restoration of the
character of such landscapes is part or the policy for rural revitalization.45 It therefore becomes
necessary to identify, conserve and make use of the cultural-historic values (such use to include
the economic). This will not be possible without the cooperation of the farmers, water boards
and other users and managers of the rural areas. These significant designers and managers can
give greater substance to their role as 'producers of the landscape'. Other parties, such as
agricultural and horticultural organizations and the Vereniging van Grondeigenaren
(Association of Land Owners), who have an interest in the development of agricultural areas of
a high cultural-historic value, will be involved.46
 55

• Recreation and tourism

Recreation and tourism is a rapidly growing sector. The number of short domestic holidays,
weekends and day trips has been steadily increasing since 1979. The growth in domestic
tourism has also benefited the cultural history sector47. Apparently, visits to museums,
monuments, historic city centres and interesting villages are easy to incorporate into an
itinerary on a holiday, weekend or day out. A significant factor has been the increased amount
of leisure time enjoyed by older members of the population, who these days are also more
active and have greater spending power. It is this section of the population which has greatest
interest in cultural history.

To embed cultural history in spatial policy will provide great opportunity for an integration
with recreation and tourism. Increased prosperity and leisure time have resulted in more time
being spent in recreational and tourist activities. This applies not only in the Netherlands, but
also in most other European countries. The (cultural) landscape and cultural-historic
attractions form, next to nature, an important basis for the quality of an area in terms of
recreation and tourism. Together, landscape, woodlands, nature reserves and cultural history
form an attractive whole which is particularly suited to forms of recreation involving a specific
route or itinerary, as well as recreational shared use and short-stay holiday recreation.
One form of leisure pursuit is the inland waterway cruise. Waterways (canals and barge canals)
have often lost their original transport function to road and rail. One of the tasks of the
Stichting Recreatietoervaart Nederland (Netherlands Leisure Cruising Foundation) is to
extend the navigable waterway network in the Netherlands. An additional aspect may well be
the (re-use) still existing footpaths, quays and so-called 'tithe paths' in order to improve the
accessibility of the rural areas.
The link between cultural history, recreation and tourism relies to a large degree on quality,
accessibility and the perceptual value, which thus become important aspects within an
integrated approach to spatial planning. The 'recreational capacity' must be taken into
consideration at all times.

• Water
The Netherlands' water systems, and the manner in which water has been regarded and used in
the past, largely determine the appearance of the country today. The 'battle against the water'
and the use of water have each produced many cultural-historic monuments: mounds, dikes,
drainage canals, watercourses, water mills, (steam-driven) pumping stations, locks and
reservoirs. Rivers, streams, canals and other artificial waterways used for inland navigation
conceal a wealth of information about how water has been utilized and is still being utilized
today. Likewise, the Netherlands' water systems have determined the pattern of human
habitation and activity.
The water-related monuments tell this unique Dutch history and are well worth conserving.
However, it goes beyond mere conservation. Water management will continue to determine
the appearance and activity of the Netherlands, just as it has done in the past. There are many
challenges to be met. The rising sea levels, land subsidence, salinization and the possible effects
of global warming demand a revised view of our use of space.48 Cultural history can provide an
important source of information in forming this revised view. Efforts to limit superfluous water
currently involve a partial restoration of old river profiles and the creation of more 'room for
the rivers'. Information from the past may provide various clues as to the best manner in which
to approach the problems. For example, we know that early settlements were sited on high
ground in the form of knolls or mounds. In the context of increasing the water-storing capacity
of the Netherlands, we may wish to consider similar forms of habitation in water-storing areas,
which may well result in new ideas and initiatives. Historic spillways and the inundation
 56

defence areas can also (re-)fulfil such a water-storing function. This would also provide
opportunities for the introduction of other functions, such as nature development or drinking
water abstraction.

6.3. Incorporation in government policy

Cultural history can be incorporated into many others areas of policy. There follows a
summary of the relevant areas, with an overview of the possibilities and the activities already
planned.

• Architectural policy
Within policy on architecture, the development of interaction between design and the
conservation of culture will be an area of specific attention. Accordingly, the links between
architectural policy and that relating to cultural history are strengthened.
Central government asks institutes of both architecture and cultural history organizations to
gear their activities towards promoting the dialogue between the disciplines. The government
is also to further define the concept of 'exemplary professional practice' within its own
construction plans, whereby attention will also be devoted to the cultural-historic context of
any design assignment. Further elaboration of the architectural policy will be by means of the
forthcoming Policy Document on Culture, and by means of a new Policy Document on
Architecture, yet to be published.

• Urban regeneration
Urban development will rely on the care and conservation of monuments being given a
prominent place in the approach to urban regeneration and the restructuring of individual
neighbourhoods. The published urban regeneration policy proposes that local authorities
should take historically valuable urban structures, both above and below ground, into full
account during their planning procedures. The Policy Document on Urban Regeneration49
announces the intention to combine the current flows of funds for urban regeneration into one
integrated scheme. This scheme is now being further defined by an Urban Regeneration Bill.
Further to the Policy Document on Urban Regeneration of 1997, efforts have been made to
bring about the concentration and integration of the flows of funds for urban regeneration to
form a single Investment Budget for Urban Regeneration, known by the abbreviation ISV.
Local authorities will become eligible to receive ISV funding if their plans stand up to an
assessment according to the 'areas of attention' established by central governmental policy. One
possible area of attention will be Cultural-historic amenities, which will examine the degree of
attention devoted by local authorities to cultural-historic aspects within their urban
development procedures. Recent developments and views on the conservation of monuments
have resulted in the consideration of cultural-historic aspects in the quality management of the
urban area playing a much more significant role in urban regeneration processes. Within urban
regeneration, the conservation of historic monuments is geared towards the intrinsic quality of
the greater whole, and is thus directed at valuable urban structures, such as protected town and
village scenes (and those yet to be designated as protected).
The relationship between the conservation of monuments and urban regeneration has existed
for some time. As a result, the allocation of funds for urban regeneration takes into account a
'historic factor', which recognizes that local authorities responsible for the upkeep of a
protected historic district (i.e. those dating from before 1850) will receive greater government
funding than others. The funds are part of the integrated ISV, and are to be allocated
according to a fixed scale, still in development. The integrated character of the ISV enables an
 57

equally integrated approach to the conservation of listed buildings and other monuments in the
context of urban regeneration.

• Nature, landscape and recreation policy.

The forthcoming Policy Document on Nature, Woods and Landscape in the 21st Century,
known by the abbreviation NBL2150, will incorporate the objectives and approach set out in
this policy document, whereby the following measures will be introduced.

◊ Cultural-historic aspects of the Ecological Main Structure

Nature management within the Ecological Main Structure (EHS, Nature Policy Plan) is, in
effect, partly a question of culture management, since in many cases it is the continued
effects of past human activity that have resulted in the high natural values of today (for
instance woodlands, meadowlands and scrubland). The areas for attention here include
forms of agricultural management and the management of, say, former country estates.
Where appropriate (as in the semi-cultivated landscapes) the cultural-historic component
will be more explicitly considered when making choices regarding (re-) structuring and
management. In the nature development areas, the cultural-historic context will play a part
in the design and restructuring decisions.
◊ Cultural history outside the Ecological Main Structure
Integration of the area-specific policy for cultural history with that for the landscape in general
will result in the conservation and further development of cultural-historic values in the rural
area being given a further stimulus. There will be extra funding for investments in, and
management of, important cultural-historic landscape elements in the Belvedere areas.
There will also be an area-specific approach within landscape policy, whereby the cultural-
historic values of selected areas will be given extra attention.
◊ Management of cultural-historic landscape elements
Further to the Management Programme 51, a subsidy scheme for agricultural nature and
landscape management is to be devised. This scheme will include management packages for
cultural-historic landscape elements. It is to be examined which of the Belvedere areas can
be brought within this scheme, The management of cultural-historic elements will thus be
given further form and substance by means of an overall agricultural nature and landscape
management approach.

By means of the Policy Document on 'The Vital Countryside'52 (which has also yet to be
published) the objectives and policy stated in this policy document will be incorporated into the
overall policy for the rural areas. This will involve the following measures:
◊ The assignments relating to the Belvedere areas will, where necessary, be integrated into the
regional visions, the integrated area-specific approach and the area contracts. This is
particularly the case with regard to the conservation and strengthening of the physical key
features.
◊ A relationship will also be established with the EU Framework directive on rural
development, known as Agenda 2000.53 Further, the policy for the Belvedere areas must be
reflected in the Rural Development Plans which have been put forward by the European
Commission as a basis for EU co-financing.
◊ The Belvedere policy will also be implemented within the area-specific approach intended to
improve the quality of the sanded areas in the southern and eastern parts of the
Netherlands54.
◊ The Policy Document on 'The Vital Countryside' will further define the (policy)
relationships between cultural history and rural development, cultural history and recreation,
 58

cultural history and agricultural development, and cultural history and the incentive
programme operated by the Ministry of Agriculture, Nature Management and Fisheries.
◊ Any new version of the Structural Action Plan for the Green Areas (to be known as SGR2)
will integrate the Belvedere areas into the future area-specific policy. Further, SGR2 will,
where relevant, create an opportunity to designate such areas as 'protected', in order to
further develop cultural history policy in parallel with other areas of policy within that
adopted on an area-by-area basis.
◊ In addition to its incorporation in the policy documents listed above, the Ministry of
Agriculture, Nature Management and Fisheries is to explicitly include aspects of cultural
history within the activities of Staatsbosbeheer (Forestry Commission) and the Dienst
Landelijk Gebied (Rural Areas Department) in the design and structure of strategic
greenery projects and other projects, in the research activities, and within all Ministry
incentive programmes.

• Water policy and infrastructure policy

The Minister of Transport and Public Works will incorporate the following principles into the
department's policy:
◊ policy on water (management) will take into consideration and make use of historic water
systems and situations which are rich in cultural-historic potential (such as utililizing the old
water line defences and other features in new water storage measures).
◊ policy with regard to the major bodies of water (including the Waddenzee Key Planning
Decision procedures and the North Sea Policy) will take account of the archaeological values
to be found on the sea bed
◊ cultural history will be taken into consideration during the implementation of the
infrastructure policy, both in the choice of routes and in questions of design and assimilation.
Such consideration will not only be directed towards avoiding the destruction of special
cultural-historic values, but especially with a view to actually using such values within the
design and management processes.

• Environmental policy
It is to be examined whether the provisions regarding soil decontamination contained in the
Soil Protection Act must come to include specific stipulations regarding cultural history, and
whether it is desirable to include an entry for cultural history in budgets for soil
decontamination projects.

6.4 The end as beginning

The publication of this memorandum represents the start of a process in which we learn to
speak a 'new language'. It is a language in which the cultural-historians and planners can
communicate with each other and can enter into a dialogue of anticipation and reflection. A
decreasing number of cultural-historians still choose to regard spatial developments as an
automatic threat, and fewer are therefore inclined to adopt a defensive stance against change.
Likewise, fewer architects and planners choose to base their designs on a 'blank sheet': the
character of a location is increasingly seen as the point of departure for the design and for ways
of thinking and acting. In short, the basis for a further exploration of the significance of cultural
history and spatial design to each other has now been laid.

The policy assignment is not so much to create a level of support as to create a willingness to
act. After all, the dialogue will often take place in situations which are far from straightforward
 59

and for which no ready-made answers exist - situations in which there may be a tendency to
revert to 'the old style of behaviour', to avoid experimentation. They may be situations in which
good intentions are overshadowed by the immediate sectoral priorities.

It is certainly going to require much effort and patience for all concerned to learn to speak each
other's language, to learn about each other's motives and experiences. Furthermore, the
rewards of this effort will not be immediately apparent. The recent experience with this form of
dialogue, as demonstrated in the various examples, shows that the road to quality and identity
is not always a smooth one. This is the price that must be paid for quality, and is an investment
in the development of a new way of working.

This memorandum proposes measures which will facilitate the dialogue between the cultural-
historians and the spatial planners. Supervision of the implementation of these measures will
remain a question of interdepartmental coordination. Accordingly, the current
interdepartmental meetings of the directors involved in Belvedere policy will be continued.
Furthermore, a study will be made of ways in which the coordination and implementation of
tasks arising from this memorandum can be given optimal form. A report of the results of the
various measures will be presented to the Lower House in 2002.

The table below shows those measures that are to be further worked through during the
follow-up phase.
 60

Action further to the Belvedere Memorandum

Section in Action Directed towards/ Grounding in

Belvedere implemented by policy
Memoran-
dum
4.2 Local authorities are to be asked to indicate the Local authorities Local development
extent to which cultural-historic cohesion is to be plan
maintained, and to identify the cultural-historic Government Concrete policy
key qualities as a framework for the assessment of decision in Fifth
spatial plans with regard to location, structuring Policy Document
and design choices on Town and
Country Planning
4.2 Possible introduction of a performance field for Government Urban
cultural history in the urban areas as part of the Regeneration
ISV programme Investment
Programme (ISV).
4.2 Provinces and local authorities will be asked to Provinces Regional
formulate an active cultural-historic spatial policy development plan
for the Belvedere areas, to be geared towards Local authorities Local development
maintaining the identity and strengthening the plan
spatial and historic cohesion of the areas, Government Policy decision in
alongside the cultural-historic qualities which Fifth Policy
determine the overall identity. Document on
Town and Country
Planning
4.2 Further interdepartmental coordination with Government -
regard to greater RPC and PPC supervision of
incorporation of cultural history in governmental
spatial policy
4.2 Adequate involvement of cultural-historic Provinces -
qualities and potential in sectoral legislation other Government
than that governing spatial planning (starting with
land structuring procedures).
4.2 Better incorporation of cultural-historic aspects in Government -
Environmental Impact Reports through promotion
of expertise and increased attention for such
matters in the assessment of the reports.
4.2 Exploration of possibilities for coordination of Government
sectoral instruments such as the Cultural history
Survey and the Standard Archaeological
Inventory.
4.2 Encouragement of the use and further Government and -
development of the Cultural-Historic Impact local authorities
Report
4.2 Provinces will be asked to designate protected Provinces Provincial policy
landscapes, especially in the Belvedere areas. plan
4.2 Investigation of desirability and possibility of Government, -
streamlining procedures for the designation of provinces and
protected structural archaeological monuments, local authorities
rural and urban scenes, and landscapes.
4.2 Investigation of the desirability of revising Government -
management instruments
4.3 Provinces to be asked to incorporate a policy for Provinces Regional
the Belvedere areas in their regional development development plan
plans. Government Policy decision in
Fifth Policy
Document on
61

Town and Country

Planning
 62

Section in Action Directed towards/ Grounding in

Belvedere implemented by policy
Memoran-
dum
4.3 Provinces are to be asked to establish cultural- Provinces Regional
historic values of the Belvedere areas within their Local authorities development plan
regional development plans as a framework for (affecting local
assessment of spatial decisions with regard to Government development
location, structuring and design choices. plans)
Policy decision in
Fifth Policy
Document on
Town and Country
Planning
4.3 The assessment of regional and local development Government
plans is to include explicit attention for matters of
Belvedere areas policy.
4.3 Provinces are to be requested to examine whether Provinces Regional
the inclusion of Belvedere area policy in regional development plan
development plans offers sufficient protection and
whether it would be appropriate to use legislative
measures to optimize such protection.
4.3 Provinces are to be asked to give priority to Provinces
Belvedere areas in their implementation of the
Nature Conservancy Act (protected landscapes).
4.3 It is to be investigated which Belvedere areas are Government Fifth Policy
eligible for additional Key Policy Decision Document on
protection Town and Country
Planning
4.3 Central government, in close consultation with Government,
provincial and local authorities, will continue to provinces, local
make nominations for the UNESCO list of World authorities
Heritage Sites.
4.3 The extent to which the 'tentative list' can be Government
revised and extended according to the Belvedere
Map will be examined.
4.3 Provinces will be asked to incorporate the Provinces
cultural-historic policy assignment within their
existing area-specific projects, and to direct and
supervise further development of within such
projects
4.3 Provinces will be invited to adopt an area-specific Provinces
approach to give cultural history further form,
where desirable.
4.3 Provinces will be asked to direct efforts and to Provinces
develop an active implementation policy with
regard to the strengthening of cultural-historic
qualities in (at least) the Belvedere areas.
4.3 It is to be examined which Belvedere areas can be Government, Fifth Policy
considered for a national project aimed at provinces Document on
developing cultural-historic values. Town and Country
Planning
4.3 Methods of involving cultural-historic objectives Government Fifth Policy
within various spatial concepts and other area- Document on
specific interventions are to be examined. Town and Country
Planning etc.
 63

Section in Action Directed towards/ Grounding in

Belvedere action by policy
Memoran-
dum
4.3 Where possible, area covenants are to be entered Government en
into between central government and provinces or provinces
regions in order to facilitate an integrated area-
specific policy, to include strengthening of
cultural-historic identity.
4.3 Further to the Management Programme, Government en
management packages for cultural-historic provinces
landscape elements are to be developed. It will be
examined whether the Belvedere areas can be
brought under the agricultural and landscape
management subsidy scheme.
4.3 Designation of protected archaeological and Government
architectural monuments and structures will
wherever possible give priority to the Belvedere
areas.
4.3 It is to be examined whether government funds Government
are required for the management of valuable
archaeological sites.
4.4 Local authorities will be asked to state explicitly Local authorities
the manner in which historic structures are to be
approached within their development and
investment plans further to ISV applications.
4.4 Local authorities will be asked to make a historic Local authorities
analysis in support of their ISV applications
4.4 It is expected that central government will assess Government
ISV applications on the basis of cultural history
performance.
4.5 Government will invite other parties to take Government,
structured action on cultural-historic themes, provinces, local
whereby central government will lend support. authorities, private
sector
organizations
5.2 Investigation into the possibilities of coordinating Government
the advisory instruments of government
departments
5.2 Investigation of an integrated methodology in Government
surveying and assessing cultural-historic values
5.3 Investigation of requirement for central provision Government
of information regarding cultural history
5.3 Investigation of possibilities of linking cultural Government
history databases
5.3 Further refinement of Belvedere Map Government,
provinces etc.
5.3 Publication of Cultural history Handbook Government and
others
5.3 Support in making accessible the cultural history Government and
network private sector
organizations
5.4 Promotion of expertise with regard to a Government, Policy Document
development-oriented approach to cultural history educational on Culture
institutes, social
64

organizations
 65

Section in Action Directed towards/ Grounding in

Belvedere action by policy
Memoran-
dum
5.4 Incentives for example projects, master classes, Government
etc.
5.5 Greater anticipation of spatial trends within Government,
cultural history research research institutes
5.6 Incentives for cooperative alliances between Government, local
government and private sector organizations. and regional
authorities, private
sector
organizations.
6.3 Promotion of dialogue between the fields of Private institutions Policy Documents
architecture and cultural history on Culture and
Architecture
6.3 Further definition of exemplary professional Government Policy Document
practice and 'clienthood' on Architecture
6.3 Greater attention to conservation of monuments Government ISV
within urban regeneration
6.3 Greater emphasis on cultural history in new policy Government NBL 21 policy
documents on nature and landscape document
6.3 Greater emphasis on cultural history in new policy Government Policy Document
on rural areas on Vital
Countryside
6.3 Greater emphasis on cultural history in policy on Government
water management and infrastructure
6.3 Investigation further exploiting the opportunities Government Policy Document
presented by cultural history for the economy and on Spatial
tourist sector Economy
7.2 Investigation into the requirement for extra Government
resources for acquisition and management of
archaeological sites
 66

7. Finances
7.1 Introduction
The foregoing chapters describe the policy whereby the position of cultural history within
spatial planning will be strengthened. In implementing this policy, better use is to be made of
existing instruments and budgets. The following section describes the relevant governmental
budgets. In addition, the other levels of government and private parties bear a certain
responsibility for making a (financial) contribution to the implementation of cultural history
policy, since only concerted action can result in a strengthening of cultural history.
Besides a better use of existing resources, central government intends to provide extra
incentives to the implementation of the policy. These are described in 7.3.

7.2 Existing budgets

The table below shows the resources currently made available by central government for
conservation, restoration, (re-)structuring and management of cultural-historic elements and
structures. The subsidy schemes and specific budgets within the 1999 annual budget of the
Ministry of Agriculture, Nature Management and Fisheries, the Ministry of Housing, Spatial
Planning and the Environment, and the Ministry of Education, Culture and Science have been
examined in terms of their contributions to conservation, restoration, (re-)structuring and
management of archaeological sites, monuments and the cultural-historic landscape. This
examination revealed 47 schemes and budgets with a total value in excess of four billion
guilders which in some way affect cultural history.
A cautious estimate of the direct contribution of these schemes and budgets on cultural history
suggests expenditure in the order of 240 million guilders per year, mostly in the form of direct
expenditure.

Table 4: Financial summary of subsidy schemes for, and expenditure on, cultural history
(source: 1999 budgets of the Ministries of LNV, VROM and OC&W*. All amounts are shown in millions of
guilders to the nearest million).

x NLG 1 million archaeological architectural cultural-historic Total

sites/monuments monuments (listed landscapes
buildings)
OC&W 22 178 - 200
VROM - 20 - 20
LNV 1 - 19 20
Total 23 198 19 240

*See Key to Abbreviations

A substantial proportion of the total amounts is concentrated within a few major expenditure
items, such as the Besluit Rijkssubsidiëring Restauratie Monumenten (Decree on
Governmental Subsidy for the Restoration of Monuments: NLG 125 million), the Besluit
Rijkssubsidiëring Onderhoud Monumenten (Decree on Governmental Subsidy for the
Maintenance of Monuments: NLG 27 million) and the maintenance of government-owned
monuments (NLG 20 million). Of a totally different order are the resources available to the
State Service for Archaeological Investigations (NLG 20 million) and to the Department for
 67

the Conservation of Historic Buildings and Sites (NLG 23 million). With regard to the
(historic) cultural landscape, there are a large number of schemes whereby cultural history
benefits to a greater or lesser extent by some NLG 11 million, but within which there is no
specific allocation of resources. The figures indicated are therefore estimates based on the
experiences of those making use of the schemes. An additional NLG 8 million is made available
in the form of explicit budgets for the (historic) cultural landscape, including approximately 4
million for historic parks and gardens. There is currently no explicit budget for the acquisition
and management of archaeological sites. It is to be examined whether additional resources are
required here.
In addition to the various schemes described above, the management, conservation, restoration
and development of aspects cultural history are directly or indirectly supported by a large
number of funds and other arrangements, including:
• the concept of 'he who disturbs it pays for it' in archaeology (under the Treaty of Malta)
• various taxation concessions
• low-interest mortgages
• European funds
• provincial and municipal funds
• private contributions
• schemes covering adjacent fields of policy, such as urban regeneration and employment.

In future, cultural history can come to play a greater part in the European context, including
the financial considerations thereof.
The EU framework directive on rural development, (part of the Agenda 2000) makes explicit
mention of cultural history. The extent to which European funds can be devoted to cultural
history is to be examined. Further, there is to be greater coordination of funding through
combination of financial flows in area-specific agreements. The streamlining of funds for the
management of cultural-historic landscapes will be achieved through the Management
Programme.
The resources listed above are mainly concerned with conservation and management. The
following section goes on to list incentive and investment resources which aim to bring about a
development-oriented approach to cultural history.

7.3 Intensification
As shown by the examination of funding for cultural history, there are various regular budgets
available in this sphere. They are, however, somewhat fragmented and disparate. Further funds
are available as part of the ICES programme to address issues such as the conservation of
monuments, spatial pressure and spatial quality.
Extra financial resources are to be made available specifically to address the Belvedere
objectives. These will be used to remove the obstacles standing in the way of an integrated use
of cultural history within spatial planning, whereby the cultural-historic dimension can be
strengthened.

Financing Belvedere
The proposed expenditure listed below adds up to a total of NLG 18 million in government
funding per annum, from the year 2003. The programme involved covers a period of ten years.
The relevant departments have stated their willingness to review the contribution in terms of its
adequacy in 2000.
 68

The actual expenditure on cultural history may be higher than that presented here, depending
on the amounts involved in current and ongoing policy and projects. Allowance has been made
for this by means of 'provisional' estimated entries in the tables.
It is also assumed that the allocation of government funds will lead to some co-financing by
other authorities (local and regional authorities, water boards) and private sector parties
(public-private partnerships or sponsoring). It may also be expected that some components of
the programme will be addressed by the European Union's new framework directive on rural
development. In this context, the area-specific approach to cultural history is to be given form
within the Rural Development Plans. Because it is not yet possible to state the extent of any
EU funding, nor that of private party contributions, these amounts have also been provisionally
estimated.
Finally, there may well be an element of self-financing and 'revolving funds', depending on the
final form of any particular Belvedere amenity (see below). It is expected that total resources
for the Belvedere objectives will exceed the governmental funding listed here.

Financing of the Belvedere objectives (all amounts shown in NLG million)

2000 2001 2002 2003-2010

Government contribution 11+ prov. 14+ prov. 17+ prov 18+ prov.
Co-financing prov. prov. prov. prov
EU contribution prov. prov. prov. prov.

Total: 11+ prov. 14+ prov. 17+ prov. 18+ prov.

(Prov. = provisional: see above)

Expenditure
Expenditure will be in the following categories:

1. Efforts directed at increasing the accessibility and uniformity of sources of information

concerning cultural history (the 'central point of contact' concept)', incentives for
knowledge and information exchange programmes aimed at professional practitioners
(master classes, example books and additional training) and monitoring of Belvedere
initiatives.

2. Stimulation of a thematic approach to cultural history. Some cultural-historic values

and structures are not subject to exact geographic delineation and the thematic
approach therefore becomes more suitable. Facilities are therefore to be made available
whereby such values can be exploited and/or strengthened by means of the thematic
approach, particularly in those projects having the objective of making cultural history a
tourist or recreational feature and those involving attracting resources for restoration
and maintenance. As a rule, these projects offer good opportunities for the involvement
of private organizations.

3. Belvedere areas
a. Attention at national level for the approach to the Nieuwe Hollandse Waterlinie,
which has been nominated as a 'national project' in view of the complexity of the
administrative and spatial issues. Several governmental projects are planned for
this area, some of which are in preparation. These include: infrastructure
 69

projects (widening/extension of A2 and A12; construction of the HST-Oost

high-speed railway), corridor development between Amsterdam and Utrecht,
urbanization projects (especially in the Amsterdam and Utrecht regions),
restructuring (partly in implementation of the Ecological Main Structure, the
Randstad Green Structure and recreational amenities), water abstraction, water
management and prevention of salinization, and the preparations for the
nomination of the Nieuwe Hollandse Waterlinie for the UNESCO list of World
Heritage Sites. Such extensive and complex projects call for an integrated
structuring assignment and this is provided by means of the Initial Paper on
Spatial planning 1999. The revitalization of the Nieuwe Hollandse Waterlinie
can, as one large 'moat' around the Randstad, become the physical cornerstone
of the structuring assignment.

b. Assistance in the realization of ten regional projects likely to raise the overall
quality of the Belvedere areas. These projects will be identified in consultation
with the provincial authorities in the context of the Fifth Policy Document on
Town and Country Planning and the NBL21. The provinces will supervise their
implementation.

c. Encouragement of, and investment in, local and regional initiatives in other
Belvedere areas, aimed at achieving an integrated approach to cultural history
and the greater involvement of private sector organizations.

d. For urban projects, funds are to be made available under the ICES programme,
the Conservation of Historic Buildings and Sites programme and the ISV
programme. Further, the government will make funds available as part of the
Belvedere scheme whereby specific (local) plans in the he field of cultural
history can be implemented, and will also make a budget available for the
production of cultural-historically responsible designs.

4. Cultural history will henceforth be a specific area of attention within government

projects of the ministries of LNV, OC&W, V&W and VROM. Expenditure on cultural
history will form one of the project costs, as in the reconstruction of the sanded areas.
Investment in infrastructure already takes such costs into account under the specific
policy with regard to IBO integration (interdepartmental policy research). Financial
resources have already been allocated to the year 2010.

General expenditure to 2003

As a general guideline, the following pattern of expenditure has been proposed, based on the
principle that resources required for investments will increase over time. Obviously, the actual
expenditure will depend in part on how many plans and proposals are submitted. The extent to
which funds can be reallocated between years and between categories will be examined at a
later date. This will depend in part on the provision to be created for the Belvedere programme
(see below).

General governmental expenditure on Belvedere-related projects to 2003 (all amounts shown in NLG
million)

2000 2001 2002 2003

1. Knowledge and information 3 3 3 3
 70

2. Themes 2 2 2 2
3. Belvedere areas
a. N. Hollandse Waterlinie 1 2 3 3
b. Regional projects 3 5 7 8
c. Local initiatives 1 1 1 1
d. Towns and cities 1 1 1 1
4. Linkage prov. prov. prov. prov.

Total: 11+ prov. 14 + prov. 17 + prov. 18 +prov.

Form and elaboration

In order to put the financial proposals into effect, a 'provision' is to be devised. There are
arguments for a flexible arrangement which will, for example, enable other parties to make
financial contributions without implementation being interrupted by artificial breaks in the
cashflow and whereby financial gains can be made by means of earn-back options etc.
However, given the integrated nature of the approach to cultural history, no new source of
financing will be sought if this is likely to lead to compartmentalization. According the possible
solutions must be very carefully examined before any final decision is made with regard to the
exact form of the provision.

With regard to implementation of the programme, the most suitable administrative mechanism
for the allocation of funds will be sought. Here too, the intention is not to create any new body
in the first instance. The final arrangements will be subject to very careful consideration,
whereby costs of implementation will also be taken into account. One option would be to
create a central administrative scheme whereby partners other than central government can be
involved, with a direct link to existing sources of funding (such as the Green Fund, the
National Restoration Fund and the Architecture Promotion Fund). Naturally, the
administrators of such funds will be involved in the development of this concept.

Belvedere monitor
Cultural history is not an independent spatial function unlike, say, 'nature' (see Section 6.2).
Cultural history is an aspect which is of value if it is incorporated in the implementation of
policy, as is currently the case within many (implementation) projects being carried out by the
ministries of LNV, VROM and V&W.
The first evaluation of the Belvedere programme will be submitted to the Lower House in
2002. This will provide an indication of the manner in which cultural history has been
incorporated into implementation and will show the amounts involved. Subsequent reports will
be produced on a regular basis, the intention at this stage being that they should be made on a
two-yearly basis. Other partners, such as the provinces, local authorities and water boards are
to be invited to report in a similar way.
 71

Summary
1. Context and terms of reference
The Netherlands faces major spatial changes. At the same time, the cultural identity of the
human environment is more than ever before an item on the political and social agendas. That
identity can be strengthened by placing greater emphasis on the development-oriented
utilization of existing cultural-historic values. Cultural history, spatial planning, integrated
design and good ‘clienthood’ can be made to interact more effectively and more creatively.
Within the dynamic of the new there must be consideration for, and creative utilization of,
cultural-historic values as a matter of course. There is thus a joint assignment of local and
provincial authorities, central government and private sector organizations. Because the task of
designing and structuring the Netherlands is such a great one, there are numerous
opportunities at all levels of scale for these various actors to play their part through an
integrated approach based on cooperation.

The work to be done is in both the rural and urban areas, with the emphasis on catching up on
missed opportunities in the rural areas. In the urban areas, opportunities exist in terms of
restructuring, such as in the revitalization of existing qualities. The Belvedere approach centres
around the development of a cohesive national policy which will allow cultural-historic identity
to take a major role in directing the future development of the Netherlands.

The context within which the relevant activities are to take place is one of increasing social
awareness of the cultural value of our human environment. This awareness is further raised by
the discussions concerning the effects of the overall spatial assignment on the appearance of
the Netherlands. There is particular concern about the loss of diversity and quality in the rural
areas. This demands that the trends to date are broken and that consideration for existing
values are linked to the greatest degree possible to an offensive, development-oriented
approach based on cultural history.

The challenge has already been accepted with enthusiasm by a number of provincial and local
authorities. They are developing policy within which cultural history becomes an important
factor within spatial planning and which raises the quality of the spatial interventions. Much of
the future plans and projects will be developed at this level of government.

At national level, the division of responsibility in matters of cultural history (mainly between
three ministries and various other subsidiary departments) has stood in the way of this
integrated development-oriented approach. However, the accent is now shifting towards
greater interdepartmental cooperation ('decompartmentalization') and the acceptance of
responsibility for large and complex projects and problems. Related to this is the broader use of
cultural history as a means of improving the quality of the human environment. Here, the
relationship with such aspects as nature and landscape, water management, recreation and
tourism and architecture must be deliberately reinforced in order to achieve greater added
value for society as a whole. This will lead to greater involvement of the Dutch community at
large in our cultural heritage.

The heightened awareness is also demonstrated by the fact that private parties and
organizations now recognize more and more opportunities for cultural history. These parties
 72

are significant (potential) actors, with considerable know-how and expertise in the areas of
planning design, management and communication. Their contribution can be supported and
broadened by a government which provides them with the necessary opportunities and
frameworks, and which actively promotes cooperation within the joint assignment.

Within this context, a cohesive and consistent government policy is essential. The objective of
such policy must be to allow cultural-historic identity to take a more prominent role in
directing spatial structure. Various initiatives of such policy are now available and enable
significant progress to be made. The next step must be to amalgamate and coordinate these
individual initiatives, whereby the whole will be greater than the sum of the parts.

2. Vision and position

Cultural history is 'the story of the country and its culture' and is thus also the ongoing story of
the spatial design of that country, past, present and future. Central to the vision must be the
social need to regard cultural history in an integrated and development-oriented way, and to
use it as a source of inspiration. So doing, the plans of today can be placed into the long-term
perspective.

The time is now ripe to link cultural history and spatial design more closely with each other,
whereby added value for society will be created. 'Cultural capital' will then be utilized as
'cultural assets'. This calls for a change of attitude on the part of all involved - the public,
administrators, planners and cultural-historians alike. The conflict between old and new must
not be the central consideration, but rather the opportunities of utilizing the cultural assets as a
rich source of inspiration.

This entails a more effective and creative way of seeking concrete and innovate solutions.
Spatial planners and designers, for instance, must be even more aware of the existing cultural-
historic qualities, while the cultural history sector must learn to anticipate future developments.
This calls for an integrated approach from all three cultural history disciplines, with active and
intensive efforts to form alliances with other sectors and interests. There must therefore be an
area-specific approach and vision. This memorandum states and seeks to justify this area-
specific approach.

Only through this form of integrated cooperative approach will all the opportunities for the
spatial design of the Netherlands become apparent. The value of the new policy lays not in
restriction, but in creating space for innovation.

3. Conservation and renewal

The Belvedere Memorandum lays the foundation for a new system of policy development
which is based on a gradation of cultural-historic values and a gradation of the spatial dynamic.
The exact form this model is to take will be determined by the Fifth Policy Document on Town
and Country Planning. In the current document, the emphasis is the assessment of cultural-
historic value and on the formulation of basic principles for future cultural-historic spatial
policy.
The Belvedere Map - the Cultural-historic Values Map of the Netherlands - is presented as an
instrument and method for the assessment of cultural-historic values. The map has been
compiled using expert assessments by central government and provincial authorities, based on
the three perspectives of archaeology, historic urban design and architecture and historic
topography. The map distinguishes between areas with sectoral cultural-historic values and
 73

those with combined cultural-historic values - the Belvedere areas. The map forms the basis of
the area-specific policy.

Significant spatial trends have been identified within the Initial Paper on Spatial Planning and
their implications are likely to be considered further in the Fifth Policy Document on Town and
Country Planning and other government policy document. There are three developments taking
place which offer particularly good opportunities for cultural history: the changing approach to
water management, the dynamic of the countryside and the changing pattern of urbanization.
These developments are outlined in this document along with their implications for cultural
history.

The basic principles for the extension of existing cultural-historic spatial policy are the greatest
possible degree of decentralization and significant participation by private sector organizations.
Three separate approaches have been identified: reinforcement of the generic policy, the
introduction of supplementary area-specific policy and the support of the thematic approach.
The main objectives stated in the memorandum are:

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

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

This central objective can be seen in terms of the following subsidiary aims:

1. To recognize, and to maintain the recognizability of, cultural-historic identity in both rural
and urban areas, as a quality and basic starting point for further developments.

2. To strengthen and exploit cultural-historic identity and the qualities which go to define such
identity, in those areas of the Netherlands which are most valuable in terms of cultural
history, the so-called Belvedere areas.

3. To create appropriate conditions for the initiatives of third parties aimed at a thematic
strengthening of cultural history.

4. To disseminate knowledge concerning cultural history and to promote opportunities

whereby cultural history can be used as a source of inspiration in spatial planning and
design.

5. To promote cooperation between citizens, organizations, local and regional authorities and
government.

6. To improve the practicality and use of existing instruments.

4. Spatial policy
This chapter describes the measures which aim to achieve the first two objectives within the
spatial policy: To recognize, and to maintain the recognizability of, cultural-historic identity in
both rural and urban areas, as a quality and basic starting point for further developments, and
to strengthen and exploit cultural-historic identity and the qualities which go to define such
 74

identity, in those areas of the Netherlands which are most valuable in terms of cultural history,
the so-called Belvedere areas.

An indication is given of how cultural and cultural-historic identity can become a full,
permanent and valuable component of spatial planning, design and management. This applies
to the entire country, but to the Belvedere areas in particular.

An area-specific approach is to be developed for the Belvedere areas in which proper

consideration is given to the special intensive combination of sustainable conservation of
existing identity by means of area-specific protection, and spatial development as a means of
strengthening that identity.

Central government is reticent to adopt its own thematic approach to cultural history, but
welcomes such initiatives on the part of others. On this point, policy is intended to be mainly
stimulatory in nature.

5. The development of knowledge and cooperation

The vision presented in this memorandum can be effective only if there is sufficient support
within society. Historic awareness and the availability of knowledge and information become
essential, as does broad and ongoing cooperation. Policy therefore devotes considerable
attention to increasing the availability and accessibility of knowledge and information, and to
encouraging the formation of alliances.

The coordination of cultural-historic knowledge whereby it will be available to all concerned -

including private citizens - is seen to be a matter of great importance. It will demand efforts by
all involved. The government is also to make efforts in this regard. Ways of making such
information available within a few years will be investigated. Existing data is to be used, and
there must be greater cooperation between the organizations involved (provincial support
organizations, the national point of contact, linkage of the various knowledge centres'
databases).

The division of cultural history into various disciplines - archaeology, conservation of

monuments and historic geography - is seen to be a complicating factor preventing the
integrated accessibility of knowledge. Based on the Belvedere philosophy, the four individual
knowledge centres (RDMZ, ROB, IKC and DLO-SC) will strive to achieve efficient
coordination between themselves.

The promotion of expertise among all actors is seen to be of crucial importance. The providers
of professional training (in both design disciplines and cultural history) are encouraged to seek
out and rectify the omissions in their programmes. Dialogue between the cultural-historians,
planners, designers and clients is encouraged. One tried and tested means of doing so is to
support example projects at local level. As was seen in the 1980s, this can lead to a
considerable degree of cooperation and initiatives on the part of those involved.

In the exploratory survey of spatial trends (such as the three trends described in Chapter 3), it
falls to the cultural-historians to develop a tradition of anticipatory research, based on their
own discipline, expertise and interests. The development of such forms of research will be
encouraged.
 75

Sustainable conservation of the cultural heritage must not be left to the government alone, but
must be given form through effective cooperation with market parties, other levels of
government and special interest organizations. Each practical case will involve a different form
of coalition or alliance. The area-specific approach both calls for and makes possible a broad
range of cooperative alliances. Given the great importance of private sector organizations to
cultural history, the government intends to insist on the involvement of private entities and
social organizations in the area-specific approach to the Belvedere areas.

6. The end as beginning

Just as this policy makes use of valuable components of existing policy, so can the various
areas of general policy benefit from the specific policy developed here. Much is to be gained if
the potential of cultural history is exploited within current and future policy.

Concepts of the policy proposed here can be of significance for urban planning, architecture,
nature and landscape, agriculture and water management. Today's new buildings are
tomorrow's heritage, and hence the motto must be: "Build something that people will still be
proud of in a hundred years' time!"

The proposed cultural history policy can have a 'trickle-down' effect on other areas of policy,
such as that for architecture, urban regeneration, nature, landscape, recreation and the
environment.

In one respect, this memorandum breaks new ground: a process has been set in motion
whereby it is not currently possible to fully see where it will lead. The process will entail time
and effort being devoted, without there being any certainty that this effort will bring any
immediate rewards. Accordingly, an outline of the follow-up action until 2002 is given as an
appendix to this memorandum.

7. Finances
The basic principle here is that the interests of cultural history form part of the planning
procedure and hence of the regular planning costs. In order to apply this principle to the
Belvedere programme, the government will in the first instance work towards more effective
use of existing sectoral resources. Further to this, additional resources will be made available,
rising from NLG 11 million in 2000 to 18 million in 2003 and subsequent years. A special
budget will be allocated with which experience can be gained in the development-oriented
approach to cultural history, while structural resources will be made available to enable larger-
scale investments to be made in achieving actual improvements in quality.

Appendix: Areas
There are areas which contain cultural-historic values throughout the Netherlands. In some
areas, however, there is an accumulation of values and/or an integration of values, whereupon
these areas are of special significance to cultural-historians.

Such areas have been identified in close consultation between central government and the
provincial authorities. They have been indicated on the map and a description is given in terms
of characteristics. A number of key features which determine the cultural-historic character of
an area have been identified. The descriptions do not attempt to make an exhaustive listing of
these features. Those given are representative and can serve as anchors for spatial policy.
 76

In addition to the cultural-historic description of each area, a number of important

developments are listed. These developments, which may be seen as opportunities and/or
threats, give rise to the dialogue which must be conducted concerning the cultural-historic
values. Some developments area specific to one particular area, while others affect several
areas.

The policy opportunities are then described. These are aspects which may facilitate further
development or strengthening of the cultural-historic values. Finally, a set of strategic policy
options is given: proposals for a possible approach to the areas.
 77

Key to abbreviations (with approved English translations where available)

ARCHON: Onderzoeksschool voor de archeologie
Archaeological Research Institute
bnSP: Bond van Nederlandse Stedebouwkundigen en Planologen
Professional Organisation of Urban Designers and Planners
DLO-SC: Dienst Landbouwkundig Onderzoek -Staringcentrum
Agricultural Research Department/Staring Centre
EU: European Union
EZ: Ministry of Economic Affairs
IBO: Interdepartementaal Beleidsonderzoek
Interdepartmental Policy Research
ICES: Interdepartmental Commission for Economic Structural Policy
IKC-N: Informatie- en Kenniscentrum Natuurbeheer
Information and Data Centre of the Directorate for Nature Conservation
ISV: Investering Stedelijke Vernieuwing
Urban Regeneration Investment Programme
LNV: Ministry of Agriculture, Nature Management and Fisheries
NBL 21: Nota Natuur, Bos en Landschap in de 21e eeuw
Policy Document on Nature, Woodlands and Landscape in the 21st Century
NCM: Nationaal Contact Monumenten
National Contact Monuments
NETHUR: Netherlands Graduate School of Housing and Urban Research
NIROV: Nederlands Instituut voor Ruimtelijke Ordening en Volkshuisvesting
Institute of Land-use Planning and Housing
NRF: Nationaal Restauratiefonds
National Restoration Fund
NVTL: Nederlandse Vereniging voor Tuin- en Landschapsarchitectuur
Netherlands Association for Landscape Architecture
NVP: Nota Vitaal Platteland
Policy Document on 'The Vital Countryside'
NWO: Nederlandse organisatie voor Wetenschappelijk Onderzoek
Netherlands Organisation for Scientific Research
OC&W: Ministry of Education, Culture and Science
RDMZ: Rijksdienst voor de Monumentenzorg
Department for the Conservation of Historic Buildings and Sites
RLG: Raad voor het Landelijk Gebied
The Netherlands Council for the Rural Area
ROB: Rijksdienst voor het Oudheidkundig Bodemonderzoek
National Service for Archaeological Heritage
RvC: Raad voor Cultuur
Council for Culture
SGR: Structuurschema Groene Ruimte
Structural action plan for the Green Areas
SGR2: The (possible) second version of the above
SNA: Stichting voor de Nederlandse Archeologie
Council for Dutch Archaeology
V&W: Ministry of Transport, Public Works and Water Management
 78

VINAC: The revised version of the Fourth Policy Document on Town and
Country Planning
5e nota RO: Fifth Policy Document on Town and Country Planning
VROM: Ministry of Housing, Spatial Planning and the Environment
VWS: Ministry of Health, Welfare and Sport
WRR Wetenschappelijke Raad voor het Regeringsbeleid
Netherlands Scientific Council on Government Policy
 79

The Belvedere Memorandum has been compiled under the joint responsibility of the Minister
of Education, Culture and Science, the Minister of Agriculture, Nature Management and
Fisheries and the Minister of Housing, Spatial Planning and the Environment.

The maps have been produced by the National Spatial Planning Department of the Ministry of
Housing, Spatial Planning and the Environment.

The descriptions of the Belvedere areas were produced by the Oranjewoud engineering
consultancy of Oosterhout, in association with the relevant government departments,
provincial authorities and private sector organizations.

Research into funding was performed by the Agricultural Economic Research Institute of The
Hague.

The descriptions of the example projects were produced by TGV Teksten & Presentatie of
Leiden.

The Hague, June 1999

 80

Notes

1
Letter of 11 December 1997 to the speaker of the Lower House of the States General, reference
DCE/97/35269, concerning the Belvedere Project, a governmental vision of the relationship between cultural
history and spatial policy
2
Pantser of Ruggengraat: Policy Document on Culture 1997 - 2000, Ministry of OC&W (1996)
3
De architectuur van de Ruimte: Policy Document on Architecture 1997 - 2000, Ministries of OC&W, VROM,
LNV and V&W (1996)
4
Structuurschema Groene Ruimte, part 4, Ministry of LNV (1995)
5
Partial revision of the Planologische Kernbeslissing Nationaal Ruimtelijke Ordening (Key Planning Decision
on National Spatial Policy) as amendment to the Fourth Policy Document on Town and Country Planning, Part
3, Ministry of VROM (1997)
6
Government declaration. Proceedings of the Lower House 1997/1998, page 6204 ff.
7
De Ruimte van Nederland. 1999 Initial Paper on Spatial Planning, Ministerie van VROM (1999)
8
Stedenland-Plus, response to Nederland 2030 - Verkenning ruimtelijke perspectieven and the
Woonverkenningen 2030, VROM-Raad (1998)
9
Response to Nederland 2030: the cultural dimension, Council for Culture (1998)
10
Made in Holland, recommendation concerning the rural areas, their diversity and identity. Council for the
Rural Areas (1999)
11
Coalition Agreement, Lower House 1997/1998, 26024, no. 10.
12
see 10
13
Spatial Surveys 1997, Ministry of VROM (1998)
14
Hoe God verdween uit Jorwerd. Geert Mak
15
25 jaar sociale verandering (Twenty-five years of social change), Social en Cultural Planning Office (1998)
16
Nature Survey 1997, Ministry of LNV (1997)
17
See 13
18
Recommendations on Spatial Development Policy, Netherlands Scientific Council on Government Policy
(1998)
19
Convention on the protection of the world cultural and natural heritage, UNESCO (1998)
20
European Spatial Development Perspective, European Union (1999)
21
Treaty of Maastricht, Official Digest, page 74, European Union (1992)
22
EU framework directive on rural development /Agenda 2000, European Union (1999)
23
See 2
24
Cultuur als confrontatie; uitgangspunten voor het cultuurbeleid 2001-2004 (Culture as confrontation;
principles of cultural policy 2001- 2004), Ministry of OC&W (1999)
25
This development has been identified in publications of the Department for the Preservation of Monuments
and Historic Sites, including Hora Est (1993) and Monumenten Breed Bekeken (1995)
26
European Treaty on the Protection of Archaeological Heritage (amended at Valetta, Malta) Council of
Europe and signatories to the European Cultural Treaty (1992)
27
See 3
28
See 5, pages 17 and 75
29
See 7, page 33
30
See 4
31
Policy Document on Landscape, Ministry of LNV (1992)
32
Policy Document: Natuur, Bos en Landschap in de 21e eeuw (Nature, Woodlands and Landscape in the
Twenty-first Century: NBL21), Ministry of LNV (in preparation)
33
Vitaal Platteland. (The Vital Countryside), Ministry of LNV (in preparation)
34
See 15
35
Masterplan cultuurhistorisch toerisme (Master Plan for cultural-historic tourism), Winkelman and Van
Hessen (1989)
36
Ondernemen in toerisme (Enterprise in tourism), Ministry of Economic Affairs (1990)
37
Zee van cultuur (Sea of Culture): an action plan for tourism, AVN and the Netherlands Bureau for Tourism
(1997)
38
See 7, pages 10.23 and maps.
39
See 19
 81

40
See 5, pages 17 and 75
41
See 9
42
Programma Beheer (Management Programme), Ministry of LNV (1999)
43
See 31
44
Strategische Groengebieden (Strategic Green Areas: SGR), Ministry of LNV (1995)
45
Policy document: Dynamic and renewal, Ministry of LNV(1995)
46
Binnentuin en Buitenhof ; naar nieuwe relaties tussen landschap, groen ondernemerschap en
randstadmetropool. Westelijke Land- en Tuinbouw Organisatie (1998)
47
See 15
48
Fourth Policy Document on Water Management, Ministry of V&W, (1999)
49
Policy Document on Urban Regeneration, Ministry of VROM (1997)
50
See 33
51
See 43
52
See 34
53
EU framework directive on rural development / Agenda 2000. European Union (1999)
54
ICES kwaliteitsimpuls Zandgebieden Zuid en Oost Nederland (1998)