Consiglio d’Ornato of Nice
Following the Napoleonic Wars, the Treaty of Paris in 1815 formalised the return of Nice to the House of Savoy, thus reintegrating the city into the Kingdom of Sardinia. After a short period of adjustment characterised by political and administrative reorganisation, the municipality decided to embark on an ambitious urban renewal project, recognising the town’s potential as a winter seaside resort and the need to improve the quality of the urban area. At the time, became aware of the need for comprehensive urban planning that would cover the entire city and be able to offer a coherent response to the boom in the construction of private homes. By the late 1820s, Nice embarked on a genuine phase of planning, with the development of an urban plan and the establishment of the Consiglio d’Ornato, or “Beautification Council”, a permanent commission tasked with overseeing the implementation of the plan and coordinating private construction activities. Under the guidance of the Consiglio d’Ornato, a new vision of Nice began to take shape, expanding and enhancing the city. Over the years, further master plans supplemented, extended, and modified the original plan of 1832: the port district plan was approved in 1842, the plan for the Saint-Jean-Baptiste suburb in 1844, and the final plan for the Croix-de-Marbre in 1858. Particular attention was paid to architectural cohesion and the quality of built spaces, with the imposition of an urban aesthetic that would help make Nice the capital of winter seaside resorts on the future Côte d’Azur.
An urban planning policy at the service of tourism development
In 1815, Nice was emerging from a period marked by almost continuous conflict. Its economy and trade, still unstable, were in decline, and the annexation of Genoa by the House of Savoy suddenly deprived Nice of its importance. Faced with competition from Genoa, which hampered its commercial ambitions, Nice began to embrace the emerging phenomenon of winter tourism, actively promoting itself as a destination for foreign upper classes, particularly the English, from the latter half of the 18th century. It was at this time that the city and its inhabitants realised the great economic potential of tourism for the development of Nice, a city largely forgotten on the outer edges of the state, practically inaccessible and seemingly devoid of any resources to capitalise on other than its mild climate and Mediterranean landscape.
Between 1820 and 1830, the municipal council of Nice undertook major public works, carried out mainly for the benefit of the city’s foreign residents. The creation of a public park on the hill of the old citadel, granted to the city under usufruct by King Charles Felix in 1822, was explicitly requested by the municipality with a view to improving the stay of the many foreign families spending the winter months in Nice. In 1823, a new bridge, Saint-Charles Bridge, over the Paillon River was inaugurated to connect the city to the suburbs favoured by winter residents, providing the affluent residents of the Croix-de-Marbre district with a more accessible and modern access. The ramparts on the river, which still bore disused remnants of Nice’s military past, were turned into a public promenade inspired by the quays of Paris and the lungarni of Florence and Pisa. As a result, a public promenade was set up that almost completely encircled the city. From Saint-Charles Bridge, it was now possible to walk along tree-lined boulevards to Place Victor, continue down the tree-lined Boulevard du Port (now Rue Ségurane), and continue along the renovated quays to Les Ponchettes. From there, it was possible to the Cours through the new Charles Felix gate, opened at the eastern end of Vieille Terrasse in 1826.
During the same period, the coastal promenade, already known as the “chemin des Anglais”, which would later become the famous Promenade des Anglais, was developed as a result of the initiative of the English colony residing in the Croix-de-Marbre district.
The first master plan and the creation of the Consiglio d’Ornato
Within a decade, the city had already committed to its transformation with the launch of several public works projects in strategic areas. It soon became apparent that a comprehensive project was required, that would cover the entire city and offer a long-term vision and regulations to guide and legally oversee private construction activities. Nice understood that its urban landscape, which made it so attractive to visitors from Northern Europe, was a valuable resource that should be protected from speculation and individualism. In the absence of an approved plan or stronger provisions, there was no legal or regulatory authority to limit private property rights. Furthermore, there was no local commission composed of technicians and experts who knew the area, its resources, and its shortcomings, that could implement coherent urban and architectural policies.
With this in mind, by the end of the 1820s, Nice embarked on a period of planning that led to the development of a master plan and a regulatory framework, as well as the establishment of a dedicated urban planning commission. The opportunity came in 1824 when the government of Turin urged provincial capitals to adopt a regulation plan and regulations.
On the day after the publication of the circular, the Council of Nice started surveying the project area, work which was carried out in two phases between 1826 and 1827. The resulting plans were then sent to the engineer Gerolamo Gnecco, the head of civil engineering in Nice, who submitted his proposal in May 1828. When the city council met to discuss the project, they deemed it academic and unsuitable for the area. An internal commission, appointed to assess the plan, tasked the municipal architect with creating a revised design, which became an alternative proposal. Subsequently, the municipal council approved a third version which was more understated and simplified. The new plan, signed by architect Giovanni Antonio Scoffier, received royal approval on 26 May 1832. [fig. 1]

1. The first regulation plan of Nice, 1832. [Archives Nice Côte d’Azur, 1 Fi 1/1].
An analysis of the plan reveals, above all, its great simplicity. It does not present extravagant projects but instead focuses on moderate operations aimed at perfecting the urban area. The main emphasis is placed on the layout of infrastructure to connect the city with the countryside and guide the future development of suburban areas. Next, a labor limae project was launched on the irregular layout of Old Nice, with targeted demolition work and the opening of new small roads to expand and realign the medieval fabric of the city.
In terms of expansion, only five new blocks were planned in the Saint-François-de-Paule district at the mouth of the River Paillon, along with some new constructions around the future Place Masséna and a few buildings between Place Victor and the port. The key element of the project was beautification, with a heavy focus on the development of green and public spaces, such as the “Place de l’Embourchure” public garden and the “Promenade des Terrasses”.
In addition to the plan, the letters patent of 1832 introduced a regulatory framework and established a new institutional entity. A Consiglio d’Ornato, a permanent commission tasked with overseeing the plan’s implementation, was created. This model was inspired by the already active commissions in Turin and Genoa, where a Conseil des Ediles and a Commission d’Ornato had been in place respectively 1822 and 1826. Chaired by the first consul of Nice, the commission included the district judge, the chief engineer of the province, the first riguardatore, two first- and second-class councillors, the municipal architect, and two other members chosen from among experts in fine arts.
The work of the Consiglio: thirty years of urban planning and architecture policies
The municipal administration, aware of the city treasury’s limited resources, quickly realised that the participation and consent of the landowning elite was essential to bring the projects to fruition. A significant part of the plan concerned private land, which owners were often reluctant to part with unless in exchange for compensation that was often beyond the financial capacity of the city’s budget. This was particularly the case in the suburbs, where a vast area was divided up between a small group of large landowners, granting them considerable negotiating power. To encourage the implementation of the plan, the city offered land, compensation, and tax exemptions to property owners wishing to comply. Furthermore, the administration launched the construction of a number of key projects that might act as catalyst to encourage property owners to build in accordance with the plan. These were strategic urban projects, such as the expansion of La Nouvelle Terrasse along the seafront [fig. 2], Place Charles Albert at the heart of the new residential district of Saint-François-de-Paule, Place Masséna, the focal point of Saint-Jean-Baptiste neighbourhood [fig. 3], Place du Jardin Public, the starting point for the Promenade des Anglais and the elite Croix-de-Marbre neighbourhood, as well as the church and esplanade of the port.

2. Variant of the regulation plan with the extension project for La Terrasse, 1834. [Archives Nice Côte d’Azur, 1 Fi 1/15].

3. Variant of the regulation plan to modify the shape of “Place du Faubourg” and position the Church of Vœu [Archives Nice Côte d’Azur, 1Fi 3/1]
However, economic and technical difficulties and disputes prolonged the works for decades, sometimes even after annexation. Despite the municipal council’s efforts, only the neighbourhoods around Place Charles-Albert were completed after the patents of 1832. Furthermore, in the already urbanised areas of the city, the shortage of building land increased the value of Old Nice which was already dense and unsanitary, leading to a huge increase in purchase and expropriation prices. This made it all the more difficult for the city’s finances to expropriate buildings for demolition and carry out the planned renovations and regularisation works planned in 1832.
Despite the financial and technical difficulties, these public works soon encouraged construction in the surrounding areas. Consequently, apartment buildings, villas, and hotels began to appear around the public garden, along Quai Saint-Jean-Baptiste between Place Masséna and the Church of Vœu, along the coastline of the Promenade des Anglais, and even within the port area. This urban expansion generated a need for new master plans to address residential needs and ensure that certain areas remained untouched territories. Thus, three new master plans were developed to complete the initial plan of 1832.
Firstly, a plan was developed to connect the city to the port, a project that had remained in draft form since 1832. In 1840, the municipal architect prepared a plan for four major roads running north to south through a district comprising large, enclosed blocks extending from the Villefranche road to the widened quays as far as the esplanade of the parish church. From this esplanade, a focal point of the district, the “new Rue du Port” (now Rue Cassini) led to Place Victor. The final plan was approved by royal patents on 25 October 1842 [fig. 4].

4. Port connection plan, 1842. [Archives Nice Côte d’Azur, 1 Fi 2/3].
In comparison to the 1832 plan, which prioritised leisure projects, the old town was now focused on encouraging the initiatives of private individuals. To encourage their efforts even further, the municipal council decided to remove the arcades originally intended to adorn Rue Cassini. Only the architectural façade of Place Cassini (now Île-de-Beauté) was designed by the Consiglio d’Ornato [fig. 5], while the rest of the neighbourhood was be developed following private interests in line with the established alignments.

5. G. Vernier, project for buildings to be constructed along the north side of Place du Port, next to the church, detail. [Archives Nice Côte d’Azur, O 4/10 fol. 95]
Alongside the port project, the Council focused on the urban development of the suburbs, where there was an increase in construction work as a result of their appeal for winter residents. The 1832 urban plan for Saint-Jean-Baptiste proved inadequate because it only made a few minor adjustments and limited infrastructural development. The focus of the neighbourhood was meant to be the semi-circular square in front of Saint-Charles Bridge, redesigned in 1835 to accommodate the Church of Vœu. However, difficulties encountered during construction work led to the monument being moved further north. As the new works on the new church progressed, the suburb called for a more structured urban plan.
In June 1840, the city commissioned a beautification plan for the area around the Church of Vœu, but the Consiglio d’Ornato decided to extend the project all the way to Place Masséna. Key elements of the plan included the construction of two new bridges over the River Paillon to connect the suburb with Place Victor and Place Saint-François, the creation of the new Place du Vœu, and, above all, the final architectural development of Place Masséna, leading to a monumental tree-lined boulevard. Moreover, between Boulevard Carabacel and Place Masséna, a grid perpendicular to the Quai Saint-Jean-Baptiste defined an initial line of building blocks and imposed an alignment for a second line extending into the countryside. The new plan was approved by King Charles-Albert on 4 April 1844. [fig. 6] In contrast to the port plan, which focused on residential needs, the Saint-Jean-Baptiste plan aimed to anticipate private construction and protect the area favoured by the winter elite from speculation. As a result, greater attention was paid to the uniformity of the architecture and the quality of urban space at this site. The Consiglio d’Ornato oversaw the architectural design of the façades of the buildings on Place Masséna, at the public garden, and along the quays leading to Place de Vœu (now called Saint-Jean-Baptiste) [fig. 7-8].

6. The plan of the Saint-Jean-Baptiste suburb, 1844. On the right, the new Church of Vœu (in black) and, on the left edge, Place Masséna. [Archives Nice Côte d’Azur, 1 Fi 3/4].

7. G. Vernier, Project for the façades of buildings along Quai de Saint-Jean-Baptiste between Place Masséna and the Maison Carlone, 1844. [Archives Nice Côte d’Azur, O 4/10 fol. 184]

8. The buildings that make up Place Masséna, s.d. [Archives Nice Côte d’Azur, O 4/13 fol. 162]
The final regulation plan and the dissolution of the Consiglio after annexation
In about 1850, the Consiglio d’Ornato of Nice took a major decision regarding urban planning by commissioning the Croix-de-Marbre plan and the final regulation plan for Nice This suburban area had been chosen by the very first English winter visitors in the second half of the 18th century, earning it the nickname of “Cité Anglaise” or Newborough. Although the district had been affected by real estate speculation very early on, it had not yet undergone any development projects. The 1832 plan included a designated area for a public garden and the extension of the coastal promenade, which had been established without planning in 1824. However, the extensions planned by the engineer Gnecco in 1828 were deemed unnecessary and were subsequently removed.
With the return of political and administrative stability after 1848, a new Consiglio d’Ornato took the initiative to plan the suburbs. In 1851, it tasked the architect Giuseppe Vernier with creating a supplementary plan to the 1844 one, stretching from Pont Neuf to the Magnan stream.
However, the municipality of Nice deemed the project too ambitious, costly, and restrictive, especially for the landowning elite. The plan was cut back to nearly half of its original extension, with the new limit set at the Merlanzone stream, with routes diverted to accommodate existing properties and buildings. Furthermore, references to the railway were also removed from the plan to avoid further opposition. Despite these changes, many objections were raised against the plan. Whenever possible, appeals were submitted, but most were unanimously rejected, a sign of cohesion and determination. The plan was finally passed the local assessment phase on 16 June 1855.
However, central government repeatedly hampered the project’s conclusion. In February 1856, the Permanent Congress deemed the plan disproportionate to the city’s needs. Nevertheless, Nice insisted on maintaining the project’s scale since it reflected its wish to preserve the quality of the urban space, characterised by a dispersed habitat where unoccupied spaces are just as important as built areas. Moreover, Nice wanted to promote an extremely modern concept: the regulation plan was not merely a project to be implemented within a given timeframe but rather a standard, a set of constraints to which every individual would be subject in the interest of the community.
Turin appears to have relented on 20 June 1858, when the final regulation plan for Nice was finally approved. [Fig. 9] However, the victory was bittersweet since, less than a month later, the Plombières agreements promised the transfer of Nice and Savoy to France, formalised by the April 1860 referendum.

9. The regulation plan for the Saint Jean Baptiste and Croix de Marbre suburbs, 1858 [Archives Nice Côte d’Azur, 1Fi 1/18 reproduction].
With the annexation to France, the concept of the Sardinian plans was retained but reduced to simple alignment plans. The Consiglio d’Ornato was dissolved and its functions were integrated into the municipal council. Different variants were approved to accommodate property owners, which explains the layout of many streets in the present-day town centre, which are sometimes out of line. During the Second Empire, a more permissive urban policy was implemented, granting great freedom to private property and real estate speculation for the urbanisation of the suburbs and hills of Nice. There were fewer urban planning documents after 1860, and plans for housing schemes financed by large real estate companies came to the fore. It was not until the Cornudet Plan in the late 1920s that a new comprehensive plan for the city of Nice emerged.
Despite the financial difficulties and obstacles encountered with the government and the landowning elite, the contributions of the Consiglio d’Ornato and the urban planning policies promoted by the Nice administration during the Restoration period remain fundamental. This period marked the development of the contemporary centre of Nice on an urban, economic, and sociocultural level. The Consiglio d’Ornato made a huge intellectual contribution throughout its existence. It proposed new regulatory plans, convinced the municipal administration and the Turin government of the need for them, and preserved the quality of the built environment by carefully assessing and refining architectural projects. It made a substantial contribution to shaping the urban development of Nice, creating a distinctive architectural heritage and urban landscape. During this period, a new urban vision was devised and developed, the beauty of which is still visible today.
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