1 INTRODUCTION:

The old towns are the living witness of cultural identity as well as the forged product of con-tinuous transformations, social mutations, environmental, economic, and political ones. Their architectural masterpieces have been passed, such as a heritage, through the previous genera-tions with a certain loyalty. Therefore, our obligation is to bequeath them also for future genera-tions. (Bittar, 2008)

Safeguard is a recognized vital concept, generally with respect to the survival of the historical heritage, and particularly that of the historic built heritage.

For the latter’s interest, several studies and researches have been carried out, but unfortu -nately, few decisions have been made: the proposals being too theoretical, empirical, or unreal-istic, adding to that a certain "inertia and a displayed defeatism "on the part of the authorities and a legal framework falling short of realities on the ground.

Chronology of Safeguard Plans in Revitalizing Towns: History of a Succession of Failure in the Old Town of Constantine

I.Fantazi & B.Z.Hecham

Faculty of Architecture and Planning, University of Constantine 3, Constantine, Algeria

ABSTRACT:

Constantine is one of the ancient towns in the world, with 2500 years of existence and a large heritage of an unprecedented historical wealth. Despite the different safeguard plans, from the master plan to the unrealized permanent safeguard plan of the old town of Constantine, the still inhabited medina of Constantine, making the vitality of the town centre, has not concretely seen realization of these projects yet. Degradation of the old town continues and the inhabitants are leaving it in fear of dying under their falling houses, while some owners somehow try to save their properties through restoring the facades. Empty houses are squatted by homeless popula-tion. In December 2012, Constantine has been designated as Capital of the Arab Culture. In 2015, the old town has benefited from a safeguard plan and a budget to rehabilitate the old town. However, during our investigation, none of the selected buildings has been completed. What are the real causes of this failure? How should we proceed to solve the problem knowing that the old town of Constantine has previously failed in several projects of rehabilitation? We examine the following hypothesis: Despite the planning policy of the State concerning the safe-guard of the built heritage, the current situation is due to the inertia of companies and actors in Algeria in general and in Constantine in particular. Our intervention traces the chronology of the various safeguard plans that have alternated by highlighting the causes of the successive failures. It provides a synopsis of the revitalization planning of the Old Town of Constantine as well as the roles of different actors involved in the program of restoration and rehabilitation in the framework of the event "Constantine, Capital of the Arab Culture 2015", especially the allo-cated budget that has been spent without any realization on the site. The aim of this paper is to demonstrate the mismanagement in the concrete application of planning policy. The aim is to highlight the importance of skills in the field of management of a project. The investigation adopts a historical approach and analyses the content of the different safeguard plans. The Re-sult: Successive has failure of different operations.

Keywords: safeguard plans, old town of Constantine, schedule, revitalization, failure

Moreover, despite the fact that Algeria has an immense historical heritage of a universal scope, this historical heritage remains unfortunately very poorly operated, worse still, it is per -ishing at an uncontrollable speed.

The Town of Constantine has a very important heritage due to its exceptional historical and archaeological value, reflecting the civilizations that have succeeded on its soil, as physical rep-resentation of the memory of places.

Toward the last decades of the 20th century, the Old Town has known a rapid degradation with nothing to stop it or slow it down. According to its safeguard and enhancement plan of safeguarded sectors, nearly 54% of the real estate is degraded, with 575 buildings partially ru-ined. In this period, the Old Town has received special attention on the part of the authorities, and has been the object of a succession of contradictory and failing urban policies.

In December 2012, Constantine has had the unexpected opportunity of the rehabilitation pro-gram in the framework of the event "Constantine Capital of Arab Culture 2015". Unfortunately, the event has ended and no selected project during our investigation has been completed. What are the real causes of this failure? How should we proceed to resolve the problem, knowing that the Old Town of Constantine has known previously a failure of several rehabilitation projects?

2 THEORETICAL CONTEXT: Over the years, safeguard of old fabric has become one of the driving lines of the debate on

the town. Initially launched in the European countries, it has become the object of interest to other countries, particularly those with strong urban traditions, and where the importance of the historic bequeathed to the collective memory is relevant.

The safeguard of the old fabric is also the revitalization of the urban and social fabric, the re-vitalization of the local economy, as well as the improvement of the conditions of habitability for the inhabitants (the International Charter for the Safeguarding of Historic Towns and Urban Areas, 1987).

2.1. SAFEGUARDED SECTORS AND PLANS OF SAFEGUARDING

A safeguarded sector is an urban area subject to special rules due to its "historic character, aesthetic or of a nature to justify the safeguard, restoration and development of all or part of a set of buildings built or not" (French Documentation, 1991).

Two main objectives have chaired the Safeguarded Sectors (Malraux Law, 1962):

To avoid the disappearance or irreversible damage to the historic sites by establishing legal measures of protection;

To requalify the historical heritage, architectural and urban areas and modernize the old dwellings to ensure a quality of occupation in accordance with the contemporary way of life through specific mechanisms of operational intervention.

The management of the programs or interventions on the Safeguarded Sectors is controlled by a permanent plan of safeguard. The latter is an instrument for the management of the Safe-guarded Sectors, it indicates in particular buildings whose demolition, modification or alteration are prohibited and buildings or parts of buildings whose modification or demolition may be im-posed at the time of public or private development operations.

2.2. THE SAFEGUARDED SECTORS ON THE ALGERIAN NATIONAL SCALE:

With the advent of law 98-04, dated June 15, 1998, relative to the protection of the heritage and more specifically its Chapter III, the concept of safeguarded sector saved was born. Article 43 of this law defines them as being "urban or rural estate groups, such that of the Kasbah, med-inas, Ksours, villages and traditional agglomerations, characterised by their predominance of area of habitat, and which, by their homogeneity and their architectural and aesthetic unity, present historical, architectural, artistic or traditional interest of a nature to justify the protection, restoration, rehabilitation and development."

The permanent plan for safeguard and development of the safeguarded sectors (PPSDSS):

The establishment of the PPSDSS has been enacted by the Executive Decree No. 03-324 of October 5, 2003, amended and completed by the Executive Decree No. 11-01 of January 5, 2011.

3.2. THE INTERVENTION ON INHABITED SITE:

Intervention on an inhabited heritage is a delicate operation; it commits financial means, ne-cessitates time and patience (a long-term job), for which the importance of a strong political will needs to be maintained, and requires the cooperation between the various actors involved and the involvement of the population, in particular (inhabitants, traders, users, etc.).

According to “Cusido”, the intervention on a historic inhabited site involves certain risks and requires tact, because the operation must be well followed and marked, it must obey: An integrative methodology (the old site is not isolated, but is part of a larger territory in which it must be articulated and integrated while preserving its characteristics). A comprehensive methodology (which is not restricted to the technical aspect and town plan-ning, but is rather open to other disciplines, social, economic, environmental, etc.)

A Methodology of Consultation

A flexible methodology, which allows the possibility of redirecting the Rehabilitation Strategy in adapting to unpredictable social and economic changes, etc.

3. METHODOLOGY:This research is the first phase of a doctoral research. It is exploratory and qualitative in na-

ture. The present research analyses the contents of different plans to safeguard the old town of Constantine in an attempt to show mismanagement in the concrete application of rehabilitation policy of planning.

To be able to correctly interpret and understand the causes of repeated failures in rehabilitat-ing the old town, we set a comparative approach of the rehabilitation of three old Arab towns in a different context.

3.1. THE CRITERIA FOR SELECTION: We have selected two old Arab towns for the following criteria:

3.1.1. THE OLD-TOWN OF TUNIS:

It has similar circumstances to those of the Town of Constatine (French colonization, same Maghrebian lifestyle, comparable economy, training of actors obedient to the general French system, similar urban laws resulting from the French system).

3.1.2. THE OLD-TOWN OF CAIRO:

It is an example to follow for the seniority and the effectiveness of the rehabilitation of the heritage in Egypt, considered as the first and pioneer in this field in the Arabo-Muslim. More-over, it is an old town falling in ruins, but loaded with a historical heritage classified by UN-ESCO. The old town of Cairo has had more or less successful safeguarding projects that may serve as a model.

4. DESCRIPTION OF THE SITE

The old town of Constantine, one of the oldest cities in the world (2,500 years of history), is the capital of the East of Algeria (Figure 1). It has a dense organic fabric; hierarchical streets branched in a tree-like fashion just like the Arab-Muslim medinas, defining very elaborate ur-ban and architectural paths, punctuated by a set of sequences and landmarks. The fabric is rich in historical values linked to its plot, its virile system, its Sabbaths, and a perfectly hierarchical building typology (photos 1). It has within its walls the El Kettania mosque, Medersa, the French High School ‘Aumale’(Redha-Houhou presently), Dar El Imam ... of very high architec-tural value souks, traditional houses, a Bey palace.....all of which give the city of Constantine a special status.

Figure 1: the situation of the old town of Constantine

Source: Google Maps, authors’ treatment; 2016

Photos 1: Overview of the Old City

Source: Y.A. Bertrand, 2010

4.1. THE OLD TOWN IN THE HEART OF THE PROJECTS:

Constantine has had several projects (Table N° 1) to protect and preserve its heritage; how-ever, no project has led to its safeguard. According to the permanent plan for safeguard and de -velopment of the safeguarded sectors (PPSDSS), this state of degradation is mainly due to age-

ing and the voluntary demolition of the occupants. Overpopulation and absence of maintenance have led to an accelerating degradation of constructions (channeling, sealing, sanitation, etc.).

Table 1: The succession of projects for the rehabilitation of the Old Town of Constantine

Year Project Context Recommendation 1960 Calsat Study The study of Calsat is in a survey of

urban planning summary on the alarm-ing status of the Old Town of Constan-tine.

In this period, the heritage comes down to Roman archaeo-logical traces of Constantine and its surroundings.

1961 The project of BERU 

A study of the development of the urban centre with the improvement of the conditions of its habitat, it essen-tially aims to bring out the European district from the rock.

1975 Urban Master Plan (UMP)

It has selected the Rock as a zone to renovate. As a safeguard measure, the Bureau of Communal Studies has blocked the building permits (Saharawi Belabed, 2001).

1982 Updating of the Urban Master Plan

It rests upon the renovation of the Rock that would be remediated by de-molishing a minimum of constructions and by lowering the rate of occupation.

1984 URBACO project It aims to establish an exhaustive sit-uational analysis of the physical and demo-economic status of the Rock and demo-economic and release an action plan with intervention priorities (UR-BACO 1984).

In this project, the study phase has been carried out, but the am-biguity of the operation has led to a fiasco. According to the Vice-president of the technical service of the Popular Communal Assem-bly of Constantine, "In 1984, the project has been entrusted to the URBACO without setting a pre-cise objective for it".

2003 Master Plan The rehabilitation and revitalization of the economic and social fabric of the Old Town of Constantine

It has been deemed to be non-operational because after the launch of the study, the old town has been designated as a safe-guarded sector, meaning that all actions must take account of the permanent plan for the safeguard-ing and development of the safe-guarded sectors (PPSDSS)

2005 Designation of Safeguard Sectors

In October 2005, the Old Town of Constantine has been designated as a safeguarded sector by the executive de-

In 2007, an engineering office has been engaged by the elabora-tion of PPSDSS. The local author-

cree N°03-324 which has as purpose the application of Article 45 of the Law 98-04 of June 15, 1998, relative to the protection of heritage and culture.

ities of the province of Constan-tine have approved this measure in 2013.

2007 Mellah Slimane project

The rehabilitation of the street Mel-lah Slimane is divided into 3 parts:

- Rehabilitation of roads and other utilities and 10 houses frontages.

The project of Mellah Slimane has been the only project materi-alized in the field and it is still un-der realisation (4 houses finished only).

It has been marked by the ab-sence of laws determining the role of actors involved in the rehabili-tation project.

2013 Rehabilitation program under Constantine the Capital of the Arab Culture 2015

The program contains 78 projects divided in 9 major areas in the safe-guarded sector of Constantine.

The 9 major areas include a hetero-geneous lot of projects, ranging from the rehabilitation of streets, squares, parkings, mosques, zaouias, hamams, derbs, singular monuments, the recon-struction of the frontage of the lower Souika with its gardens, and the reha-bilitation of the Kasbah, as well as op-erations of archaeological excavations for the concerned areas.

On 31 December 2012, the Or-ganization for Education, Science and Culture of the Arab League Organization (ALESCO) has ap-pointed Constantine Capital of Arab Culture 2015. To this effect, the Algerian Government has listed several projects under the supervision of the Ministry of Culture, to improve and develop the cultural situation of the town of Constantine. The program has included new projects as well as those of rehabilitation operations targeting areas of heritage signifi-cance of the historic centre. (Fan-tazi.I, 2014)

Source: Kharouatou, 2011. Treatment of authors, 2017

5. THE COMPARATIVE STUDY: THE OLD TOWN OF TUNIS AND THE CAIROIn order to identify the causes and effects of the rehabilitation, Table 2 traces back rehabilita-

tion operations of the old town of Tunis and Cairo.

5.1. HOUSING REHABILITATION PROGRAMME (HRP) OF DARB AL AHMAR SITE (EGYPT):

Darb Al Ahmer (Figure 02) is one of the most historic sites of Cairo. Narrow alleys and a very high demographic density of almost 1,000,000 inhabitants characterize Darb al Ahmar site. The latter is located among the poorest districts in Cairo. The rehabilitation programme of the area, Darb Al Ahmar, has been launched in 2004, with the objective of rehabilitating 200 houses by the end of 2009.

Figure.02 map of the district Darb Al Ahmar

Source: urban regeneration project for historic Cairo

5.2. PRESENTATION OF REHABILITATION PROJECT OF THE HAFSIA SITE (1972-1977) AND (1981-1992):

The Hafsia or well the "Hara" (Figure 03) is an old site of traditional habitat in the Medina of Tunis. It is characterised by a dense fabric, a network of streets, alleys and to stalemates serving houses with patios adjacent to each other.

The project of rehabilitation and renovation of the Hafsia site is a restructuring operation un-der the third urban development project, conducted in two stages.

Figure 3: map of the district Hafsia

Source: RAMMAH Mourad, Hafsia, Médina deTunis.

6. THE RESULTS OF THE DIFFERENT REHABILITATION OPERATIONS IN THE 3 SITES:

We will present the results of rehabilitation projects in Algeria, Egypt and Tunisia.

Table 2: Results of rehabilitation projects in the 3 sites. Source: authors, 2017

Project of Constantine

Capital of the Arab Cul-ture

Rehabilitation project of Darb Al Ahmar

Rehabilitation project of the Hafsia site

Project progress - The beginning of the project by the choice of the buildings of the program in March 2013 on the basis of the permanent plan for the safeguarding and develop-ment of the safeguarded sectors (PPSDSS) by an assistant to the contracting

- In 2003, the develop-ment of a preliminary study of the site and a survey on the latter with participation of inhabitants.

- The beginning of the re-habilitation of houses in

- First stage studies of have started in 1972

- Second stage studies have started in 1989

authority - January 2014, the beginning of the study phase of the study by engi-neering offices

March 2004

Main objective of the project

The improvement and development of the cul-tural situation of the Old town of Constantine for the event of the Capital of the Arab culture

The physical improve-ment of existing buildings and the socio-economic develop-ment of the Community

Help the local authori-ties to "design and imple-ment a better site and best resources and improved ur-ban services for the low-in-come population living in the medina," and "strength-ening the policies of habitat to increase the accessibil-ity," on the one hand, and "give an impetus to eco-nomic activities and maxi-mize the potential for the development of the project" on the other

Actors - Ministry of Culture:

In charge of cultural projects in Algeria

- Directorate of Culture:

Contracting authority:

- National Office of Management and Exploita-tion of Protected Cultural Property: Assistant to con-tracting authority(OMEPCP): Pro-gram progress

- 21 Engineering of-fices: Study of projects

- Company: Project re-alisation

- Aga Khan Trust for Cul-ture (AKTC): Contracting authority

- Microenterprises, and small entrepreneurs of Darb Al Ahmar: Project realisa-tion

- Inhabitants: Assist in project realisation

- Municipality of Tunis (Contracting authority);

- ARRU (Contracting authority deputy);

- The Association of Safeguard of the Medina of Tunis (designer of the project);

- Fund for local author-ity loans and (ensure fund-ing of secondary networks and collective equipment);

- Public dealers;

- The local committee for the allocation of the lots and credits

Encountered difficulties

- Insufficient housing to rehouse all the inhabitants of the scheduled buildings before the beginning of the study stage;

- Indemnity problems for traders who have not wanted to leave their premises due to non-regu-larization of their trade register;

- Lack of virgin territory

- Limitation of the plan-ning and useless plans: de-molition plans for the benefit of the rehabilitation;

- Lack of knowledge for the rehabilitation of tradi-tional structures;

- Lack of the sense of ownership and the absence of community participation;

- Low income and lack of

- Lack of knowledge for the rehabilitation of tradi-tional structures.

to schedule parking lots;

- Citizens have much claimed the choice of sam-ple or pilot houses for they believe that buildings other than those of the program deserve to be selected;

Owners of pilot houses have not accepted to leave their houses

financial mechanisms

Solutions Creation of a commis-sion composed of repre-sentatives of all stakehold-ers

- Elaboration of a process of participation

- Sensitizing inhabitants to their cultural traditions

- Creation of enterprises’ association of Darb Al Ah-mar Business and the Centre for the promotion of family health in charge of service delivery to the community in the safeguarded sectors

- A structured training en-abling the dissemination of technical knowledge among the inhabitants

- Sensitization of the public to the importance of urban heritage and promote its safeguarding based on profound knowledge of Medina.

- Sensitization and su-pervision of involved actors in Medina to promote small businesses by associating craft workers in rehabilita-tion and restoration sites

Results - April 16, 2015, the opening date of the event, Constantine Capital of the Arab Culture, all the projects of the program are unfinished or in their ini-tial states (Table 03)

- Progress report of the program according to the assistant to contracting au-thority is 51% (study phase completely achieved, real-ization works stuck at 2% in 2016)

- January 2017, all projects are blocked

- In 2009, the project

has provided 285 homes with ownership rights guar-anteed;

has rehabilitated 85 build-ings;

has improved the condi-tions of life through the con-struction of 42 new private bathrooms, 55 new kitchens, more habitable space;

has improved the private life of family members, the day light and ventilation for all habitable space, as well as a better access to the dis-tribution network of water and sanitation services

- Amendment of law per-mitting the demolition in the site of Darb Al Ahmar

- The first section of the project has been completed in 1977 and the second in 1992.

- The construction of 234 housing units

Achievement of all so-cio-economic and cultural objectives of the project

- The success of the op-eration has earned the project Aga Khan Award for Architecture in 1983 and in 1995.

- Elaboration of a new process of participation of Egypt

- In 2007, the National Organization for the Urban Harmony, in its "Guidelines for Historic Areas" (Plan for the historic districts), identi-fied the HRP (Hafsia Reha-bilitation Program) as a good practice to be put in place at the national level.

Table 3: photos of The diferent Projects of Constantine Capital of the Arab before and afetr event

The diferent projects before the event The diferent projects after the event

SOUK EL ASSER Square (2013) SOUK EL ASSER Square (2016)

CHARAA Parking lot (2013) CHARAA Parking lot (2016)

Mill El CHATE (2013) Mill El CHATE (2016)

Source: OGEBC, 2013. Authors, 2016

7. INTERPRETATION:

Table 1 show that the negligence of the value of the heritage and the lack of the culture of preservation has the lion’s share in the degradation of constructions, appearing in the following points:

The Urban Master Plan (UMP) prohibits the occupants to intervene on their property (Saharawi Belabed, 2001) and allows the demolition of buildings to reduce the rate of occupation.

The unawareness of the officials of the importance of heritage preservation has allowed thinking to raze the traditional houses to build towers on the rock. (Saharawi Belabed, 1988).

The ambiguity of the objectives and the lack of a strategy of intervention are of the causes of operational failure.

Do nothing to learn from previous experiences in the new projects or it is found that all projects start to 0 and rehearsal the same mistakes of others

The non-involvement of experienced actors in the site of Constantine

At the level of the comparative study, we find that:

The absence of the identification of stakeholders in preliminary phase affects the con-duct of rehabilitation project. The latter depends in large part on the quality of the com-munication between the contracting authority and the stakeholders that needs to be based essentially on clarity, simplicity and the frequency of the information. (Yaves Raffestin, Frank Dreimie, Denys Slight 1996).

The absence of the preliminary study led to the unexpected throughout the program (the negligence of the inhabitants has caused problems at the beginning of realisation works). The participation and the involvement of the inhabitants of the whole town are indispensable to the success of the safeguard (The International Charter for the Safe-guarding of Historic Towns, 1987).

The absence of field research to be well informed on hopes of the inhabitants.

The lack of involvement in the project affects the results of the latter in time and the cost of the operation

7.1. ACTIONS TO BE TAKEN

To avoid problems found in the implementation phase, we suggest a participatory approach that has to be followed as early as the planning phase begins:

• Identify all project stakeholders: It is important to recognize the project team as a specific stakeholder group. This will enable the assistant to the contracting owner to focus on their needs and ensure that they are taken into account on an ongoing basis throughout the project.

• The establishment of conciliation commissions: a consultation commission made up of all the participants in the choice of samples (the Directorate of Culture, the Daïra, network services, Directorate of Trade, Transport Directorate, Religious Affairs, citizen).

• The use of questionnaires and surveys to know the wishes and remarks of citizens and users. (YavesRaffestin, Frank Dreimie, Denys Léger, 1996).

• The development of a participation process: This process explains roles and responsibilities during the planning and implementation phase (UNISCO, 2014).

Table 3: Project Stakehold-ers in the Planning Phase

Stakeholders Mission in the project

The contracting owner : Directorate of Culture

Makes the decision in the project

The assistant of the con-tracting owner : OGEBC

Conducts the Operation

The Communal People's Assembly

The need to solve all the problems inside the site

The Daïra Responsible for rehousing the inhabitants of the chosen equipment

The Directorate of Trade The negotiating manager with the traders who enter the program.

The Directorate of Trans-port

In charge of evacuating the parking lots and finding vir-gin grounds.

The Directorate of Reli-gious Affairs

Responsible for everything related to the mosques in the program

Network services Responsible for all networks: telephony, clean water supply, sanitation; electricity and gas.

The citizen The one who lives or occupies the site

Source: authors, 2016

•Raising citizens’ awareness: raising awareness of the importance of this operation and its ad-vantage in improving their daily lives through different ways:

- By organizing meetings with the neighborhood-association or with the most representative or dynamic users;

- By making contacts with the Head of General Services, present in the field, who can be-come one of the communication relays.

- By organizing days of consultation, marketing, advertising, information...

•In order to achieve the objectives of the project and ensure good continuity of the work, it is imperative to suggest the following recommendations:

Encourage dialogue and solicit as many stakeholders as possible to participate in the consul-tation through periodic meetings with the objective of transmitting both information and the progress of the operation in order to discuss all the problems foreseen and try to help the assis-tant to the contracting owner to make the right decisions.

CONCLUSION:

The comparative study has allowed us to see that the human factor is the main agent in the success or failure of rehabilitation. Despite sufficient budgetary envelope and the existence of previous, scientific, effective plans for heritage safeguard, the whole strategy of implementation would collapse if the human factor is faltering. Egypt is a pioneering and expert country in the area of safeguarding, where rehabilitation mechanisms put in place, operate automatically. Sim-ilarly, Tunisia has a considerable knowledge in heritage safeguarding and rehabilitation. How-ever, Algeria, with a considerable amount of studies on the matter, has not yet acquired the ex-

pertise of Egypt and the knowledge of Tunisia. When is heritage rehabilitation in Algeria going to be seriously considered? Essential elements for heritage safeguard and rehabilitation pro-grams are there, but the human factor remains a missing piece.

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