CLISP - Climate Change Adaptation by Spatial Planning in the Alpine Space
Climate Change Fitness of Spatial Planning WP 5 Synthesis Report
Authors Marco Pütz (WSL) Sylvia Kruse (WSL) Esther Casanova (Esther Casanova Raumplanung) Melanie Butterling (ARE)
Date 17 August 2011
This project is co-funded by the European Territorial Cooperation "Alpine Space" Programme 2007-2013
Impressum
Authors Marco Pütz, Swiss Federal Research Institute WSL, Birmensdorf, Switzerland. Sylvia Kruse, Swiss Federal Research Institute WSL, Birmensdorf, Switzerland. Esther Casanova, Esther Casanova Raumplanung, Chur, Switzerland. Melanie Butterling, Federal Office for Spatial Development ARE, Bern, Switzerland.
Citation Pütz, M., Kruse, S., Casanova, E., Butterling, M. (2011): Climate Change Fitness of Spatial Planning. WP5 Synthesis Report. ETC Alpine Space Project CLISP.
Contact Melanie Butterling Federal Office for Spatial Development ARE CH-3003 Bern [email protected] +41 (0)31 3224064
Acknowledgements The authors would like to thank and acknowledge the support of the CLISP project partners, external observers and subcontractors in the production of the synthesis report.
TABLE OF CONTENTS
Inhalt
List of Tables ...... 3 List of Figures ...... 3 A Introduction to the CLISP Project ...... 4 B Executive Summary ...... 14 C WP5 Synthesis Report ...... 19 1 Introduction ...... 19 1.1 Objectives ...... 19 1.2 Methods and Work Package Design ...... 20 2 Spatial Planning Systems in the Alpine Space ...... 22 2.1 Goals and Methods ...... 22 2.2 Results ...... 22 2.2.1 Austria ...... 22 2.2.2 Germany ...... 26 2.2.3 Italy ...... 29 2.2.4 Liechtenstein ...... 33 2.2.5 Slovenia ...... 35 2.2.6 Switzerland ...... 38 2.3 Summary ...... 40 3 Climate Adaptation Capacities of Spatial Planning in the Alpine Space ...... 41 3.1 Goals and Methods ...... 41 3.2 General Strengths and Weaknesses of Spatial Planning Systems That Are Relevant to Climate Adaptation ...... 42 3.2.1 Austria ...... 42 3.2.2 Germany ...... 43 3.2.3 Italy ...... 44 3.2.4 Liechtenstein...... 44 3.2.5 Slovenia...... 44 3.2.6 Switzerland ...... 45 3.3 Transnational Results ...... 47 3.3.1 Political Framework ...... 47 3.3.2 Spatial Planning Legislation ...... 47 3.3.3 Spatial Planning Instruments ...... 48 3.3.4 Knowledge Base ...... 51 3.3.5 Cooperation, Participation and Coordination ...... 52 3.3.6 Financial and Human Resources ...... 52 3.3.7 Barriers ...... 53 3.4 Summary ...... 54
www.clisp.eu 1
4 Spatial Planning Instruments for Regional Adaptation to Climate Change ... 56 4.1 Goals and Methods ...... 56 4.2 Summary of Main Results ...... 58 4.2.1 Pinzgau-Pongau Model Region (Salzburg) ...... 58 4.2.2 Liezen Model Region (Steiermark) ...... 61 4.2.3 Upper Austria Model Region ...... 64 4.2.4 Berchtesgadener Land and Miesbach Model Region (Bavaria) ...... 67 4.2.5 Alessandria Model Region ...... 70 4.2.6 Bozen Model Region (South Tyrol) ...... 72 4.2.7 Liechtenstein Model Region ...... 74 4.2.8 Gorenjska Model Region (Slovenia) ...... 76 4.2.9 Grisons Model Region ...... 78 4.3 Summary ...... 80 5 Enhancement Options ...... 82 5.1 Rethink the Political and Legal Framework ...... 82 5.2 Focus Spatial Planning Policies and Instruments ...... 82 5.3 Improve the Knowledge Base ...... 83 5.4 Cooperate, Participate and Engage ...... 84 5.5 Provide Financial and Human Resources ...... 84 5.6 Raise Awareness and Sensitize Stakeholders ...... 84 6 Conclusions ...... 86 6.1 Lessons Learned ...... 86 6.2 Future Research ...... 87 7 Outcome ...... 89 7.1 Assessing the Climate Change Fitness of Spatial Planning: A Guidance for Planners ... 89 7.1.1 Assessment Concept ...... 89 7.1.2 Climate Change Fitness Assessment: A 4-step Guidance...... 90 7.1.3 Next Steps: Implementation, Monitoring and Evaluation ...... 94 7.1.4 CLISP Climate Change Fitness Checklist ...... 95 7.2 Evaluation Criteria ...... 99 7.3 Compilation of Good Practice Examples of Climate-Proof Planning ...... 101 7.3.1 Criteria for the Compilation of Good Practice Examples from Model Regions .. 101 7.3.2 Pinzgau-Pongau ...... 101 7.3.3 Upper Austria ...... 102 7.3.4 Steiermark ...... 102 7.3.5 Bavaria ...... 103 7.3.6 South Tyrol ...... 104 7.3.7 Alessandria ...... 105 7.3.8 Liechtenstein...... 106 7.3.9 Grisons ...... 107 7.3.10 Summary ...... 108 8 Bibliography ...... 110 D Annex ...... 112 Glossary…………………………………………………………………………………………………………………..112
Executive Summaries of Model Region Reports on Regional Adaptation to Climate Change……………………………………………………………………………………………………………………114
www.clisp.eu 2
List of Tables
Table 1: Spatial planning system Austria – overview ...... 23 Table 2: Sectoral planning with relevance to climate adaptation in Austria ...... 25 Table 3: Spatial planning system Germany – overview ...... 26 Table 4: Sectoral planning with relevance to climate adaptation in Germany ...... 28 Table 5: Spatial planning system Italy – overview ...... 29 Table 6: Sectoral planning with relevance to climate adaptation in South Tyrol, Italy ...... 31 Table 7: Sectoral planning with relevance to climate adaptation in Alessandria, Italy ...... 32 Table 8: Spatial planning system Liechtenstein – overview ...... 33 Table 9: Sectoral planning with relevance to climate adaptation in Liechtenstein ...... 34 Table 10: Spatial planning system Slovenia – overview ...... 35 Table 11: Sectoral planning with relevance to climate adaptation in Slovenia ...... 36 Table 12: Spatial planning system Switzerland – overview ...... 38 Table 13: Sectoral planning with relevance to climate adaptation in Switzerland ...... 39 Table 14: Key instrument for climate adaptation ...... 49
List of Figures
Figure 1: Work Package 5 design ...... 21
www.clisp.eu 3
A Introduction to the CLISP Project
CLISP is a transnational European project funded by the Alpine Space Programme under the European Territorial Cooperation 2007-2013. From September 2008 until September 2011 14 Project Partners from six different Alpine countries are tackling the challenges spatial development and spatial planning are facing due to climate change.
Background Climate change will affect spatial development, including land use, socio-economic activities and life sustaining ecosystem services in the Alpine Space more severely than in other European regions. Climatic changes such as temperature increase, changes in amount, distribution and intensity of precipitation and an increase of extreme weather events are expected to cause a variety of adverse impacts relevant to spatial development. Growing risks from water scarcity, heat waves and natural hazards such as floods, landslides, forest fires etc. will threaten settlements, physical infrastructure, utilities, material assets and human life. As a consequence, future development options may be confined and new spatial conflicts, e.g. between risk prevention and land use interests, may emerge. Since the built environment is highly persistent, planning decisions taken today strongly determine the vulnerability of the Alpine Space in the future. Without preventive and anticipatory action on adaptation, climate change will have potentially severe effects on socio-economic development, growth potentials, welfare of regions and human wellbeing. In many cases, pressures by climate change are exacerbated by other ongoing environmental change and socio-economic development trends. For example, availability of space suitable for settlement activities in many Alpine regions is limited by nature, and land use demands for development in terms of housing, working, tourism, business and transport are constantly increasing. At the same time, hazard zones are expanding due to climate change, additional space for hazard protection measures is needed, and open space should be preserved for nature protection and to maintain flexibility for future adaptation options. As a result, land for further development is becoming a scarce resource in many Alpine regions, which may lock out both future development and adaptation options. This calls for new spatial planning strategies that explicitly take account of climate change. Although the Alpine Space is exposed to largely comparable changes in climatic stimuli, the consequences on spatial development will be different between regions, depending on specific climate sensitivities, vulnerabilities and adaptive capacities. Thus, the effects of climate change are distributed asymmetrically across the Alps. Without tailored action on adaptation, interregional disparities in development and growth potentials are likely to grow. Adapting spatial development to climate change is needed to counteract threats to territorial cohesion. Inaction will increase the vulnerability of Alpine regions and municipalities, and therewith lead to further damages and costs. Both the White Paper on Adaptation to Climate Change of the European Commission and the Territorial Agenda of the EU 2020 emphasize the key role of spatial planning in delivering and supporting adaptation to climate change. But is spatial planning prepared to fulfill that vital task assigned by society? Are the spatial planning systems in the Alpine countries fit to cope with the challenges of climate change? CLISP is anchored in the belief that spatial planning has large steering capacity in containing vulnerability and increasing resilience of spatial development. However, the knowledge, procedures and tools required for fulfilling this key role in adaptation have still been widely lacking. CLISP tackles for the first time the challenges of climate change to spatial planning in a transnational effort within the Alpine Space. Since climate change adaptation, including an integrated approach to adaptation and mitigation issues is a new field of action for spatial planning policy and administration, CLISP is to be regarded as a strategic pilot project.
www.clisp.eu 4
Objectives Building on results of former projects, in particular the Alpine Space Interreg IIIB project ClimChAlp – Climate Change Impacts and Adaptation Strategies in the Alpine Space (WP 7), the CLISP project aimed at preventing, reducing and mitigating climate-change related spatial conflicts, vulnerability of spatial development and spatial structures to adverse climate change impacts, and consequential damages and costs. The overarching project objective is to contribute to sustainable, climate-proof spatial planning and territorial development in the Alpine Space by pursuing the following main goals:
Developing a transnational strategy for climate proof, sustainable and resilient spatial development and an action guide for implementing it on national and regional levels. Developing and applying a transferable concept and methodologies of regional spatial vulnerability assessment and assessing vulnerabilities in Model Regions. Evaluating the “climate change fitness” of spatial planning systems (legal and institutional framework, instruments, procedures) and identifying strengths, weaknesses, good practice examples, and enhancement options to improve the adaptation performance of spatial planning. Promoting risk governance approaches to the management of climate-related risks and conducting and learning from risk communication activities in Model Regions. Initiating a transnational expert network on spatial planning and climate change and involving that network in project activities. Raising awareness of policy- and decision-makers, planning authorities, stakeholders and the public for climate-related risks and the need for adaptation, stimulating implementation processes and transferring results and experiences to the entire Alpine Space and to other regions.
The CLISP Partnership The following Project Partners and their external expert teams have collaborated in the CLISP project:
Partner Institution – in native Partner Institution – in English Acronym Country Role language language UBA / EAA Umweltbundesamt GmbH Environment Agency Austria AT LP Bundesministerium für Land- und Federal Ministry of Agriculture, WP 6 BMLFUW Forstwirtschaft, Umwelt und Forestry, Environment and Water AT Responsi Wasserwirtschaft, Sektion Forst Management, Forest Department ble Amt der Salzburger Regional Government of Salzburg Landesregierung, Abteilung Salzburg, Department of Spatial AT Raumplanung Planning Amt der Steiermärkischen Office of the State Government WP 7 Landesregierung, Abteilung 16 - of Styria, Department 16 - State Steiermark AT Responsi Landes- und Planning and Regional ble Gemeindeentwicklung Development Amt der Oberösterreichischen Office of the Government of Ober- Landesregierung, Abteilung Upper Austria; Department of AT österreich Raumordnung Spatial Planning Bavarian Ministry of Economic Bayerisches Staatsministerium für Affairs, Infrastructure, Transport Wirtschaft, Infrastruktur, Verkehr STMWIVT and Technology, Department for GE und Technologie, Abtl. 5 Regional Planning and Raumplanung und Fachplanung II Development
www.clisp.eu 5
Partner Institution – in native Partner Institution – in English Acronym Country Role language language Italian Ministry for the WP 3 Ministero dell'Ambiente e della MATT Environment, the Land and the IT Responsi Tutela del Territorio e del Mare Sea ble WP 4 EURAC Accademia Europea di Bolzano European Academy of Bolzano IT Responsi ble Alessandria Provincia di Alessandria Province of Alessandria IT Urbanistični Inštitut Republike Urban Planning Institute of the UIRS SLOW Slovenije Republic of Slovenia United Nations Environment United Nations Environment UNEP Programme, Interim Secretariat Programme, Interim Secretariat AT of the Carpathian Convention of the Carpathian Convention Bundesamt für Raumentwicklung, Swiss Federal Office for Spatial ARE Sektion Ländliche Räume und Development, Strategy Group CH Landschaft Politics of Rural Areas Grau- Graubünden, Amt für Grisons, Office for Spatial CH bünden Raumentwicklung Development Principality of Liechtenstein, Fürstentum Liechtenstein, Liechten- Ministriy of Environmental Office, Ressort Umwelt, Raum, Land- FL stein Land Use Planning, Agriculture und Waldwirtschaft and Forestry
Project design In accordance with the above mentioned objectives, CLISP is divided into four, closely interlinked thematic Work Packages:
WP4 – VULNERABILITY ASSESSMENT WP5 – CLIMATE CHANGE FITNESS OF SPATIAL PLANNING WP6 – RISK COMMUNICATION AND GOVERNANCE WP7 – CLIMATE PROOF SPATIAL PLANNING
The common scope of all Work Packages are the sectors and systems of spatial development within regions that are vulnerable to climate change and that are, in principle, subject to the steering capacity of spatial planning and spatial risk management.
www.clisp.eu 6
Project activities of all Work Packages have been carried out on two levels: the transnational level and the Model Region level. Based on common concepts, methods, and guidance developed on the transnational level, project activities have been tailored to the specific requirements and priorities of each Model Region on Partner level. Embedded in a comparable work programme, in-depth investigations and stakeholder interactions with different thematic priorities according to Model region needs have been carried out by Partners in each Model Region. The results of the Model Region work have then been evaluated, synthesized and prepared for further transfer to other regions by the Work Package Responsibles on the transnational project level.
www.clisp.eu 7
CLISP core activities have been implemented and core outputs generated in each of the following 10 Model Regions (mostly NUTS-3 scale) within the Alpine Space.
Model Region Partner in charge Office of the Government of Upper Austria, Department of Oberösterreich Spatial Planning Office of the State Government of Styria, Department 16 – State AT Liezen Planning and Regional Development Regional Government of Salzburg, Department of Spatial Pinzgau-Pongau Planning Bavarian Ministry of Economic Affairs, Infrastructure, Transport Berchtesgadener Land and Technology, Department for Regional Planning and Development DE Bavarian Ministry of Economic Affairs, Infrastructure, Transport Miesbach and Technology, Department for Regional Planning and Development SLO Gorenjska Urban Planning Institute of the Republic of Slovenia (UIRS) Provincia Autonoma di Bolzano-Alto Adige European Academy of Bolzano (EURAC)
IT Communità Monte Suol D’Aleramo and Communità Montana Alta Val lemme e Province of Alessandria alto Ovadese CH Graubünden Grisons, Office for Spatial Development Principality of Liechtenstein, Ministry of Environmental Affairs, LI Liechtenstein Land Use Planning, Agriculture and Forestry
The following map shows the location of the CLISP Model Regions within the Alpine Space programme area.
www.clisp.eu 8
WP4 – VULNERABILITY ASSESSMENT The main goal of WP4 was to develop a transferable concept, methodology and procedure of regional spatial vulnerability assessment to climate change and to assist the project’s Model Regions in the set up of a vulnerability self-assessment. In particular, the exposure to climate change (climate scenarios), the sensitivity to climatic changes, and the potential impacts of climate change were identified and characterized as far as possible, using qualitative information as well as quantitative indicators. Besides potential impacts, for each Model Region an assessment was conducted about the capacity to adapt to climate change. By combining expected potential impacts and adaptive capacity, the main points of vulnerability in each Model Region to climate change were identified. Across all Model Regions, impacts and effects of climate change on the following sectors/systems of concern to spatial development have been investigated within the vulnerability assessment, with the thematic foci in each Model Region being to some extent different and depending on the adaptation needs and priorities determined by Model Region stakeholders:
Sectors/Systems Climate change impacts (examples)
Natural hazards (mass movement, floods), melting permafrost, glacier retreat, Build-up areas bio-climate and living quality in urban areas, change of snow cover etc.
Electricity production problems due to water deficiency, glacier retreat and Energy higher sediment load after intense rain fall etc.
Impacts on functionality and stability of protection forests, landslides, soil Forestry erosion, avalanches, forest fires, rise in forest line etc.
Reduction of crop productivity, effects on livestock, loss in agricultural Agriculture productivity, soil erosion etc.
Water scarcity and supply, impact on downstream areas, change in traditional Water management water management approaches etc.
Snow reliability, winter season shortening, increased exposure of tourism Tourism infrastructure to natural hazards, economic viability of winter tourism etc.
Summary of the WP4 working flow
Developing concepts & methods for Assessing vulnerabilities vulnerability assessment Implementing potential impact Model region setting assessment Synthesis & reporting (sectors/systems of concern, Implementing adaptive WP4 synthesis report impact types) capacity and vulnerability WP4 sections in model region Definitions, conceptual assessment reports framework Producing assessment results Methodology & toolbox for (reports, profiles, maps) vulnerability assessment
www.clisp.eu 9
Main outputs WP4 Synthesis Report – incorporating: Vulnerability Assessment Framework (vulnerability concept, process design) Climate Change Impact Chains Climate Change Projections for the Alps Manual for Climate Change Impact Assessment in CLISP Model Regions PART 1 – Guidelines for the Model Regions PART 2 – Toolbox for quantitative assessment Adaptive Capacity Indicator System WP4 sections of Model Region Reports – incorporating: Climate Change Projections for Model Regions Model Region Results of Vulnerability Assessment
WP5 – CLIMATE CHANGE FITNESS OF SPATIAL PLANNING Within WP5 the “climate change fitness” of spatial planning systems was investigated by firstly, evaluating legal and institutional frameworks, secondly, identifying strengths and weaknesses, potentials and constraints of spatial planning instruments and procedures regarding climate adaptation, and thirdly, elaborating enhancement options to improve adaptation capacities of spatial planning. Further goals were to compile good practice examples of climate-proof planning activities, to elaborate generally applicable evaluation criteria for climate change fitness and to develop a transferable tool for spatial planners to support climate adaptation.
Summary of the WP5 working flow
Synthesis & reporting: Implementing general Preparatory work In-depth evaluation in Recommendations review & providing Literature review model regions Climate change transnational Transnational analysis Analysing strengths fitness guidance for of planning systems synthesis planners Preparing concept for and weaknesses International expert Compilation of good in-depth evaluation of Identifying good workshop practice examples practice examples spatial planning WP5 synthesis report Preparing concept for Developing instruments in model general review enhancement options WP5 section of model regions region reports
Main outputs Assessing the Climate Change Fitness of Spatial Planning: A Guidance for Planners – incorporating: CLISP Climate Change Fitness Check List CLISP Evaluation Criteria for Climate Change Fitness WP5 Synthesis Report – incorporating: Transnational Analysis of Spatial Planning Systems and Legal Frameworks General Review of Spatial Planning Systems concerning capacities for adaptation to climate change Transnational Summary of In-depth Evaluation in Model Regions Transnational Enhancement Options for Spatial Planning Systems Good Practice Examples of Climate Proof Planning WP5 sections of Model Region Reports - incorporating: Results of In-depth Evaluation of Spatial Planning Instruments and Procedures in Model Regions Enhancement Options for Spatial Planning Systems in Model Regions
www.clisp.eu 10
WP6 – RISK COMMUNICATION AND RISK GOVERNANCE The main objectives of WP6 were to promote risk governance approaches to the management of climate related risks in spatial planning and to conduct stakeholder dialogue and risk communication activities. Existing risk management systems and the role of spatial planning in the management of climate-induced spatially relevant risks have been analyzed in the Model Regions. Experiences made and lessons learnt from stakeholder interactions have been evaluated in order to learn for future climate-related risk governance processes. WP6 also aimed at exploring opportunities of employing risk governance principles in planning procedures and contributing to increased consideration of climate change issues in spatial planning.
Summary of the WP6 working flow
Conceptual framework Implementing Synthesis & reporting: Preparing the for WP6 activities stakeholder dialogue Guidance Paper for Introducing risk stakeholder process in Risk Governance in the model regions Stakeholder governance to CLISP interactions on WP4- Spatial Planning Questionnaire on risk Framework concept WP7 contents Communication tools for stakeholder governance WP6 synthesis report Evaluation of dialogue Process design WP6 section of model stakeholder process Evaluation concept region reports for stakeholder Analyzing & dialogue promoting risk governance
Main outputs Guidance Paper for Risk Governance in Spatial Planning - incorporating: Introduction to state-of-the-art of Risk Governance Concepts and Approaches Recommenations on the Role of Spatial Planning in Climate Change Risk Governance Guidance for Risk Communication and Stakeholder Involvement
CCmountain Fitness Guidance Tool WP6 Synthesis Report - incorporating: Transnational Analysis of Climate Change Risk Governance and Spatial Planning Summary of Risk Communication Activities in Model Regions Test Report and Advancement of Communication and Decision Support (CDT) Tool Lessons learnt from Stakeholder Interactions WP6 section for Model Region Reports - incorporating: Risk Communication Activities and Stakeholder Processes in Model Regions
www.clisp.eu 11
WP7 – CLIMATE PROOF SPATIAL PLANNING The focus of WP7 was to develop a new transnational strategy for climate poof spatial planning in the Alpine Space. The strategy paper includes an action guide on how to implement the recommendations and options for action on the national and regional levels as well as a compilation of instructive practice examples from the Alps. The development of the strategy built on the outcomes of the CLISP Work Packages 4 – 6 was embedded in an intense collaboration process among the entire Partnership. In order to build on a broad pool of expertise and experience that is available among spatial planning and adaptation experts in the Alpine space, a transnational expert network on climate change and spatial planning was established and has provided valuable inputs to the elaboration of the strategy.
Summary of the WP7 working flow
Laying the ground: Consolidating and launching the Process-based development: Strategy: CLISP results from WPs and Determining structure model regions Defining fields of action Transnational Strategy for Policy review Developing measures Climate Proof Spatial Planning Literature review Project meetings, workshops Project review Review of drafts Consulting external experts Consultations with partners
Main outputs Transnational Strategy for Climate Proof Spatial Planning - incorporating: Mission Statement and Policy Background General Guiding Principles General and Specific Fields of Action Sets of Objectives Options for Action / Recommended Measures Guidance for Implementing the Strategy on National and Regional Levels Practice Examples WP7 section for Model Region Reports - incorporating: Outlook on follow-up implementation processes
www.clisp.eu 12
Overview of CLISP Main Deliverables The following table provides a quick overview of the main reports that have been produced by the CLISP project. Each deliverable gathers and presents the main outputs produced within each Work Package. All results are available on the CLISP project website (www.clisp.eu). In addition, the Final Results Booklet is also available in print.
Reports, Deliverables WP Transnational project level Model Region Level
Final Results Booklet (printed) WP3 Final Project Conference
WP4 WP4 Synthesis Report Model Region Reports – WP4 results
WP5 Synthesis Report Model Region Reports – WP5 results
WP5 Assessing the Climate Change Fitness of Spatial Planning: A Guidance for Planners (in four languages)
WP6 Synthesis Report Model Region Reports – WP6 results WP6 Guidance for Risk Governance in Spatial Planning
WP7 Transnational Strategy for Climate Proof Spatial Planning in the Alpine Space
The report at hand provides the transnational synthesis of the results of Work Package 5.
www.clisp.eu 13
B Executive Summary
Climate change and its related impacts are heavily affecting land use and land use development. In its Green Paper entitled "Adaptation to Climate Change in Europe - Options for EU Action", the European Commission points out the potential of spatial planning to define cost-effective measures to adapt to the impacts of climate change (EC 2007). Furthermore, it emphasises the “key role *of spatial planning] for awareness-raising among the public, decision-makers and professionals as well as for triggering a more proactive approach at all levels”. Spatial planning should contribute actively to dealing with climate change impacts, because the importance of cross-sectoral coordination and multilevel governance is growing as challenges become increasingly complex.
In Work Package 5, the CLISP project deals with “spatial planning fitness” to adapt to climate change. We address the following research questions: Are spatial planning systems in the Alpine countries fit to adapt to climate change? What are the strengths and weaknesses of spatial planning in the face of climate change? How can we adapt better to climate change impacts and risks? How can we improve our existing instruments? To answer these questions, CLISP Work Package 5 investigated the “climate change fitness” of spatial planning systems by (a) evaluating legal and institutional frameworks, (b) identifying the strengths and weaknesses, potentials and constraints of spatial planning instruments and procedures with regard to adaptation to climate change, (c) drawing up enhancement options to improve adaptation capacities in spatial planning. Further goals were to compile examples of good practice in climate-proof planning activities, to elaborate evaluation criteria for climate change fitness, and to develop tools to support climate adaptation. The outcomes are intended to assist stakeholders at national and regional level to assess the climate change fitness of their spatial planning instruments, and to draft adaptation strategies and measures. In order to fulfil the goals and provide the outcomes of CLISP Work Package 5 we draw on three different evaluation steps.
The first evaluation step, the transnational analysis of spatial planning systems in the Alpine Space, gives an overview of the general architecture of the spatial planning system, and identifies both common aspects and differences between the spatial planning systems of the different Alpine countries (chapter 2). The analysis shows that there are similarities and differences depending on the size, the administrative structure and traditions of the country. The spatial planning systems of the German-speaking, federal countries such as Austria, Germany and Switzerland show similar structures, instruments and practices. The smaller countries of Slovenia and Liechtenstein have a two- tier planning system. Italy has a slightly different system, with the CLISP partners South Tyrol and Alessandria being characterised by specific particularities. In Slovenia, Liechtenstein, Germany and Switzerland there are certain legislative power and/or coordination functions and spatial planning instruments at the national level. By contrast, the role of the national state is not so important in Italy and Austria. In Italy, the provinces (i.e. the regional level) have more autonomy than in the other countries, and in Austria spatial planning falls entirely within the authority of the individual federal states, with regard to both legislation and execution. Also, the binding nature of the various spatial planning instruments differs from country to country. The planning horizon is between 10-15 years in all Alpine countries, however. The second evaluation step, the review of the adaptive capacities of spatial planning in Alpine countries, shows strengths and weaknesses as well as potentials and gaps which may offer starting points for enhancing spatial planning systems (chapter 3). The review focuses on the political framework, spatial planning legislation, spatial planning instruments, knowledge requirements, cooperation and participation, as well as financial and human resources for spatial planning. Mainstreaming climate adaptation within spatial planning policy, legislation and practice can be seen as a starting point for the forceful implementation of consistent adaptation activities at the instrumental level. Within the political framework recent changes – especially at the supra-national and national levels – foster climate adaptation where they include climate adaptation explicitly in national climate action plans. In spite of several political initiatives at European level, nationally (and in some areas also at the regional and sub-regional levels), one of the main barriers is seen as the lack of European Union or national policy targets, as well as the lack of political will to adjust the planning system. Where the legal and instrumental framework is concerned, project partners and model www.clisp.eu 14
regions identified a large number of instruments with potential relevance to climate adaptation. Nevertheless, up to now only very few regulations and instruments have focused directly on climate adaptation, or include adaptation as a planning objective. This can be seen as one of the main constraints, as most partners consider it to be highly relevant to adaptation to climate change that impacts are mentioned explicitly as a planning objective in legislation and instruments. The fact that many legal regulations and instruments are not fully binding can be seen as a weakness – especially with regard to the implementation of adaptation activities. Also, the awareness among planning actors of adaptation needs, and their willingness to coordinate and realise adaptation measures in cooperation between spatial planning and sectoral planning, as well as with other non-planning stakeholders, are important capacities for climate adaptation. The high potential of spatial planning systems in the Alpine countries is seen in the broad range of informal planning practices which are not yet utilised to the full. The successful implementation of adaptation activities requires considerable information and knowledge, as well as human and financial resources. Yet realizing adaptation measures within the scope of spatial planning demands more than just knowledge and resources, many believe. Professional training and further research and development are also required.
In the third evaluation step, the in-depth evaluation of climate adaptation capacities, nine CLISP Model Regions evaluated selected spatial planning instruments and procedures (chapter 4) using a common set of evaluation criteria (priorities for climate adaptation; problem awareness, political will; relevance of instruments and procedures to adaptation requirements; flexibility/stability, binding nature; coherence, synergies, conflicts; effectiveness, efficiency, feasibility; and collaboration with sectoral planning, participation, and stakeholder consultation, cf. chapter 7.2). The results of the evaluation at model region level give a more detailed picture of the general strengths and weaknesses of spatial planning systems that were identified in the previous evaluation steps. In all model regions, the evaluation shows that explicitly including climate adaptation in the objectives and principles of spatial planning instruments would give adaptation activities a higher priority and create additional justification for implementation at regional and local level. This would help to mobilise the potential which the spatial planning experts and practitioners involved generally see in existing spatial planning instruments and procedures. In-depth analyses in the model regions show that the problem awareness and political will of local and regional stakeholders concerning climate adaptation requirements, and the potential contribution of spatial planning, differs between the regions. Some model regions state that some awareness exists among politicians and the administration. Other model regions criticise a low level of awareness among stakeholders and the general public, as well as within the spatial planning administration. Some model regions observed that, although there is some awareness of adaptation needs, local planners and politicians are not courageous enough to implement adaptation activities, which would lead to self-imposed restrictions on urban development, or conflicts with other local interests. Concerning the relevance of spatial planning instruments and procedures to specific regional adaptation requirements, the in-depth analyses show that some expected climate change effects, especially natural hazard protection and flood management, are already well addressed and integrated in to spatial planning instruments. Nevertheless, only few instruments consider climate change scenarios in their projections of protection objectives. Concerning the flexibility and stability of spatial planning instruments, some model regions see major weaknesses in the rather static character of spatial planning instruments, which cannot easily be adjusted to the adaptation requirements of a region. Future revisions of plans and programmes therefore offer a window of opportunity to enhance options for climate adaptation. Another deficit is identified with regard to the binding nature of planning policies or programmes when they are implemented at the local level. Some model regions point out that national-level strategic instruments might consider adaptation requirements sufficiently but, since they have little, if any, binding force, they are not implemented adequately at the local level. Therefore, municipalities in particular do not exploit the available potential owing to high political pressure and their day-to- day routines. Concerning the coherence, synergies and conflicts of spatial planning and sectoral planning, some model regions conclude that, even where there are individual activities which contribute to the climate change fitness of spatial planning, they are not embedded in a coherent multi-level spatial strategy on climate adaptation. Conflicts arise in particular with regard to collaboration between planning actors across spatial planning at the national, regional and local
www.clisp.eu 15
levels. Forward-looking planning is sometimes lacking at the local level. Some model regions therefore address the advantages of a top-down approach, and argue in favour of harmonised and coherent measures and regulations at the regional and local level. Where the effectiveness, efficiency and feasibility of spatial planning instruments in general is concerned, the in-depth analyses in the model regions show a mixed picture. Some model regions consider the existing spatial planning instruments as an effective – or at least sufficient – framework for coping with climate change challenges. Other model regions, meanwhile, consider the existing spatial planning instruments as insufficient. Furthermore, the analyses show that collaboration with sectoral planning, participation and stakeholder consultation is particular important in the field of natural hazard management and water management, as these fields are expected to be influenced by climate change in many regions. Existing synergies between spatial planning and water management in the field of climate adaptation need to be strengthened. A set of enhancement options for climate-proof spatial planning can be drawn from the three evaluation steps (chapter 5). The enhancement options are intended to strengthen adaptive capacities and improve the climate change fitness of spatial planning in the Alpine space. The enhancement options for climate-proof planning which derive from the three-step evaluation address six issues: Rethinking the political and legal framework Spatial planning should be addressed explicitly as a separate field of action within national and (future) regional adaptation strategies; this includes coordination with relevant sector planning activities. Climate adaptation needs to be addressed explicitly in spatial planning laws, policies, instruments and procedures. Further revisions of planning laws, policies and instruments that are already in preparation or scheduled in the near future should take the opportunity to integrate climate change mitigation and adaptation issues in to objectives and principles. Climate change issues must be given a higher priority, and should be explicitly interlinked with other planning objectives (e.g. natural hazard protection, reducing land consumption, energy efficiency). Focusing spatial planning policies and instruments To enhance the climate change fitness of spatial planning, a climate fitness check should be implemented into planning procedures as standard for planning measures and projects. Assessments should be made both of the impact of projects and plans on the climate, and the possible impact of a changing climate on the projects and plans. Strategic environmental assessments and sustainability appraisals should be used as instruments to climate-proof spatial planning policies and programmes if climate change-related indicators are incorporated in to the assessment of policies and plans. Strategic spatial planning instruments facilitate and coordinate climate adaptation at the regional level and should be more binding on municipalities in future. The preservation of open spaces, the planning of new green spaces or the recycling of wastelands and brownfield sites are important measures to support air circulation for cooling, to establish habitat networks, ecological corridors, landscaped parks in urban areas, and to reduce the impact of heat. Facilitating new green building technologies, improving infrastructures to handle extraordinary rainfall, enabling the conversion of the built environment and green architecture, as well as more compact urban design, will make urban planning more climate-proof. Integrating climate change scenarios in to hazard zone mapping would reinforce existing instruments. By integrating scenarios for the climate, settlement and socioeconomic development, hazard zoning could serve as key instrument in climate-proof planning.
www.clisp.eu 16
Spatial planning must join forces with other water management stakeholders. Spatial planning must contribute to river basin management in order to protect and clean water, and to ensure sustainable water use.
Improving the knowledge base Major efforts should be made to give regional and local planning authorities and other stakeholders access to all existing climate information, as well as to provide monitoring and to collect climate-related data. The availability of hazard zone maps and access to other tailor- made information which has already integrated climate change data are essential to climate adaptation at the municipal level. Specific climate change-related indicators should be developed on basis of the existing data with a view to establishing a spatial monitoring system. This would include data management and feedback, process control, and environmental monitoring. Regional planning associations or other planning bodies might be transformed into “regional data hubs” that compile and provide information to spatial planning decision-makers and stakeholders. The uncertainty factors attached to the climate-related indicators and the climate change scenarios and impact assessments should be made transparent. The most vulnerable areas should be identified using both local knowledge and scientific information. Knowledge transfer on climate change impacts and adequate adaptation options at regional and local level should be stepped up. Regions and municipalities need administrative and technical support to implement climate- proof instruments and policies. A compilation of data, standards, checklists and handbooks, as well as good practice examples, must be made available for implementation at municipal level. Cooperation, participation and engagement To adapt effectively to climate change, spatial planning must improve collaboration with different sectors (e.g. water management, hazard management), vertical/horizontal collaboration between various levels of government, and the involvement of stakeholders, the scientific community and the general public. Good experience has been gained with mixed working groups and dialogue forums that facilitate the management of conflicts and tensions that may arise between residents, municipal actors and spatial planning administrations facing climate change. Providing financial and human resources Adaptation to climate change requires financial and human resources, as well as advanced professional training to implement climate adaptation activities at regional and local level. Cost/benefit analyses should be undertaken to prioritise the individual adaptation activities. Comprehensive guidelines, handbooks, standards and checklists must be developed and provided to local stakeholders to support implementation at regional and local levels. Raising awareness and sensitizing stakeholders Climate change awareness is considered one of the most relevant requirements to realise adaptation options within the scope of spatial planning. The regions, in particular, seem to be crucial, so awareness of climate change needs to be fostered at this level. A broad range of decision-makers – at all administrative and spatial levels (national, regional, local) – must be mobilised to act in concert to avoid the goals of climate adaptation being undermined by other spatial planning objectives (e.g. economic growth). Pilot projects, informal planning practices and good practice examples have considerable potential to enhance climate change awareness, as well as the political will of decision-makers and politicians. www.clisp.eu 17
Regional adaptation strategies should be drawn up in cooperation with the scientific community and with considerable involvement from the public, to enhance awareness and gain the necessary degree of legitimacy to implement adaptation activities.
The three main outcomes of the CLISP Work Package 5 are Guidance for planners to assess the climate change fitness of spatial planning (chapter 7.1); A set of operational evaluation criteria for assessing the climate change fitness of spatial planning instruments and procedures at national and regional levels (chapter 7.2); and A compilation of good practice examples of climate-proof spatial planning activities in the Alpine regions (chapter 7.3). The good practice examples mostly deal with built-up areas, natural hazard management and water management. The examples show that, although they do not focus on climate adaptation, measures exist which very effectively contribute to climate-proof planning, or at least offer the potential to do so.
To sum up the lessons learned (chapter 6), the CLISP project showed that spatial planning already has strong formal planning instruments and important informal planning practices at hand that could be used to respond to climate change and to coordinate cross-sectoral adaptation activities. Some instruments already include measures that may contribute to adaptation. Nevertheless, those measures are mainly motivated by other challenges such as natural hazard management, settlement planning, or energy saving, and address climate adaptation only indirectly. Owing to the cross-sectoral nature of spatial planning, its coordination role is becoming more and more important – especially where integrative, cross-sectoral concepts are needed. The complex topic of climate adaptation cannot, however, be handled without strong vertical and horizontal cooperation between different sectors. Climate adaptation and mitigation issues should be considered together to recognise and address conflicts at an early stage. The lack of climate impact assessments and climate scenarios at the regional and local levels is often mentioned as a barrier to the implementation of climate adaptation measures. When starting the adaptation process, it is important to involve politicians, decision-makers and the public from the beginning, and to discuss uncertainties openly. Although spatial planning instruments and policies differ slightly between Alpine countries, and vary in their binding force, the challenges that must be tackled are similar, e.g. preventing natural hazards, preserving open, green and blue spaces, improving urban design and infrastructure, the management of water resources, balancing different land use interests and improving quality of life. These issues seem particularly suitable vehicles by which to improve the robustness and resilience of spatial planning against the impact of climate change. Spatial planning must rethink its mandate and key objectives. Spatial planning makes considerable indirect contributions to climate adaptation and offers potential in this area. The adaptive capacity of spatial planning could be enhanced if climate adaptation were to be addressed more directly, and defined as a spatial planning objective in planning legislation and other frameworks. Future spatial planning is concerned not only with growth and new developments. Coordinating shrinkage, relocating settlements and building or deconstructing infrastructures are becoming more and more important planning options. Increasing the adaptive capacity of spatial planning also means planning for uncertainties, and developing scenarios for possible future developments. With its design and its model region activities, the CLISP project engendered a strong awareness of the challenges of adapting to climate change, sensitized stakeholders, prompted regional stakeholders to act, and guided actors towards further projects. The project proved successful in sharing experience and exchanging ideas within the Alpine space. With its deliverables, CLISP offers a sound basis for regional and local stakeholders. The guidance for planners is expected to be an important tool in raising awareness of climate issues in spatial planning, enhancing the climate change fitness of spatial planning, and supporting the drafting of national and regional adaptation strategies.
www.clisp.eu 18
C WP5 Synthesis Report
1 Introduction
1.1 Objectives Climate change challenges spatial development. Aside from mitigation efforts to reduce greenhouse gas emissions, adaptation to climate change impacts is receiving more and more attention from politics, administration and management. Every Alpine country has developed a national climate adaptation strategy, or is currently drafting one. However, climate adaptation is a fairly new topic for spatial development. Therefore, raising awareness, assigning adaptation goals and identifying knowledge gaps are important issues when starting with climate adaptation activities. In its Green Paper entitled “Adapting to Climate Change in Europe – Options for EU Action” the European Commission stresses the high potential of spatial planning in cost-efficient climate adaptation measures (EC, 2007). Spatial planning plays a key role in sensitizing the public, politicians, businesspeople and administrations, as well as in initiating decision-making processes at all levels. Climate adaptation demands strategic and integrative policy-making. As a cross-cutting domain of public intervention, spatial planning is expected to contribute actively to coping with the impacts of climate change, because the importance of cross-sectoral coordination and multilevel governance is growing as the challenges become increasingly complex (cf. BMVBS/BBSR 2010). Work Package (WP) 5 of the CLISP project deals with the climate change fitness of spatial planning. “Climate change fitness” refers to the capacity of spatial planning systems to adapt spatial development and existing spatial structures to the impact of climate change, i.e. to prevent or moderate potential damage, to take advantage of opportunities, and to cope with the consequences of climatic change. Spatial planning instruments and processes are “fit” for climate change if they raise problem awareness and willingness to adapt, strengthen preparedness and the ability to react to climate change impacts, reduce the vulnerability and increase the resilience of societies, increase the flexibility of spatial planning systems to respond to climatic change and the related uncertainties, and integrate short-term planning horizons into long-term climate change. The following research questions are addressed: Are the spatial planning systems in the Alpine countries fit for the important role assigned to them by the European Commission? What are the strengths and weaknesses of our planning systems (legal and institutional framework, instruments, planning procedures, planning practices, implementation) in the face of climate change? How can spatial development be adapted better to climate change risks? How can our existing instruments be improved? The main objectives of the WP 5 are: To analyse the climate change fitness of current spatial planning systems by evaluating legal and institutional frameworks and instruments (e.g. regional development programmes and plans, land use plans). To identify the strengths and weaknesses, potentials and constraints of spatial planning instruments and procedures with regard to climate adaptation, and to draw up enhancement options to improve the adaptation capacities and adaptation performance of spatial planning. To identify good practice examples of climate-proof planning activities. To develop a guidance tool (self-evaluation) for Alpine regions and municipalities to assess the climate change fitness of spatial planning.
www.clisp.eu 19
WP 5 aims to build a substantial basis for climate-proof, sustainable spatial development in the Alpine space by providing the following key outcomes: In-depth knowledge of the strengths and weaknesses of spatial planning systems (legal/institutional framework, instruments, procedures) with regard to their adaptation capacities. Increased preparedness of policy-makers and planning authorities to improve planning systems and instruments with regard to the challenges posed by climate change. Recommendations to enhance the adaptive capacity of spatial planning and to reduce vulnerability to climate change. Operational set of evaluation criteria and guidance for planners to assess the climate change fitness of spatial planning. Compilation of good practice examples of climate-proof spatial planning activities in the Alpine space.
1.2 Methods and Work Package Design In order to fulfil the aforementioned goals and to provide the intended outcomes of WP 5, we draw on a number of interconnected evaluation steps. In line with the five Actions of the WP 5, five main steps of analysis and evaluation are as follows (cf. Fig. 1): In a first step, a transnational analysis of the spatial planning systems of the Alpine countries gives an overview of the general architecture of their spatial planning systems (laws, regulations, instruments, goals and principles, levels of administration, hierarchy, planning horizon, binding nature, responsibilities) (CLISP Action 5.1, chapter 2). The aim is to identify commonalities and differences between the spatial planning systems of the different Alpine countries. For this general comparative overview, structured information based on a common questionnaire was provided by the project partners. Additionally, a literature analysis was conducted. This included existing comparative studies of spatial planning systems. Based on the results of the transnational overview, a detailed review of the adaptive capacities of spatial planning systems in the Alpine countries was carried out at national or federal state level (CLISP Action 5.2, chapter 3). The survey concept, including the definition of common evaluation criteria, was prepared in several expert workshops together with the spatial planning authorities and project partners. The survey covered various aspects of spatial planning: the political framework, planning legislation, planning instruments, knowledge basis, cooperation, and resources. In the third evaluation step, the focus shifted to the regional and local level and specific planning instruments. This in-depth evaluation of planning instruments and procedures in nine model regions (CLISP Action 5.3, chapter 4) allows different local adaptation requirements and adaptation activities to be taken into account. The focus on one or a small number of selected spatial planning instruments further facilitates an evaluation of how spatial planning regulations are implemented, and the identification of specific enhancement options (cf. chapter 4 and 5). Following a participatory evaluation approach, the evaluation criteria (cf. chapter 7) and judgment standards were developed together with the project partners, which then carried out the evaluation in the form of a self- assessment with the support of their scientific project teams. In a fourth step, enhancement options for climate-proof planning were developed (cf. chapter 5) and good practice examples compiled (CLISP Action 5.4, chapter 7). Based on the findings of all preceding evaluation steps, in a fifth step guidelines were drawn up for planners when assessing the climate change fitness of spatial planning (CLISP Action 5.5, chapter 7). This guidance for planners was developed and agreed upon in
www.clisp.eu 20
several project meetings, in an intensive workshop with international experts, and in several feedback loops with planning experts, practitioners, and scientific project participants. The Work Package 5 design and the individual sections of this report are outlined in the following Figure 1.
Evaluation Process Within Outcomes of Work Package 5 Work Package 5
Action 5.1 Transnational Action 5.5 National Action 5.4 analysisof spatial planning Guidance for Enhancement systems (chapter 2) plannerswhen options assessing the National/ Action 5.2 Review of planning (chapter 5) climatechange Regional systems (chapter 3) fitness of Good practice Action 5.3 In-depth evaluation spatial Regional/ examples of spatial planninginstruments planning Local (chapter 7) in model regions (chapter 4) (chapter 7)
Figure 1: Work Package 5 design
The next chapters 2 to 4 present the methods and results of all WP 5 actions in more detail. Enhancement options are suggested in chapter 5. Conclusions are drawn in chapter 6, and chapter 7 introduces the most important deliverables of this WP 5. This report presents the transnational synthesis of WP 5 results and outcomes. More specific information and results at model region level are to be found in the WP5 chapters of the individual model region reports.
www.clisp.eu 21
2 Spatial Planning Systems in the Alpine Space
2.1 Goals and Methods The first step (CLISP Action 5.1) was to conduct an analysis of the spatial planning systems of Alpine countries, and their legal frameworks. This gives an overview of the general architecture of spatial planning systems. The aim is to classify formal spatial planning systems and informal planning practices, as well as to identify the common aspects and differences that need to be considered in subsequent evaluation steps. For each Alpine country, the transnational analysis references policies and strategies, spatial planning laws, spatial plans, other spatial planning instruments and sectoral planning domains relevant to spatial development and climate adaptation. Furthermore, the main characteristics of policies, laws and instruments have been compiled, with a particular emphasis on the binding nature of policies and plans, planning horizons, and the allocation of responsibilities to the different levels of the spatial planning administration (national/regional/local). The commonalities and differences are summarised in a transnational synthesis (cf. chapter 2.3). To gather information for the analysis of the different spatial planning systems of the participating countries, a questionnaire was filled in by at least one national or regional spatial planning authority within the partnership in each country. Larger countries with planning systems organised along federal lines, such as Austria, Germany, Italy and Switzerland, filled in more than one questionnaire, covering at least the territories (provincial states, provinces, canton, etc.) subject to the planning competence of each partner institution. Additionally, a literature analysis was conducted which included the relevant comparative studies of spatial planning systems (cf. Larsson 2006).
2.2 Results
2.2.1 Austria
In general, roles and responsibilities within the Austrian spatial planning system are allocated between the different levels of territorial organization- The national level fulfils limited functions. Spatial planning is governed primarily at state level by the nine states (Bundesländer), as well as by the municipalities at the local level. The Austrian constitution determines that spatial planning lies within the competence of the provincial states as regards both legislation and execution. The federal state has no formal competence in spatial planning, but it coordinates spatial development policy between the nine spatial planning systems of the provincial states, as well as strategic recommendations to the states by means of the Austrian Conference on Spatial Planning (ÖROK). The Conference is the highest- ranking spatial planning body in Austria. Its principal task is to coordinate spatial development policy at the national level, including the regular publication of the Austrian Spatial Development Concept. All decisions and publications by the Austrian Conference on Spatial Planning are non-binding. However, the federal state does govern important sectoral planning domains relevant to spatial development, such as water management, flood protection, and forest-related matters. Here, the federal state has either legislative or both legislative and executive powers.
www.clisp.eu 22
Spatial Planning System – Overview
Policy Concepts & Strategies European Spatial Development Perspective (ESDP) Alpine Convention, “Spatial Planning and Sustainable Development” protocol
Austrian Spatial Development Concept 2011 [Österreichisches Raumentwicklungskonzept 2011 (ÖREK)] National Strategic Framework Plan for Austria 2007-20013 [Nationaler Strategischer Rahmenplan] Spatial Development Report 2008 [Zwölfter Raumordnungsbericht 2008] Laws Spatial Planning Acts at state level [Landesraumordnungsgesetze]
Plans Spatial Development Programmes at state level [Landesentwicklungsgsprogramme (LEP)], including Sectoral Programmes [Sachraumordnungsprogramme] Regional Spatial Programmes and Ordinances / Regional Development Programmes [Regionale Raumordnungsprogramme und Verordnungen, Regionale Entwicklungsprogramme] Regional Development Concepts [Regionale Entwicklungskonzepte] Sectoral Spatial Programmes [Sachraumordnungsprogramme] Local Spatial Development Plans [Örtliches Entwicklungskonzept] Land Use Plans (Zoning Plans) [Flächenwidmungsplan] Building Regulation Plans / Structural Development Plans [Bebauungsplan]
Other Spatial Planning Instruments Strategic environmental assessments
Sectoral Planning Cf. 6.1.4
Table 1: Austrian spatial planning system – overview
Policy Concepts & Strategies
At the national level, the Austrian Spatial Development Concept (version valid at the time of writing: 2001. A new Spatial Development Concept will be published by the end of 2011) functions as a guideline which identifies trends, goals, and thematic fields with high priority, as well as implementation measures. It focuses on strengthening the country's urban centres and formulating strategies for rural areas. The National Strategic Framework Plan for Austria 2007-2013 implements the European Union Structural Funds. Both policy documents are published by the Austrian Conference on Spatial Planning. The Conference also regularly drafts Spatial Development Reports, which monitor spatial development and trigger public and political debate about future spatial development. Certain supranational guidelines influence Austrian spatial planning policies. The European Spatial Development Perspective functions as a non-binding strategic concept at the European level. It has various goals, especially relating to the sustainable use of natural resources and environmental conservation. The Alpine Convention’s protocol on Spatial Planning and Sustainable Development includes goals and norms for the Alpine space which, in particular, restrict the growth of urban areas and offer general guidelines for land use plans.
www.clisp.eu 23
Laws
Spatial Planning Acts are passed by the governments of the states. Based on these laws, the state governments set up and implement comprehensive state-wide development programmes and sectoral spatial plans and programmes for specific planning issues. Sectoral spatial plans may cover the entire territory of the state or parts of it (regions). The Spatial Planning Acts determine the general and specific goals and the principles of spatial planning, such as efficient land use, restrictions on second homes, and measures to attract more existing building land to the market.
Plans
The Spatial Development Programmes for the entire state territory or regions are comprehensive in content and are issued by the state governments as official decrees. They implement the spatial goals formulated in the strategic concepts and the Spatial Planning Acts by means of strategies and measures. They are binding upon the authorities themselves when implementing sectoral and regional planning and carrying out their supervisory functions over municipalities, and finally also upon the municipalities' local spatial planning activities. Accordingly, Regional Spatial Programmes implement spatial goals and strategies at regional level. These Regional Development Plans are based on the Spatial Development Programmes of the states. They are set up for one or more districts or for parts of districts and issued by the state governments. They usually contain a mixture of special goals, general guidelines, and the corresponding planning measures necessary for further spatial planning activities on the part of the municipal planning authorities. They are binding upon municipal spatial planning at the local level. However, Regional Development Programmes have not been set up in all provincial states, and they usually do not cover the entire state territory, i.e. their planning intensity varies. The state government may also set up Sectoral Spatial Plans based on spatial planning laws for both the entire state and for individual regions. These plans deal with spatial planning measures for a particular sector, specifically for transport, housing and industry, tourism, the zoning of green belts, waste disposal, sports facilities, and shopping centres. In general, sectoral plans are more detailed than development plans at the provincial and regional level owing to their focus on certain sectors and specific planning tasks. Three types of municipal planning instrument are governed by the federal Spatial Planning Act. The Local Spatial Development Plan is an internal guideline for municipal authorities drafting long-term objectives and strategies for local spatial development. Strategically, it functions as a process plan to coordinate and steer the next stages of spatial development. The Land Use Plan (or Zoning Plan) and the Building Regulation Plan (Structural Development Plan) are binding upon landowners and municipal authorities. The Land Use Plan influences landowners’ future options for the use and development of their land. It describes the most rational use of land for the whole territory of the municipalities and divides the territory into different land use categories, namely building land, green belt, transport areas, and other special land use categories.
Other Spatial Planning Instruments
Strategic Environmental Assessments (SEA) are relevant to spatial planning as they often form part of the planning process. An environmental report must be prepared in which the significant effects of plans, programmes etc. on the environment are identified, described and evaluated. However, exactly which spatial planning instruments are subject to strategic environmental assessments is governed differently in each provincial state. In most cases – but not all – only specifically defined spatial programmes and plans are subject to mandatory strategic environmental assessments.
www.clisp.eu 24
Sectoral Planning
Sectoral Planning Laws and Regulations Sectoral Planning Instruments Forest Development Plan [Waldentwicklungsplan] (federal) Federal Forests Act [Forstgesetz] Hazard zone map for torrent and avalanche catchment areas [Gefahrenzonenpläne in Wildbach- und Lawineneinzugsgebieten] (federal) Environmental Conservation Act Environmental Impact Assessments (EIA) [Umweltschutzgesetz (USG)] [Umweltverträglichkeitsprüfung, UVP] (federal) Strategic Environmental Assessments (SEA) [Strategische Umweltprüfung, SUP] (implemented by the Spatial Planning Acts at state level) Water management plans and concepts [Wasserwirtschaftliche Rahmenpläne, Gewässerbetreuungskonzepte] (federal) Flood protection concepts Federal Water Rights Act [Wasserrechtsgesetz] [Schutzwasserwirtschaftliche Grundsatzkonzepte] (federal) Hazard zone map of the Federal Hydraulic Engineering Administration [Gefahrenzonenpläne der Bundeswasserbauverwaltung] (federal) Water protection areas and water sanctuaries Water Protection Act [Gewässerschutzgesetz] (federal) Hydraulic Engineering Act Hydraulic engineering projects [Wasserbautenförderungsgesetz] Nature conservation legislation [Naturschutzrecht] Protected areas (state) National roads (trunk roads, motorways, high- speed roads), [Bundesstrassen: Autobahnen und Roads legislation [Strassengesetze] Schnellstrassen], roads on Bundesländer levelstate roads, municipal roads [Gemeindestrassen] Soil Conservation Act [Bodenschutzgesetz] Soil conservation plans (state)
Table 2: Sectoral planning with relevance to climate adaptation in Austria
Characteristics and special features
All policy concepts and strategies at the national level, such as the Austrian Spatial Development Concept or the National Strategic Framework Plan, are non-binding in nature and consider long term planning horizons. At state level, the Spatial Planning Acts and the Spatial State Development Programmes are binding upon both the state government and the municipal authorities. The binding nature of the other plans and programmes at state or regional level differs depending on specific regulations. Some are recommendations, while some are legally binding upon the state government and the municipalities. Furthermore, the planning horizon also depends on the individual laws and their implementation. The planning instruments at municipal level are approved by the state government. The strategic instrument at municipal level, i.e. the Local Spatial Development Concept, is non-binding, but usually has self-binding effects on municipal authorities. In contrast, the Land Use Plan and the Building Regulation Plan are binding upon municipal authorities, and the building authorities in particular.
www.clisp.eu 25
2.2.2 Germany
Spatial Planning System – Overview
The German spatial planning system is structured according to the federal system and the country’s administrative levels. Thus, roles and responsibilities are divided between the national state, the federal states (Bundesländer) and the municipalities. The regional planning level is inserted additionally between the federal states (i.e. the subordinate NUTS 2 level of Regierungsbezirke) and the NUTS 3 district level (Landkreis). In Bavaria, a “planning region” (Planungsregion) usually comprises several districts and the corresponding municipalities.
Policy Concepts & Strategies General Principles and Strategies for Spatial Development in Germany, 30 June 2006 [Leitbilder und Handlungsstrategien für die Raumentwicklung in Deutschland] Laws Spatial Planning Act, 22 December 2008 [Raumordnungsgesetz] Bavarian Land Planning Act, 27 December 2004 [Bayerisches Landesplanungsgesetz] Federal Building Code, 24 December 2008 [Baugesetzbuch] Bavarian Building Code, 1 January 2008 [Bayerische Bauordnung] Plans Regional Development Programme Bavaria 2006 [Landesentwicklungsprogramm Bayern] Regional plan [Regionalplan], for the CLISP Model Regions: - Oberland Regional Plan (Miesbach model region) - Südostoberbayern Regional Plan (Berchtesgadener Land model region)
Preparatory Land Use plan [Flächennutzungsplan] Urban Land Use Plan [Bebauungsplan] Other Spatial Planning Instruments Spatial Planning Procedure [Raumordnungsverfahren] Sectoral Planning Cf. 3.1.5 Table 3: German spatial planning system – overview
Policy Concepts & Strategies
There is no comprehensive spatial development programme at federal level. The General Principles and Strategies for Spatial Development in Germany, adopted by the Ministerial Conference on Spatial Planning in 2006, update and replace the former Spatial Planning Policy Guidelines [Raumordnungspolitischer Orientierungsrahmen] of 1992 and the Framework for Action in Spatial Planning Policy [Raumordnungspolitischer Handlungsrahmen] of 1995. None of these documents is or was directly binding. The General Principles and Strategies for Spatial Development in Germany contain three guiding principles (Leitbilder): growth and innovation, safeguarding services of public interest, and preservation of resources/development of cultural landscapes.
Laws
Corresponding to Germany’s federal structure, there is no central planning institution. With the Spatial Planning Act of 1998, the national state set up the federal framework law, which determines the scope for the planning acts of the federal states (Landesplanungsgesetze). With the amendment www.clisp.eu 26
of the Spatial Planning Act in 2008, however, spatial planning was transferred from framework legislation to concurrent legislation, with the federal states entitled to deviate from the central Act. The Spatial Planning Act aims to bring about the sustainable spatial development of German territory. The Spatial Planning Act is put into more specific terms by the Bavarian Land Planning Act. This is concerned with the specific spatial requirements of the federal state of Bavaria, and is therefore much more detailed. In accordance with the Spatial Planning Act and the Regional Development Programme, the Bavarian Planning Act aims to bring about the sustainable development of Bavarian territory, and equivalent living conditions in all parts of Bavaria. The Federal Building Code is the legal basis for all building activities at national level. It aims to bring about sustainable urban development, the protection of the natural resource base, economical land use, and compensation for interference with the environment. It is put into more specific terms by the Bavarian Building Code at federal state level.
Plans
At federal state level, the Regional Development Programme is binding upon public authorities and aims to bring about the sustainable spatial development of Bavarian territory and equivalent living conditions in all parts of Bavaria. The main task of regional planning is to establish Regional Plans for the planning region. Regional Plans are instruments for implementing the Regional Development Programme’s objectives at regional level. The framework given by the Regional Development Programme is set out in greater detail in both content and spatial terms in the Regional Plans. Further regional planning tasks include participation in the setting of planning objectives at Bavarian level, and in the establishment of sectoral plans and programmes, as well as involvement in regional planning procedures and urban land use planning procedures (Bauleitplanung). The aim of the Regional Plan as an instrument is sustainable spatial development in the planning region and the maintenance and development of the region as an attractive space for living, business and recreation. Municipal administration powers include the production of Preparatory Land Use Plans and Urban Land Use Plans, which implement spatial planning objectives at local level. This lowest planning level is responsible for a large number of site-specific recommendations and measures, and lends greater detail to the superordinate and multidisciplinary provisions of the higher planning levels. The Land Use Plans set out the municipalities’ objectives for future land use, preliminary zone designations for settlement development and other developments, as well as for other types of land use. In contrast, the Urban Land Use Plans contain binding designations for all urban development at municipal level.
Other Spatial Planning Instruments
The Spatial Planning Procedure is a local-level operational instrument. It assesses larger projects (as laid down in the spatial planning regulations) with regard to their spatial impact and their congruence with spatial planning goals and principles. The procedure includes spatially-related environmental impact assessments.
www.clisp.eu 27
Sectoral Planning
Sectoral Planning Laws and Regulations Sectoral Planning Instruments Federal Forest Conservation and Forestry Promotion Act [Gesetz zur Erhaltung des Waldes und zur Förderung der Forstwirtschaft (Bundeswaldgesetz, WaldG)] Bavarian Forest Act [Waldgesetz für Bayern Forest function planning [Waldfunktionsplanung] (BayWaldG)] Federal Water Balance Act [Gesetz zur Ordnung des Wasserhalts (Wasserhaushaltsgesetz, WHG)] Water development planning Bavarian Water Act [Bayerisches Wassergesetz [Gewässerentwicklungsplanung] (BayWG)] Water management plans (with regard to the Water Framework Directive) Federal Nature Conservation and Countryside Maintenance Act [Gesetz über Naturschutz und Landespflege (Bundesnaturschutzgesetz, BNatSchG) Bavarian Nature Conservation, Countryside Environmental impact assessments Maintenance and Open-Air Recreation Act [Umweltverträglichkeitsprüfung] [Gesetz über den Schutz der Natur, die Pflege der Landschaft und die Erholung in der freien Strategic environmental assessments Natur (Bayerisches Naturschutzgesetz, [Strategische Umweltprüfung] BayNatSchG) Table 4: Sectoral planning with relevance to climate adaptation in Germany
Characteristics and Special Features
There are several spatial planning instruments that can be applied to fulfil the objectives of the Spatial Planning Act and the Bavarian Spatial Planning Act, respectively. Here, a distinction must be drawn between legally binding instruments and “soft” instruments. In contrast to the “classic” binding instruments such as the Regional Development Programme Bavaria (LEP), the Regional Plans and the Urban Land Use Plan, the soft instruments are not legally binding and are not applied all over the country. Rather, such instruments provide recommendations and procedures which can be put into practice voluntarily in cooperation with local actors. The level of regional planning is located between the administrative levels of NUTS 3 Regierungsbezirk and NUTS 2 Landkreis. All districts and municipalities located in one planning region are incorporated in the Regional Planning Association. (Regionaler Planungsverband). The seven Bavarian Regierungsbezirke are further subdivided into 18 planning regions, with three of them sharing the German Alpine space (Allgäu, Oberland and Südostoberbayern). Within the regional planning association, each Landkreis and each municipality possesses one seat and vote. This means that regional planning takes on a municipal character, and fulfils an important mediating role between the federal state of Bavaria and the self-administered municipalities. The term “region”, as used in the official way, usually refers to planning regions. This definition differs from the European Union terminology, where the term ”region” refers to Regierungsbezirke (NUTS 2).
www.clisp.eu 28
2.2.3 Italy
Spatial Planning System – Overview
In Italy, the regions are the most important actors undertaking spatial and land use planning. The provinces have an intermediate position between the regions and the municipalities.
Laws Spatial Planning Act
Plans Guideline for Provincial and Municipal Plans [Piano Territorial di Coordinamento (PTCR)] Regional Territorial Plan [Piano Territoriale Regionale (PTR)] Provincial Territorial Plan [Piano Territoriale Provinciale (PTP)] Spatial Development and Spatial Regulation Plan [Landesentwicklungs- und Raumordnungsplan (LEROP)] Urban Land Use Plan Building Plan [Piano Regolatore Generale (PRG)] Implementation Programme and Implementation Plan
Sectoral Planning Cf. 5.1.4
Table 5: Italian spatial planning system – overview
Policy Concepts & Strategies
At the national level, the national government and the parliament provide the general guidelines for planning activities and specific land use guidelines. The regions prepare the Guideline for Provincial and Municipal Plans (Piano territorial di coordinamento) for their territory in compliance with the state guidelines. This Guideline forms the basis of more detailed provincial and municipal plans.
Laws
The provinces are authorised to enact laws on the subject of regional planning and urban land use plans in accordance with the constitution and the basic legal principles of the Republic. They must respect international obligations and national interests, including the protection of local linguistic minorities, and the basic provisions of the Republic’s laws on economic and social reforms.
Plans
The Regional Territorial Plan (Piano Territoriale Regionale), plays a central role and is a point of reference for the definition of intervention policies on Italian territory, especially for the provinces. It identifies and regulates the characteristics of the territory and landscape, defines the direction of government policy for the transformation of the current regional system, and establishes rules for the conservation, redevelopment and transformation of the specified areas. To protect environmental resources, the Regional Territorial Plan sets limits on the use of resources that are to be respected at the various levels of planning. In reference to the entire regional planning system and its implementation at various institutional levels, the Regional Territorial Plan defines the limits, rules, directions, and guiding principles within which municipal, provincial, and local choices must efficiently contribute to the planning process for territorial development.
www.clisp.eu 29
The principal planning instrument at the provincial level is the Provincial Territorial Plan or the Spatial Development and Spatial Regulation Plan. It is approved by the provincial parliament via provincial law. At municipal level, the principal spatial planning instruments are the Urban Land Use Plan and the Municipal Building Plan. These plans must be established by the municipality and approved by the regional government. The regional government must ensure compliance with statutory provisions and the Provincial Territorial Plan, the inclusion of bodies of supra-local interest, and the preservation of landscapes, monuments and the environment. The Urban Land Use Plan is a comprehensive policy document that defines the type, amount, and location of future growth and development within the municipality. It is the basis for municipal planning activities and development decisions. It is the strongest and most effective planning instrument in a territory. Building Plans are an essential and mandatory planning tool at local level. They may be developed by single municipalities or in cooperation by several municipalities. Building Plans cover the entire municipality and the following elements: reporting, transport plan, land development plan, executive order, cadastral survey, and an implementation plan. Implementation Plans are urban plans on a scale of not less than 1:500. Implementation Plans must be drawn up for all the zones specified in the building plan. They are produced primarily for residential and commercial areas, and must include detailed statements about the planning area.
www.clisp.eu 30
Sectoral planning
Sectoral Planning Laws and Regulations Sectoral Planning Instruments Sectoral Planning [Piano di settore] (according to the Spatial Development and Spatial Regulation Plan) Approved in the resolution of the provincial Landscape concept for South Tyrol government on 2 September 2002, legislation no. [Landschaftsleitbild Südtirol] 3147 Provincial Act of 16 March, no. 8 – Guideline for Air Pollution Control Governor’s decree of 31 March 2003, no. 7 – Concept for air pollution control Regulation on Air Pollution Control - resolution of the Provincial Government no. 1992 of 6 June 2005 Hazard Zone Plan [Piani delle zone di pericolo] Approved in the resolution of the Provincial Provincial Health Plan [Piano sanitario provinciale] Government of 19 July 1999, no. 3018 2000-2002 Provincial Social Plan [Piano sciale provinciale]
2007-2009 Sports Complex Plan [piano degli impianti
sportive] Education Plan [Progettazione delle attività]
Energy Plan [Piano energetico provinciale]
Provincial Act of 18 June 2002, no. 8 – Water Water Protection Plan [Piano di tutela delle acque] Protection Regulation Waste Management Plan [Piani di gestione dei Provincial Act of 26 May 2006, no. 4 – Waste rifiuti] (divided into provincial plans for household Management and Soil Conservation and toxic waste) Provincial Act of 19 May 2003, no. 7 – Regulation Provincial Plan for Quarries, Mines and Peat of Quarries, Mines and Peat Cutting Cutting Transportation Plan [Piano provinciale dei
trasporti] Approved in the resolution of the Provincial Sectoral Plan for Lifts and Ski Slopes [Piano di Government of 10 January 2005, no. 13 settore Impianti di risalita e piste da sci] Provincial Act no. 7 of 24 July 1998 Environmental impact assessments Provincial Act no. 21, Forest Act of 21 October Forest Management Plan [Piani di gestione dei 1996 beni silvo-pastorali] Landscape Management Plan Landschaftsplan/
Piano Paesaggistico Table 6: Sectoral planning with relevance to climate adaptation in South Tyrol, Italy
www.clisp.eu 31
Sectoral Planning Laws and Regulations Sectoral Planning Instruments Agricultural Plan for the Piedmont Region [Programma di Sviluppo Rurale (PSR) della Protected areas socio-economic plans, Regione Piemonte 2007-2013 (Provincial mountain communities socio-economic plans, Government decree, 2 April 2007 and EU integrated local territory programmes (PTI) Commission Decision no. 5944 on 28 November 2007)] Regional Landscape Plan [Piano paesaggistico regionale (PPR) della Regione Piemontefor the Piedmont Region (2009)
Mobility and Transport Plan (Provincial Government decree no. 19-9238, 21 July 2008) Energy Plan [Piano Energetico Ambientale (2004) Air Quality Protection Plan [Piano regionale per il risanamento e la tutela della qualità dell’aria (Provincial Act 43/2000)] Regional Waste Management Plan [Piano regionale di gestione dei rifiuti (Provincial Act no. 24/2002)]
Forest Spatial Plan [Piani forestali territoriali (PFT) (Provincial Act no. 4 of October 2009) Regional Tourism Strategic Plan [Piano strategico regionale per il turismo (Provincial Government decree 47-8657 of 21 April 2008) Table 7: Sectoral planning with relevance to climate adaptation in Alessandria, Italy
Characteristics and Special Features
All planning instruments at regional, provincial and municipal level are legally binding on the public authorities. The planning horizon differs for each plan, but is generally rather long term.
www.clisp.eu 32
2.2.4 Liechtenstein
Spatial Planning System – Overview
Laws National Building and Planning Law 2008 [Baugesetz]
Plans National Structural Plan [Landesrichtplan]
Municipal Land Use Plan [Zonenplan auf Gemeindeebene] Sectoral Planning Cf. 7.1.3
Table 8: Liechtenstein spatial planning system– overview
Laws
The National Building and Planning Law 2008 is formulated and approved by the national government. It is the elementary law concerning spatial planning at national level.
Plans
The National Structural Plan is approved by the national government and aims to reconcile and coordinate all activities that affect spatial structures. The Municipal Land Use Plan is set up by the municipal political authority and approved by the national government. It determines zones for specific land use categories, which are overlaid by hazard zones at municipal level. The plan is part of municipal law.
Sectoral Planning
www.clisp.eu 33
Sectoral Planning Instruments Sectoral Planning Laws and Regulations Forests Act [Waldgesetz] Hazard maps [Gefahrenkarten]
Act for the Conservation of Nature and Landscape Forest Development Plan [Gesetz zum Schutz von Natur und Landschaft] [Waldentwicklungsplanung] Act on Protective Mudflow Structures [Gesetz für Inventory of priority nature zones [Inventar der Rüfeschutzbauten] Naturvorrangflächen] Development Concept for Nature and Agriculture Water Protection Act [Gewässerschutzgesetz] [Entwicklungskonzept Natur und Landwirtschaft] Objects, habitats and landscapes deserving Environmental Conservation Act protection within urban areas [Schützenswerte [Umweltschutzgesetz] Objekte, Lebensräume und Landschaften innerhalb der Siedlung] Environmental Impact Assessment Act [Gesetz Environmental impact assessments über die Umweltverträglichkeitsprüfung] [Umweltverträglichkeitsprüfung]
Strategic Environmental Assessment Act [Gesetz Strategic environmental assessments über die Strategische Umweltprüfung] Decree on the Conservation and Development of Mountain Regions [Verordnung über die Erhaltung und Entwicklung des Bergebiets] Table 9: Sectoral planning with relevance to climate adaptation in Liechtenstein
Characteristics and Special Features
All spatial planning instruments in the Principality of Liechtenstein are binding in some way. The National Structural Plan is binding upon national public authorities, whereas the Municipal Land Use Plan is also binding upon landowners. Both plans have a planning horizon of ten to fifteen years.
www.clisp.eu 34
2.2.5 Slovenia
Spatial Planning System – Overview
Concepts Spatial Management Policy of the Republic of Slovenia 2001 [Politika urejanja prostora Republike Slovenije 2001] Spatial Development Strategy of Slovenia 2004 [Strategija prostorskega razvoja Slovenije 2004] Laws Spatial Planning Act 2007 *Zakon o prostorskem načrtovanju (ZPNačrt) 2007+ Plans Regional Spatial Plan *Regionalni prostorski načrt+ Municipal Spatial Plan *Občinski prostorski načrt+ Sectoral Planning Cf. 3.1.4 Table 10: Slovenian spatial planning system – overview
Policy Concepts & Strategies
The Spatial Management Policy of the Republic of Slovenia is a general policy instrument for the continuous long-term guidance of spatial development at the national level. It represents the degree of consensus achieved on key spatial management objectives and on the methods and instruments for achieving these objectives at the national, regional, and local levels, while taking into consideration current and future European integration. The Spatial Management Policy forms the framework for efforts towards market-oriented economic efficiency, social equity, safety, public prosperity, health, and environmentally acceptable spatial development activities. At the same time, it respects the national legal system, cultural identity and diversity, and the vital interests of all citizens. The Spatial Development Strategy of Slovenia is the basic national developmental document that gives guidance for spatial development. It provides a framework for spatial development across the entire national territory and sets guidelines for development within the European context. It defines the concept of spatial planning and management, land use and spatial protection. The Spatial Development Strategy lays down general premises and the spatial characteristics of Slovenia, on the basis of which the objectives of Slovenian spatial development are defined. It determines objectives for future spatial development, and the priorities and policies for its attainment. Furthermore, it determines guidelines for spatial development at the regional and local levels and lays down implementation measures in the form of various programmes, tasks and activities for spatial planning stakeholders. It also governs how conformity between developmental documents is to be achieved, and how the implementation of the Spatial Development Strategy is to be monitored.
Laws
The Spatial Planning Act governs spatial planning as part of physical planning, by laying down types of spatial planning documents, their content and mutual relations, and procedures for their drafting and approval. (1) The first goal of the Spatial Planning Act is to enable coherent spatial development by considering and harmonising different development needs and public interests in the areas of environmental protection, nature conservation and cultural heritage, the protection of natural resources, and defence and protection against natural and other disasters.
www.clisp.eu 35
(2) The second goal of the Spatial Planning Act is to ensure that interventions in space and spatial arrangements are planned in such a way as to enable the following: sustainable territorial development and an efficient use of land; high quality living conditions; the spatially coordinated and complementary location of activities; the renewal of the existing infrastructure, which has priority over the construction of new infrastructure; the preservation of the characteristic features of the space; the remediation and re-development of brownfield sites; the protection of the environment, natural resources and nature conservation; the overall conservation of cultural heritage, including urban heritage; the health of the population; free access to buildings, including for persons with physical disabilities; the defence of the state; and protection against natural and other disasters.
Plans
The Spatial Planning Act defines the Regional Spatial Plan as an inter-municipal spatial planning instrument. Its purpose is to support the implementation of regional development programmes under regulations on the promotion of coherent regional development, which require spatial arrangements of regional importance to be planned together. The participating municipalities draft a Regional Spatial Plan, which then forms the basis for project preparation and is a prerequisite for building permits under the regulations on construction. A Municipal Spatial Plan is a spatial planning instrument that determines the objectives of spatial development within a municipality, spatial arrangements of local importance, and the conditions that apply to the location of buildings.
Sectoral Planning
Sectoral Planning Instruments Sectoral Planning Laws and Regulations National Programme for Environmental Environmental Conservation Act [Zakon o varstvu Conservation 2005-2012 [Resolucija o okolja] Nacionalnem programu varstva okolja za obdobje 2005-2012] Water Management Plan *Načrt upravljanja Water Act [Zakon o vodah] voda] Nature Conservation Act [Zakon o ohranjanju Biodiversity Strategy of Slovenia [Strategija narave] ohranjanja biotske raznovrstnosti v Sloveniji] National Motorway Construction Programme for Public Roads Act Law [Zakon o javnih cestah] Slovenia [Resolucija o Nacionalnem programu izgradnje avtocest v Republiki Sloveniji] Promotion of Balanced Regional Development Regional Development Strategy [Strategija Act [Zakon o spodbujanju skladnega regionalnega skladnega regionalnega razvoja Slovenije] razvoja] Table 11: Sectoral planning with relevance to climate adaptation in Slovenia
Characteristics and Special Features
The Ministry of the Environment, Spatial Planning and Energy and the Spatial Planning Directorate are responsible for formulating policy concepts and strategies at the national level. The Spatial Management Policy is approved by the government of the Republic of Slovenia, and the Spatial Development Strategy is approved by the National Assembly of the Republic of Slovenia. Both have little, if any directly binding force, but are aimed at long-term planning horizons.
www.clisp.eu 36
The Spatial Planning Act was also developed by the Ministry of the Environment, Spatial Planning and Energy and the Spatial Planning Directorate. It was approved by the National Assembly of the Republic of Slovenia in 2007. It is binding upon national, regional and local planning activities, and has a long-term planning horizon. The Regional Spatial Plan, as well as the Municipal Spatial Plans, are developed by the national authorities for spatial planning (Ministry of the Environment, Spatial Planning and Energy, Spatial Planning Directorate and Office for Spatial Development) together with the municipalities concerned. They must be approved by the corresponding municipal councils, and in the case of the Municipal Plans also by the Ministry of the Environment, Spatial Planning and Energy. Both plans are binding in nature and cover long-term planning horizons.
www.clisp.eu 37
2.2.6 Switzerland
Spatial Planning System – Overview
Concepts Spatial Development Report 2005 [Raumentwicklungsbericht 2005] Spatial Concept Switzerland, draft 2011 [Raumkonzept Schweiz, Entwurf 2011] Laws Spatial Planning Act [Raumplanungsgesetz (RPG)] Cantonal Spatial Planning Acts [Raumplanungsgesetze der Kantone] Municipal building laws [Baugesetze der Gemeinden] Plans Cantonal Structural Plan [Kantonaler Richtplan] Regional Structural Plan [Regionaler Richtplan] Cantonal Land Use Plan [Kantonaler Nutzungsplan] Land Use Plan [Nutzungsplan] Sectoral Planning Sectoral strategies and plans, e.g. transportation, crop rotation, military, transmission lines [Sachpläne, z.B. Verkehr, Fruchtfolgeflächen, Militär, Übertragungsleitungen] Agglomeration Programmes [Agglomerationsprogramme] Table 12: Swiss spatial planning system – overview
Policy Concepts & Strategies
The Spatial Concept Switzerland functions as an overall strategy for spatial development. It is developed by the Federal Office for Spatial Development, and must be approved by the federal parliament. It determines spatial development and its implementation in Switzerland. The Spatial Planning Act (revision is currently in preparation) provides the legal basis for these activities and makes them binding at the national level, and in the cantons and municipalities. The Spatial Development Report 2005 reviews spatial development trends and puts forward a spatial concept that focuses on strengthening urban centres, promoting strategic town networks and formulating strategies for rural areas. As a strategic report published by the Federal Office for Spatial Development, it is not binding, but rather functions as a monitoring tool to trigger public and political debate about future spatial development.
Laws
The legal basis for spatial development in Switzerland is structured on three levels:
At the national level, the Spatial Planning Act was developed by the Federal Office for Spatial Development and approved by the Federal Council. It governs the coordination of all spatially relevant action by federal, cantonal and municipal authorities. Special goals are to foster economical land use and to regulate the division of residential and non-residential zones.
At cantonal level, the Cantonal Spatial Planning Acts govern the conditions that apply to building activities, and lay down procedural rules.
www.clisp.eu 38
The Cantonal Spatial Planning Acts authorise the municipalities to approve municipal building laws for building or development zones that are binding upon landowners.
Plans The Swiss planning system spans four types of plans: (1) The Cantonal Structural Plan governs how different spatially relevant activities by the Confederation, the cantons and the municipalities are coordinated within the territory of a given canton. Another objective is to specify when and with which means spatially relevant public obligations are carried out. The Cantonal Structural Plan functions as a strategic instrument. It is not an outline of a desirable final state, but a procedural plan for coordinating and guiding the next stages of spatial development. (2) In large cantons, the Cantonal Structural Plan is implemented by means of Regional Structural Plans at regional level. Spatial planning activities concerning more than one municipality are delegated to regional public planning associations. (3) The Cantonal Land Use Plan is part of cantonal law and applied to development proposals with special relevance to the canton, or to the planning of projects that concern more than one municipality. (4) The Land Use Plan also has a legal status. It is drawn up by municipalities. It specifies, for example, the boundaries of specific land use categories, as well as the type, size and extent of buildings and structures in construction zones.
Sectoral Planning
According to the Spatial Planning Act, the Confederation is entitled to approve Sectoral Plans at national level. They are the most important spatial planning instruments employed by the Confederation in fulfilling its obligation to coordinate complex spatial problems and needs of national interest. The plan may contain simple guidelines, interim results or firm statements about aims and specifications. The Sectoral Plans are binding upon authorities at all levels. Agglomeration Programmes are instruments that enable the coordination of different sectoral activities and projects within one agglomeration. They are based on horizontal (between municipalities within one agglomeration) and vertical (between the Confederation, canton and agglomeration, and municipalities) cooperation. For other sectoral regulations, please see table 13.
Sectoral Planning Laws and Regulations Sectoral Planning Instruments
Federal Forests Act on Forests [Waldgesetz] Forest Development Plan [Waldentwicklungsplan]
Hazard Map [Gefahrenkarte] Hydraulic Engineering Act [Bundesgesetz über den Hydraulic engineering projects Wasserbau] Environmental conservation legislation Environmental Impact Assessment (EIA) [Umweltschutzrecht] [Umweltverträglichkeitsprüfung (UVP)] Water Protection Act [Gewässerschutzrecht] National highways[Nationalstrassen], cantonal Roads Act law [Strassengesetz] roads [Kantonsstrassen], municipal roads [Gemeindestrassen] Table 13: Sectoral planning with relevance to climate adaptation in Switzerland
www.clisp.eu 39
Characteristics and Special Features
Responsibility for the formulation and revision of the different planning laws and spatial plans is allocated to different levels of spatial planning. The Federal Office for Spatial Development is responsible for all concepts, laws and plans that concern the national level (i.e. the Spatial Development Report, Spatial Concept for Switzerland, Spatial Planning Act, sectoral strategies and plans). The cantons and the cantonal spatial planning authorities are responsible for the cantonal level (i.e. the Cantonal Spatial Planning Act, Cantonal Structural Plan and Cantonal Land Use Plan), and the municipalities correspondingly draw up the municipal building laws and land use plans. National instruments are rather soft instruments and only binding to some extent, except for sectoral strategies and plans, which are binding upon public authorities. The cantonal instruments are only binding upon public authorities, except for the Cantonal Land Use Plan, which is binding upon landowners. Also binding upon landowners are the Municipal Land Use Plan and the municipal building laws. No planning horizon is determined for planning concepts. It is unlimited for planning laws. Plans at the different levels are revised regularly, but at least every ten years.
2.3 Summary The transnational analysis of spatial planning systems in the Alpine space shows that there are similarities and differences depending on the size, the administrative structure and traditions of the country. The spatial planning systems of the German-speaking, federal countries such as Austria, Germany and Switzerland show similar structures, instruments and practices. The smaller countries of Slovenia and Liechtenstein have a two-tier planning system. Italy has a slightly different system, with the CLISP partners South Tyrol and Alessandria being characterised by specific particularities. The role of the national state in spatial planning differs between the Alpine countries. In Slovenia, Liechtenstein, Germany and Switzerland there is a degree of legislative power and/or coordination function, and spatial planning instruments, in place at national level. By contrast, the role of the national state is not so important in Italy and Austria. In Italy, the regional level of the provinces has more autonomy than in the other countries, and in Austria spatial planning lies entirely in the power of the individual federal states as regards both legislation and execution. The binding force of the various spatial planning instruments also differs from country to country. Most countries have strategic instruments which are usually located above municipal level, but there are also planning systems with mandatory strategic instruments at the municipal level, such as in Austria. In general, no strategic instrument has any great binding power. Some countries, e.g. Liechtenstein and Italy, lack national strategic policy instruments for spatial planning, but the existing planning instruments at regional and municipal level are binding upon authorities and/or landowners. An important feature of spatial planning instruments is their forward- looking concentration on long-term developments. In every Alpine country, there are spatial planning instruments with a planning horizon of about 10-15 years. Inconsistencies in the terminology are a major challenge when comparing spatial planning systems . What is called a plan in one country could be called a programme in another, or vice versa. Thus, the denotation of instruments is rather arbitrary, and often rooted in national planning traditions. Frequently, for example, the use of the terms programmes, plans and concepts in the spatial planning cultures of German-speaking countries says little about the role and content of the instrument in question.
www.clisp.eu 40
3 Climate Adaptation Capacities of Spatial Planning in the Alpine Space
3.1 Goals and Methods Spatial planning policies, laws, instruments and procedures may enhance or hinder the capacity of spatial planning to contribute to climate adaptation. On the basis of the analysis of spatial planning systems and their legal frameworks (cf. chapter 2), a detailed survey was designed and conducted (CLISP Action 5.2) that gives insights into the general strengths and weaknesses of spatial planning in coping with climate change. It also sheds light on the capacities of spatial planning systems to implement and contribute to climate adaptation. The survey focuses on a review of the climate adaptation capacities of spatial planning systems at a general, i.e. national and/or regional (state, province, canton) level. The results of the review give an initial assessment of national and/or regional adaptive capacities. The review does not offer assessments of specific instruments in specific planning regions. However, the primary results of an in-depth evaluation of selected instruments that was carried out in the CLISP Model Regions are presented in chapter 4 of this report. The survey centred on the following key questions: What capacities do existing spatial planning systems have to contribute to adapting spatial structures and spatial development to the current and future impacts of climate change? What are the general strengths and weaknesses, potentials and gaps of spatial planning in coping with climate change? As national and regional planning authorities are involved as active partners in the project, the evaluation was designed and realised in close collaboration between scientific partners, planning experts and practitioners. Following a participatory evaluation approach, the evaluation was designed as a self-assessment procedure. The references for the evaluation, namely analytical evaluation criteria and overall normative requirements, were developed collaboratively with all partners and agreed upon in several project meetings, in intensive workshops and in several feedback loops with planning experts, practitioners and scientific partners. The survey covered different aspects of spatial planning: the political framework, planning legislation, planning instruments, knowledge basis, cooperation and resources. It included open and closed questions designed to gather both background and detailed information on national and regional planning systems, and find out how national and regional planning experts judge their adaptive capacities. The participating planning authorities chose different ways of filling in the questionnaire. Some conducted group discussions or interviews with representatives of the authority and planning experts in order to aggregate different answers and assessments of the evaluation criteria. Others also included regional planning authorities and scientific expertise when filling in the questionnaire. Some partners handed in one questionnaire per country. Others returned several questionnaires to enable a broad range of answers and judgements to be included in the analysis. Given these different options for filling in the questionnaire, and an approach to evaluation that was qualitative rather than quantitative (n=14), the analysis focused on content – definitions, explanations and assessments. Nevertheless, the discussion of the results sometimes included the proportion of answers given on closed questions, as this indicates a rough trend (cf. chapter 3.2). The structure of the following chapter is as follows. First of all, the general strengths and weaknesses of spatial planning systems that may also be relevant to their climate adaptation capacities are summarised at country level (chapter 3.2). Then, the survey results are synthesised at the transnational level in accordance with the key analytical dimensions (chapter 3.3).
www.clisp.eu 41
3.2 General Strengths and Weaknesses of Spatial Planning Systems That Are Relevant to Climate Adaptation
3.2.1 Austria
The strengths and weaknesses, as well as the relevance to adaptation to climate change of most spatial planning instruments, depend on the specific regulations of the different Austrian states, as well as on their implementation by the municipalities. In general, most of the instruments (laws, programmes, plans) at state level are considered rather abstract and relevant to climate adaptation in only an indirect way. The protection of the population and of living and settlement space against natural hazards is well established as a core task of spatial planning, and is explicitly listed as an objective in most Austrian Spatial Planning Acts, including those of Steiermark, Salzburg and Upper Austria. The hazard protection concepts differ mainly with regard to the weight given to the protection of future development, and to the protection of existing building stock and building land. For example, the protection objective of the Spatial Planning Act of Upper Austria explicitly relates to both existing and future settlement areas, i.e. it is both development and stock-oriented. In all Spatial Planning Acts, a further objective is economical and cost-effective public expenditure. This may be interpreted as supporting the prevention of damage owing to hazard events, and thus risk reduction strategies. These general objectives and principles of spatial planning are important with regard to the weighting of different land use interests, and to the resolution of conflicting objectives, which inevitably occur in particular in Alpine regions with limited potential permanent settlement area. However, this does not prejudice the weighting and prioritisation of different objectives, which usually depends on the specific situation. Of course, these objectives must be specified and put into action via the different planning instruments at all levels of the planning hierarchy. However, the importance of the legal planning objectives must not be underestimated, since not all states have actually approved a state- wide spatial development programme, and the planning intensity of regional spatial planning is low in a number of provincial states. Certain states and planning regions do not yet have any regional development programmes which further specify the general provisions of the federal-level Spatial Planning Act. It is here, in particular, that the general planning objectives set out the main provisions for zoning decisions and hazard protection within the municipalities. The main function of regional development plans and programmes is to flesh out the general provisions of the Spatial Planning Acts. Their advantage is that they are closer to municipal level than national planning instruments. They developed to some extent in a bottom-up approach and therefore strengthen stakeholder awareness. They provide supra-local guidelines for municipal development at a regional level, but their implementation at the local level is often too ineffective. Regional planning is considered to have a rather indirect relevance to climate change, but considerable potential for planning adaptation measures that require coordination across municipalities, e.g. outward settlement limits, green belt, ventilation corridors and keeping hazard areas free from future development. With regard to municipal land use plans and building regulation plans, the survey participants see an advantage in the binding nature of these plans and their broad acceptance. At the same time, their content depends to some extent on a democratic planning process within municipalities, which does not necessarily favour sustainable spatial development. There are limitations in practice, as spatial planning laws often leave much discretion for municipal planning authorities, the implementation of certain planning measures depends on the will of landowners, and modifications are sometimes made after the plan has been established. Land use plans, in particular, are seen as instruments with considerable potential for climate adaptation as they allow land use to be adapted to climate-driven risks by considering climate change in zoning decisions. The number and type of instruments that are subject to mandatory strategic environmental assessments differ between the states. One of the strengths of the Upper Austrian Spatial Planning Act is that Strategic Environmental Assessments are applied to regional and local plans.
www.clisp.eu 42
3.2.2 Germany
Aspects of climate adaptation are inherent in the Spatial Planning Act’s guiding principle of sustainable spatial development. The amended Spatial Planning Act (2009) even includes an explicit reference to climate change in the principles of spatial planning, by addressing the need for climate adaptation and mitigation measures. Furthermore, several specific Spatial Planning Act provisions directly or indirectly concern issues related to climate change, such as: “different spatial demands shall be harmonised and emerging conflicts be balanced”; “precautions shall be taken for single spatial functions and the use of space”; the maintenance, development and restoration of open space with regard to its relevance for soil, water household or climate; and precautionary flood protection by maintaining or restoring flood plains, retention areas and flood-prone areas. Alongside the Spatial Planning Act, the Bavarian Planning Act includes several additional and/or further-reaching concrete statements directly or indirectly related to climate change. Plans and measures with a spatial impact are required to take water management and water balance demands into account, especially flood protection needs. Further emphasis is also lent to the reduction of land consumption and the conservation of forests, which should favourably influence the climate and water balance, and safeguard natural forest protection functions. The Federal Building Code and the Bavarian Building Code are highly relevant owing to their objectives and regulations concerning settlement development, e.g. with regard to natural hazard protection and precautions (as in flood-prone areas). The Regional Development Programme is considered highly relevant to spatial adaptation to climate change as well as to mitigation, even if most references are indirect. It pays great attention to natural hazards and protective forests in the Alpine space. The aims and principles that strive to reduce the natural hazard potential and the damage potential cover a broad range, including not only technical protection and flood retention measures, but also suitable land use methods and precautions. These approaches combine to form a comprehensive spatial strategy. In particular, the precaution guideline of avoiding development in areas endangered by floods, avalanches, mudslides, landslides or rock falls can be regarded as effective, but much depends on its implementation in preparatory and urban land use planning. The introduction and constitution of priority areas for flood protection, with their restrictive regulations, can be regarded as an example of good practice. The extension of “Protection Zone C” in the “Plan for the Alps” should also be highlighted because it aims to prevent development in areas endangered by natural hazards Two elements are essential to achieve the aims of the Regional Development Programme: close cooperation with the sectoral planning fields concerned and the relevant authorities and – in addition to greater detail on the Regional Development Programme provisions in the Regional Plan – implementation by the municipalities within the framework of urban land use planning. If there is insufficient liaison between supra-local spatial planning, sectoral planning and on-site implementation functions, natural hazard protection and damage potential reduction strategies cannot be accomplished as required. It is therefore worth increasing awareness-raising and sensitization efforts, particularly in the light of the increasing challenges triggered by climate change. Furthermore, the present spatial planning approaches could be extended and/or enhanced by taking climate change and its impacts even more into account. The ClimChAlp WP 7 study by Berchtesgadener Land showed that the individual regional plans also features a range of aims and principles aiming at avoiding natural hazards and damage to settlements and infrastructure, and the preservation of protective forests. Thus, the relevance of this specific regional plan to climate adaptation may be assessed as similar to that of the Regional Development Programme (see above). Both the Preparatory Land Use Plan and the Urban Land Use Plan are considered to be of high relevance to climate adaptation, as they must consider the objectives of the Regional Development Programme and the Regional Plan, as well as the regulations of the Building Codes, and must provide binding provisions on spatial planning. The Spatial Planning Procedure is of minor-to-medium relevance, depending on the specific project and its relation to climate adaptation and mitigation.
www.clisp.eu 43
3.2.3 Italy
The model regions state that most of the instruments have little, if any, relevance to climate adaptation. One of the advantages of the provincial Spatial Development and Spatial Regulation Plans and Provincial Territorial Plans is that they follow an interdisciplinary approach, including different sectors relevant to spatial planning. At the same time this raises the problem of being detailed enough to be effective. The Spatial Development and Spatial Regulation Plan of South Tyrol explicitly mentions climate change in connection with the environment, resources and energy. The existing municipal plans do not have any direct relevance to climate change so far. More important are sectoral instruments such as the hazard zone map, as a subordinate plan to the municipal Building Plans or the Regional Water Protection Plan for Piedmont, which has a considerable impact on water use and public awareness. It explicitly mentions climate change issues in relation to water resource development. The Hydrogeological System Plan is also directly related to climate change because it assesses the hazards and risks linked to gravity-induced slope instability and to river flooding. It covers the transitional plan for hydro-geological structures and the transitional plan for fluvial areas. All of the headings in the Hydrogeological System Plan must be displayed in the municipal Urban Land Use Plans. The Hydrogeological System Plan has been developed by the National Po River Basin Authority and deals with:
Hydro-geological protection and maintenance of the hydrographical network Protection of water body quality Rationalisation of water use Flood control Regulation of land use.
At provincial and municipal level, the Hydrogeological System Plan is also incorporated in to the Provincial Civil Defence Plans and Municipal Civil Defence Plans. Both plans refer to civil protection activities.
3.2.4 Liechtenstein
The National Structural Plan remains rather abstract as it lays down only basic principles. It is only indirectly relevant to climate change. The Communal Land Use Plan has the advantage of being close to local development and people. Still, the instrument is too slow to react quickly to new developments. It is considered to be highly relevant to climate adaptation as hazard zones are included. The absence of a spatial planning act and the lack of binding force for the National Structural Plan is regarded as a problem – especially with regard to climate adaptation.
3.2.5 Slovenia
The strength of the Spatial Management Policy is that it represents the consensus achieved on fundamental spatial management objectives. It functions as an agreement on the methods and instruments for the realisation of objectives at the national, regional, and local levels. At the same time, it is also the basis for ensuring the coordination of all activities and actors in the spatial planning process at all levels of decision making. One of its weaknesses is its non-binding nature as a general policy instrument. The Spatial Management Policy is highly relevant to climate adaptation because one of its main objectives is to ensure that anticipated climatic changes are taken into consideration, and their negative consequences reduced on a long-term basis. In addition, one of the policies stresses the importance of preventing natural and other disasters in Slovenia: “Slovenian territory is potentially threatened by natural and other disasters, and consequently the planning of spatial
www.clisp.eu 44
development activities and their execution should take into consideration natural processes (...) while also anticipating the measures necessary to prevent, reduce or eliminate their negative consequences” (policy 35a). The adoption of the Spatial Development Strategy signifies a turning point in spatial planning and management in Slovenia. It is an important and long-awaited step in the process of reforming the spatial planning and management system, since it replaces the national-level spatial planning documents established in the 1980s, i.e. during the previous socio-economic order and under the socialist planning system. A weak spot of this instrument is that the implementation of the Spatial Development Strategy is not monitored and reported, even though monitoring every four years is compulsory. The last report was prepared in 2002. Climate change is mentioned neither in the Spatial Development Strategy nor in the Spatial Planning Act of 2007. Potential exists in the Regional Spatial Plan in terms of the substantive integration of the Regional Development Plan, but up to now no regional spatial plan has been approved in Slovenia. Background documents have been prepared for four statistical regions – Koroška, Savinjska, Južna Primorska, Jugovzhodna Slovenija (http://rzpr-koroska.urbinstitut.si/, http://rzpr-savinjska.urbinstitut.si/). For one region (the Ljubljana urban region), the background document is at the preparatory stage (http://rralur-prostor.uirs.si/). Climate change was not taken into consideration in either the four statistical regions mentioned for which Regional Spatial Plan background documents were prepared, or the Regional Spatial Plan for the Ljubljana urban region. The strength of the Municipal Spatial Plan as an instrument is that it summarises and puts into greater detail the overall political objectives for the development of a municipality. The key themes of the strategic part of a Municipal Spatial Plan are the determination of the following: bases, objectives and a concept for the spatial development of a municipality; guidelines for the development of settlements and comprehensive renewal; guidelines for landscape development; guidelines for determining the admissible use of land and spatial conditions for implementation; a concept for commercial public infrastructure of local importance; settlement areas, including areas of dispersed buildings spatially related to them; and areas of dispersed settlement. A weakness of the Municipal Spatial Plan is that it produces only fragile partnerships with the main drivers of change. The instrument is also too slow to react to current developments. The implementation of the Municipal Spatial Plan can take a long time. Considering available information, those Municipal Spatial Plans that are now at the preparatory stage are not relevant to adaptation to climate change.
3.2.6 Switzerland
Strengths and weaknesses, as well as relevance to adaptation to climate change, differ for each planning instrument:
The Spatial Development Report 2005 monitored spatial development in the past and triggered a public and political debate about future developments, which is seen as a strength. At the same time, a weakness is that is has no binding force. Climate change issues are mentioned indirectly. As the Spatial Concept Switzerland is still in preparation, an assessment of strengths and weaknesses is not yet possible.
The principle of separating building zones and non-building zones is seen as a strength of the national Spatial Planning Act, whereas its soft binding nature (only principles are set) is seen as a weakness. The focus, depth and level of detail of the Cantonal Planning Acts and the municipal building laws differ widely. In addition, relevance to adaptation to climate change depends on the specific cantonal or municipal wording and implementation of laws.
The Cantonal Structural Plans have their strengths in their strategic and coordinative functions, but remain imprecise and sketchy. Relevant to climate change issues is the possibility of cross- sectoral coordination. The Regional Structural Plan is more specific than the Cantonal Structural Plan and is considered very appropriate in respect of predictable, long-term developments. The municipal Land Use Plans are related very closely to local development, and therefore considered to be highly relevant to climate adaptation, because they include hazard zones, for example.
www.clisp.eu 45
Nevertheless Land Use Plans have proven too slow to react to current developments, because the revision procedures take a long time.
The sectoral strategies and plans are strong instruments as they are based on a broad national consensus in the political arena, but are thus appropriate only to issues that are acceptable to the majority of political stakeholders (voting public, federal parliament, etc.). Where climate adaptation is concerned, sectoral instruments are seen as appropriate as they consider long-term developments.
Agglomeration Programmes are conceptual in nature and support cross-sectoral and cross- municipal activities. A weakness, however, is their general lack of binding force and high dependency on the willingness of municipalities to participate.
www.clisp.eu 46
3.3 Transnational Results
3.3.1 Political Framework
In recent years, many countries, regions and municipalities have agreed to take action on climate change and have passed political resolutions which aim to foster climate adaptation (e.g. national strategies for climate adaptation). These political frameworks are considered relevant to climate adaptation activities within spatial planning processes, even if they do not specifically focus on spatial planning. Most partners state that political initiatives, strategies, programmes and action plans have been launched (10/12) or are in preparation (5/12) in their country or region to foster adaptation to climate change. Most of them are located at the national or transnational level, but some also exist, or are being prepared, at regional or province/state level. As a transnational strategy, the Climate Action Plan (March 2009) of the Alpine Convention promotes an integrated approach to adapting the Alpine space to new climatic conditions. Spatial planning is explicitly addressed to define risk areas, reinforce hazard management and adaptive capacities, and to improve public awareness of climate change. The plan complements the implementation of the Alpine Convention. Member states are therefore committed to implementing the proposed actions. Another transnational strategy relevant to climate adaptation in the Alpine countries is the White Paper entitled "Adapting to Climate Change: Towards a European Framework for Action" published by the European Commission in April 2009 (EC 2009). Spatial planning is seen as one of the fields in which adaptation to climate change impacts can be realised in a strategic and long-term approach. National strategies for adaptation to climate change are currently in preparation in Switzerland, Austria and Slovenia. One such strategy has already been passed by parliament in Germany. All of them explicitly address spatial planning as a relevant policy field, in particular with regard to its capacity to help adapt societies and economies to land use changes, to prevent natural hazards and to integrate different fields of sectoral planning. The existence of a national adaptation strategy can be seen as a strong impulse for administrative units (states/cantons/regions, provinces and municipalities) to develop and implement their own regional and local strategies for climate adaptation. Only a few examples of political strategies which draw directly upon climate adaptation exist at the subnational level: the Climate Programme Bavaria 2020 and the Bavarian Climate Adaptation Strategy, the Spatial Development Programme of the autonomous province of Bozen and the activities of the cross-sectoral Climate Protection Administrative Working Group of the Austrian state of Salzburg, which is currently working on a regional adaptation strategy at provincial level. In these subnational strategies and political initiatives, spatial planning is mentioned explicitly as a field in which climate adaptation measures are to be implemented. Some countries also have sectoral strategies for climate adaptation, such as the national and regional Strategy for the Adaptation of Slovenian Agriculture and Forestry to Climate Change or the Austrian National Forest Programme 2005. The main political actors who decide on climate change strategies are the national and regional parliaments, as well as the national and regional authorities for the environment and spatial planning, e.g. the Federal Ministry of Agriculture, Forestry, Environment and Water Management in Austria or the Bavarian State Ministry of the Environment and Public Health. Other main stakeholders who participate in the political initiatives towards climate adaptation are, for example, the chambers of commerce, associations of municipalities and cities, non-governmental organisations (e.g. CIPRA, Alpenverein) and regional planning associations.
3.3.2 Spatial Planning Legislation
Where planning legislation is concerned, the survey shows that it refers to climate adaptation as an objective or principle mostly in an implicit way at both national and regional levels. The survey found www.clisp.eu 47
that planning legislation in each country includes several planning objectives which implicitly address climate adaptation. Often, the issues of climate adaptation are subsumed under the more general objectives of the protection or renewal of a balanced natural environment, the protection of settlements against natural hazards, and ecologically and economically sustainable spatial development. The objectives tackle a broad range of sectors – not only spatial planning and settlement areas, but also agriculture and forestry, energy generation, transport, infrastructure, water management, economic development, nature conservation and health. Only a few planning laws refer explicitly to climate adaptation as planning objective. The German Spatial Planning Act included climate change issues in the objectives of spatial planning only after its revision in 2008. It now states that spatial requirements for climate protection must be satisfied by measures that counteract climate change, as well as by measures that facilitate adaptation to climate change (§ 2 Spatial Planning Act). Asked for their assessments, almost all partners considered it important (8/14) or very important (5/14) that climate adaptation is explicitly mentioned as an objective within planning legislation. The main reasons are that including climate adaptation as an objective or principle lends greater legitimacy to action plans and permits the formal consideration of climate adaptation when balancing different interests. Furthermore, climate adaptation as an objective within planning legislation would raise public awareness and underline the political will of national and regional governments on a long- term basis. It is considered important that climate adaptation is not merely part of sectoral legislation, but also integrated as a cross-sectoral issue in spatial and economic development. However, some partners emphasise the argument that climate adaptation should not merely be a legislative objective, but that it is even more important to include adaptation in spatial planning instruments and programmes and in their implementation in spatial planning practice. In the opinion of some partners, climate change issues – both adaptation and mitigation – should be seen as a cross-cutting issue and be interlinked with of sustainable development objectives, because spatial planning should, by definition, take into account all relevant spatial conditions (e.g. economic development, ecology, quality of life, etc.).
3.3.3 Spatial Planning Instruments
The concept of climate-proof instruments is not yet established in spatial planning legislation or practice. The survey therefore asked the partners for a definition and the relevance of climate-proof spatial planning instruments to gain an overview of which concepts are being referred to. For most partners, climate-proof spatial planning instruments define goals in an anticipatory manner, implement adaptation measures, monitor outcomes and raise awareness of climate change impacts. Some partners expect climate-proof instruments to be able to characterise land use change (e.g. changing hazard zones) and determine coping strategies in a binding and restrictive way. Others, meanwhile, want flexible instruments that facilitate decision-making processes in spatial planning by integrating all aspects and representing the best alternatives based on all relevant and available information. Some partners have a rather narrow understanding of climate-proof instruments as instruments that focus on protection from and prevention of natural hazards. A common opinion is that climate-proofing should not create new instruments but rather integrate the issue of climate change as a cross-cutting theme into existing instruments and procedures of spatial and sectoral planning (e.g. in the strategic environmental assessment for programmes and plans).
This broad range of different understandings of climate-proof instruments shows that no common definition or shared concept yet exists.
As we found in our review of planning legislation, very few traditional formal spatial planning instruments are aimed directly at climate adaptation. In Switzerland, the Cantonal Structural Plan of Canton Grisons is strategically aligned with climate adaptation where it emphasises "coping with climate change impacts". The "Oberland" regional plan in Bavaria also refers explicitly to climate change impacts by recommending that climate change be considered in reforestation programmes.
www.clisp.eu 48
These two references show that climate adaptation is not yet mainstreamed in spatial planning instruments but merely taken up either on an very general level or in relation to specific single issues.
By contrast, there is a broad range of traditional formal spatial planning instruments that are aimed indirectly at climate adaptation, and have considerable potential to contribute positively to adaptation to climate change (cf. Table 14).
Country Key Instruments Relevant to Climate Adaptation Austria Regional Plan (high potential because of regional settlement development, green belt, ventilation corridors and keeping hazard areas free from future development) Land Use Plan (high potential as it governs the adaptation of land use to climate- driven risks) Spatial Planning Act of Upper Austria (includes climate change mitigation and the reduction of natural hazards as goals; implements the strategic environmental assessment of regional and local plans)
Germany Regional Development Programme (considered to be highly relevant to spatial (Bavaria) adaptation to climate change, as well as for mitigation, because it builds a comprehensive spatial strategy and pays great attention to natural hazards and protective forests in the Alpine space; aims and principles cover a broad range of measures, not only technical protection such as flood retention measures, but also land use methods and precautionary measures) Regional Plan (high potential because it affects all aspects of regional settlement development) Preparatory Land Use Plan and Urban Land Use Plan (considered to be highly relevant to spatial adaptation to climate change as well as to mitigation because it translates the Regional Development Programme to the local level)
Italy Spatial Development and Spatial Regulation Plan of South Tyrol (explicitly mentions climate change in connection with the environment, resources and energy) Sectoral planning instruments in general seem to be more important than spatial planning instruments, e.g. hazard zone maps or the Regional Water Protection Plan of Piedmont
Slovenia Spatial Management Policy of the Republic of Slovenia (represents the consensus achieved on fundamental spatial management objectives; one of the main objectives is to take climate change into consideration)
Switzerland Spatial Planning Act (principle of the separation of building zones and non-building zones) Sectoral strategies and plans (these federal-level instruments are strong as they are based on broad national support) Regional Structural Plan (more specific than the Cantonal Structural Plans and considered very appropriate for long-term, predictable developments)
Table 14: Key instruments in climate adaptation
A broad range of planning instruments within the planning systems is considered to have potentially positive effects on climate adaptation. As every country and region has different instruments with varying relevance and potential for climate adaptation, only two trends are highlighted here: Strategic spatial planning instruments, e.g. the National Spatial Development Strategy of Slovenia, the Swiss Spatial Concept and the Regional Development Programme of Bavaria, provide guidelines for spatial development and contain strategies that indirectly contribute
www.clisp.eu 49
to climate adaptation. The Swiss Spatial Concept even explicitly refers to climate change as a challenge for spatial planning and development, but it has not yet been passed. These strategic instruments are considered to have a high potential in the implementation of precautionary adaptation measures in different fields (land use, water management, forestry etc.) as they stand today. Also, it was pointed out that they could easily include recommendations for coping with and adapting to climate change impacts when next amended. Traditional formal instruments such as land use plans, spatial development plans at regional and local level, and building regulation plans at municipal level offer considerable potential for the integration of adaptation options in different fields (land use, nature conservation, water usage, infrastructure, forestry, etc.). Examples include the Austrian states, South Tyrol and Liechtenstein. The option of defining zones for development, green belt and zones of high risk, which are then kept free of development, is seen as a particularly important contribution to climate adaptation. The primary limitations are seen in the generally non-binding nature of the strategic instruments, their low level of acceptance in planning practice, and in the fact that municipal instruments are too limited in scope, not sufficiently supported, and therefore hinder the supra-local coordination of adaptation activities. In the answers to the questions concerning traditional formal spatial planning instruments (e.g. spatial plans, spatial development concepts, etc.) that are aimed directly or indirectly at climate adaptation, many partners also list sectoral instruments such as water management plans, forestry development plans, etc. The term "traditional formal spatial planning instruments" might thus refer to differing concepts of spatial and sectoral planning within the different planning systems of the participating countries. When asked about sufficiency, only the German partners state that existing spatial planning instruments and their implementation are sufficient to enhance adaptation to climate change. They refer to the amendment of the Spatial Planning Act in 2009, which allows a broad range of adaptation activities, but also note that the regional planning authorities have not yet made use of the new possibilities for climate adaptation. All other partners conclude that existing instruments are either not sufficient to enhance climate adaptation or sufficient but not implemented appropriately. One half of the answers received stated that existing instruments need to be modified or supplemented by new instruments. Some partners state that planning instruments, e.g. the regional plans, should undergo a thorough review to include issues of climate adaptation in sections on water supply, flood protection, public transport, etc. Another supplement might be a tool that helps the planning actors concerned to consider, to assess and to integrate adaptation activities into existing planning procedures. This might be implemented as part of the strategic environmental assessment. The other answers state that instruments are sufficient but not implemented appropriately. The existing instruments are considered to have the potential to tackle the issue of climate adaptation and mitigation comprehensively, provided they are implemented adequately. One deficit is seen in the implementation of planning objectives that refer to long-term issues, because the planning actors responsible tend to react to short-term problems. Another deficit is seen not in the field of spatial planning instruments, but rather in the lack of knowledge needed to realise anticipatory adaptation measures e.g. in the field of natural hazards. In addition, experience with the introduction of new instruments in general showed difficulties regarding their implementation and their cohesiveness with other instruments. A broad range of informal planning practices are listed as relevant to adaptation to climate change. They can be grouped in to different fields: Most important are informal planning practices which concern cooperation on regional development, e.g. national, regional or local spatial development concepts, informal agreements at regional level, and regional management. Additionally, another group of informal planning practices closely linked to cooperation issues includes participation procedures and mediation between different stakeholder preferences and opinions. www.clisp.eu 50
Systematic assessment procedures are seen as important informal planning practices for climate adaptation, e.g. spatial impact assessments and spatial development scenarios. Furthermore, pilot projects and planning aids are seen as supporting instruments for adaptation activities. Some partners state that informal planning practices for climate adaptation are not yet widely used, but offer considerable potential to improve adaptation practices. The list of sectoral instruments that are applied within the national and regional planning systems and considered relevant to climate change is very comprehensive. It includes water management, forestry, soil protection and natural hazards as fields of sectoral planning which are considered most relevant to the adaptation of spatial development. Nature conservation, agriculture, energy, waste management, air monitoring and environmental impact assessments are also seen as relevant sectoral fields of planning practice and legislation that are associated with adaptation activities. It therefore seems that horizontal cooperation between spatial planning and other sectoral planning is one of the most important fields of action when activating the adaptive capacities of planning systems. Asked about the greatest need to adjust existing instruments in order to enhance climate adaptation, the partners emphasise the following aspects: Where spatial planning laws and spatial and regional plans are concerned, there is a great need to move away from a general strategic level towards detailed and forceful implementation at instrumental level. Strategies for climate adaptation must be transformed into consistent adaptation activities that are realised as cross-cutting dimension across all fields of spatial planning and not, as at present, only in individual areas. Hazard and risk maps must be closely and consistently linked to building zones and implemented in a binding way. Risk awareness and sensitivity to the impacts of climate change must be raised and supported by instruments such as risk information systems and hazard maps. Climate adaptation must be mainstreamed in both spatial and sectoral planning (e.g. water, air quality, social planning, and health), and coordination between the two must be strengthened. Most spatial planning instruments refer primarily to future planning. The following instruments are considered important in facilitating adaptation activities concerning existing spatial structures: In many countries, land use planning and building regulations make it possible to influence the modernisation of built up areas, the development of green spaces and the conversion of brownfield sites. The re-zoning of building land located in hazard zones also has an impact on existing spatial structures. Still, in many countries the re-zoning or even removal of building structures in hazard zones is very difficult owing to private ownership rights and financial compensation claims. In Austria, subsidies for house building (a sectoral instrument) may potentially impact on existing structures and thus influence adaptation activities. One option would be to connect these subsidies to hazard zoning.
3.3.4 Knowledge Base
Preparing and implementing measures for adaptation to climate change requires a sound and transparent knowledge base and adequate assessment procedures. The survey showed that a broad range of information sources is used by the partners. Climate-related information is mainly provided by national or federal (environmental) agencies, national research institutes or research projects, but also by international (environmental) organisations, national meteorological organisations, national ministries of the environment, universities/national climate/natural hazard organisations, and non- governmental organisations. However, most partners consider the available information as
www.clisp.eu 51
insufficient as a basis for action. There is a lack of regional climate scenarios and data, as well as of regional impact assessments. However, this should not be seen as a reason not to take action, as some partners emphasise. Insufficient knowledge, as well as uncertainty, are seen as problems when planning adaptation measures. One consequence is that adaptation measures are not realised or climate adaptation is not taken into account in spatial planning practices. The high degree of uncertainty is seen as one reason why climate adaptation is progressing only slowly. One strategy for dealing with uncertainty in planning decisions is to gather more knowledge through expert commissions, modelling and scenario development. Another strategy is to follow the precautionary principle when taking decisions based on insufficient knowledge, and to take uncertainties into account by making the lack of knowledge transparent in the decision-making process. Only two partners (Austria and Germany) indicate that there is a systematic procedure to assess the potential effects or potential contributions of spatial planning instruments and/or spatial planning legislation in relation to climate adaptation. In Austria, a climate impact assessment is conducted for regulations at national level. As spatial planning lies within in the power of the individual states, it is not applied to spatial planning, however. In Bavaria it would be possible to subject climate adaptation systematically to environmental impact assessments and strategic environmental assessments. However, there is no legally binding framework by which to apply these two procedures to climate adaptation, and the approach is not yet used in planning practice. Most partners state that a systematic or climate-proofing approach is needed and should be integrated in to existing assessment procedures such as strategic environmental assessments, sustainability assessments, and environmental impact assessments, etc.
3.3.5 Cooperation, Participation and Coordination
Most partners indicate that spatial planning is coordinated with other sectoral planning domains, specifically agriculture, forestry, transport, water, natural hazard mitigation, nature conservation, and economic development. There is also cooperation with non-planning stakeholders, such as economic associations, environmental non-governmental organisations and insurance companies. The question of how far spatial planning is in a position to initiate or coordinate cooperation, and whether cooperation is a crucial issue in climate adaptation, is a matter of dispute between some partners. Some believe horizontal and vertical cooperation needs to be strengthened. Others believe the issue is not so important in realising climate adaptation.
3.3.6 Financial and Human Resources
Adaptation to climate change requires financial and human resources. The exact figures for available budgets and personnel for climate adaptation within planning authorities are very difficult to assess. The review therefore attempted to make a rough estimate of the current status and needs of the partners concerned. The picture with regard to financial resources is mixed. Almost half of the answers state that there is sufficient money for spatial planning. Meanwhile, more than half believe that their budget is not enough to realise adequate climate adaptation. Additional budgetary scope is needed, especially when working on a regional basis of information. However, fostering cooperation and raising awareness do not depend on a high budget, but can be achieved within the current financial framework. Some partners also state that climate adaptation is more the task of sectoral planning, which has a higher budget than spatial planning, and should therefore cover most of the costs for implementing adaptation measures. In contrast to the financial situation, most partners think that more personnel are needed in the field of climate adaptation. This corresponds to the general trend, in that spatial planning authorities have fewer staff, who have to cover a growing number of tasks, adaptation to climate change being one of
www.clisp.eu 52
them. It is therefore important that priorities are re-oriented and climate change issues integrated into current activities. In addition, most partners state that spatial planning employees would need advanced professional training to be able to implement the required climate adaptation activities. The fields of further training are numerous: general information on climate change and adaptation options, awareness- raising, communication and mediation, the optimization of land use and good practice examples. The review shows that existing financial and human resources are currently mobilised primarily to make amendments, revisions or adjustments to spatial plans and instruments, for political initiatives and processes related to adaptation, as well as for research, development and pilot projects such as CLISP. As a general comment on the issue of financial and human resources, it should be mentioned that, since climate adaptation is a relatively new topic within spatial planning, precise requirements can be estimated only very roughly.
3.3.7 Barriers
The following main barriers to the better and more effective incorporation of climate adaptation in to the spatial planning system are perceived: Restrictive adaptation measures are difficult to argue in the face of too many uncertainties (12/14) Existing knowledge about future climate change is insufficient to take action (9/14) There is a lack of political will to adjust the planning system (8/14) More financial and /or human resources are needed (7/14) Issues related to climate change impacts and adaptation are difficult to communicate (7/14) There is a lack of policy targets at European Union and national level (6/14) Planning legislation does not explicitly consider adaptation issues (6/14).
Strategies to overcome barriers specifically concern raising awareness within authorities and among the public, integrating climate adaptation in to existing policies, including sectoral planning fields, and filling in the gaps that exist in knowledge about the climate.
www.clisp.eu 53
3.4 Summary
To assess the capacity of spatial planning systems to adapt to current and future climate change impacts in the Alpine space, the review focused on a variety of aspects of spatial planning systems: the political framework, spatial planning legislation, spatial planning instruments, knowledge requirements, cooperation and participation, as well as financial and human resources. The review shows different strengths and weaknesses, potentials and gaps which offer possible starting points for the enhancement of spatial planning systems.
Within the political framework recent changes, especially at supra-national and national level, foster climate adaptation where they include climate adaptation explicitly in national climate action plans. In spite of several political initiatives at European level, national level and in some cases also at the regional and sub-regional level, one of the main barriers is seen as the lack of European Union or national policy targets, as well as the lack of political will to adjust the planning system. This mismatch between recent political initiatives and the project partners’ assessments might be due to very recent political developments that have not yet fed through in to planning practice.
Where the legal and instrumental framework is concerned, project partners and model regions identified a large number of instruments with potential relevance to climate adaptation. Nevertheless, up to now only very few regulations and instruments have focused directly on climate adaptation, or include adaptation as planning objectives. This can be seen as one of the main constraints, as most partners consider it highly relevant to sufficient implementation that legislation and instruments explicitly mention adaptation to the impacts of climate change as a planning objective. Several partners and model regions consider spatial planning instruments with a strategic orientation to be most important. Strategic instruments are usually located above municipal level, but below national level. According to the responses to the questionnaire, the regional scale appears to be crucial to climate adaptation in spatial planning. Therefore, the spatial planning authorities of individual states (Germany and Austria), and cantons (Switzerland) or other regions are expected to take action on climate adaptation. However, this (self) assessment might be different if we were to ask other stakeholders, e.g. from the private sector and the municipal level, and mayors in particular. Generally, the strategic element of spatial planning systems seems to be weaker in Italy and in Liechtenstein.
At the same time, the fact that many legal regulations/instruments which are indirectly relevant to climate adaptation are not binding is seen as a weakness, especially with regard to the implementation of adaptation activities. Another requirement for the successful implementation of adaptation activities is a greater awareness of adaptation needs within spatial and sectoral planning. Mainstreaming climate adaptation in spatial planning can be seen as a starting point for the forceful implementation of consistent adaptation activities at the instrumental level. This can be supported by close cooperation between spatial planning and sectoral planning, as well as with other, non-planning stakeholders. A broad range of informal planning practices is seen to offer considerable potential for mainstreaming climate adaptation in spatial planning, although this potential is not utilised sufficiently as yet.
Concerning the knowledge base, it becomes quite clear that information and expertise is highly relevant to adaptation activities. At the same time, spatial planning actors have a high demand for knowledge. Although the review shows that a diverse range of information sources and knowledge is being used, one of the main constraints that hinders successful climate adaptation is the lack of available knowledge. This is linked to lingering uncertainty about climate impacts and appropriate adaptation options, especially at the regional level.
Knowledge gaps are also linked to a lack of human resources. The review shows that the successful implementation of adaptation activities requires both more personnel and further professional training for spatial planners. Still, the review resulted in only a very rough estimate of the financial and human resources required, as both budgets and personnel are difficult to assess.
www.clisp.eu 54
The coordination capacities that exist within spatial planning should certainly be seen as a strength, as climate adaptation is, by its very nature, a cross-cutting challenge that requires the moderation and balancing of different goals and interests. Spatial planning authorities are used to negotiations, consultation processes and engaging different stakeholders and their interests. The vertical coordination of goals and measures on different scales, as well as the horizontal coordination of spatial planning and sectoral planning, is everyday business for spatial planners.
Two interrelated weaknesses of spatial planning systems might become a problem in terms of climate adaptation: the dependence on political will, especially at the municipal level, and the lack of enforcement of spatial planning instruments. Both aspects are well-known problems in spatial planning in general, and are not limited only to climate change issues.
www.clisp.eu 55
4 Spatial Planning Instruments for Regional Adaptation to Climate Change
4.1 Goals and Methods
The in-depth evaluation (CLISP Action 5.3) concentrates on the climate change fitness of selected planning instruments in the model region and/or in selected sub-regions or municipalities within a model region (in contrast to CLISP Actions 5.1 and 5.2, which focus on the national or state level).
The goals of the in-depth evaluation are twofold: To identify strengths and weaknesses, potentials and constraints concerning the climate change fitness of the chosen planning instrument(s) and/or their implementation in the model region, and To elaborate options for improving climate change fitness at model region level, as well as to identify transferable recommendations at transnational level. By focusing on the regional and sub-regional levels, we are able to examine the specific adaptation requirements and activities, as well as the implementation of spatial planning policies and instruments, within each model region. The main questions are: Which are the main priority sectors, the relevant climate change impacts and vulnerabilities, and the main adaptation requirements in the model region (or a selected sub-region/municipality) from the spatial planning perspective? What constitutes the principal repertoire of adaptation strategies and measures that is available to respond to expected impacts and vulnerabilities, and what is the existing and potential capacity of the selected spatial planning instrument(s) to steer, implement, contribute to, or support these adaptation actions? Which are the current adaptation measures? To what extent do the existing instruments already meet adaptation requirements and priorities? What are the strengths and potentials of the selected spatial planning instrument(s) and/or procedure(s), and of their implementation, in realising regional adaptation to climate change? What are the constraints and weaknesses of the selected instrument(s) and/or procedure(s), and of their implementation, with regard to climate change fitness? What are the enhancement options for the selected instrument(s) and/or procedure(s) and for their implementation? What changes are required to make the instrument more effective in terms of climate adaptation? What are the lessons learned and possible enhancement options at model region level? What are the lessons learned and possible enhancement options that can be transferred to other instruments, other planning procedures, and other regions in order to improve their climate change fitness?
To allow for comparable results from the in-depth evaluation in the model regions, we provided a table of expected contents for the evaluation report, a set of general evaluation criteria, and a framework concept for the evaluation procedure (Table 115, for details cf. annex). As every model region has its own characteristics and requirements, and as every chosen instrument or procedure has its distinct legal background, participating actors and implementation process, the general criteria remain rather abstract. Based on these general evaluation criteria, each model region selected and defined its own specified evaluation criteria. Furthermore, each model region adjusted and defined
www.clisp.eu 56
the exact methodological design of the in-depth evaluation. Most model regions conducted expert and stakeholder workshops, interviews and desktop analyses. The assessment of the selected policies, instruments and procedures is based on the statements of the experts who were interviewed, and on the expert opinions of the project teams of each partner. Flexibility and stability are two states along the same continuum. Spatial planning has to deal with the problem that, on the one hand, adaptation to climate change requires planning instruments that are flexible enough to adjust quickly to changes in climatic developments and/or to enhanced knowledge on future climate projections and impacts in order to prevent damages – while on the other hand social and economic development depends on a stable and reliable planning system.
Overall criteria Evaluation questions
A Concerning the model region 1. Priorities for climate adaptation Which are the priority sectors for climate context and the adaptation in the model region? What are the main spatial and adaptation requirements for the model region from thematic focus the spatial planning perspective?
2. Problem awareness & political will to take What is the state of problem awareness and action on climate adaptation political will to implement activities fostering climate adaptation?
B Concerning the 3. Relevance to adaptation requirements How relevant is the selected climate adaptation instrumental focus instrument in the model region?
4. Flexibility/stability How flexible/stable are decision-making processes and amendments to existing instruments? How flexible/stable is the interpretation of planning instruments in the implementation process? How relevant is the flexibility or stability of the chosen instrument to climate adaptation?
5. Binding nature How binding is the instrument or procedure, and how relevant is the binding nature of the chosen instrument or procedure to climate adaptation?
6. Coherence, synergies and conflicts Are the instrument, its adaptation-related content, and the planning procedure coherent within the vertical system of spatial planning? Is there coherence with sectoral planning? Are there synergies or conflicts with sectoral planning?
C Concerning 7. Effectiveness, efficiency and feasibility How effective, efficient and feasible is the implementation implementation of adaptation activities within the instrument/procedure?
8. Collaboration with sectoral planning, How do you assess collaboration with sectoral participation and stakeholder consultation planning? Do participation and stakeholder consultation foster or hinder adaptation activities?
9. Enhancement options Where do you see the main enhancement options to foster climate adaptation within the implementation of the instrument? Which factors enable or hinder the realisation of the enhancement options?
Table 15: General evaluation criteria
www.clisp.eu 57
4.2 Summary of Main Results
The results of the in-depth evaluation in the model regions are summarised in more detail in the annex and covered comprehensively in the corresponding chapters of each model region report.
4.2.1 Pinzgau-Pongau Model Region (Salzburg)
Description of Model Region Characteristics of the Pinzgau-Pongau region Location: Austria, federal state of Salzburg Administrative level / scale: NUTS 3, 2 administrative districts 53 municipalities, population 162,906 (2009), area 4,379.17 km² Economy dominated by tertiary sector, 25% of wage earners are employed in the tourism industry Mountainous landscape with distinct relief Regional climatic conditions variable on small scale. The main adaptation requirements relevant to spatial planning in Pinzgau-Pongau: Climate change-related hazards and their impact on built-up areas Climate change-related impacts on tourism and recreation.
Evaluation Criteria and Methods The set of general criteria has been adjusted in part to the requirements of the model region: relevance of the instrument – including binding nature and flexibility; coherence of the instrument; main effects of the instruments; and enhancement options (for details cf. annex B).
Methods and evaluation process: Interviews with seven regional actors and decision-makers Four workshops with regional actors and decision-makers, mayors, representatives of natural hazard management, local planners and NGOs Literature analysis
Description of Evaluated Policies, Instruments & Procedures Pongau Regional Development Concept Unteres Saalachtal Regional Spatial Planning Programme Local Spatial Development Concept for Eben im Pongau Local Spatial Development Concept for Goldegg Local Spatial Development Concept for Kaprun Local Spatial Development Concept for Zell am See
Assessment of Evaluated Policies, Instruments & Procedures For a detailed assessment of strengths and weaknesses for the different policies and instruments that were evaluated, cf. Annex B. Pongau Regional Development Concept Strengths: intensive participatory process; up-to-date data included; addresses climate change in relation to tourism. Weaknesses: not binding; does not comprise all relevant designations in the municipalities; little awareness about climate change adaptation among local decision-makers. Unteres Saalachtal Regional Spatial Planning Programme Strengths: binding instrument at regional level; comprehensive structural analysis; list of hazard- prone areas; binding measures suitable for adaptation (e.g. for flood retention). Weaknesses: hardly any relevant mention of climate change; underlying data out of date; hazard- prone areas without detailed spatial reference. Local Spatial Development Concept for Eben im Pongau
www.clisp.eu 58
Strengths: the procedure for drawing up the Local Spatial Development Concept offers potential for relating objectives and measures to climate change, for including expert input on climate change issues, and for creating public awareness of climate change adaptation; defined criteria and (restrictive) measures for settlement development, taking existing risks from natural hazards into account. Weaknesses: underlying data out of date; objectives and measures in rather static terms; natural hazards mentioned only in passing; hardly any climate adaptation measures identified; planning designations mainly concern settlement areas. Local Spatial Development Concept for Goldegg Strengths: potential for relating objectives and measures to climate change, for including expert input on climate change issues, and for creating public awareness of climate change adaptation. Weaknesses: underlying data out of date; hazard zoning plans not considered; risks of mud flows and floods not dealt with in detail; hardly any climate adaptation measures identified; planning designations mainly concern settlement areas. Local Spatial Development Concept for Kaprun Strengths: potential for relating objectives and measures to climate change, for including expert input on climate change issues, and for creating public awareness of climate change adaptation; natural hazards are dealt with in detail. Weaknesses: underlying data out of date; rezoning of hazard zones hardly feasible; low priority of adaptation to climate change and mitigation of impacts; hardly any climate adaptation measures identified; planning mainly concerns settlement areas. Local Spatial Development Concept for Zell am See Strengths: potential for relating objectives and measures to climate change, for including expert input on climate change issues and for creating public awareness of climate change adaptation; up to date data; detailed information on climate, geology, air, natural hazards; sustainable development (e.g. mitigation of impacts) defined as an objective; climate change is referred to indirectly. Weaknesses: pressure from the population on available building development areas; forward- looking planning strategy for supra-municipal retention areas virtually impossible to convey or carry through politically; hardly any climate adaptation measures identified; planning mainly concerns settlement areas. Overall Assessment: Since climate change adaptation is not yet an objective or principle in the Spatial Planning Acts, and since municipal spatial development concepts currently do not define criteria or measures for adaptation to climate change which would go beyond the implementation of existing objectives and principles of spatial planning, no direct effects can be identified. The instruments rely on the effects of good spatial planning such as compact settlements and infrastructure development in suitable locations. The criteria for the suitability of building land, e.g. locating settlements and infrastructure outside of hazard-prone areas, avoiding detrimental effects (e.g. the unfavourable location of ski runs), good access and supply with public utilities, indirectly contribute to adaptation to climate change, but have not been evaluated in detail for the individual locations.
Climate Change Fitness The concepts and programmes are found to have the potential to be fit to respond to the impacts of climate change. The existing traditional spatial planning instruments at local and regional levels generally provide good or sufficient scope for adapting spatial structures and developments to the current and future impacts of climate change. However: Spatial planning instruments are currently rather static (e.g. natural hazard zoning plans). Opportunities provided by good spatial planning to react to the impacts of climate change are not entirely understood, or dealt with selectively when putting objectives into planning practice. Opportunities for guiding development in a climate-proof and sustainable way are under regional and local political pressure and are not exploited in full. The municipalities have little appetite for self-enforced restrictions on development.
www.clisp.eu 59
Particularly in those municipalities and areas where winter tourism generates a high percentage of the regional net product, the impacts of climate change are understood but are associated with an awareness of investment risks and liability claims, rather than with the need for forward- looking planning. The instruments evaluated at local level have a clear and strong focus on settlement areas. A forward-looking planning approach, especially for the use of open spaces, is not in evidence and has not been requested by the federal state of Salzburg to balance different land use needs. Currently, only the natural hazard zoning plans and the definition of flood stop measures provide a basis for defining measures to deal with the impacts of climate change. Here there is considerable awareness of the problem and – based on the guidelines of the Spatial Planning Act – of the need for adequate planning.
(General) Enhancement Options Create awareness among regional actors and decision-makers of the relationship between good spatial planning and adaptation to climate change. Up-to date data (e.g. variation in precipitation, temperature, snow line, exposure to radiation and slope orientation, hazard-prone areas outside the permanent settlement areas) should be accessible to municipalities and local planners, e.g. via the Geographical Information System of Salzburg SAGIS Online: o Identification of hazard-prone and vulnerable areas for the entire federal state o Translation of climate scenarios into spatial impacts and climate change impact assessments. The regional units within the FSS have operational structures in place. These should be used to step up communication and information to make the regional planning units into regional data hubs, like the regional planning associations in Bavaria. Planning guidelines, e.g. in the format of sectoral programmes designating long-term retention areas, hazard zones, areas banning certain uses (e.g. extraction of raw materials, development of ski runs, etc.). Given that regional development concepts were re-defined in the Spatial Planning Act of 2009, and now need to undergo a strategic environmental assessment, they may now consider issues of climate change. This may also be demanded by the state. Spatial planning should be re-shaped to deal with uncertainties in a more flexible and process- oriented manner. Integration of climate change adaptation into strategic environmental assessment and environmental impact assessment ("climate proofing" of planning measures and projects): in addition to the impact of projects on climate as a common good, assessments should also cover the risks to projects induced by climate change impacts – provided suitable and verified base data are available. The potential of land use/building plans should be used more stringently to reduce risks and to increase energy efficiency.
Lessons Learned (1) Awareness of the impacts of climate change is not very great as yet and, where it exists at all, relates first and foremost to avoidance strategies such as the reduction of CO2 emissions. (2) The impacts of climate change are seen by regional stakeholders as part of daily life and continuous change in the Alpine space. (3) The need for more flexible and dynamic planning instruments enabling quick responses to emerging changes, new data and improved knowledge conflicts with the daily need to take definite and legally certain spatial planning decisions. (4) It is not possible to achieve real change and root adaptation strategies more strongly in day-to- day spatial planning unless explicit provisions are made for all by the state (e.g. state-wide spatial planning programmes for specific development issues) and the awareness of local-level decision- makers is improved.
www.clisp.eu 60
4.2.2 Liezen Model Region (Steiermark)
Description of Model Region Location: Austria, federal state of Steiermark Administrative level: case study on three scales: entire state territory of Steiermark, administrative district of Liezen (NUTS 3), and sub-region within Liezen Area of 3,300 km² (13% of the total district area) can be used for permanent settlement (population density of 189 inhabitants per km²) 81,000 inhabitants (2009) in 51 municipalities, located at between 428 and 1,135 m a.s.l. GDP: 10% from the primary sector, 27% from the secondary sector, 63% from the tertiary sector.
The main adaptation requirements relevant to spatial planning in Steiermark/Liezen: Vulnerability of winter tourism as main economic activity, skiing areas down to 750 m above sea level Built-up areas/land development in view of the settlements’ vulnerability to natural hazards (flooding, avalanches) and their further development in the Alpine valleys of the Enns and its tributaries.
Evaluation Criteria and Methods Evaluation criteria chosen: relevance, flexibility, binding nature, coherence/synergies/conflicts, political will, stability, participation and stakeholder communication (for details cf. annex B).
Methods and evaluation process: SWOT analysis with standardised framework based on desk research Discussions with steering group, regional experts and stakeholders in Steiermark Workshop with regional stakeholders (Liezen)
Description of Evaluated Policies, Instruments & Procedures
Level 1 – Federal State of Steiermark: State Development Programme for Steiermark 2009 Programme for Flood-Safe Development in Settlement Areas Level 2 – District of Liezen (NUTS 3): Regional Development Programme, incl. strategic environmental assessment Regional Development Guidelines for the District of Liezen Level 3 – Sub-region Sub‐Regional Development Concept (ex ante analysis) Local Development Concept, incl. strategic environmental assessment
Assessment of Evaluated Policies, Instruments & Procedures
State Development Programme for Steiermark 2009 Mandatory sectoral and regional cooperation and participation of important actors. Climate change and adaptation strategies are not mandatory for subordinate programmes and concepts. No assessment of climate change fitness, no incentives to implement adaptation strategies.
Programme for Flood-Safe Development in Settlement Areas Legally binding land use/building restrictions for red natural hazard zones. No regulations for existing building areas in hazard zones or for yellow hazard zones. Increased risk potential owing to climate change is not considered. Regional Development Programme, incl. strategic environmental assessment
www.clisp.eu 61
Selective action against climate change possible. No identification of risk areas and retention areas. No monitoring of implementation at local level. Strategic environmental assessment: no reference to climate change.
Regional Development Guidelines for the District of Liezen Facilitate the coordination of sub-regional and cross-sectoral topics, although a cross‐sectoral analysis is not mandatory. Range of topics is limited, aspects of climate change are not considered, concept outlines very vague.
Sub‐Regional Development Concept No reference to adaptation strategies at the legal level. No prioritizing of measures. No monitoring and evaluation of whether or not measures are sustainable for the region.
Local Development Concept, incl. strategic environmental assessment Implementation is scheduled; evaluation of intended projects. Voluntary nature fosters commitment and cooperation. Topics to be covered are not predetermined, which makes the concept flexible, but content depends on municipalities’ interests.
For a detailed assessment of the strengths, weaknesses, opportunities and threats of each planning instrument cf. annex B.
Climate Change Fitness The Development Programme has the potential to serve as a foundation for adaptation strategies at regional level. The flood protection programme can be considered a good practice example of a regional-level adaptation strategy instrument that provides a monitoring system. Mitigation of climate change is defined as a task for supra‐local spatial planning. Compulsory strategic environmental assessments at regional and local level could be used to assess the consequences of plans and programmes for climate change, as well as to assess the impact of climate change on spatial development, but do yet reference climate change.
For a detailed assessment of the climate change fitness of each planning instrument, cf. annex B.
(General) Enhancement Options Description of the impact of climate change as a specific chapter in spatial plans and programmes. Integration of climate change by earmarking climate change-related indicators, developing new indicators based on existing data, and suggesting additional climate change-related data. Explicit reference to climate change, especially in strategic environmental assessments. Establishment of a spatial monitoring system with reference to indicators of climate change. The identification of risk areas, considering additional climate-induced risk.
For detailed enhancement options for each planning instrument, cf. annex B.
Lessons Learned With regard to adaptation strategies for the greater risk of natural hazards, the spatial planning system in Steiermark is already quite well prepared with the existing Programme for Flood-Safe Development in Settlement Areas. However, the zoning of flooding risk areas is based on previous flood events. The revision of calculation rules, i.e. the enlargement of these zones
www.clisp.eu 62
owing to the higher risk of flooding caused by climate change, lies within the power of the federal ministry, and consequently requires nationwide standardisation. The inclusion of coordinated and integrated strategic environmental assessments in regional development programmes and local development concepts can help to increase the climate change fitness of these spatial planning instruments, providing the strategic environmental assessments are amended accordingly. The current spatial information system, RaumIS, enables spatial development in Steiermark to be monitored. This is an excellent basis from which to factor climate change indicators in to assessments of the effects of climate change policy on spatial development.
www.clisp.eu 63
4.2.3 Upper Austria Model Region
Description of Model Region Location: Austria, federal state of Upper Austria Administrative level: entire federal state Area: 11,981.9 km²; highest point: 2,995 m; lowest point: 239 m; precipitation: 750 mm – 3,000 mm / year Climate change exposure: wide variety of local climate situations Observed climate change impacts: extreme weather events – extremely hot days, intense rain; decreasing snow cover in flatlands; drought problems in grassland areas Population (2010): 1,411,238 Population growth: 1981 – 2009: + 11.1%; 2009 – 2030: + 6.4% Land use (2005): settlement area: 6.7%; arable land: 25%; grasslands: 21.9%; woodland 36.6%; uncultivated area: 9.7% Growth of settlement area 2010 – 2030: + 20% to 30% Regional net product index (EU 27 = 100): 122.6
The main adaptation requirements relevant to spatial planning in Upper Austria: Dealing with new and aggravated climate-related natural hazards Prevention of heat islands in densely built-up core city areas Management of land use changes caused by climate change or by reactions to climate change.
Evaluation Criteria and Methods Evaluation criteria chosen: relevance, flexibility/stability, binding nature, coherence/synergies/conflicts, effectiveness, collaboration with sectoral planning/participation/stakeholder consultation (for details, cf. annex B).
Methods and evaluation process: Desk research by the CLISP expert team resulting in a draft report Interviews with selected regional and local experts based on the draft report Documentation of interviews in a transcript correction round, and approval by experts Revision of the draft report (short and long versions)
Description of Evaluated Policies, Instruments & Procedures The whole spatial planning system was evaluated: 1. Spatial policies a. Government Programme 2009-2015 b. Sectoral policies concerning climate change adaptation (forestry, water management) 2. Spatial planning instruments a. Regional Spatial Programme b. Sectoral Spatial Programme c. Guidelines of the State Government d. Spatial Development Concept at local level e. Land Use Plan at local level f. Building Plan at local level g. Building Act h. Technical Building Regulations Act i. Strategic environmental assessments 3. Spatial planning procedures a. Procedures in regional planning b. Procedures in local planning
www.clisp.eu 64
Assessment of Evaluated Policies, Instruments & Procedures Neither climate change mitigation nor climate change adaptation goals and measures are yet implemented in the spatial planning instruments and procedures of Upper Austria. 1. Spatial policies Goals and measures concerning climate change adaptation were addressed for the first time in the recent governmental working programme for 2009 to 2015. Climate change adaptation is a new topic in climate policy in Upper Austria. A research programme was launched to study the impact of climate change at the regional level (2007- 2009). 2. Spatial planning instruments For a detailed assessment of strengths and weaknesses, cf. executive summary in annex B. The main strengths are that some instruments already include natural hazard protection as a goal and precondition for building zones. Many instruments have the potential to define or restrict building zones (e.g. for hazard prevention or to secure fresh air corridors). The main limitations are that climate change adaptation is not explicitly included in the goals of these instruments, and that the relevant instruments have a limited scope (not mandatory, not available state-wide) or are not binding (regional spatial planning programmes, for example, are not available state-wide). 3. Spatial planning procedures Strategic environmental impact assessments are mandatory only in specific cases, and are thus unable to offer a comprehensive means of assessing the climate change fitness of land use plans. Up to now, the tendering process for studies, concepts and reports, as a mandatory part of regional spatial planning programmes and spatial development concepts, has not included climate change issues.
Climate Change Fitness 1. Neither climate change mitigation nor climate change adaptation goals and measures are yet implemented in the spatial planning instruments and procedures of Upper Austria. 2. Potential as yet unused: insufficient use is made of strong instruments to deal with climate change mitigation and adaptation, such as regional and sectoral programmes and the building plan. 3. No coherent strategy: at the moment, projects which respond to climate change (e.g. renewable energy plants, expansion of tourism resorts in higher regions) are handled on a case- by-case basis. 4. Climate-proofing: there is no instrument available to climate-proof spatial plans. Strategic environmental assessments are obligatory only in specific cases, and cannot cover plans and programmes comprehensively. 5. Coherent planning: harmonised methods and regulations are required by regional and local authorities to enhance the climate change fitness capabilities of spatial planning instruments. A top-down approach is needed.
(General) Enhancement Options 1. Integration of climate change in to policies and instruments: Climate change mitigation and adaptation must be addressed explicitly in the Spatial Planning Act of Upper Austria. The Spatial Planning Act should prescribe climate change mitigation and adaptation as mandatory content in planning instruments. A climate fitness check could be implemented additionally in the procedure (set-up, approval) for land use plans. 2. Integration of climate change issues in planning procedures Climate change issues must be integrated as a task in the tendering process for studies,
www.clisp.eu 65
concepts and reports carried out in the stage before programmes and plans are adopted. The Ombudsman’s Office for Environmental Conservation and the Ombudsman’s Office for Climate Conservation must be integrated in the consultation procedure for regional and sectoral programmes. Guidelines, handbooks, standards and checklists must be provided to support implementation. The availability of hazard zone maps which have already integrated climate change risks is vital to the consideration of climate change risks in spatial planning. For specific enhancement options concerning the individual instruments, cf. the executive summary in annex B.
Lessons Learned 1. Content development: a. The methods and parameters for hazard zone mapping between the two national authorities responsible for river engineering and for torrent and avalanche control must be harmonised. b. Checklists, standards, handbooks, good practice examples are needed for implementation. 2. Organisational development: a. Responsibilities for the cross-sectoral task of climate change mitigation and adaptation must be defined. b. Spatial planning has strong instruments and procedures in place both to react to climate change, and to facilitate and moderate cross-sectoral interests and concerns. It does not make sufficient use of the potential they offer, however.
www.clisp.eu 66
4.2.4 Berchtesgadener Land and Miesbach Model Region (Bavaria)
Description of Model Region Location (both model regions): Germany, state of Bavaria Administrative level / scale: district
Berchtesgadener Land (BGL) 840 km² with a total population of approximately 102,400 persons living in 15 municipalities Most important economic sectors: service sector, especially tourism and health services, followed by the industrial and manufacturing sector
Miesbach (MB) 864 km² with a total population of approximately 95,241 persons living in 17 municipalities Most important economic sectors: industry and manufacturing in the north, tourism in the south.
The main adaptation requirements relevant to Berchtesgadener Land and Miesbach: Dealing with climate-related hazards (especially floods, avalanches and rock falls) and their impact on built-up areas and infrastructure. Climate-related impacts on tourism and recreation (extension of tourist season in summer; less reliable snow for winter tourism). Raising awareness of climate change adaptation among the population and decision-makers, in order to increase the acceptance and assertiveness of spatial planning. Adaptation of the composition (tree species) of forests to the new climatic conditions and fostering of natural forest regeneration in order to maintain and increase the forests’ protective function.
Evaluation Criteria and Methods Evaluation criteria chosen: relevance, coherence, synergies and conflicts including collaboration with sectoral planning, political will, flexibility/stability, binding nature, collaboration with sectoral planning/participation/stakeholders, consultation effectiveness, efficiency and feasibility (for details, cf. annex B).
Methods and evaluation process: 17 interviews with spatial and sectoral planning experts Four stakeholder workshops in municipalities – Berchtesgaden (BGL), Piding (BGL), Bayrischzell (MB) and Bad Wiessee (MB) Document analysis
Description of Evaluated Policies, Instruments & Procedures Spatial Planning instruments: Bavarian Regional Development Programme 2006 Südostoberbayern Regional Plan 18 [Berchtesgadener Land model region] / Oberland Regional Plan 17 [Miesbach model region] Preparatory Land Use Plans Urban Land Use Plans Regional management of the Berchtesgadener Land district and regional management of the Miesbach district
www.clisp.eu 67
Assessment of Evaluated policies, Instruments & Procedures Bavarian Regional Development Programme 2006, Regional Plan 18, and Regional Plan 17 Strengths: long-term perspective and management beyond legislative periods; potential to solve sectoral conflicts; although climate change and adaptation are not explicitly mentioned, there are a number of specifications for natural hazard protection; internal and external coherence. Weaknesses/constraints: not enough specifications aimed at climate change adaptation; specifications are not sufficiently binding; little importance attached to the Regional Plans specifications at municipal level; territorial scale of Regional Plans too large to include specific adaptation measures; long update intervals. Enhancement options: increase quantity and quality of specifications relevant to climate change adaptation; integrate climate change adaptation as an additional argument for the implementation of existing objectives and principles relating to natural hazard protection; comprehensive designation of natural hazards in Regional Plans; shorten update intervals.
Preparatory Land Use Plans & Urban Land Use Plans Strengths: degree of implementation of the objectives and targets of spatial planning; the Preparatory Land Use Plan, in particular, provides an opportunity to designate areas for future development. Weaknesses/constraints: Urban Land Use Plans of little relevance to natural hazard protection; little awareness about changing natural hazards and the municipalities’ need to adapt; too little coherence between Urban Land Use Plans and the Regional Development Programme and Regional Plans. Enhancement options: involve sectoral planning at an early stage.
Regional Management Strengths: great flexibility as local stakeholders work on the chosen topics (bottom-up approach); people with different professional backgrounds are brought together (networking, social learning). Weaknesses/constraints: so far only climate change mitigation is an issue; insufficiently binding; implementation of activities depends on willingness of local stakeholders and human and financial resources. Enhancement options: strengthen coordination between regional management and the Regional Plans, improve human and financial resources.
Implementation of Evaluated Instruments Strengths: long tradition of natural hazard protection; although the original objectives and principles of the evaluated instruments did not cover adaptation to climate change, the instruments have proven effective in climate-proof planning. Weaknesses/constraints: possibility of deviation from objectives and principles in the implementation process; successful adaptation to climate change depends heavily on the understanding and willingness of regional and local stakeholders and decision-makers (esp. district administrations, regional governments). Enhancement options: intensify dialogue and information exchange between all of the parties involved in spatial planning; create platform for knowledge transfer, including sectoral planning; awareness-raising among decision-makers and the population; greater involvement on the part of local administrations.
Climate Change Fitness Generally, spatial planning offers adequate procedures and instruments to cope with the complexity of climate change and shifting natural hazard scenarios, especially where the development of new building areas is concerned. Sectoral planning provides a sufficient complement to protect the inner Alpine infrastructure against climate-induced challenges. New instruments are not seen as necessary. Rather, adjustments must be made to the content and formal framework at the superordinate level (Regional Development Programme and Regional
www.clisp.eu 68
Plans). The influence of spatial planning, especially of the Regional Development Programme and Regional Plans, on areas that are already built up is rather small, however. A shift in the planning philosophy of all actors, towards a constant and cooperative information and knowledge transfer, would further enhance climate change fitness.
(General) Enhancement Options The existing sets of objectives and principles laid down in the Regional Development Programme and the Regional Plans provide an effective framework for coping with climate change challenges. These existing objectives and principles for dealing with natural hazards could be given greater priority. Explicitly adding climate change and adaptation requirements to the objectives and principles of the Regional Development Programme and the Regional Plans would give them priority in spatial planning, and lend adaptation activities still greater legitimacy. A Preparatory Land Use Plan for several municipalities that belong to one topographic region would increase the climate change fitness of urban land use planning. A potentially good approach could be for regional planning associations to coordinate trans-municipal urban land use planning. Regional management should take up the topic of climate change adaptation. This would help to enhance awareness, and give the regional planning associations an incentive to update their Regional Plans, taking climate change adaptation requirements into account. Areas vulnerable to climate change should be identified through local stakeholder involvement and indicated in the Regional Plans. This would enhance stakeholder awareness of climate change and step up the integration of local knowledge and quantitative scientific data.
Lessons Learned Many municipalities are aware of the issue and appreciate support and help with future planning activities and dealing with the uncertainties of climate change impacts. One of the challenges for spatial planning is to enable further spatial development in inner Alpine municipalities in view of the constraints that natural hazards and nature conservation areas place on settlement space. Risk communication activities must take a sensitive and cautious approach in order to raise interest and the willingness of the local stakeholders to get involved in adaptation activities, without making people afraid and reluctant to deal with the possible future impact of climate change.
www.clisp.eu 69
4.2.5 Alessandria Model Region
Description of Model Region Location: Italy, Province of Alessandria Administrative level: NUTS 3 Area of 640 km2 32 municipalities with almost 35,000 inhabitants Population is employed mainly in agriculture (11.2%) industry (32.4%) and tourism (56.4%). Seven rivers cross the area; one of them is the river Orba.
The main adaptation requirements relevant to spatial planning in Alessandria: Water management: reduction of usable water because of the change in precipitation patterns. Natural hazards: mainly landslides and flooding, owing to expected disruptions in the hydro- geological system triggered by climate change.
Evaluation Criteria and Methods Evaluation criteria: relevance to adaptation, flexibility/stability, binding nature; coherence, synergies, conflicts; effectiveness and feasibility; main impacts and enhancement options Methods and evaluation process: 16 interviews with provincial administrators and experts in territorial planning and in water resource management
Description of Evaluated Policies, Instruments & Procedures Sectoral planning instruments (water): Regional Water Protection Plan (2007); Hydrogeological System Plan (2001) River Contracts (2007), incl. the Orba River Contract and the corresponding Action Plan (2010)
Assessment of Evaluated Policies, Instruments & Procedures Relevance, including binding nature, stability and flexibility The Regional Water Protection Plan is the only recent regional plan that explicitly mentions climate change as an external driving force that affects water resources and land development. The Hydrogeological System Plan is the only regional plan that is binding upon regional and local spatial planning and land development. The River Contract is a fundamental local implementation instrument of the Regional Water Protection Plan. It integrates and coordinates planning and programming instruments for the territory of the river basin. The River Contract Action Plan aims to reduce vulnerability related not only to water problems, but also to territorial development aspects. It also considers socio-economic aspects. The River Contract Action Plan manages the participation process, i.e. stakeholder involvement, communication and information. It must be monitored and adjusted from time to time. The objectives and measures stated in the Orba River Contract Action Plan will be binding locally as soon as it has been adopted by local municipality regulation plans. Coherence with other planning instruments The River Contract integrates different sectoral planning domains at local level, and offers an opportunity to both handle conflicts and exploit synergies with other planning instruments. Effectiveness and feasibility The Action Plan was adopted by the provincial government on Nov. 8, 2010. It is too early to assess its effectiveness and feasibility. This will be a question of political will and adequate funding.
Climate Change Fitness Where water use aspects are concerned, the existing classic instruments of spatial planning at local and regional levels provide insufficient scope to respond to the impacts of climate change. The River Contract is a new instrument and a good starting point from which to approach the management of climate change impacts.
www.clisp.eu 70
Where natural hazards are concerned, a regional/national approach has been developed through the Hydrogeological System Plan. This factors in landslides and flood zones at local level, but makes no explicit reference at all to climate change. It is expected that local spatial planning instruments (municipality regulations), which are interlinked with risk maps and civil protection plans against natural hazards, will be able to manage the consequences of climate change much more effectively, provided adequate funding is available.
(General) Enhancement Options Monitoring system: it is very important to develop (and to finance) a monitoring programme for the territory. This should be geared not only to environmental and qualitative and quantitative water-related factors, but also to planning objectives and goals, to evaluate the efficacy of the measures and action taken. However, those responsible for monitoring, and the action to be taken, must be defined. The tasks involved include data sampling and management, indicator selection and analysis, feedback analysis and Action Plan progress monitoring using indicators. Participatory approach: the effective implementation of the Orba River Contract needs real vertical integration between various levels of government, as well as horizontal integration across institutions, associations, and the population. Territorial integration is required between the public bodies concerned. Integrating policies and creating synergies through dialogue and information, transparency and conflict prevention is a difficult process that must be managed and funded continuously. It is important that the Contract has a strong organisational structure including management unit, technical secretary, stakeholder assembly, and permanent working group. Process management at regional level: a good organisational structure involves the regional government and administration taking a more active role both in the implementation of the River Contract and in the process as a whole (e.g. quality control, finance, regional coordination). Process management at regional level: enhance process control; guarantee the involvement of other public and private actors in the territory; guarantee the formal commitment of the whole territory to realising the Action Plan – meaning opening the River Contract up to commitments from all local municipalities, all the main stakeholders (mainly water users, who must uphold their interests within the primary framework of the Contract), and to the public. Process management at local level: the Contract must be enforced at the local level, because it is generally heavily influenced by local and regional politics, and often loses continuity. Commitment to the Contract must be more binding, especially at local level.
Lessons Learned Many instruments are already available for climate-proof planning, with a particular emphasis on preparation for critical water and environmental situations in the future. These instruments are part of existing national/regional legislation and of regional/provincial/local planning systems. Three major challenges are to be dealt with in this regard: The scientific uncertainty related to the analysis of climate change effects on river discharges makes it difficult to present strong and clear technical solutions to decision-makers, and to convince them of the necessity of intervention. Climate change issues are not included explicitly in water planning systems. Often, there is no clear connection between sectoral water planning and spatial planning. The concept of risk has been acknowledged only with regard to flooding, with the development of vulnerability maps and the recent inclusion of alert systems in local municipalities’ urban plans. Political or financial constraints are often stronger than scientific and technical arguments, though. The new River Contract may become key to implement spatial and sectoral planning together at catchment level. Awareness of the impact of climate change on water resources is not particularly high among local administrations, water users, and stakeholders. In mountain regions, the impacts of climate change – if recognised at all – are often seen simply as part of daily life. People claim to be used to responding to changes in natural conditions in general (autonomous adaptation) and do not consider planned adaptation strategies worthwhile.
www.clisp.eu 71
4.2.6 Bozen Model Region (South Tyrol)
Description of Model Region Location: Italy, autonomous province of Bozen-Alto Adige Administrative level: NUTS 3 Size (2001): 7,400.43 km² Population (2009): 503,434 Land use types: - settlements: 102.0 km² - industrial zones: 14.4 km² - transport zones: 33.0 km² - leisure & sport zones: 9.7 km² - dump zones: 3.5 km² - other artificial surfaces : 7.7 km² - arable land / permanent crops : 867.4 km² - forest areas: 3,591.1 km² - grassland: 1,346.4 km² - zones without vegetation: 1,370.7 km² - water: 43.8 km² Gross domestic product by sector and market prices [EUR m] as of 2009: I: 662.7; II: 3,370.6; III: 11,375.7; 116 municipalities (only 6.6% of the province is permanent settlement area) Elevation: 16% < 1000 m; 44% 1000 – 2000 m; 40% > 2000 m. Narrow transit valley with dense transport infrastructures (A22 Brenner-Modena; railway link Bolzano-Verona)
The main adaptation requirement relevant to spatial planning in South Tyrol is to deal with multiple hazards (floods, avalanches, rock falls) endangering urban zones.
Evaluation Criteria and Methods Evaluation criteria chosen: flexibility in enforcement and implementation; binding nature for the entities responsible for implementing the Hazard Zone Plan; coherence/synergies and conflicts regarding the relationship of the Hazard Zone Plan with other spatial planning instruments; efficiency and effectiveness. Further details are provided in the annex.
Methods and evaluation process: (1) Literature review of policy and planning documents Guidelines for drawing up the Hazard Zone Plan and for classifying specific risks (2008) Provincial decree of the governor concerning the Hazard Zone Plan adopted on 28 July 2008 Spatial Planning Act. legislation no. 13 (1997) Activity report of Department 30 – “waterproofing” buildings (2008) Information system on hydro-geological risks, methodological report (2008) (2) Guided interviews with eight experts from different departments, technical consultancies and authorities at municipality and district level.
Description of Evaluated Policies, Instruments & Procedures The guidelines for implementing the Hazard Zone Plan, referring to the Directive issued by the Provincial Governor in August 2008.
Assessment of Evaluated Policies, Instruments & Procedures Hazard zone planning: Relevance to climate change adaptation: potential to reduce vulnerability; limited relevance to settled zones or areas awaiting urbanisation. Flexibility: regular amendment every ten years. If natural conditions change, the Hazard Zone Plan must be adapted immediately to the new conditions. The adaptation of maps and plans therefore depends on the municipality’s foresight with regard to changes in hazard processes and the installed protection facilities. Coherence/synergies/conflicts: land use conflicts may arise if buildings or development areas are located in red zones; synergies with river basin management exist (e.g. the River Basin Forum).
www.clisp.eu 72
Efficiency: many authorities are involved, which requires inter-agency cooperation and interdisciplinary knowledge. No central administrative department, and complex technical and administrative requirements; may mean a heavy financial burden for municipalities. Effectiveness: maps and data sets offer a solid base for the recognition, determination and assessment of hydro-geological processes; basis for assessing benefit-cost ratio for new building projects; introduction of Hazard Zone Plan requires municipalities to draft long-term plans.
Applicability of spatial planning legislation in general: Climate change adaptation aspects are considered indirectly in some parts of sectoral spatial planning legislation, in the form of incentives, requirements and recommendations. The practical implementation of spatial planning legislation and instruments, however, appears to be inadequate, owing to the institutional weakness of the spatial planning service, poor consistency in tackling key planning issues, inadequate knowledge and information, a lack of awareness among local political representatives, and the poor integration of climate adaptation and mitigation strategies in support schemes.
Climate Change Fitness The Hazard Zone Plan refers only indirectly to climate change issues. The maps consider the effects of climate change, such as the thawing of the permafrost, however. The Hazard Zone Plan is an effective instrument with which to reduce vulnerability. All 116 municipalities are implementing it. Its flexibility is a strength, as it is constantly updated. Map preparation draws on several fields of knowledge. None of the spatial planning tools currently in use addresses the issue of climate change in a specific and explicit way. Only the Spatial Development and Spatial Regulation Plan 2007, which is not yet in force, does so (cf. annex). No satisfactory measures concerning climate change exist in other instruments.
(General) Enhancement Options Climate change issues should be integrated explicitly into the current spatial planning instruments. Following the example of the Spatial Development and Spatial Regulation Plan 2007, specific recommendations should be given for all cases in which the consequences of climate change have been considered only indirectly up to now. The provincial government should set up a central office in charge of implementing the Hazard Zone Plan in order to support municipalities. A working group on conflict management should be set up to deal with tensions and appeals by residents (e.g. positive examples of the stakeholder processes are found in the two river basin management projects – the Etsch dialogue and the Eisack river basin forum).
Lessons Learned Municipalities have problems with the administrative and technical requirements associated with the implementation of the Hazard Zone Plan, because they lack the human resources and capacity to support the Hazard Zone Plan implementation process. There is still a long way to go to achieve active risk management. The Hazard Zone Plan is just the first step. A system to analyse costs and benefits, or coverage options through the use of insurance models or financial instruments, is needed. Focused strategies are needed to raise public awareness of climate change, its effects and consequences (e.g. specific training programmes in schools or centres for education). Expert opinions on the issue of climate change fitness differ with regard to simulation results, the effects of adaptation measures, and the management of emerging conflicts.
www.clisp.eu 73
4.2.7 Liechtenstein Model Region
Description of Model Region Location: Principality of Liechtenstein Administrative level: NUTS 3 36,000 inhabitants (end-2008) Area of 160 km2 Elevation of between 430 and 2599 m above sea level 11 municipalities Relevant economic sectors: finance/banking; mechanical engineering (Hilti, Örlikon, Presta), health products (ivoclar, vivadent), food production (Hilcona, Malbuner) Comparatively mild climate, influenced by the southern wind; average temperature 10.4°C (1996 - 2006), mean annual temperature has increased by 1.3°C from 1980 to 2007.
The main adaptation requirements relevant to spatial planning in Liechtenstein: Dealing with conflicts between existing and future groundwater protection zones, on the one hand, and the extension of settlements, on the other. With climate change and the expected increase in water demand, groundwater protection will be of high importance. The main identified sectors of water use are households (drinking water), agriculture (irrigation), energy generation (hydroelectricity), and tourism (artificial snow-making).
Evaluation Criteria and Methods The main criterion is the effectiveness of the Structural Plan and Land Use Plans in ensuring the protection of groundwater areas in the face of settlement enlargement.
Methods and evaluation process: Review of existing basic information related to water use in Liechtenstein Interviews with four representatives of the public administration and companies which represent the four main sectors of water use (households, agriculture, energy generation, tourism)
Description of Evaluated Policies, Instruments & Procedures Structural Plan for the Principality of Liechtenstein
Assessment of Evaluated Policies, Instruments & Procedures It is possible to respond to the challenges of climate change using the existing basic data and spatial planning instruments. The high quality of available basic data permits the identification and assessment of water conflicts. The Structural Plan is able to coordinate sector-related planning sufficiently, and offers a good basis for coordinating conflicts relating to groundwater protection. Implementation deficit: the Structural Plan is binding only on the authorities, not on landowners. At the municipal level, settlement development is favoured over groundwater protection where there are competing interests.
Climate Change Fitness Liechtenstein regularly publishes a climate report (2001, 2005, 2010). However, beyond general statements regarding awareness of climate change challenges, this has not led to direct recommendations related to spatial planning so far. Great dependency on groundwater for drinking water supply. Great dependency on a single drainage area (Bündner Rheintal)
(General) Enhancement Options
www.clisp.eu 74
Protection of groundwater by spatial planning measures (as water protection zones within the Municipal Building Plan). Conflicts must be expected in well-developed areas near motorway exits. These areas are attractive to land-consuming industries such as logistics companies. This applies in particular to the Vaduz / Triesen bottleneck. Identification and protection of areas for the extension of groundwater wells. Measures to ensure the quantity and quality of existing spring water and groundwater wells, and in particular to reduce water loss. Continuing development of the legal framework for thermal groundwater use. Continuation of the existing coordination with water supply companies concerning the groundwater supply. This permits an holistic view und helps to avoid bottlenecks. Identification of irrigation needs and evaluation of the irrigation capability of soils. Simple and feasible introduction and enforcement of mandatory permits for the withdrawal of water for agricultural irrigation.
Lessons Learned The Structural Plan at country level and the Zone Plan at municipal level are able to solve conflicts which must be expected with regard to groundwater protection zones. However, political enforcement will be needed. With the Water Act and the water protection regulations, Liechtenstein has the instruments to implement an approval procedure for agricultural irrigation. A change of practice is required. Spatial planning instruments for the new, long-term positioning of the winter sports area Malbun (1600 m – 2000 m) exist.
www.clisp.eu 75
4.2.8 Gorenjska Model Region (Slovenia)
Description of Model Region Location: Slovenia, region of Gorenjska Administrative level: NUTS 3 200,000 inhabitants (10% of the national population) Location: in the north west of Slovenia, covering 10.5% of Slovenia’s total land area 70% of the region is mountainous, 44.4% of the surface area accounted for by NATURA 2000 sites 18 municipalities (two municipalities are chosen as hot spots: Železniki and Jesenice)
The main adaptation requirements relevant to spatial planning in Gorenjska: Providing effective protection against floods, landslides and debris flows for settlements and the transport infrastructure
Evaluation Criteria and Methods Evaluation criteria chosen: goals and guidelines, priorities for climate change adaptation, relevance, binding nature, effectiveness/efficiency/feasibility, and enhancement options (for details cf. annex).
Methods and evaluation process: 18 expert interviews Three expert and local/regional stakeholder workshops Document analysis SWOT analysis
Description of Evaluated Policies, Instruments & Procedures Spatial Planning instruments: Spatial Planning Act (2007) Spatial Development Strategy (goals and guidelines) of Slovenia Regional Development Programme for the Gorenjska region (2007-2013) Municipal spatial plans (existing plans and plans in preparation)
Sectoral planning instruments: Draft Climate Change Act (2010) and other sectoral acts
Assessment of Evaluated Policies, Instruments & Procedures Spatial Planning Act Contains objectives that are indirectly related to the issues of climate change and adaptation. Implementation of the Act only indirectly affects the current and future reduction of vulnerability. Spatial Development Strategy of Slovenia Contains objectives that are indirectly related to the issues of climate change and adaptation. Not a sufficient basis for spatial planning at national, regional and local levels that would take due account of climate adaptation aspects. Strategy is not sufficiently used as a reference in the preparation of municipal spatial plans. Regional Development Programme for the Gorenjska region Deals with the issue of climate change in the SWOT analysis. Does not provide policies or measures aimed at adapting settlements and transport infrastructures to climate change impacts. Municipal Spatial Plans Do not explicitly include adaptation issues in objectives, policies and land use concepts. Some plans indirectly include climate change adaptation. Draft Climate Change Act
www.clisp.eu 76
Integration of climate targets into sectoral legislation and into national, sectoral, regional and local programmes and plans. Deals with the challenges of adapting to climate change, mainly with regard to the problems of providing better flood protection. Changes must be anticipated in mandatory vulnerability assessment studies, and climate change adaptation measures in spatial planning.
Climate Change Fitness Climate change fitness is addressed in a conditional and indirect way. Although they are included only indirectly, the Spatial Planning Act and the Spatial Development Strategy of Slovenia contain a number of objectives and guidelines that refer indirectly to climate change adaptation. However, the strategy is thought to be insufficiently used as a reference in the preparation of municipal spatial plans. The basic objectives and guidelines of the existing municipal spatial plans are still drawn from plans that were prepared at the end of the 1980s. Amendments embrace changes in the legal system and growth in the demand for land, but without any major conceptual changes.
(General) Enhancement Options An amendment to the draft Climate Change Act that includes regional climate (adaptation and mitigation) strategies as a planning instrument. Amendment to the Spatial Planning Act with the inclusion of climate change adaptation and mitigation objectives and guidelines. Preparation of a new Spatial Development Strategy of Slovenia in which climate change adaptation and mitigation issues are addressed by objectives, guidelines and concepts. Preparation of regional spatial plans and regional climate strategies for all 12 statistical regions in Slovenia, regardless of the direction and pace of reorganisation of second‐tier local self- government. Update to the existing municipal spatial plans, and preparation of a new generation of municipal spatial plans, which will be aligned with the Climate Change Act, the new Spatial Planning Act, and the new Spatial Development Strategy of Slovenia.
Lessons Learned Awareness of the problem and willingness to deal with the challenges of climate adaptation among representatives at the national level is high. Awareness of the problem, willingness to adapt and to participate in research and development projects seems to be rather low among the municipalities of the Gorenjska region. Without establishing regions as local self‐governing units, it will be very difficult to actively promote climate change issues and adaptation to them. The preparation of regional climate strategies should also be envisaged in the draft Climate Change Act.
www.clisp.eu 77
4.2.9 Grisons Model Region
Description of Model Region Characteristic of the Grisons Region: Location: Switzerland, Canton Grisons (Graubünden) Administrative level: NUTS 3 Size: 7,105.2 km2; population: 189,000 residents (2007) Elevation: Piz Bernina: 4048 m, San Vittore 278 m Main land use types (2006): settlement area 1.8%, agricultural area 29.8%, forests and crops 26.7%, non-productive areas 41.7% Relevant economic sectors (2005): employed in primary sector: 8,400; employed in secondary sector: 24,095; employed in tertiary sector: 67,263. Business establishments in the primary sector: 3,114; business establishments in the secondary sector: 2,422; business establishments in the tertiary sector: 9,218. The revenues from tourism provide about half of the jobs and incomes of the population of Canton Grisons. Every year, there are approximately twelve million overnight stays in the 170,000 hotel beds. International companies such as Würth, Hamilton, the Hoppe-Group, and Trumpf are active in Canton Grisons. Important industrial companies: Ems-Chemie, CEDES.
The main adaptation requirements relevant to spatial planning in Grisons: Dealing with changing precipitation patterns, an increase in mean summer and winter temperatures, and the resulting impacts on the water system, especially water shortages in certain areas. Dealing with water allocation conflicts. The main sectors of water use that have been identified are households (drinking water), agriculture (irrigation), energy generation (hydroelectricity), and tourism (artificial snow-making).
Evaluation Criteria and Methods The main criterion is the effectiveness of the cantonal and regional structural plan in dealing with changing water supply and demand.
Methods and evaluation process: Review of existing basic information relating to Grisons. Interviews with eight representatives of the public administration and companies that represent the four main sectors of water use (households, agriculture, energy generation, tourism).
Description of Evaluated Policies, Instruments & Procedures Cantonal Structural Plan Regional Structural Plan
Assessment of Evaluated Policies, Instruments & Procedures The Cantonal Structural Plan and the Regional Structural Plan provide general options for coping with the challenges of climate change in the water sector. Climate change is a general topic in the Cantonal Structural Plan. Major shortcomings nonetheless exist concerning: The availability of basic data on water demand and water consumption. Coordination between the administrative levels (municipalities, canton) and the sectors of water use, because responsibilities are distributed differently among different authorities and levels. Cantonal spatial planning is not able to implement long-term structural planning tackling future water shortages, because the authority for water lies with the municipalities. Enhancement options: Water management issues should be monitored and coordinated cross-sectorally at cantonal level. Introduce a water management plan to tackle the threat of water allocation disputes. The Cantonal Structural Plan of Grisons will be revised in the next few years. The studies conducted in CLISP will serve as basis for this revision. The revision might include an obligation to implement a water
www.clisp.eu 78
management plan at cantonal level, to delimit the catchment area, and to define responsibilities and the planning procedure.
Climate Change Fitness Spatial planning instruments cannot tackle the main climate change-related challenges in the water sector – securing water supplies for drinking water, irrigation, artificial snow production, and energy generation. The Structural Plan serves as the essential basis for coordinating sector-related water supply planning. Knowledge gaps exist in the following areas: Insufficient or complete absence of an overview of municipal water supplies (need to enhance the water supply atlas with data regarding spring discharges, reservoir content, overflow water, groundwater withdrawal, etc.). Insufficient knowledge of the impact of climate change on the discharge conditions of rivers and streams, groundwater (levels, quality, temperature) and spring discharges (quantity and quality) owing to glacier retreat, changes in snow cover and changes to the precipitation structure for the various climate regions in Grisons. Residents, municipalities, companies and farmers are not sufficiently informed about saving water and its effective use. Climate change-related challenges are not mentioned in the mission statement of the Grisons cantonal government. Politicians are nonetheless aware of the challenges of climate change.
(General) Enhancement Options Make available and analyse existing basic data concerning the water supply, including changes in water consumption patterns. Develop a water management plan as an integrated concept for larger areas (scope to be determined) Improve inter-sectoral coordination responsibilities in cantonal spatial planning with regard to water supplies by defining a coordination role (e.g. the canton).
Lessons Learned The enhancement options mentioned above will form the basis of the forthcoming revision of the Grisons Cantonal Structural Plan.
www.clisp.eu 79
4.3 Summary The transnational results which can be drawn from the in-depth evaluations of the model regions are summarised here in accordance with the general evaluation criteria (cf. table 15).
(1) Priorities for Climate Adaptation Climate adaptation is not mentioned explicitly in almost all of the spatial planning policies and instruments that were assessed in the model regions,. As the review of spatial planning systems has already shown, this is mostly seen as a weakness in the model regions themselves. Including climate adaptation explicitly in the objectives and principles of spatial planning laws and the spatial planning instruments stipulated by these laws would formally permit adaptation to be considered in the process of weighing competing objectives and interests. It would therefore give adaptation activities a higher priority, and create additional justification for their implementation at regional and local level. The explicit inclusion of climate adaptation in the catalogue of spatial planning goals in planning legislation is all the more important in territories where the density of regional planning is low, i.e. where regional spatial plans either do not exist or do not cover the entire territory. Moreover, planning laws should make it mandatory to deal with climate adaptation in regional and local planning instruments. This would help to mobilise the potential that is generally seen to exist in existing spatial planning instruments and procedures.
(2) Awareness of the Problem and Political Will The in-depth analyses in the model regions show that the awareness of local and regional stakeholders about climate adaptation requirements and the potential contribution of spatial planning differs between the regions. Some model regions state that a degree of awareness exists among politicians and within the administration. Other model regions criticise a low level of awareness among stakeholders and the public, as well as within the spatial planning administration. Considerable potential for enhancing climate change awareness is, however, seen in informal spatial planning practices, e.g. in regional management, collaborative vulnerability mapping and intensified knowledge transfer. Some model regions observed that, although there is some awareness of adaptation needs, local planners and politicians lack the courage to implement adaptation activities which would lead to self-imposed restrictions upon urban development, or conflicts with other local interests.
(3) Relevance of Spatial Planning Instruments and Procedures to Adaptation Requirements The in-depth analysis shows that certain climate change-driven issues, especially natural hazard protection and flood management, are already well addressed and integrated in to spatial planning instruments in some form or other. Some sectoral planning instruments, especially natural hazard zone planning and flood protection management, provide potentially effective instruments for dealing with climate change effects. However, in many cases the implementation of these sectoral spatial planning instruments could be improved, with regard, for example, to the legally binding effects of hazard zones on land use zoning decisions at municipal level. Nevertheless, these instruments do not explicitly consider climate change as a trigger to amend the strategies for challenges posed by natural hazards or flooding, and only few consider climate change scenarios in their conservation objectives.
(4) Flexibility/Stability Some model regions see major weaknesses in the rather static nature of spatial planning instruments, which cannot easily be adjusted to a region’s adaptation requirements. Future revisions of plans and programmes therefore offer a window of opportunity to enhance climate adaptation capacity.
www.clisp.eu 80
(5) Binding Nature Another deficit is seen where strategic policies, programmes or instruments are implemented at the local level. Some model regions point out that strategic instruments might consider adaptation requirements sufficiently at national or state level, but since these instruments have little binding force they are not implemented adequately at the local level. High political pressure and day-to-day routines mean that their potential is not exploited by municipalities.
(6) Coherence, Synergies, Conflicts Some model regions conclude that, even if individual activities exist which contribute to the climate change fitness of spatial planning, they are not embedded in a coherent multi-level spatial strategy on climate adaptation. Conflicts evolve in particular with regard to collaboration between planning actors across the levels of national, regional and local spatial planning. The in-depth analyses of some model regions concluded that there is sometimes a lack of far-sighted planning at the local level . This is a further constraint upon climate fitness. Some model regions therefore address the advantages of a top-down approach and argue in favour of specific, binding obligations at supra-regional level in order to foster coherent measures and regulations at regional and local levels. Strategic environmental assessments are considered to have high potential for climate-proofing spatial planning instruments. Currently, however, strategic environmental assessments do not yet cover climate change issues, neither are they applied to all plans and programmes comprehensively, which limits their climate-proofing scope. Integration into regular spatial planning procedures offers another – alternative or complementary – option for climate-proofing spatial planning instruments, for example by incorporating climate adaptation in the set-up and approval procedures of spatial plans.
(7) Effectiveness, Efficiency and Feasibility Where the effectiveness, efficiency and feasibility of spatial planning instruments are concerned, the in-depth analyses in the model regions show a diverse picture. Some model regions consider existing spatial planning instruments as an effective or at least sufficient framework for coping with climate change challenges. The effectiveness and efficiency of an instrument depends on its implementation. This naturally differs between regions, and a general assessment is difficult. Some model regions consider the implementation of existing spatial planning instruments as ineffective, and an inefficient means of realising adaptation activities.
(8) Collaboration with Sectoral Planning, Participation and Stakeholder Consultation The analyses show that collaboration between spatial planning and sectoral planning is particularly important in the field of natural hazard management and water management. Water management is expected to be influenced by the impact of climate change in many regions. However, spatial planning does not appear to provide sufficient support to respond adequately to the challenges of water shortages, water scarcity, or conflicts about water allocation. This goes hand in hand with considerable knowledge gaps about both current and future water availability and water demand. Certain water planning instruments nonetheless offer considerable potential for climate adaptation, and are related to spatial planning issues (e.g. River Contract in Alessandria; River Basin Forum). Synergies between spatial planning and water management in the field of climate adaptation should be strengthened.
www.clisp.eu 81
5 Enhancement Options
A set of both regionally specific and general enhancement options for climate-proof spatial planning can be drawn from the review of spatial planning systems (cf. chapter 3) and from the in-depth analyses of selected planning instruments in the model regions (cf. chapter 4). The enhancement options (CLISP Action 5.4) can be grouped into the following topics:
5.1 Rethink the Political and Legal Framework
Spatial planning should be addressed explicitly as a separate field of action in national and (future) regional adaptation strategies. This should include coordination with relevant sector planning activities. Similarly, national spatial development concepts and policies should include adaptation to climate change as an explicit action point for future spatial planning. These would be important steps towards mainstreaming adaptation in policies and instruments relevant to spatial development. Climate adaptation must be addressed explicitly in spatial planning laws, policies, instruments and procedures. This would give adaptation activities a higher priority and would create additional justification – if not an obligation – in respect of their implementation at regional and local levels. Further revisions of planning laws, policies and instruments that are already in preparation or scheduled in the near future should take the opportunity to integrate climate change mitigation and adaptation issues into objectives and principles. By redefining and regrouping objectives, greater priority should be given to climate change issues, and they should be interlinked explicitly with other objectives (e.g. natural hazard protection, reducing land consumption, and energy efficiency). This would affect the process of weighing and balancing competing spatial development goals and interests, underline the political will of national and regional governments in the long term, and raise public awareness. 5.2 Focus Spatial Planning Policies and Instruments
Planning procedures (e.g. tendering procedures for studies, concepts and reports, and the production and approval procedures for spatial plans), consultation procedures and guidelines for the implementation of instruments should explicitly address climate adaptation and mitigation. To enhance the climate change fitness of spatial planning, a climate fitness check should be incorporated into planning procedures as standard for planning measures and projects.
The impact of projects and plans on the climate (e.g. expected reduction/increase of CO2 emissions), as well as the possible impact of a changing climate on projects and plans, should be considered and assessed (e.g. when defining the target flood level). Existing schemes for strategic environmental assessments and sustainability appraisals should be used as instruments for the climate-proofing of spatial planning policies and programmes. Climate change-related indicators would have to be incorporated. Strategic environmental assessments should be mandatory for a broad range of spatial development plans and programmes. One of the strengths of spatial planning is its comprehensive, integrative and strategic nature. Spatial planning instruments featuring these strengths could play an important role in facilitating and coordinating climate adaptation at the regional level, and should be more binding upon municipalities in the future. The following instruments are regarded as key
www.clisp.eu 82
instruments in climate adaptation: the Regional Plan in Austria, the Cantonal Structural Plan in Switzerland, the National Structural Plan in Liechtenstein, the State Development Plan and Regional Plan in Germany (Bavaria), the Spatial Development and Spatial Regulation Plan in Italy (South Tyrol), and the Spatial Development Strategy of Slovenia. A key field of action in climate-proof planning is the planning of open and green spaces. The preservation of open spaces, the planning of new green spaces or the recycling of wastelands and brownfield sites are important measures to support air circulation for cooling, to establish habitat networks, ecological corridors, and landscaped parks close to and within urban areas. They also reduce the impact of heat on settlement areas, and secure flood retention and runoff areas. Another key field of action in climate-proof planning is city planning. Examples here include the facilitation of new green building technologies (for construction and operation), improving infrastructures for storm water management and waste management, providing access to safe drinking water, horizontal and vertical greening (green infrastructure), the creation of bodies of water (“blue spaces”) for cooling, green architecture, more compact urban design, and high-quality inner-city development. Another key field of action in climate-proof planning is natural hazard management. Programmes for flood protection or hazard zone mapping do exist in several regions. However, the implementation of these sectoral instruments in spatial planning needs to become more effective in many cases. This might be achieved, for example, by stricter regulations in spatial planning laws to prohibit or severely restrict land use zoning practices and building activities in hazard zones. Moreover, only rarely are climate change scenarios integrated in to hazard assessments and management. Therefore, a standardised approach of integrating climate change projections in to hazard zone mapping would strengthen the climate fitness of existing instruments. Hazard zoning plays a crucial role in climate-proof planning as it produces hazard maps for spatial planning. In fact, hazard mapping must be developed further to produce effective risk maps. By integrating scenarios for climate, settlement and socioeconomic development, hazard zoning could serve as a key instrument in climate-proof planning. Another key field of action in climate-proof planning is water management. Spatial planning is related to a number of different water issues (e.g. flood protection, conservation of protected bodies of water, water and sewerage infrastructure). Spatial planning must thus join forces with other water management stakeholders. Spatial planning must contribute to river basin management in order to protect and clean waters, to ensure sustainable water use, and to manage flood risks at river basin level. In many cases, this requires cooperation between several municipalities.
5.3 Improve the Knowledge Base
The in-depth analysis shows clearly that major efforts should be made to give regional and local planning authorities and other stakeholders access to all existing climate-related information (e.g. on variations in precipitation, temperature, snow line, exposure to radiation, slope orientation, and hazard-prone areas outside the permanent settlement areas). Relevant climate data must be monitored, collected, and provided to spatial planners by the competent institutions in a centralised way and in forms that are usable to spatial planning. The availability of hazard zone maps and access to other tailor-made information which already integrates climate change data is essential for climate adaptation to be given due consideration at municipal level. To establish a spatial monitoring system, specific climate change-related indicators should be developed on the basis of existing data. This would include data management and feedback, process control and environmental monitoring. Spatial monitoring data are absolutely vital if we are to apply an adaptive management approach to spatial planning.
www.clisp.eu 83
Regional planning associations or other planning bodies could be transformed into regional data hubs that compile and provide information to spatial planning decision-makers and stakeholders. Furthermore, the degree of uncertainty inherent in the climate-related indicators, as well as in the climate change scenarios and impact assessments, should be made transparent. Many model regions suggest in their in-depth analysis that the most vulnerable areas be identified using both local knowledge and scientific information. Knowledge transfer on climate change impacts and adequate adaptation options in regional and local planning should be stepped up. Regions and municipalities need administrative and technical support to implement climate- proof instruments and policies. A compilation of data, standards, checklists, planning aids and handbooks, as well as good practice examples, should be made available for implementation, especially at municipal level. 5.4 Cooperate, Participate and Engage
Another key issue in enhancing the climate change fitness of spatial planning concerns strong and integral collaboration between different sectors (e.g. water management, hazard management). Vertical and horizontal collaboration between various levels of government, and the involvement of stakeholders, the scientific community and the general public, are essential to climate adaptation. There has been positive experience with intersectoral working groups and dialogue forums, which facilitate the management of the conflicts and tensions which may arise between residents, municipal actors, and spatial planning administrations facing climate change. The adaptive capacity of spatial planning could be enhanced by coordinating the responsibilities of spatial planning and other sectors (e.g. agriculture, water management) more closely and strengthening the role of spatial planning itself. 5.5 Provide Financial and Human Resources Adaptation to climate change requires financial and human resources, as well as advanced professional training to realise and implement climate adaptation activities at regional and local levels. Climate-fit spatial planning thus provides adequate resources and training programmes for planning experts at national, regional and local planning authorities. A cost/benefit analysis should be implemented to prioritise individual adaptation activities. It offers an effective and efficient way of realising climate change adaptation. Comprehensive guidelines, planning aids, handbooks, standards and checklists must be provided to support implementation at regional and local levels. 5.6 Raise Awareness and Sensitize Stakeholders The review of spatial planning systems showed that climate change awareness is considered one of the most relevant requirements for realising adaptation options in spatial planning. The regional level, in particular, seems to be play a crucial role in adaptation. Awareness of climate change must therefore be fostered. A broad range of decision-makers from all administrative and spatial planning levels (national, regional, local) must act in concert to ensure that the goals of climate adaptation are not undermined by other spatial planning objectives (e.g. economic growth). Pilot projects, informal planning practices and good practice examples have been found to offer considerable potential for enhancing climate change awareness, as well as the political will of decision-makers and politicians.
www.clisp.eu 84
Regional adaptation strategies should be drawn up in cooperation with the scientific community and with extensive involvement from the public to enhance awareness and achieve the legitimacy required for implementation.
www.clisp.eu 85
6 Conclusions
6.1 Lessons Learned
The CLISP project showed that spatial planning already has strong formal planning instruments and important informal planning practices that could be used to respond to climate change and to coordinate cross-sectoral adaptation activities (see chapters 2 and 4). Some instruments already include measures that may contribute to adaptation. However, those measures are generally motivated by other challenges such as natural hazard management, settlement planning or energy saving, and address climate adaptation only indirectly. The CLISP project demonstrated that, even if spatial planning policies, instruments or procedures do not explicitly mention climate adaptation in their objectives or principles, spatial planning can contribute to climate-proof planning, or at least offers the potential to deal with climate adaptation challenges. At the same time, this does not mean that spatial planning is fully prepared for climate change. The consistent implementation of existing adaptation measures and the continued improvement of existing traditional formal and informal spatial planning instruments may reduce vulnerability and improve the robustness of spatial planning to produce climate-proof planning.
Climate-proof planning means improving robustness, reducing risks, improving resilience, reducing vulnerability, and increasing the climate adaptation capacities of spatial planning (BMVBS, 2010). Regional and local spatial planning authorities are key stakeholders in climate-proof planning. The CLISP project shows that existing spatial planning policies and instruments are a valuable starting point for climate adaptation, but need continuous further development to achieve climate-proof planning (cf. chapter 5 on enhancement options).
Spatial planning must rethink its mandate and key objectives. Spatial planning delivers plenty of indirect contributions, and is potentially relevant to climate adaptation. The adaptive capacity of spatial planning could be enhanced if climate adaptation were to be addressed more directly and defined as a spatial planning objective in planning legislation and other frameworks. Future spatial planning is concerned not only with growth and new developments. Increasing the adaptive capacity of spatial planning also means planning for uncertainties and developing scenarios for possible future developments.
Although spatial planning instruments and policies differ in the Alpine space and vary in their binding nature, similar challenges are being faced, e.g. preventing natural hazards, preserving open, green and blue spaces, improving urban design and infrastructures, managing water resources, balancing different land use interests, and improving quality of life. These fields of action appear particularly suitable for improving the robustness and resilience of spatial planning in the face of climate change impacts.
Owing to the horizontal nature of spatial planning, its coordination role is becoming increasingly important, especially where integrative and cross-sectoral concepts are needed. This applies in particular to the complex topic of climate adaptation, which can not be tackled without close vertical and horizontal cooperation between different sectors. Climate adaptation and mitigation issues should be considered in an integrated way to recognise and address conflicts at an early stage.
All the evaluations in the CLISP project are based on assessments of spatial planning instruments and policies conducted by the spatial planning authorities involved and their subcontractors. The result of the assessments might have been different if the assessments had been given by other experts with different professional and institutional backgrounds or interests.
The lack of regional and local climate impact assessments and climate is often mentioned as a barrier to the implementation of climate adaptation. However, the CLISP project showed that despite the manifold barriers and uncertainties that exist, spatial planning has the adaptive capacity and the potential to adapt to climate adaptation, in particular by formulating and implementing the
www.clisp.eu 86
corresponding no-regret adaptation measures. When starting an adaptation process, it is important to involve politicians, decision-makers and the public from the beginning, and to discuss uncertainties.
The CLISP project, with its work design and model region activities, generated considerable awareness of climate adaptation challenges, increased stakeholder sensitivity to the issue, stimulated regional stakeholders to act, resulted in follow-up activities and further projects (e.g. C3-Alps), and initiated adaptation strategies (e.g. the Swiss Spatial Planning Adaptation Strategy). Pilot projects such as CLISP with its activities and good practice examples (cf. also chapter 7) help to mainstream and implement climate adaptation, and are very useful in closing regional knowledge gaps, in testing climate adaptation measures, in further developing existing instruments and policies, and in sensitizing and connecting local stakeholders. Financial incentives and political support are therefore crucial to the instigation of climate adaptation activities and the implementation of climate- proof planning. Cost/benefit analyses help spatial planning to select adaptation activities, but long- term planning horizons must also be considered.
The CLISP project proved to be successful in sharing experience and exchanging ideas within the Alpine space. The ETC framework, with project partners and model regions from different countries, including experts from administrations, the scientific community and consultancies, provided a stimulating setting in which to work and learn together. The results of CLISP are traceable and comparable, as they stem from a transnational participation and involvement approach that all project participants agreed upon in many rounds of discussion and consultation.
With its deliverables, CLISP supplies a sound basis for regional and local stakeholders. Regions and municipalities need administrative and technical support to implement climate-proof instruments and policies. With a view to implementation at the regional and local planning levels, CLISP has made available a compilation of data, standards, checklists, handbooks and good practice examples. The guidelines for planners and the quick checklist, in particular, are expected to be important tools for climate awareness-raising in spatial planning, for improving the climate change fitness of spatial planning, and for supporting the drafting of national and regional adaptation strategies.
6.2 Future Research
Climate adaptation is not only an emerging field of action in practice, especially for public administrations and business. Climate adaptation is also an emerging field of research in interdisciplinary studies in spatial planning, regional development and related fields. Future climate adaptation research should address the following questions as priorities: How can the adaptive capacity of planning institutions be improved (awareness, skills, knowledge, resources)? How can awareness of the need to take climate adaptation action at the local and regional levels be raised? How can climate adaptation be mainstreamed into existing planning systems, policies and programmes? How can win-win situations be created for climate adaptation and mitigation? How can conflicts be avoided and synergies between adaptation and mitigation be generated? What are the success factors – and barriers to success – of effective climate adaptation measures at the local level? How can progress with climate adaptation be measured? What are the goals of climate adaptation? What suitable indicators might be used to measure climate adaptation? How can regional and municipal capacity to adapt to climate change be assessed?
www.clisp.eu 87
What do good adaptation and maladaptation mean in the context of spatial planning? Examples? How can assessments of climate change fitness be integrated into existing evaluation approaches such as strategic environmental assessments, sustainability appraisals, and cost/benefit analyses?
www.clisp.eu 88
7 Outcome
Work Package 5 “Climate change fitness” generated a variety of deliverables. The main outcome are the synthesis report, which compiles the primary results of the evaluation of the climate change fitness of spatial planning, and the evaluation process in the model regions which resulted in region- specific studies and increased awareness of the need for climate adaptation.
In addition, the Work Package resulted in three outcomes which can be applied to other regions in the Alpine space and beyond: A guidance for planners to assess the climate change fitness of spatial planning in regions and municipalities (CLISP Action 5.5), An operational set of evaluation criteria for assessing the climate change fitness of spatial planning instruments and procedures at national and regional levels (CLISP Actions 5.2 and 5.3), A compilation of examples of good practice in climate-proof spatial planning activities in the Alpine regions (CLISP Action 5.4).
7.1 Assessing the Climate Change Fitness of Spatial Planning: A Guidance for Planners Based on the findings of chapters 2-5, a guidance for planners assessing climate change fitness was drawn up as CLISP Action 5.5. The guidance has been developed and agreed in several project meetings, in an expert workshop and in several feedback loops with planning experts and practitioners, facilitated by the scientific partners.
7.1.1 Assessment Concept
The guidance is intended to help planners to assess the climate change fitness of their spatial planning policies and instruments. The guidance offers a practical, step-by-step assessment of spatial planning’s climate change fitness. They recommend useful tools and resources to complete the assessment, and refers to findings and experience from the model region work in the CLISP project. The guidance is designed for planners at national, regional and local levels who must evaluate whether or not their spatial planning policies and instruments are fit for climate adaptation. The guidance also helps spatial planning authorities and policy-makers to identify enhancement options for climate-proof planning. The guidance focuses on the regional context of climate adaptation and on spatial planning’s response to climate change. The guidance offers a user-friendly self-assessment and is intended to support and facilitate the climate adaptation process, as well as the drafting of adaptation strategies and specific measures with regard to spatial planning policies and instruments (cf. fig. 1). The guidance is available as a 15-page PDF file in English, German, Italian and Slovenian.
The concept of the guidance references the Adaptation Wizard of the United Kingdom Climate Impacts Programme. It transfers the principles and content of the Wizard to the Alpine space and narrows it down to spatial planning’s response to climate change.
The guidance has been developed from the WP 5 results, specifically the findings and experience of the in-depth analyses in the CLISP Model Regions. Draft versions were discussed at two CLISP partner meetings and at an international expert workshop with colleagues from the UK and the Netherlands.
www.clisp.eu 89
7.1.2 Climate Change Fitness Assessment: A 4-step Guidance
Step 1: Getting Prepared The first step in the climate change fitness assessment helps you to focus the assessment, to decide upon the required methods, to assemble your team, and to arrange all of the procedures you need to successfully complete the assessment. Setting the focus is very important to establish a common understanding of the assessment, and to meet the expectations of the participants.
Tasks 1.1 Define the focus, the objectives and the process owner of the assessment Specify the instrumental, thematic and spatial focus of the assessment: a) Instrumental focus: choose the spatial planning instrument or policy you would like to assess. If appropriate, relevant sectoral planning instruments could also be included in the assessment. b) Thematic focus: concentrate on issues of concern that have priority for climate adaptation in your region. The thematic focus should correspond to the results of climate change impact assessments or vulnerability assessments for your region. The CLISP Climate Impact Chains may help you to select your thematic focus. c) Spatial focus: select the planning level and territory (region, sub-region and/or municipalities) to which the assessment is to be applied. Depending on the chosen points of focus, specify the objectives of your assessment. Define the process owner of the assessment, i.e. the key stakeholder responsible for preparing and conducting the assessment, as well as for communicating and implementing its results. 1.2 Assemble the assessment team Involve your colleagues and assemble a small team of people you can work with throughout the assessment. These people could come from spatial planning authorities, sectoral planning authorities, the scientific community, private enterprises or non-governmental organisations. It is helpful to appoint stakeholders with different perspectives and expertise to the assessment team in order to permit a broadly supported assessment of the climate change fitness of the chosen planning instruments or procedures. 1.3 Identify and allocate resources Make sure that you have sufficient personnel and time available to complete the assessment. You might also need funds for workshops and for contracting additional reports or studies. 1.4 Establish the process design for the assessment Establish the process design for the assessment, including all necessary agreements between the process owner, team and further stakeholders.
Useful Tools and Resources Existing climate change knowledge and studies for your region, your country or the Alpine space in general (e.g. climate scenarios, risk assessments, impact assessments, vulnerability assessments) CLISP Climate Change Impact Chains Expert networks and databases, e.g. the Intergovernmental Panel on Climate Change (IPCC), ProClim, AustroClim, KomPass, Climate Service Center Germany Stakeholder analysis
Outcome Focus, objectives and ownership of the assessment are defined. Assessment team is assembled and stakeholders identified and committed. www.clisp.eu 90
Resources and roles are allocated. Process design for the assessment is established and agreed.
Don’t Forget Have you set the instrumental, thematic and spatial focus for your assessment? Have you set the objectives for your assessment? Have you defined process ownership for your assessment? Have you involved your colleagues and assembled an assessment team? Have you identified and engaged relevant stakeholders? Do you have resources available to complete the assessment?
Step 2: Assessing the Climate Change Fitness of Spatial Planning The second step will help you to assess the climate change fitness of spatial planning policies and instruments in your region. This will make it easier for you to identify spatial planning’s necessary responses to climate change and to develop enhancement options to improve the adaptation performance of spatial planning and of climate adaptation policy in general. Please note that this step represents the core and the most time-consuming part of the assessment.
Tasks 2.1 Define criteria for the assessment of the climate adaptation fitness of spatial planning To start with the assessment, determine the main criteria for the assessment of spatial planning’s climate change fitness. You might select criteria from the CLISP Climate Change Fitness Assessment Criteria list, or set your own criteria. These assessment criteria include judgment standards to enable an evaluative statement about how ready spatial planning in your region is to cope with climate change. 2.2 Define assessment methods Define how to conduct the assessment. Identify the methods you want to use throughout the assessment. Methods used in different stages of the assessment may include workshops, interviews, SWOT analysis, etc. We recommend making use of the CLISP Climate Change Impact Chains to analyse what potential an instrument might have to respond to different types of climate change impacts in areas of concern. The assessment team assembled in Step 1 must agree upon assessment criteria and assessment methods. 2.3 Collect climate change information, data and knowledge Take stock, gather and analyse relevant information, data and knowledge about climate change scenarios, impacts, risks, vulnerabilities, and adaptation capacities in your region. Identify and prioritise the key impacts, risks and vulnerabilities in your region that your chosen planning policies and instruments are to be evaluated against. You will need specific information about your region if you are to assess climate change fitness, identify gaps in your policies and instruments, and develop the enhancement options. 2.4 Conduct the actual assessment Apply the defined assessment criteria and methods to the planning policy or instrument you have selected for the assessment. We recommend conducting stakeholder workshops and expert interviews. The CLISP Climate Change Fitness Checklist may be a helpful tool that can assist you in reviewing the adaptation performance of your spatial plan. 2.5 Identify strengths and weakness of spatial planning policies and instruments Use a SWOT analysis to identify the strengths, weaknesses, opportunities and threats of the spatial planning policy or instrument you have selected for the assessment.
www.clisp.eu 91
Useful Tools and Resources CLISP Climate Change Fitness Assessment Criteria CLISP Climate Change Fitness Checklist Stakeholder workshop SWOT analysis
Outcome Assessment criteria and methods are defined. Regionally specific climate information, data and knowledge are compiled; key impacts, risks and vulnerabilities are identified; knowledge gaps are identified. Assessment completed including judgment of the climate change fitness of the selected planning policy or instrument. Strengths and weaknesses, potentials and constraints of your policies and instruments are identified.
Don’t Forget Have you decided on assessment criteria? Have you decided on assessment methods? Have you collected relevant information and knowledge about climate impacts, risks and vulnerabilities in your region? Have you identified and prioritised the key impacts, risks and vulnerabilities in your region? Have you identified knowledge gaps? What information is missing? Have you identified specific strengths and weaknesses in the adaptation performance of your planning policies and instruments?
Step 3: Developing Enhancement Options for Climate-Proof Planning The third step will help you to enhance the capacity of your spatial planning policies and instruments to support and deliver adaptation. By compiling and appraising the lessons learned from the assessment, by identifying enhancement options for climate-proof planning, and by defining their priorities and tradeoffs, you will be able to make progress with climate adaptation in your region.
Tasks 3.1 Compile the lessons you have learned from the assessment Compiling and analysing the lessons learned from the assessment will help you to reflect on the appropriateness and effectiveness of the assessment. 3.2 Identify enhancement options for climate-proof planning Enhancement options must be identified to draw up strategies, actions and measures for climate adaptation within and by spatial planning. The enhancement options should improve the capacity of your policies and instruments to respond adequately to the key impacts, vulnerabilities and risks in your region. They should focus on the strengths and weaknesses you have identified in step 2 of the assessment. 3.3 Define the priorities and tradeoffs of the identified enhancement options Defining priorities and tradeoffs for the enhancement options you have identified will help you systematically to select the most important and most effective options (e.g. using cost/benefit analysis or multiple-criteria analysis). When setting your priorities and tradeoffs as you select the enhancement options, you should consider general principles of good adaptation decision- making, such as prioritising no/low regret options, multiple-benefit options, robust solutions that will work under the entire range of plausible future climate conditions, and options that foster adaptive management and planning approaches (ETC/ACC 2010). Any adaptation options
www.clisp.eu 92
should be checked for their sustainability, including potentially negative effects on the environment, social groups, or other sectors, as well as their own ability to adapt.
Useful Tools and Resources CLISP Transnational Strategy for Climate-Proof Spatial Planning CLISP good practice examples of climate-proof planning activities Stakeholder workshop Cost/benefit analysis Multiple-criteria analysis Guiding Principles for Adaptation to Climate Change in Europe (ETC/ACC 2010)
Outcome Lessons have been learned from the assessment exercise. Enhancement options are identified. Priorities and tradeoffs are defined. Enhancement options are prioritised, in line with general principles for coping with uncertainties, and checked for sustainability and possible negative side effects
Don’t Forget Have you reflected upon and identified the lessons learned from the assessment? Have you determined enhancement options for the selected policies, instruments or procedures, and for their implementation? Have you applied the general principles of coping with uncertainty in adaptation decision- making? Have you evaluated your possible enhancement options for their sustainability and possible negative external effects? Have you prioritised and agreed which are the most important enhancement options?
Step 4: Reporting and Informing The final step will help you to report the findings of the assessment and to inform the stakeholders. This will help you to disseminate information about how to increase the climate change fitness of spatial planning in your region, how to enhance climate adaptation, and how to improve the effectiveness of spatial planning in response to climate change.
Tasks 4.1 Report assessment results Report the assessment results in a transparent and comprehensible way. Consider the table of contents proposed for the CLISP Climate Change Fitness Report. Provide an executive summary. Make the results available to the public. 4.2 Inform stakeholders about the assessment results and enhancement options Proactively disseminate the assessment results and enhancement options to stakeholders. This will also help you to build support for their implementation from policy-makers. Ensure effective information by means of suitable target group-oriented formats, such as brochures, workshops or events.
Useful Tools and Resources CLISP Climate Change Fitness Report: table of contents Stakeholder workshop
Outcome Climate fitness assessment report is available.
www.clisp.eu 93
Public and stakeholders are informed.
Don’t Forget Does your report cover all the assessment results? Have you disseminated the assessment results and enhancement options to the public and stakeholders?
7.1.3 Next Steps: Implementation, Monitoring and Evaluation
Implementation This guidance provides planners with a generally applicable framework, tools and resources to complete a climate change fitness assessment of spatial planning policies and instruments. As part of the process of mainstreaming adaptation to climate change, the guidelines, or parts thereof (such as the CLISP Climate Change Fitness Checklist), can be incorporated into regular spatial planning processes and administrative routines (codes of conduct). They can be used by planning authorities as part of the approval procedure for plans or projects. They can also be integrated into sustainability appraisals, strategic environmental assessments or environmental impact assessments. Alternatively, the guidance can be incorporated into policy-making on climate change adaptation, e.g. by conducting assessments as part of the drafting of national or regional adaptation strategies. The assessment results in the evaluation, identification and prioritisation of adaptation options for spatial planning. These priority adaptation options must be implemented, however. As spatial planning is a cross-cutting theme that affects many different policy fields, implementing adaptation options will, in many cases, require coordination with other fields of activity. Moreover, the assessment of spatial planning’s climate change fitness is expected to provide substantial hints for the enhancement of climate adaptation strategies in other policy fields. A climate change fitness assessment needs resources. Personnel, time, available information and knowledge are the critical factors for its successful completion and effective implementation.
Monitoring and Evaluation Climate change adaptation is not accomplished when the climate change fitness assessment is finished, or when the climate adaptation action plan is implemented. Climate adaptation is an iterative process that should be embedded in an adaptive management approach. This calls for ongoing monitoring of the implementation process and of changes in climatic stimuli, impacts and available knowledge. Monitoring ensures that your organisation is fit for climate adaptation not only today but also in the future. You need continually to assess the climate change fitness of spatial planning policies and instruments in your region against new information about climate-related and other relevant trends, and check whether or not adjustments to your planning policies and instruments are needed. You should therefore establish a system for monitoring spatial development, climatic trends, the effectiveness of adaptation, and the climate change fitness of spatial planning in your region. This will enable you to assess whether or not observed changes in climate, trends in spatial development or any new knowledge require the reassessment of spatial planning’s climate change fitness in your region. As part of an adaptive planning approach, monitoring results should be linked to the revision of your spatial plans in regular planning cycles. Monitoring thus also encourages a learning process surrounding adaptation.
www.clisp.eu 94
7.1.4 CLISP Climate Change Fitness Checklist
The CLISP Climate Change Fitness Checklist will help you with your actual climate change fitness assessment. The checklist is especially helpful when reviewing the adaptation performance of your spatial plan. It also helps you to identify the strengths and weakness of spatial planning policies and instruments.
1 My spatial planning policy or instrument is fit for climate adaptation if regional adaptation challenges are addressed.
Rationale: Climate adaptation must be informed and evidence-based. Climate adaptation must respond to current climate sensitivities and future climatic changes, climate change impacts, and vulnerabilities. Climate adaptation action needs to consider the regional context and be regionally specific.
Regional adaptation challenges are addressed by providing …:
Open green and blue spaces: My spatial planning policy or instrument provides regulations, designations or content for:
The conservation of open spaces
Ecological landscape connectivity (e.g. networking of protected areas, wildlife corridors, migration axes)
Corridors for runoff water
Networks of green and blue spaces in urban areas and agglomerations ("green infrastructure")
Brownfield site recycling
Preservation of natural carbon sinks (e.g. wetlands, peat bogs)
Heat in urban areas: My spatial planning policy or instrument provides regulations, designations or content for:
Fresh air corridors for urban areas and agglomerations
Greening of inner courtyards, rooftops, facades and roadside areas; ensuring green and blue areas of sufficient size and functional structure
Cooling of rooftops
Urban gardening
Bioclimatically favourable orientation of buildings, windows and facades
Ensuring sufficient shade
Water resources: My spatial planning policy or instrument provides regulations, designations or content for:
Priority areas for securing ground and drinking water resources (groundwater bodies, groundwater renewal areas, drinking water extraction areas)
Support for integrated watershed and river basin management www.clisp.eu 95
Support for inter-municipal water transfer (regional water supply networks)
Cross-sector coordination with water management policies and concepts
Strict assessment of water-intensive land uses and projects in areas prone to water scarcity
Compact settlement structures that allow households to be connected cost- effectively to the public water supply network
Tourism: My spatial planning policy or instrument provides regulations, designations or content for:
Hazard maps, hazard zones, hazard indices and other hazard-related information
Support for alternatives to snow-dependent winter tourism
Stricter assessment of new winter tourism infrastructures before approval
Natural hazards: My spatial planning policy or instrument provides regulations, designations or content for:
Hazard zones, hazard maps, hazard indices and other hazard-related information
Preventing the zoning of building land in hazard zones
Re-zoning of existing building land in hazard zones
Securing and restoring flood runoff and retention areas (priority areas for passive flood prevention)
Display of areas exposed to residual risk
Active risk management (areas earmarked for structural protection measures)
Maintenance and improvement of the protective functions of protective forests
Prescription of individual risk precautions for buildings and real estate potentially exposed to natural hazards (e.g. in structural building plans)
Compact, appropriately dense, inward-oriented settlement development
Support for inter-municipal and inter-regional cooperation and cost/benefit sharing models in flood risk management
Energy: My spatial planning policy or instrument provides regulations, designations or content for:
Compact, low-carbon and energy-efficient settlement structures and transport infrastructures
The optimised exploitation of solar energy generation potential in urban areas (e.g. favourable orientation of rooftops and building facades)
Compact and dense settlement structures suitable for centralised long-distance
www.clisp.eu 96
heating and cooling
Identifying and securing areas suitable for renewable energy generation (e.g. biomass, solar energy, wind farms)
Transport and other technical infrastructure: My spatial planning policy or instrument provides regulations, designations or content for:
Hazard zones, hazard maps, hazard indices and other hazard-related information
Active risk management and protection measures for critical infrastructures
Support for the disturbance-tolerant and resilient design of infrastructure networks (e.g. redundancies in critical supply infrastructures, avoiding the bundling of strategic transport and supply infrastructures within the same corridor)
2 My spatial planning policy or instrument is fit for climate adaptation if decision- making processes are well connected and coordinated across different levels and policy fields or sectors.
Rationale: Climate adaptation is a cross-cutting task that needs the involvement of stakeholders and planning domains from all sectors to be effective.
Characteristics of well-connected decision-making processes:
Strong expert network is set up across all relevant sectors and institutions
Climate change adaptation is accepted by every stakeholder as an everyday planning issue
Risk communication concept is in place
Risk governance process is in place
3 My spatial planning policy or instrument is fit for climate adaptation if the shared benefits of linking adaptation to mitigation and regional development are achieved.
Rationale: Climate adaptation needs to be strategically aligned with other strategies to be effective.
Characteristics of the shared benefits of linking adaptation to mitigation and development:
Coordination and cooperation mechanisms with other strategies are in place
Synergies and potential conflicts are identified and addressed
Adaptation options have been audited for possible negative effects on sustainability, the environment, social groups, and other sectors
Adaptation options have been checked for maladaptation risks
Priorities for climate adaptation are set and coordinated with other relevant strategies
www.clisp.eu 97
4 My spatial planning policy or instrument is fit for climate adaptation if adaptive capacity is high and/or increasing.
Rationale: Climate adaptation is an ongoing and iterative process and needs to bring about transformation.
Characteristics of high/increasing adaptive capacity:
Political will for adaptation exists and is strong
Policy-makers and stakeholders are aware of the need for action
Sufficient resources are available
Implementation is ongoing
Incentives and national/regional climate change adaptation programmes are in place
Uncertainties are dealt with in a pro-active and precautionary approach
No/low-regret measures have been identified and are being implemented
Planning instruments and procedures are flexible enough to cope with climatic changes and to respond to the availability of enhanced and new knowledge
Short-term action considers long-term climatic processes
Adaptive planning and management procedures, including monitoring and evaluation, are being applied and linked with regular revision cycles for spatial plans
5 My spatial planning policy or instrument is fit for climate adaptation if a sound system of monitoring regional climate change impacts or risks is in place (with particular reference to spatial planning).
Rationale: Climate adaptation needs to understand the regional adaptation challenge better.
Characteristics of sound monitoring:
A monitoring system for spatially relevant climate change impacts has been established
Examples of indicators for monitoring regional climate change impacts include the size of heat islands, and damage potential per zoning area.
www.clisp.eu 98
7.2 Evaluation Criteria To monitor CLISP Actions 5.2 and 5.3 (cf. chapters 2 and 3) in detail, common evaluation criteria and evaluation standards were developed together with the planning authorities. These then carried out the evaluation in the form of a self-assessment with the support of scientific partners.
Overall Criteria Specific Criteria (Examples for Model Regions)
Targets Indicators Evaluation Standard
A Concerning the model region 1. Priorities for climate adaptation: Which are the 1. Priorities for climate adaptation are set. 1. Guiding principles, e.g. in the regional For example: context and the priority sectors for climate adaptation in the model 2. Available information is identified. climate change strategy. 1. Available/not available. spatial and thematic region? What are the main adaptation requirements for 3. Knowledge gaps are identified. 2. Expert knowledge, e.g. in a consultant 2. Quality /sufficiency of knowledge focus the model region from the perspective of spatial 4. The main adaptation requirements are report. on a scale of 1 (none) to 7 (high). planning? identified. 3. Alternative scenario, e.g. for water availability.
2. Problem awareness & political will to take action on 1. Problem awareness exists among the actors 1. Public debate, media. For example: climate adaptation action: involved. 2. Current projects and publications; Intensity of public debate on a scale What is the status of problem awareness and political 2. Political will for climate adaptation exists. political and expert commissions; of 1 (no debate) to 7 (very intense). will to implement activities fostering climate 3. Barriers and reasons for a lack of problem government decisions on climate. Projects and publications adaptation? awareness and political will are identified. adaptation; budget decisions; adaptation available/not available. strategy. Description of barriers.
B Concerning the 3. Relevance of adaptation priorities: How relevant is 1. The selected planning instrument/procedure Qualitative description of the relevance of For example: instrumental focus the selected instrument to climate adaptation in the is relevant to climate adaptation in general. the selected instrument based on your 1. Relevance on a scale of 1 (none) to model region? 2. The selected planning instrument/procedure own expert judgement, on interviews with 7 (very high). is relevant to the priority sector of interest. planning experts and practitioners, stake- holders, and a monitoring or evaluation report.
4. Flexibility/stability: 1. Decision process is flexible. 1. Decision-making process. For example: How flexible/stable are decision-making processes and 2. Amendment process is flexible. 2. Planning horizon, planning cycles 1. Decision-making process a) within amendments to existing instruments? How 3. Interpretation of the instrument is flexible. (revisions, amendments) in the last 30 planning authority; b) by flexible/stable is the interpretation of planning years. government; c) by regular instruments in the implementation process? How 3. Extent of scope for interpretation. individuals. relevant is the flexibility or stability of the chosen 2. Amendment every 3/5/7/10 years. instrument to climate adaptation?
www.clisp.eu 99
5. Binding nature: 1. Content of the instrument is binding upon 1. Binding upon authorities. For example: How binding is the instrument or procedure, and how planning authorities. 2. Binding upon landowners. Binding nature: high/low; relevance relevant is the binding nature of the chosen instrument 2. Content of the instrument is binding upon of binding force to climate or procedure to climate adaptation? landowners. adaptation on a scale of 1 (not relevant) to 7 (very relevant).
6. Coherence, synergies and conflicts: 1. The instrument and its adaptation activities Qualitative description of the relationship For example: Are the instrument, its adaptation-related content, and are coherent with sectoral planning. with other plans/objectives, and of 1. Coherence with other objectives the planning procedure coherent within the vertical 2. Conflicts and synergies with other conflicts and synergies. on a scale of 1 (low) to 7 (high). system of spatial planning? instruments have been identified. 2. Conflicting potential on a scale of 1 Is there coherence with sectoral planning? Are there 3. Conflicts and synergies have been (low) to 7 (high). synergies or conflicts with sectoral planning? resolved/coordinated with sectoral planning and other objectives.
C Concerning 7. Effectiveness, efficiency and feasibility: Implementation of adaptation activities is: 1. Examples and experience of successful For example: implementation How effective, efficient and feasible is the 1. … effective, implementation with political support. Financial feasibility on a scale of 1 implementation of adaptation activities within the 2. … politically feasible, 2. Examples of projects realised on a (low) to 7 (high) instrument/procedure? 3. … financially feasible, balanced budget. Description of the effects of 4. … efficient in terms of costs and benefits, 3. Impact assessment; cost/benefit adaptation activities. 5. .. possible within a reasonable time frame, analysis; consecutive costs have been 6. … realised according to standards of reduced. sustainable spatial development. 4. Time management, monitoring. 5. Sustainable impact assessments.
1. Spatial planning and sectoral planning 8. Collaboration with sectoral planning; participation collaborate sufficiently in the implementation 1. Number and quality of conflicts, number For example: and stakeholder consultation: of climate change activities. and quality of synergies, unexpected side Participation on a scale of 1 (none) to How do you assess collaboration with sectoral 2. Stakeholder participation strengthens the effects. 7 (very intensive). planning? implementation process. 2. Key actors. Do participation and stakeholder consultation foster or hinder adaptation activities?
9. Enhancement options: Where do you see the main 1. Enhancement options to foster climate 1. Amendments. For example: enhancement options to foster climate adaptation as adaptation exist and are identified. 2. Evaluation reports. Implementation of enhancement part of the instrument’s implementation? Which factors 2. Factors that enable or hinder climate 3. Qualitative description of the internal options on a scale of 1 (not enable or hinder the realisation of the enhancement adaptation are identified. assessment of enhancement options. implemented) to 7 (high options? implementation rate).
www.clisp.eu 100
7.3 Compilation of Good Practice Examples of Climate-Proof Planning The third CLISP WP5 deliverable is the compilation of good practice examples from CLISP Action 5.4.
7.3.1 Criteria for the Compilation of Good Practice Examples from Model Regions
Climate-proofing comprises methods, instruments and procedures that guarantee that plans, programmes, strategies and related investments are made resilient and adaptable to the present and future impacts of climate change, and contribute to the objectives of climate change mitigation (Birkmann/Fleischhauer 2009). There is so far no common understanding in the planning community about how to characterise climate-proof spatial planning instruments in a detailed way. According to the general review conducted in CLISP Action 5.2, spatial planning experts expect climate-proof spatial planning instruments to define goals in an anticipatory manner, to help implement climate adaptation measures, to monitor the effects and to raise awareness of the impact of climate change (cf. Final Report on CLISP Action 5.2). However, the views about the binding nature of climate-proof instruments, about their flexibility and about the adaptation requirement or priority sectors may differ. The criteria we applied to the compilation of good practice examples of climate-proof planning were therefore very general.
Good practice examples of climate-proof planning: Reference to climate change (A) Deal with spatial planning (B) Are part of administrative practice (C) Have the potential to be usable in climate-proof planning if implemented (D).
The model regions were asked to propose examples which fulfil at least two of these criteria. The good practices we have compiled show us examples of where spatial planning instruments or measures have developed or have been implemented to meet the specific adaptation requirements of the model regions.
7.3.2 Pinzgau-Pongau
Title "Natural Hazards Pinzgau" Working Group Region Interdisciplinary Working Group in Pinzgau Date of implementation 2002 Instrument/procedure/ Interdisciplinary working group at regional level for the prevention of and method protection against natural hazards in the Alps. The Working Group meets regularly. Participants in the Working Group include experts (geology, water, etc.) from the administrative agencies of the Pinzgau region in the state of Salzburg, representatives from the government department of mountain torrent and avalanche control, representatives of hunters and forest managers and the Alpine police, and representatives of non-governmental organisations such as the mountain rescue service. The main goals of the group are to: Collect and interpret data to assess the vulnerability of specific areas Coordinate action to protect against natural hazards Emergency management in case of natural disasters Description Since there may be an increase in natural hazards because of climate change, it is becoming more and more important to coordinate experts, data and action. The Working Group fulfils the following criteria: (A) A very important topic for the group is vulnerability assessment and climate change adaption. (B) Findings by the Group about the vulnerability of special areas provide important basic information for spatial planners. The protection of and www.clisp.eu 101
vulnerability assessments for settlement areas are an important challenge tackled by the Group. (C) The Group is integrated in to the regional administration (the leader of the group is the head of regional government). This guarantees the effectiveness of the tool. (D) The work of the Group provides important basic information for climate- proof planning in the Alpine space. References -
7.3.3 Upper Austria
Title Green Roof-Coverings Region City of Linz (Upper Austria) Date of implementation 1985 Instrument/procedure/ The Building Plan for the city of Linz has governed green roof-coverings since method 1985. From 1989 until 1999, subsidies were granted for up to 30% of the costs. After 1999, the subsidies were reduced to 5% of the costs. Since 1985, 80% of all new buildings with a roof pitch of up to 20 degrees have been planted (500,000 m²). Description Originally, the aim of the programme was to improve the provision of the city of Linz with green elements to enhance quality of life. In the meantime, the measure has proven to be a relevant contribution to climate adaptation to heatwaves as well as heavy rain events. The temperature on a green-covered roof is 3 to 6 degrees lower than the temperature on normal roofs, rainwater flow is reduced, and the load on the sewerage system lightened because 40 to 90% of precipitation is retained and evaporates. References Maurer E. (2011): Förderung von Dachbegrünungen in Linz / Österreich, presentation at the specialist seminar entitled “Dachbegrünung für Kommunen” in Osnabrück. Maurer E. (2009): Green Roof City Linz, presentation at the autumn conference of the MA 22 of the Magistrat of the City of Vienna http://www.dachgaertnerverband.de/kommunen/gruendach- infos/list.php?c=Ausland http://www.ma22- herbsttagung.at/downloads/gruendach/LinzGruendach09.pdf
7.3.4 Steiermark
Title Programme for Flood-Safe Development in Settlement Areas [Programm zur hochwassersicheren Entwicklung der Siedlungsräume] Region Steiermark Date of implementation 2005 Instrument/procedure/ The spatial planning instrument aims to minimise the risks of flood events and method avalanches, making the Hazard Zone Plans legally binding upon Land Use Plans. It therefore provides a standardised link between these two different approaches to planning, and helps to avoid the zoning of new building land in hazard areas. Description The programme fulfils the following criteria:
www.clisp.eu 102
(B) It links hazard zone planning with land use planning: No building permits within HQ-100 areas (areas with a probability of major flooding in a 100-year period). Priority is given to forward-looking building prohibitions over ex-post redevelopment. Red natural hazard danger zones and blue reservation areas are directly legally binding upon land use planning. Mandatory for the state of Steiermark and its municipalities. (C) It is legally binding upon all measures taken by the government, the municipalities and all corporations under public law that have a territorial impact. This is especially true of Land Use Plans, with the programme applied to the land use planning process. (D) Hazard zone planning is the responsibility of the central government and cannot be influenced by the state of Steiermark. In practice, increased risk potential owing to climate change is not considered, so it does not meet criterion A. It can be adapted to growing risk potential, however. If the central hazard zone planning procedures were to take higher risks owing to climate change on board, these new zones would immediately be legally binding upon new Land Use Plans. References http://www.raumplanung.steiermark.at/cms/dokumente/10107064_2863310/ 42322d97/hochwasserprogramm_englisch.pdf http://www.raumplanung.steiermark.at/cms/dokumente/10107064_2863310/ 5960662d/hochwassersichere_Entwicklung.pdf
7.3.5 Bavaria
Title Plan for the Alps [Alpenplan] Region Bavarian Alpine space according to the Plan for the Alps
Date of implementation 1972
Instrument/procedure/ The “Plan for the Alps” is one of the aims of the Regional Development method Programme [c.f. part B V 1.8.2]. Its goal is to impede the overwhelming development of infrastructure (e.g. ski-lifts, mountain railways, roads, airports) in the Bavarian Alpine space and to cope with the natural risks such as avalanches and erosion. Description The programme fulfils the following criteria: (B) The Bavarian Alpine space is divided into the three zones A, B, and C. These range from hardly any site development (zone C) to site development according to certain restrictions (zone A). Among other things, zoning is based on the existence and intensity of natural hazards, thus keeping potentially endangered areas free of infrastructure and buildings. The control effect is rolled out across zones B and C by restrictions regarding the development of traffic infrastructure. (C) The Plan for the Alps has had an effect ever since its launch. (D) It has the potential to be useable for climate-proof planning (criterion D), as the development of infrastructure and settlements depend heavily on natural hazard potential. References http://www.landesentwicklung.bayern.de/instrumente/landesentwicklungs- programm/download-lep-2006.html
www.clisp.eu 103
Title Requirement to Link New Building Areas [Anbindungsgebot] Region State of Bavaria
Date of implementation In effect since the introduction of the Regional Development Programme (last updated in September 2006)
Instrument/procedure/ The requirement to link new building areas (c.f. Regional Development method Programme part B VI 1.1) to existing built-up areas is one of the aims of the Regional Development Programme. Its goal is the development of compact settlement structures. Description The instrument fulfils criteria B, C and D. It is easier to protect compact settlement structures against natural hazards than it is to protect dispersed settlements. It is already useful in coping with natural risks in the Bavarian Alpine space, and offers an opportunity to take climate change into account in further urban development in the future. References http://www.landesentwicklung.bayern.de/instrumente/landesentwicklungs- programm/download-lep-2006.html
7.3.6 South Tyrol
Title Hazard Zone Plan [Gefahrenzonenplan] Region South Tyrol, 116 municipalities Date of implementation The implementation of the Hazard Zone Plan was agreed in 2008. Since it came into force, only the municipality of St. Christina in Val Gardena has actually ratified and implemented a Hazard Zone Plan (2010). The Hazard Zone Plans of two other municipalities, Egna (Neumarkt) and Postal (Burgstall), are now at the approval phase. The other 113 municipalities are currently at different stages of implementation (criterion D). Instrument/procedure/ (B) Hazard Zone Plans as a sectoral spatial planning instrument are rooted in method Article 22bis of the Provincial Spatial Planning Act (PA no. 13, 1997 - current edition). (C) Their implementation is adopted by: The Hazard Zone Plan Directive, resolution of the provincial government of 28 July 2008, No. 2741, that governs the drafting of the Hazard Zone Plan and the classification of specific risks [Richtlinie zur Erstellung der Gefahrenzonenpläne und zur Klassifizierung des spezifischen Risikos gemäß Landesraumordnungsgesetz]. The Provincial Governor’s Decree no. 42, 5 August 2008 – the implementing decree regarding Hazard Zone Plans The Hazard Zone Plan Directive focuses on: Protecting lives, settlements and economic areas. Evaluating infrastructure facilities within municipalities. Protecting facilities to influence vulnerability and the classification of hazard zones. Hazard Zone Plan updates in response to changed conditions, but at least every ten years. www.clisp.eu 104
Coordinating the Urban Land Use Plan with the Hazard Zone Plan. Description Owing to its binding nature, flexible application and strategic design, the Hazard Zone Plan is an appropriate example of a climate adaptation instrument. Its primary focus is on vulnerability, meaning that issues of climate adaptation are always indirectly considered. Climate adaptation is crucial, because the simulations used to derive the specific risks in delineating hazard zones or in re-dimensioning protective structures to reduce hazard zone classification are calculated for periods stretching 100 to 300 years into the future. These simulations integrate precipitation data for the last three decades, including the latest impacts of climate change. Moreover, the Directive also requires the calculations to integrate historical damage data and terrestrial and local surveys. Thus, the delimitation of different types of hazard zones with different degrees of risk is already an effective approach to adaptation that considers the impact of climate change (criterion A). References http://www.provincia.bz.it/raumordnung/raumplanung/gefahrenzonenplanun g.asp
7.3.7 Alessandria
Title Orba River Contract Region Orba river catchment Date of implementation November 2010 Instrument/procedure/ River (and lake) contracts do not constitute an additional level of planning. method Rather, they are a vehicle for the negotiated and participative management of water resources for a catchment basin. The River Contract has the same objective of the Regional Water Protection Plan, i.e. the protection and development of water resources and the connected environments. Its actions are linked to safeguarding land areas against water-based risks. Stakeholders (administrations, water agencies for irrigation or drinking water distribution, water users, associations…) join the contract voluntarily, because they know that it integrates and coordinates the various instruments of planning and programming, and their present and future interests. Description The River Contract is based heavily on comparison and negotiation, and is set up as a voluntary agreement between regions, local authorities and other private or public subjects. It defines objectives, participation strategies, the action to be taken, and authorities in providing a shared solution to problems connected with the water system. The primary adaptation strategies of the River Contract Action Plan (indicated in the Regional Water Protection Plan) are related to better water governance. This includes the local level. Their aim is to preserve water resource quality and quantity as the availability of water decreases and its use increases – both related to climate change impacts. The River Contract Action Plan deals with increasing water regulation capacity and decreasing water losses, i.e. improving water use, water saving, water and wastewater reuse and water resource monitoring. It can be seen as an example of good practice. Furthermore, it is a potentially climate-proof planning instrument, because it is a quite a recent construct and its implementation is highly funding-dependent, and because it fulfils only criteria B, C and D (climate change is not explicitly mentioned).
www.clisp.eu 105
References http://www.contrattidifiume.alessandria.it/CF%20in%20prov%20di%20AL.htm
7.3.8 Liechtenstein
Title Alpenrhein Precipitation Runoff Model [Abflussprognosemodell Alpenrhein] Region/level FL-SG-Rheintal (CH)/State of Vorarlberg (A)
Date of implementation Instrument/procedure/ The Office for Civil Protection is instigating the installation of a precipitation method runoff model together with Vorarlberg and the Swiss Federal Office for the Environment. The goal is to connect meteorological forecasts and real runoffs, and to conduct a sensitivity analysis based on a simulation model (e.g. to simulate the possible impact on runoffs owing to an increase in precipitation of 10%). Such scenario simulation supports the identification of action areas related to spatial planning, such as retention areas, borders for building zones, etc. Description The model is not restricted to Liechtenstein but also includes the surrounding areas of Switzerland and Austria, to take into account real connections and consequences. The model allows the simulation of possible scenarios of climate change and their consequences (“what if” analysis). It is expected that simulation models will provide valuable insights into spatial planning problems, and will therefore play an important role in the future. References
Title Hazard Zones [Gefahrengebiete] Region/level Principality of Liechtenstein FL
Date of implementation Instrument/procedure/ Hazard zones are designated in the National Structural Plan, and the method municipalities must respect these areas in their own land use plans. The authorities enforce protection from natural hazards as far as possible by spatial planning measures. The lead lies with the municipalities and the Office for Forests, Nature and the Landscape. Description: The designation of hazard zones is a proactive measure which enables areas to be kept free which might be threatened by natural hazards. Zones are classified as red, blue, yellow, purple and green. In the light of growing pressure from settlements and leisure activities, the proper planning of hazard zones will be increasingly important, as will their strict enforcement. References http://www.llv.li/amtsstellen/llv-slp-landesrichtplan/llv-slp-downloads.htm http://www.llv.li/pdf-llv-slp-gesamtkarte.pdf
www.clisp.eu 106
7.3.9 Grisons
Title Hazard Zones [Gefahrenzonen] Region/level Canton Grisons Date of implementation approx. 1975 Instrument/procedure/ Hazard zones are designated by the municipalities in their Land Use Plans. The method authorities enforce protection from natural hazards as far as possible by spatial planning measures. The lead lies with the municipalities and the cantonal Forests Office. Description Hazard maps describe areas threatened by avalanches, floods, rock falls and landslides. There are red, blue, yellow and yellow-white areas. Hazard maps are made by the specialists from the cantonal Forests Office. They are the basis for the hazard zones in the land use plans. The designation of hazard zones is a proactive measure which enables areas to be kept free which might be threatened by natural hazards. They are classified into red: no building areas, and blue: buildings allowed if they fulfil certain conditions. In the light of growing pressure from settlements and leisure activities, the proper planning of hazard zones will be increasingly important, as will their strict enforcement. References http://www.gr.ch/DE/INSTITUTIONEN/VERWALTUNG/BVFD/AFW/DIENSTLEIST UNGEN/3_1_NATURGEFAHREN/Seiten/3_1_1_naturgefahren.aspx
www.clisp.eu 107
7.3.10 Summary
If we match the examples of good practice to the priority sectors defined within the CLISP project, all of the examples deal with built-up areas and land development (cf. table 1). Many good practices focus on protection against natural hazards. Therefore, in addition to built-up areas another priority sector is health, as many good practice examples aim to protect the lives and health of the population. Water management is another sector which is dealt with in some of the good practice examples.
Good practice examples Priority sectors
and up l - Water Health Energy Built Tourism Forestry areas/ Agriculture management development
Green Roof-Coverings, Linz X X X X
“Natural Hazards Pinzgau” Working Group X X X X
Programme for Flood-Safe Development in Settlement X X X Areas (Steiermark)
Plan for the Alps, Bavaria X X
Requirement to Link New Building Areas, Bavaria X
Hazard Zone Plan, South Tyrol X X X
Orba River Contract, Alessandria X X X X X
Alpenrhein Precipitation Runoff Model, Liechtenstein X X
Hazard Zones, Liechtenstein X X X X X
Hazard Zones, Grisons X X X X X Table 1: Relation of good practice examples to the identified priority sectors
When considering the criteria for climate-proof planning which the examples of good practice fulfil, it becomes clear that climate change is referenced explicitly in only a few projects (cf. table 2). Nevertheless, the examples show that, although they do not focus on climate adaptation, measures exist that very effectively contribute to climate-proof planning, or at least offer potential when being implemented.
Criteria Good practice examples A B C D Green Roof-Coverings, Linz X X X “Natural Hazards Pinzgau” Working Group X X X X Programme for Flood-Safe Development in Settlement Areas (Steiermark) X X X Plan for the Alps, Bavaria X X X Requirement to Link New Building Areas, Bavaria X X X Hazard Zone Plan, South Tyrol X X X X Orba River Contract, Alessandria X X X Alpenrhein Precipitation Runoff Model, Liechtenstein X X Hazard Zones, Liechtenstein X X X www.clisp.eu 108
Hazard Zones, Grisons X X X Table 2: Overview of good practice examples from model regions
The nature of practices at governance level is different. Some of the good practice examples are effective for climate-proof planning because they are binding in nature, such as the Green Roof-Covering programme. Others perform well because of their deliberative nature when involving a broad range of actors (e.g. the “Natural Hazards Pinzgau” Working Group).
www.clisp.eu 109
8 Bibliography
Assessments of Impacts and Adaptations to Climate Change (AIACC) Project. AIACC Vulnerability and Adaptation Training, 2002. Alexander Ballard Ltd., Hampshire County Council (2008): Adaptive Capacity Benchmarking: A Handbook and Toolkit. Hungerford, Berkshire. Beniston, M. 2005. Mountain climates and climatic change: An overview of processes focusing on the European Alps. Pure and Applied Geophysics 162, 8-9: 1587-1606. Birkmann, J., Böhm, H.R., Buchholz, F., Büscher, D., Daschkeit, A., Ebert, S., Fleischhauer, M., Frommer, B., Köhler, S., Kufeld, W., Lenz, S., Overbeck, G., Schanze, J., Schlipf, S., Sommerfeldt, P., Stock, M., Vollmer, M., Walkenhorst, O. (2011): Glossar Klimawandel und Raumplanung [Glossary of climate change and spatial planning]. E-Paper der ARL Nr. 10. Hannover. Birkmann, Jörn; Fleischhauer, Mark (2009): Anpassungsstrategien der Raumentwicklung an den Klimawandel: "Climate-proofing" - Konturen eines neuen Instruments [Strategies for adapting spatial development to climate change: "Climate-proofing" – outline of a new planning tool]. Raumforschung und Raumordnung. 2/2009, 114-127. BMVBS/BBSR (Hrsg.) (2009a): Klimawandelgerechte Stadtentwicklung: Leitbilder und Instrumente [Climate- proof urban development – guidelines and tools]. BBSR-Online-Publikation 24/09. Bonn, Berlin. BMVBS/BBSR (pub.) (2009b): Klimawandelgerechte Stadtentwicklung: „Climate-Proof Planning“[Climate- proof urban development – “climate-proof planning”+. BBSR-Online-Publikation 26/09. Bonn, Berlin. BMVBS/BBSR (Hrsg.) (2009c): Entwurf eines regionalen Handlungs- und Aktionsrahmens Klimaanpassung („Blaupause“) [Draft of a regional framework for action on climate adaptation (“blue phase”)+. BBSR- Online-Publikation 17/2009. BMVBS/BBSR (Hrsg.) (2010): Klimawandel als Handlungsfeld der Raumordnung: Ergebnisse der Vorstudie zu den Modelvorhaben „Raumentwicklungsstrategien zum Klimawandel“ *Climate change as an action area in spatial planning: findings of a preliminary study on the “Spatial development strategies for climate change” model project+ (Forschung, 144). Bonn, Berlin. Brooks, N. (2003): Vulnerability, risk and adaptation: A conceptual framework. Tyndall Centre Working Paper No. 38. CEMAT – Conférence Européenne des Ministres responsable de l’Amenagement du Territoire (European Conference of Ministers responsible for Spatial/Regional Planning) (2007): CEMAT glossary of key expressions used in spatial development policies in Europe. 14 CEMAT (2006) 6. Strasbourg. ClimChAlp (2008): Impacts of Climate Change on Spatial Development and Economy: Synthesis and Model Region Studies. Extended Scientific Report of WP7 of the Interreg III B Alpine Space Project ClimChAlp. COMMIN – BSR INTERREG III B Project Promoting Spatial Development by Creating COMmon MINdscapes (2007): European Glossary. EC European Commission (2009): Adapting to climate change: Towards a European framework for action. White paper. COM(2009), 147/4 final. EC European Commission (2007): Adapting to climate change in Europe – options for EU action. Green Paper. COM(2007) 354 final. EEA European Environment Agency (ed.) (2010): Adapting to climate change – SOER 2010 thematic assessment. Copenhagen. EEA European Environment Agency (ed.) (2009): Regional climate change and adaptation. The Alps facing the challenge of changing water resources. EEA Report, 8/2009, Copenhagen. EEA European Environment Agency (ed.) (2009): EEA Briefing 3/2008 – Impacts of Europe's changing climate. Copenhagen. EEA European Environment Agency (ed.) (2005): Vulnerability and adaptation to climate change in Europe. Technical report, 7/2005. Copenhagen. ESPACE (2008): Climate Change Impacts and Spatial Planning Decision Support Guidance. EURAC 2009. Task 4.3.3.3 Processing of regional climate model data & providing climate projections for MRs (CLM and/or REMO). Feenstra, J.F., Burton, I., Smith, J.B., Tol, R.S.J. (eds.) (1998): Handbook on Methods for Climate Change Impact Assessment and Adaptation Strategies. Version 2.0. Vrije Universiteit, Amsterdam. Future Cities Project Partnership (2010): The future cities adaptation compass. A guidance tool for developing climate-proof city regions. Essen, Darmstadt.
www.clisp.eu 110
Goosen, H., Bessembinder, J., Stuyt, L. (2009): Climate Impact Atlas promotes the use of climate information in policy making. In: Climate Research Netherlands – Research Highlights. 56-62. IPCC – International Panel on Climate Change (2007): Fourth Assessment Report. Annex II, Glossary. Kind, C., Mohns, T. (2010): Klimalotse. Leitfaden zur Anpassung an den Klimawandel. Offline-Version des Leitfadens vom Kompetenzzentrum Klimafolgen und Anpassung. Umweltbundesamt, Dessau. Larsson, G. 2006. Spatial Planning Systems in Western Europe. An Overview. Amsterdam: IOS Press. Levett-Therivel Sustainability Consultants et al. (2007), Strategic Environmental Assessment and Climate Change: Guidance for Practitioners. Manning et al. (eds.) (2004): Describing scientific uncertainties in climate change to support analysis of risk and of options, may 2004 ipcc workshop report. IPCCWorking Group I Technical Support Unit, Boulder, Colorado, USA, pp 138. Moss, R.H., Schneider, S.H. (2000): Uncertainties in the IPCC TAR: Recommendations to lead authors for more consistent assessment and reporting. In: Pachauri, R., Taniguchi, T., Tanaka, K. (eds) : Guidance Papers on the Cross Cutting Issues of the Third Assessment Report of the IPCC. World Meteorological Organization, Geneva, pp. 33-51. OECD DAC (2010): Strategic Environmental Assessment and Adaptation to Climate Change. OECD, Paris. OECD (2009): Integrating Climate Adaptation into Development Co-Operation. Policy Guidance. OECD, Paris. Prutsch, A., Grothmann, T., Schauser, I., Otto, S., McCallum, S. (2010): Guiding principles for adaptation to climate change in Europe. ETC/ACC Technical Paper 2010/6. UKCIP (2010): The UKCIP Adaptation Wizard V 3.0. UKCIP, Oxford. UKCIP (2009): A local climate impacts profile: how to do an LCLIP. UKCIP, Oxford. UNDP United Nations Development Programme (2010): Designing Climate Adaptation Initiatives UNDP Toolkit for Practitioners. New York. UNDP United Nations Development Programme (2007): Monitoring and Evaluation Framework for Adaptation to Climate Change. UNDP-Draft. Paris. New York.
www.clisp.eu 111
D Annex
Glossary Adaptation: Initiatives and measures to reduce the vulnerability of natural and human systems against actual or expected climate change effects. Various types of adaptation exist, e.g. anticipatory and reactive, private and public, and autonomous and planned. Examples are raising river or coastal dikes, the substitution of more temperature-shock resistant plants for sensitive ones, etc. (IPCC 2007).
Adaptive Capacity: The whole of capabilities, resources and institutions of a country or region to implement effective adaptation measures (IPCC 2007).
Climate Change Impacts: The effects of climate change on natural and human systems. Depending on the consideration of adaptation, one can distinguish between potential impacts and residual impacts: (a) Potential impacts: all impacts that may occur given a projected change in climate, without considering adaptation; (b) Residual impacts: the impacts of climate change that would occur after adaptation (IPCC 2007).
Climate Change Fitness: Climate change fitness refers to the capacity of spatial planning systems to adapt spatial development and existing spatial structures to climate change impacts, i.e. to moderate potential damages, to take advantage of opportunities, or to cope with the consequences. Spatial planning instruments and processes are “fit” for climate change when they support and deliver adaptation, including by raising problem awareness and willingness to adapt, strengthening preparedness and the ability to react to climate change impacts, increasing the resilience of societies, raising flexibility of spatial planning systems to respond to climatic changes and connected uncertainties, and integrating short term planning horizons with long‐term climate change (CLISP Working Definition).
Climate-Proofing: The term climate-proofing refers to the systematic assessment and consideration of adaptation issues as well as to the development of risk prevention strategies against climate change (Birkmann et al. 2011). Climate-proofing comprises methods, instruments and procedures that guarantee that plans, programmes and strategies and related investments are made resilient and adaptable to the present and future impacts of climate change, and that moreover contribute to the objectives of climate change mitigation (Birkmann/Fleischhauer 2009).
Resilience: The ability of a social or ecological system to absorb disturbances while retaining the same basic structure and ways of functioning, the capacity for self-organisation, and the capacity to adapt to stress and change (IPCC 2007).
Spatial Planning: Spatial planning refers to the various actions taken within a particular territory on various levels with the purpose of affecting or influencing the spatial development of the community, of industry and commerce, and of the natural, built and social environment. Spatial planning activities are carried out at different administrative or governmental levels. Spatial planning is the umbrella term which embraces different tiers of supra-sectoral planning, e.g. federal spatial planning, state spatial planning (which includes regional planning), and local/urban land use planning. Taken together, these different planning tiers constitute a coherent spatial planning system. The supra- sectoral and co-ordinating remit which is a central aspect of the planning system means that spatial planning must be seen as legally, organisationally and materially distinct from spatially relevant sectoral planning (cf. CEMAT 2007, COMMIN 2007).
Stakeholder: A person or an organisation that has a legitimate interest in a project or entity, or would be affected by a particular action or policy (IPCC 2007).
www.clisp.eu 112
Uncertainty: An expression of the degree to which a value (e.g., the future state of the climate system) is unknown. Uncertainty can result from lack of information or from disagreement about what is known or even knowable. It may have many types of sources, from quantifiable errors in the data to ambiguously defined concepts or terminology, or uncertain projections of human behaviour. Uncertainty can therefore be represented by quantitative measures, for example, a range of values calculated by various models, or by qualitative statements, for example, reflecting the judgement of a team of experts (see Moss and Schneider, 2000; Manning et al., 2004).
Vulnerability: Vulnerability is the degree to which a system is susceptible to, and unable to cope with, adverse effects of climate change, including climate variability and extremes. Vulnerability is a function of the character, magnitude, and rate of climate change and variation to which a system is exposed, its sensitivity, and its adaptive capacity (IPCC 2007).
www.clisp.eu 113
Annex
Executive Summaries of Model Region Reports on Regional Adaptation to Climate Change
Alessandria (Italy) Berchtesgadener Land/Miesbach, Bavaria (Germany) Bozen, South Tyrol (Italy)
Gorenjska (Slovenia) Grisons (Switzerland) Liechtenstein Liezen, Steiermark (Austria) Pinzgau-Pongau, Salzburg (Austria) Upper Austria (Austria)
www.clisp.eu
WP5 – Action 5.3 – Provincia di Alessandria
Project CLISP: Climate Change Adaptation by Spatial Planning in the Alpine Space
WP5 SPATIAL PLANNING FITNESS
Provincia di Alessandria
WP5.3 – In‐depth evaluation of spatial planning instruments and procedures in Model Regions
Executive Summary
Author: Cecilia Mosca (February 2011)
Provincia di Alessandria 1
WP5 – Action 5.3 – Provincia di Alessandria
TABLE OF CONTENT
1. INTRODUCTION 1 1.1 Model Region Short Description 2 1.2 Method and evaluation criteria 3
2. EVALUATION OF SELECTED INSTRUMENTS 4 2.1 Description of evaluated instruments or procedures 4 2.1.1 Water Protection Plan 4 2.1.2 The “contract of river” 5 2.2 Assessment of evaluated instruments 8 2.2.1 Relevance of PTA and Contract of River – including binding character, stability and flexibility 8 2.2.2 Coherence of the Contract of River with other planning instruments 10 2.2.3 Effectiveness and feasibility 11 2.2.4 Role of River Contract for adaptation 12
3. CONCLUSION AND SUMMARY 13 3.1 Climate change fitness 13 3.2 Enhancement options 14 3.3 Lesson learned 17
Provincia di Alessandria 1
WP5 – Action 5.3 – Provincia di Alessandria
1. INTRODUCTION
WP5.3 action has the aim to analyse the climate change fitness of spatial planning instruments and procedures on the CLISP model regions.
The expected outputs of the in‐depth evaluation are: the identification of strengths and weaknesses, potentials and constraints of the chosen planning instrument(s) and their implementation in the case study; elaboration of enhancement options for climate change fitness on Model Region level.
Provincia di Alessandria has indicated “water resources and water management” as main priority vulnerable sector to climate change impacts in its model region. The most relevant climate change impact, in fact, is the reduction of usable water because of the change in precipitation patterns.
WP5.3 in‐depth evaluation is so related to a single catchment within the Alessandria CLISP Model Region – the Orba river catchment ‐ and tries to identify strengths and weakness, potentials and constrains of the regional Water Protection Plan [Piano di tutela delle acque – PTA ‐ 2007] ‐ and related measures and planning instruments ‐ which come directly from European Water Directives.
The Orba river catchment is relevant and representative within the Alessandria model region because it is such an important area at provincial (and regional) scale, so that recently a water action plan [Master Plan Fiume Orba, 2009] has been specifically issued; parallel, a “Contract of Orba River” [Contratto di Fiume Orba, 2010] has been set up.
Water Protection Plan seems to be the only existing planning instrument that can actually meets adaptation requirements due to climate change. Constraints and weaknesses of this instrument, enhancement options and its relationship to existing spatial planning instruments, are all listed in the following.
The evaluation team of this in‐depth analysis has involved representatives of Spatial Planning and Sectoral Planning Departments of Provincia di Alessandria and experts of Hydrodata SpA, a private engineering and consultancy company involved both in the PTA and in the Master Plan on Orba River.
One goal of this expert’s team is to support the CLISP project objectives and to produce correct guidelines for CC adaptation options within model region, considering both technical and socio‐economical issues.
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 1
WP5 – Action 5.3 – Provincia di Alessandria
1.1 Model Region Short Description
Provincia di Alessandria designed as model region the most mountain area of its territory, that is the district covered by Mountains Local Authorities [Comunità Montana Suol d'Aleramo e Comunità Montana Alta val Lemme e Alto Ovadese], two administrative entities that since November 2009 became a unique body, named Agenzia di sviluppo per l’Alta Val Lemme, Alto Ovadese, Alta Valle Orba, Valle Erro e Bormida di Spigno.
The territory is located south of Piedmont Region, at the border with Liguria Region and it is a typical Apennine area, with narrow mountains and hills with cultivated fields (mainly wine and cereals), but also aspen woods, pasture land and meadows.
The model region (640 km2) includes 32 municipalities with almost 35.000 inhabitants. Active working population in the area is employed in agriculture (11,2%), industry (32,4%) and other sectors as tourism (56,4%).
In the model region there are some very important Piedmont naturalistic sites and precious environmental zone, with protected areas. Landscape quality is so very high.
7 rivers cross the area: Bormida di Spigno, Erro, Orba, Stura, Piota, Lemme e Gorzente.
Most relevant climate change impacts are related to water management, because of the scarcity of water during the dry season; especially in summer, when agriculture needs great amount of water, often there are conflicts with other water uses, as hydro‐power production, potable supply, tourism and recreation; many people, in fact, during summer move to rivers, with riffle and pool for bathing.
Within the area there are already some reservoirs (16 Mm3 storage) used for water balance and regulation, water uses and recreation activities.
The territory suffers also of landslides and flooding problems, phenomena that have great importance in settlement development, but mainly at local scale. In fact, actual legislation has already many constrains in spatial planning referring to natural hazard, with risk maps and alarm plans defined for each municipality.
A singular, but evident impact of climate change in Provincia di Alessandria, is related to wind intensity increasing, which produced much problems and damages by forest fire in the last years. But this is not a sector investigated in CLISP, because there are no data to implement future wind scenarios and related impacts.
The WP5 in‐depth evaluation activity refers to river Orba catchment because this river is very important, within the model region, for water resources and water uses: energy production (5 big hydropower plants), water supply for main urban areas (Ovada) and
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 2
WP5 – Action 5.3 – Provincia di Alessandria agriculture water needs in the downstream irrigated plain area, considering also tourism and recreational activities.
1.2 Method and evaluation criteria
WP5.3 in‐depth analysis tried to select planning instruments and adaptation measures on model region (Orba river catchment) that can be “climate change proof” and to define how to support them for their real implementation.
For this reason we put into evidence the importance of a new implementing tool of the Regional Water Protection Plan, called “contract of river”, described in the following.
To evaluate relevant climate change impacts, referring to water, and to assess vulnerability and adaptation requirement on the model region, a numerical water balance model was set up in WP4 activities.
The numerical model simulates the natural theoretic behaviour of a river catchment and represents how water uses are or should be managed to guarantee positive water balance and to ensure water quantities for river environment. The model can be seen as a water management tools that represent different conditions and/or solutions.
Model results give qualitative and quantitative indications of climate change impacts on the river catchment and help in finding measures for adaptation strategy.
Some impact indicators come from model results, considering the differences between water resources in actual conditions and future CC conditions (scenarios at 2030 and 2050).
Numerical model’s results put into evidence that expected changes in water disposability deriving from climate change effects are in the same order of magnitude of the actual annual variability of hydrological conditions.
Based on those quantitative model results for quantitative vulnerability assessment, and also on interviews with provincial administrator and expert in water planning, the following criteria have been considered to evaluate the climate change fitness of Water Protection Plan and its operational instrument “Contract of River”: relevance for adaptation, flexibility / Stability, binding character, coherence, synergies, conflicts effectiveness and feasibility collaboration with sector planning participation and stake holder consultation
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 3
WP5 – Action 5.3 – Provincia di Alessandria
2. EVALUATION OF SELECTED INSTRUMENTS
2.1 Description of evaluated instruments or procedures
2.1.1 Water Protection Plan
The Water Protection Plan of Piemonte Region (PTA ‐ 2007), which considers climate change as one of the four important “driving force” for the future1, identifies the central part of the region, where Provincia di Alessandria is located, as the most vulnerable area for climate change impacts, because it suffers, already in actual condition, of low rainfall quantities.
When critical conditions occur, especially in summer, with high evapotranspiration rates, the whole area is under aridity risk. In recent years the Alessandria territory has already shown very critical water conditions and environmental and social problems are arising.
Main effects of climate change are so related to rainfall pattern and water disposability, and, particularly, to an increase of water demand for different uses, especially during scarcity periods.
In critical conditions there is an increase of “water conflict” at local scale and a consequent deterioration of rivers’ water quality and of fluvial environment. Then, the degradation of the ecosystem (and of nature and landscape values) can also lead to social‐economical problems, because this area founds its economy mostly on its beauty and on tourism profits.
Water resources planning and managing is so a very important challenge for the territory.
Spatial planning is strongly linked to water sector planning. In fact, the regional Water Protection Plan indicates infrastructural measures (new water regulation structures, new aqueducts, new irrigation system …) and non structural measures (new water uses constrains related to real water needs and to water environment requirements in rivers, water resources saving, water pricing, …), which must be carried out on both at regional and local scale.
PTA is then related to other planning instruments and laws:
Hydro‐geological Plan [Piano Assetto Idrogeologico – PAI, 2001] of River Po Basin Authority; Other River Po Basin Authority instruments, guidelines and directives related to water use, water and ecological‐environmental quality, water balance [2008‐2010]; Water Integrated Systems Plan [Piano d’Ambito ATO 6 “Alessandrino”, 2007] ;
1 PTA identifies as main driving forces (dynamic factors which manifest themselves on large spatial-temporal scale and that affect any kind of politics because often cannot be controlled) the following: settlement development, socio-economic development, cultural and organizing social asset and climate change.
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 4
WP5 – Action 5.3 – Provincia di Alessandria
Provincial Spatial Coordination Plan [PTP Piano Territoriale Provinciale – 2007]; Local scale/municipality planning systems.
PTA must pursue the protection and development objectives of water resources (ref .WFD 2000/60/EU) ‐ and also of the connected environments ‐ through:
the reduction of waters pollution; the requalification of environmental and landscape systems and also of settlement systems afferent to fluvial corridors; the sustainable use of water resources; the re‐balance of the water budget; the sharing of information and spread of the new culture of water.
The following principal elements have been defined in Piemonte PTA:
development of a harmonizing process, which takes into account different interests, even contrasting, to the aim to pursue common objectives; development of new instruments of governance of the territory, but not finalized to single sectoral planning; optimization of knowledge and of economic resources; operating shared and standardized methodological approaches.
PTA Action Plans, for this reason, can really be seen as a flexible tool with adaptation measures to climate change, referring both to land development and to water uses.
Because quite often water is perceived, by the local community, like a resource belongings to the territory, PTA has defined the possibility to create local action plans operating through instruments of government of the territory – called Contract of Rivers (or Lakes) ‐ which involve all the subjects that locally are interested in the management processes and in the use of water.
The Contracts of River (and Lake) is both a programming instrument and a process of strategic planning for the requalification of the fluvial river basin. The “strategic” adjective indicates a planning in which the methodology and the goals are shared with all actors.
Such processes are finalized to the realization of durable scenarios of wide shared development.
2.1.2 The “contract of river”
Contracts of river (and lake) constitute a method of job for the negotiated and participated management of the water resources to the catchment basin scale. They do not constitute an additional level of planning, but a modality of management of the water course (or the lake).
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 5
WP5 – Action 5.3 – Provincia di Alessandria
Stakeholders join the contract voluntarily, because they know that it integrates and coordinates the various instruments of planning and programming and also the present interests on the territory.
The Contract is strongly based on comparison and negotiation and is set up as a voluntary agreement between Region, Local authorities and other private or public subjects; it has to define objectives, strategies of participation, actions to be activated, and competences for giving shared solution to problems connected with the water system.
The Contract of River has the same objective of PTA, to pursue the protection and the development of the water resources and connected environments, conjugating such actions with the land safeguard from the hydraulic risk.
In order to reach such objectives, it is important to put into effect a participated procedure with: • vertical integration, between various levels of government; • horizontal integration, involving institutions, associations, citizens; • territorial integration, between neighbour territorial public bodies with some common interest; • integration and union of the policies through dialog and information, transparency and prevention of conflicts, but, above all, creation of synergies between policies and adoption of common objectives in various fields’ policies.
The Piemonte Region considers the Contract of River, besides a fundamental instrument performing PTA environmental objectives, also a useful instrument: • to the pursue of the re‐naturalization and fluvial requalification; • to the attainment of a better administrative simplification in the acts of the public administration.
Over recent years, some Contracts of River and Lake have been activated in Piedmont Region, delineating a division of roles between Regional, Provincial and local authorities, in the respect of the single competences and the autonomy of management that characterizes the activity of all the operating subjects.
The Region decided to use provincial administrations like “Coordinator Agencies of River Contracts”, because of their administrative functions in water issues. Moreover, the provincial level is considered the optimal one in order to facilitate the involvement process of all interested local subjects –stakeholders ‐ both publics (municipalities, mountain communities, natural parks and integrated water systems authorities) and private (citizens associations, trading companies and water users, environmental associations, tourist, recreation and sport representatives).
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 6
WP5 – Action 5.3 – Provincia di Alessandria
2.1.2.1 The Contract of Orba River
Also the Province of Alessandria watches at the Contract of River as the most suitable instrument to define and to develop, in a dynamic way, good knowledge of the “river basin”, not only from an economic and environmental point of view, but also, favouring the governance of the processes of local development, involving agencies dedicated to fluvial requalification and, above all, the actors and the subjects that are directly involved in such process, from the municipalities to private subjects.
The first Orba program agreement, undersigned in the spring 2005 from the Province of Alessandria with a role of coordination and responsibility, from some of the river side municipalities and from the public agencies involved in the management of the fluvial territory, has sanctioned the start of the negotiated programming, to the aim to characterize the environmental improvement objectives, the development of connected anthropic activities, straightening the recreational use of the water body and its ecosystem, aiming at the environmental sustainable development. Successively, in year 2007, the Piedmont Region recognizes such plan like one of four Contracts of River on its territory.
Therefore, the previewed Orba objectives are so expressed:
• to guarantee the physicist‐territorial and ecological‐functional continuity between natural environments of the water body; • decrease of the pollution of waters; • mitigation of the effects of the fragmentation on populations and community, • maintenance of the biodiversity and strengthening of the existing; • requalification of areas subject to strong anthropic pressures; • improvement of environmental/tourist/recreational use of the torrent and the river banks areas; • maintenance of the Vital Minimal Discharge in order to allow the safeguard of the fluvial ecosystem and the continuity of the habitats; • reduction of the hydraulic risk; • greater spread of information and sharing of the river culture; • increment of a sustainable and eco‐compatible agriculture development on the riversides and in the connected more sensitive bands of the river.
An Orba Action Plan has been defined and it is the normative action instrument to guarantee the territorial management principles of the environmental sustainability, with the aim to maintain the balance between anthropic activity and biodiversity.
On November 2009 there was a call for all municipalities within the Orba river basin and many of them made their adhesion to the Contract of River. On December 2009 a public presentation of the draft “action plan” and of the environmental reports has been organised. On February 2010, after the S.E.A. (Strategic Environmental Assessment) procedure, the
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 7
WP5 – Action 5.3 – Provincia di Alessandria preliminary analysis ended and the final Action Plan and the Environmental Report have been sent to the Piedmont Region for the start of the public consultation (60 days) that ended in May 2010. On 18 November 2010 the final Contract of Orba river has been signed, with mutual commitments and financial resources shared by all parties.
2.2 Assessment of evaluated instruments
Local, provincial and regional spatial planning tools actually still do not consider climate change effects and impacts; therefore, the easiest solution to meet climate change challenges can be to identify a flexible and dedicated tool that can acts as a super‐planning tool both on sector plans and on spatial/urban plans.
In fact, nor national, regional or provincial instruments consider specific needs of protection against “climate change caused” natural hazards. Laws have any clear reference to prevention actions against micro climatic worsening that can cause important changes on land uses and water uses (for example: abandonment of grassland and pastures because of water stress and conversion to wood or building land; it happens already quite frequently in flat areas). Moreover, it is evident that more frequent and critical natural hazards cause higher costs and socio‐economic problems.
For those reasons, it is important to integrate CC issues into all level of planning activity. Contract of River, really a integrated and dynamic planning instrument to the scale of the catchment basin, constitutes also a method of job for the negotiated and participated management of the territory and its water resources.
Contract of River does not constitute an additional level of planning, but a modality of water and land management, also in order to reduce socio‐economic problems through integrating and coordinating planning and programming instruments with the interests on the territory.
2.2.1 Relevance of PTA and Contract of River – including binding character, stability and flexibility
The relevance of PTA is that it is at the basis of a more recent integrated planning instrument at Po River catchment scale (Po River District covers half of the north Italy territory): the Po River Hydrographical District Management Plan, adopted with Deliberation n° 1 of the Institutional Committee of the Authority of River basin of the Po River, 24th February 2010.
The District Management Plan is a super‐instrument for the attainment of the environmental objectives of the European Water Framework Directive. In particular, for the integrated implementation of the management action plan at the level of each hydrographical river basin, management modalities are promoted making use of instruments for local negotiated programming, as lake and river contracts.
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 8
WP5 – Action 5.3 – Provincia di Alessandria
PTA is also relevant because is the only recent regional plan that explicit mentions climate change, as an external driving force which effects pressures, impacts and states of water and related environment (and also of land development).
As scientific studies show that CC impacts on the water sector are suppose to be almost of the same magnitude of actual critical water conditions during drought periods, it is evident that actual PTA Action Plan presents interventions and measures, related to water protection, water saving and water management, that can be seen as CC risk mitigation and/or adaptation measures.
The Contract of River is so a new challenge: it is supposed to be a fundamental local implementation instrument of the PTA Action Plan, and, because it is quite flexible, it can be effective against CC impacts.
The relevance of the Contract of Orba River is anyway related to the fact that on the model region there is no other regional or local planning instrument that can actually meet the challenges of climate change at basin scale.
Even if Contract of Orba River does not actually mention explicit climate change related problems, it puts into evidence actual criticalities at local scale and indicates correct integrated solutions.
Climate change effects will effectively make water problem worse also on Orba river, which already shows environmental suffering; that is why it is important to study CC and to insert them as one of the planning component that must be take into account. In a few time, also Orba River Contract’s goals and actions plan will be fitting climate change impacts on model region.
The structure of the Contract River Action Plan is flexible and takes into account not only water related problem, but also spatial and territorial aspects (natural hazard risk management, land development and territory valorisation) and in this way it fosters, or better, addresses climate change fitness to spatial planning, considering also a socio‐ economic point of view.
Because of volunteer agreement on which the Contract is based, it makes the participated decision process flexible but also stable, with just a few possibilities to be misinterpreted. In fact, one of the main actions of the Contract of River is to manage the participated process, through stakeholder (public administrators, water system managers, planning experts…) involvement, information and collaboration.
The Action Plan must be monitored by all stakeholders using specified parameters and indicators, so to be adjusted and updated time by time (even if it is not yet decided how and when amendments will be needed!).
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 9
WP5 – Action 5.3 – Provincia di Alessandria
The stated objectives and measures of the Contract of Orba River Action Plan will be binding at local scale as soon as they will be adopted by local municipality regulation plans [PRGC – Piano regolatore generale comunale], acting as a basis for a more coordinated territorial development.
Some statements and issues related to better water uses management, as the guarantee of minimum discharge releases downstream water intakes, are already binding; but water users will appreciate more to check their “water amounts” if they can participate to an integrated water management process along the whole catchment, with the possibility to negotiate better in case of critical condition.
The Contract’s management is very important and it is structured with: a permanent direction cabin and a technical secretariat; a technical office for actions and projects support (also to access publics financing channels); a monitoring process with defined indicators to check action plan performances related to goals and capacity in solving problems, in taking good opportunities on time, in supporting future actions and decisions.
PTA Action Plan ‐ as the Contract of Orba River Action Plan ‐ defines many different structural and non‐structural interventions on rivers’ catchments; many of them can be seen as “CC adaptation measures”, because they need to involve both expert planners and stakeholders, adjusting their development options to minimize the potential future adverse impacts and to take advantage of opportunities that may arise.
In fact, climate change represents actually a changing source of risk for development options. Climate adaptation seeks first to identify what these risks are, and then to take decisions that allow the potential impacts of climate change to be reduced or adequately managed, and at the same time to exploit any opportunities which a changing climate may present.
2.2.2 Coherence of the Contract of River with other planning instruments
Addressing both mitigation measures for reducing greenhouse gas emissions and adaptation measures to the effects of climate change is one of the main goals of a “climate change proof planning”.
For this reason, to empower this goal, it is very important that there is coherence between spatial and sector planning.
The Contract of River, even if it is mainly a water planning instrument, integrates at local scale many other sector planning and has the goal, through the director cabin, to put into evidence, at local scale, which are the problems and, on the contrary, the possible synergies with all the other planning instruments. Within the Contract of River it is possible to
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 10
WP5 – Action 5.3 – Provincia di Alessandria correctly approach and try to solve conflicts which can arise combining different planning systems.
Among Contract’s signers a working group is set up with the goal to define technical guidelines for the assimilation of local municipalities plans (PRGC) with civil protection and hydraulic risk protection plans; guidelines will also consider environment protection actions and safeguard measures for the entire river system.
2.2.3 Effectiveness and feasibility
The focal points that regulate the efficiency of Contracts of River are:
• the autonomy and the respect of the mutual competences of the public subjects, who imprint their acts to the principles of mutual and loyal collaboration; • the creation of a local system that finds, in the negotiating table, the actions’ sharing and integration procedure – as the methodological approach ‐ for the government of water and environment; • the optimization of the activities and of the human and financial resources, also finalized to allow the access to financing channels (European, national and regional level) for the realization of shared plans; • when planning the involvement and the activation of local resources, private subjects are not seen only like addresses of the participations, but like real stakeholders, bearers of a social responsibility, who can share common solutions, not opposing the economic private interests to those publics.
When rules and shared solutions are clearly defined, the implementation of an action plan is easier, unless financial resources are not at disposal (and this is the main problem).
The Orba River Action Plan will be soon effective. On 18th November 2010 the Action Plan has been officially adopted by the provincial government. Now, indicated measures and interventions will be effective when local municipal planning [PRGC] will be updated to Action Plan and economical resources will be issued.
By a political point of view, because the Action Plan has been shared between Contract’s subscribers, after a very long negotiating period (5 years long), it is supposed there any new conflict will arise.
By a financial point of view, it is now difficult to know if all the financial channels identified during the planning time will be really at disposal for action. Unfortunately, any cost‐benefit analysis has been conducted yet to valuate if some actions are less or more efficient.
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 11
WP5 – Action 5.3 – Provincia di Alessandria
Timing of the Action Plan is, on the contrary, quite clear. Priority steps are defined linked to WFD (UE 2000/60) goals (good environmental conditions for 2016) and the time frame is quite reasonable, but very much depending from financings.
2.2.4 Role of Contract of River for adaptation
As already said, the main CC adaptation measures in the Alessandria model region do not come from spatial planning, which instruments are old and have any reference to CC impacts, but from water sector planning instruments, which are recent and quite strong and binding.
Water Protection Plan [PTA] seems to be the only existing planning instrument that can actually meets adaptation requirements due to climate change.
Referring to water sector, main adaptation strategies (indicated in PTA) are related to better water governance, also at local scale, with the aim to preserve water resources quality and quantity against decrease of water disposability and increase of water uses, both related to climate change impacts.
Referring to water management, main actions must be taken for: increasing water regulation capacity; decreasing water losses, that is increase better water uses; water saving; water and waste water reusing; water resources monitoring.
Other adaptation requirements in the field of water management deal with flood and natural hazard prevention, at regional and local scale: protective measures for areas securing: alert system, flood forecasting system, expanding water retention areas, flood dams, avalanche protection, torrent control structures ... specifying hazard protection regulations in building regulation plans; mountain land use conservation to prevent land‐slides, i.e. increasing of forests, development of rural activities as land cultivation, breeding and pasture.
PTA measures, in this way, can surely be seen as adaptation measures to climate change, referring to land development and to water uses.
A Contract of River can have a strong role for adaptation strategy at local/catchment scale, both because of the participated approach, which allows easier dissemination of information and knowledge within the territory and towards local population, and because of the integrated planning approach, which leads to a common and shared action plan.
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 12
WP5 – Action 5.3 – Provincia di Alessandria
On the CLISP model region, the Contract of Orba River Action Plan defines different measures and local interventions, structural and non‐structural; many of these can be seen as “adaptation measures”, because they need to involve planners adjusting their development options to minimize the potential future adverse impacts of climate change and to take advantage of opportunities that may arise.
We hope that in the future Contract of Orba River will play a good role against CC impacts effects and will be presented as a good practise example of “climate proof planning” instrument.
3. CONCLUSION AND SUMMARY
To evaluate CC fitness of “Contract of River” instrument on model region, numerical model results, expert interviews, literature and documents analysis have been used.
3.1 Climate change fitness
Because the existing “classic” instruments of spatial planning provide any scope to response to impacts of climate change, especially on water resources, which are the most CC vulnerable sector within the Alessandria model region, the new Contract of River planning instrument can be seen as a good “starting‐point” to approach climate change impacts on territory.
The phenomena connected to climatic change constitute an important challenge to the management and the use of the water resource (i.e. in agriculture), especially in the phase of water planning. It is not corrected, any more, when working in the field of the planning and the programming, to operate in the hypothesis of stationary climate and therefore to project past hydrological regimes to the future.
Water resources naturally influence many other fields of the planning on the territory (i.e. energy, health, agriculture activities, conservation of the nature, tourism and recreation …); therefore mitigation and adaptation criteria must regard numerous fields that interact with water.
Although remarkable development of the scientific research and of technology, reliable forecasts on rainfall patterns and on river discharges are actually still affected by substantial margins of uncertainty.
The programming and planning instruments must therefore operate in this context of uncertainty; they need of sturdy methods for connected risk definition. The procedures must in fact be moved towards a general probabilistic approach in which the risk incorporates also the climatic change, with the objective to characterize in terms of probability distribution the future forecasts of a specific factor (rain, temperature, discharge …).
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 13
WP5 – Action 5.3 – Provincia di Alessandria
To include climate change inside important aspects of water resources (management of the flood risk, competitiveness of use of the resource, management of draughts), it is necessary to characterize the making of the risk, beginning from the hydrological dangerousness, and then hydraulic, to the vulnerability of the exposed assets, and put into evidence the components which can affect the various states.
The identified elements that take part in the determination of the risk, in terms of dangerousness and of vulnerability, are the targets on which the planning instruments can good operate, with the objective to achieve a correct management process for compatible risk on the territory. It is in fact obvious that to obtain risk reduction a mix of measures is necessary, regarding the prevention (mostly through the instruments of territorial planning and urban planning), the protection (structural measures and not), the public participation (information to the population on the existing risk), the management of the eventual phases of emergency through the instruments of civil protection.
The proposed general approach indicates that risk dynamics evaluations must be elaborated taking into account hypothesis of climatic change scenarios; the obtained results must interact with the economic and social components of the territory and, together with administration, they concur to the definition of mitigation and adaptation e strategies within management and planning processes. Contract of River can surely follow this approach, combining risks analysis on water disposability with risk analysis related to natural flood hazards.
It is important to put into evidence that local planning instruments (municipalities regulation plans – PRCG) can already manage quite well the consequences of “climate change caused natural hazard”, because they are based on good flooding and landslide maps created at catchment scale and give strictly rules for urban development on such vulnerable areas. Not the same for water disposability, use and distribution.
3.2 Enhancement options
The Piemonte Region has strengthened the institutional valence of the Contract of River in the Implementing Technical Norms of the Regional Territorial Plan (PTR), adopted with D.G.R of 16th December 2008, n. 16‐10273.
The Contract of River is recognized by the Management Plan of the Po River District, adopted with Deliberation of the Institutional Committee of the Authority of River basin of the Po River on 24th February 2010, n. 1, as instrument for the achievement of the quality objectives of the Framework Directive on Waters.
In order to reach such objectives, it is important to put into effect a participated process that can integrate different policies and the various levels of government, different
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 14
WP5 – Action 5.3 – Provincia di Alessandria institutions, associations, citizens, different territorial public body, through dialog and information, transparency and prevention of conflicts.
A very strong Contract’s Management Cabin must follow and govern this process, having the power to create synergies between policies and to adopt common objectives in policies of various fields.
Enhancement options are so related to a more active role of regional government and administration, which must: establishes the general criteria for the activation of the contract; stimulates the financial activation of the process with contribution; supplies own support to the job tables; organizes regional coordination table; cures the predisposition of guidelines for the process regulation and governance.
The provincial administration must: coordinates the process as titular of all fundamental administrative functions in environmental matter; guarantees the involvement of other public subject (riverside municipalities, Mountain communities, ATO, etc) and of private subjects. collects already existing information and data (knowledge) and identifies both criticalities and values of actual planning patrimony; coordinates the proposals and gives functionality to plans on the territory; guarantees the formal engagement to realize the Action Plan through the subscription of the Contract itself.
In short, instruments and inputs at provincial and regional level to enforce “Contract of River” approach are:
Monitoring system, data management and feedback. Participatory approach. Process management and governance.
The Contract of River, based on participatory approach, must share and disseminate all availability data, information, results, creating new knowledge.
This opportunity must be enforced time by time, combined with a monitoring system, which is not only a process control in order to secure Action Plan’s goals achievement with good performances, but also an environmental control system, for evaluating actions’ sustainability on a larger scale.
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 15
WP5 – Action 5.3 – Provincia di Alessandria
For this reason also the local organisation of the Contract (Technical Secretary) must be enforced and its executive function, its negotiation capacity rule must be recognised by all the involved subjects.
An evident improvement opportunity is the explicit integration of the climate change issues into the current planning instruments through Contract of River and its process management.
One of the fundamental objectives of CC impacts and related adaptation strategies effectiveness evaluation is to help decision makers in the selection of “better” management politics; the criteria that determine the performance of the various adaptation options will be established, through Contract of River process, from time to time, according to the objectives of the decision, with a multidisciplinary approach.
In the following scheme there is the general approach to include climate changes impacts inside the Contract of Orba River:
Guide lines for climate change risk management: REGIONE PIEMONTE + PROVINCIA ALESSANDRIA + CLISP Project results
Evaluation of risk dynamics with CC Evaluation of socio‐economical impacts with CC
-Planning, Mitigation, Adaptation Strategies definition ‐Decision Support System development
Stakeholders + Provincial/Regional Administration Negotiation table River Contract
Evaluation of risk dynamics are elaborate through numerical modelling taking into account different scenarios of climate changes. Those results interact with the economic and social components of the territory and concur to the definition of mitigation and adaptation
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 16
WP5 – Action 5.3 – Provincia di Alessandria strategies inside planning and management processes. Very useful, in case of CC evaluations that often are affected by high uncertainties, is to develop decision support systems for agencies managers to offer decisive information to act in critical condition related with different climate conditions different regarding the past (for example: management of critical states of draught or flood)
3.3 Lesson learned
Main lesson learned from the WP5 in‐depth evaluation is that there are some instruments from actual legislations and from regional/provincial/local planning systems that can act correctly towards the new concept of “climate proof” planning, especially to face future water and environment criticalities.
The idea is that starting now to find structural solution to actual annual criticalities, it will make people ready to react to future CC impacts on the territory and to find good adaptation measures, as new integrated water management systems, for the next generations.
The main problem now is related to the big uncertainty degree related to the scientific analysis on climate change effects, especially on river discharges: even if it is clear that temperature will arise and that rainfall patterns will be different, there is any real verification that those climatic phenomena will produce uncontrollable heavier natural hazards or an evident reduction of water resources disposability.
This scientific uncertainty creates difficulties in presenting strong and clear technical solutions to decision makers; it can be difficult to convince them on the necessity of interventions, especially at catchment scale, that needs bigger funding.
Second lesson is that, anyway, climate change issues should be included explicit into planning systems, both to make people aware of future CC impacts on human activities and for challenging them to try to catch new opportunities.
Third lesson is that it is difficult to specify an evident connection between sector/water planning with spatial/urban planning, referring to CC.
The actual Italian spatial planning system considers mainly flooding problems when speaks of water issues. Only about natural hazards Italian laws have acknowledged the concept of risk and developed vulnerability maps and alert system to prevent damages. All risks prevention instruments have been recently implemented within the local municipalities’ urban plans.
Regarding other aspects we still are far away and often political or financial question are stronger than any scientific and technical issues.
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 17
WP5 – Action 5.3 – Provincia di Alessandria
Contract of River is a new starting political experience in Piedmont Region and in Alessandria Region. Hopefully, it will be the key instrument to implement spatial and sector planning together at catchment scale.
Four lesson learned is that the awareness of CC impacts is not so high (unless what concerns strategies like the reduction of CO2 emission). But the CC impact on water resources and on related uses must be clear to local administrations, to water users, to decision makers, because, especially in mountains areas, water is so important for the local socio economic development.
Fifth lesson is that, often in mountain regions, when something changes in the natural cycle, as climate or water disposability, it is seen as part of the daily life, with “fatalism” approach.
Local people say that water resource disposability can be so different year by year for many reasons, not only because of climate different conditions, but also because of soil and land use change, because of different social needs or development activities, etc..
Water problems are often seen as something in continuous change and, especially in mountain areas, people are used to respond automatically to the change of general conditions of the nature. They do not think that their life can be also a question of good planning and management systems.
List of policy documents, legislation, instruments, procedure
Water Framework Directive WFD 2000/60/EU Regional Water Protection Plan [Piano di tutela delle acque – PTA, Regione Piemonte, 2007] Decreto Legislativo 3 aprile 2006 n. 152 – Decreto Ambientale Po River Hydrographical District Management Plan [PDG ‐ Autorità di distretto del fiume Po – Feb. 2010]. Hydro‐geological Plan [Piano Assetto Idrogeologico – PAI, Autorità di bacino del fiume Po, 2001]; Water Integrated Systems Plan [Piano d’Ambito ATO 6 “Alessandrino”, 2007] ; Regional Spatial Coordination Plan [PTR Piano Territoriale Regionale, Regione Piemonte, 2008] Provincial Spatial Coordination Plan [PTP Piano Territoriale Provinciale, Provincia di Alessandria, 2007]; Contract of Orba River [Contratto di Fiume Orba, Provincia di Alessandria, Nov. 2010]
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 18
WP5 – Action 5.3 – Provincia di Alessandria
o Contract of Orba River o Action Plan and Measures Abacus o Environmental Report o Synthesis Environmental Report o Provincia Alessandria approval resolution n.341 ‐ 13rd October 2010 o Public Signature on 18th November 2010
ALESSANDRIA_EXECUTIVE SUMMARY 5.3_FINAL.DOC 19
WP 5, Action 5.3: in‐depth evaluation
Work Package 5: In‐depth evaluation of spatial planning instruments and procedures in Model Regions
Evaluation Report for the Model Regions Miesbach and Berchtesgadener Land
Authors: Prof. Thomas Bausch, Felix Hörmann (Alpenforschungsinstitut GmbH)
www.clisp.eu | [email protected] 1
WP 5, Action 5.3: in‐depth evaluation
Contents
1 Introduction ...... 3 1.1 Description of Model Region ...... 3 1.1.1 Characteristics of Bavarian Model Regions ...... 3 1.1.2 Climate Change Priority Sectors and Impacts & Adaptation Requirements ...... 4 1.1.3 Spatial Planning Instruments to meet Adaptation Requirements ...... 5 1.2 Methods and Evaluation Criteria ...... 5 2 Evaluation of selected instruments or procedures ...... 6 2.1 Description of evaluated instruments or procedures ...... 6 2.1.1 Objective and Implementation of the Instruments ...... 6 2.1.2 Relevance of Instruments for Climate Change Adaptation ...... 8 2.2 Assessment of evaluated instruments or procedures ...... 9 2.2.1 Best practice examples to meet challenges of Climate Change ...... 9 2.2.2 Specifications & Formal Scope ...... 10 2.2.3 Implementation Procedure ...... 12 3 Conclusion and Summary ...... 15 3.1 Climate Change Fitness...... 15 3.2 Enhancement Options ...... 15 3.3 Lessons Learned ...... 17 4 References...... 18 5 Annex 1 - Zusammenstellung der für das Thema „Klimawandelanpassung“ relevanten Inhalte des LEP Bayern und der Regionalpläne 17 und 18 ...... 19 6 Annex 2 - Übersicht Interviewpartner und Zeitplan ...... 28
www.clisp.eu | [email protected] 2
WP 5, Action 5.3: in‐depth evaluation Executive Summary
Note: This description follows the preliminary table of content for the evaluation report given by ARE in the general framework for the action 5.3. Only the section “1.1 Description of Model Region” differs from the common structure as in Bavaria the StMWIVT operates with two model regions. If not stated other, the sources of all information for the section 1 and 2.1 are the final outputs of WP 4, action 4.2 and 4.3 and the final documents of WP 5, action 5.1 and 5.2.
1 Introduction
1.1 Description of Model Region
1.1.1 Characteristics of Bavarian Model Regions
Berchtesgadener Land The administrative district [Landkreis] and NUTS 3 region [DE215] Berchtesgadener Land is located in the southeast of Upper Bavaria. It is bordering to the Traunstrein district (Bavaria) in the north and west, and to the Austrian Bundesland Salzburg in the east and south. The district is also near to the metropolitan areas of Munich (135 km) and Salzburg (17 km). The district´s surface area is 840 km² with an overall population of approximately 102.400 persons living in 15 municipalities. As far as topography is concerned, the area can be subdivided into three parts. The northern part between Laufen and Freilassing is located in the pre-alpine foothill zone. Further south follows the low mountain range around the Bad Reichenhall basin with mountains up to 1771 m (Hochstaufen). The southernmost part consists of the valleys and mountains around Berchtesgaden. The Berchtesgadener Alps reach their peak at the Watzmann (2713 m). The Berchtesgadener Land district is dominated by the service sector, especially tourism and health business, followed by the industry / manufacturing sector, which is characterised, above all, by small- to medium sized enterprises. Especially in the southern parts of the district space for further development of settlement and infrastructure is already scarce as it is limited to parts of the valley floors.
Miesbach The administrative district [German terminology: Landkreis] and NUTS 3 region [DE21F] Miesbach is located in the south of Upper Bavaria. Its neighboring districts are to the west Bad Tölz- Wolfratshausen district, the München Land district and the Rosenheim district. To the south the crest of the Mangfallgebirge (Mangfall mountain range) represents the border to the Austrian Bundesland Tirol. The town Miesbach is the regional center and seat of the district administration. The distance between the town of Miesbach and Munich (which is the supra-regional service, trade and cultural centre) is 46 km. The region is well accessible as the motorway A 8 connecting Munich and Salzburg passes by the district´s northern municipalities. The total district surface is 864 km² with an overall population of approximately 95.241 persons living in 17 municipalities. As far as topography is concerned, the area can be subdivided into three parts. The northern part consists out of the glacially formed brash plains (Münchner Schotterebene). Besides, the three river valleys Mangfall, Schlierach and Leitzach run from south to north through the hilly area. The middle part between Miesbach and Rottach-Egern is dominated by the foothills of the Alps with peaks going up to almost 1500 m. Also located in the middle part are the two lakes Tegernsee (726 m) and Schliersee (777 m) composing important features especially for the tourism industry. The southernmost area is part of the Northern limestone Alps with a rough relief and peaks up to almost 1900 m. The highest point is the Rotwand (1884 m).
www.clisp.eu | [email protected] 3
WP 5, Action 5.3: in‐depth evaluation
The Miesbach district is dominated by the service sector with tourism being of special importance, followed by the processing industry [German terminology: verarbeitendes Gewerbe). Especially the northern part of the region is rather characterised by industry and manufacturing, whereas in the southern part tourism prevails. Again, in the southern parts of the district space for further development of settlement and infrastructure is already scarce as it is limited to parts of the valley floors.
1.1.2 Climate Change Priority Sectors and Impacts & Adaptation Requirements Climate Change Priority Sectors The priority sectors relevant to potential climate change impacts in the Bavarian Model Regions (MR) are built-up areas / land development, forestry and tourism. The selection of the priority sectors at the very beginning of the project bases on the CLISP WP 4 methodology (c.f. action 4.1 / 4.2) and was done with the knowledge about the MR of the experts of StMWIVT and AFI. Built-up areas and land development comprises settlement areas (incl. housing, business & trade, industry, administration and public services) as well as transport infrastructure (incl. roads, rails, ropeways for tourists). With forestry it is basically meant the forest and his protective function for settlements and infrastructure, i.e. especially the protection forest. Tourism refers to winter tourism (ski tourism) and summer tourism (incl. mountainous and non-mountainous tourism as well as wellness and culture tourism). Yet, in this evaluation tourism is only considerer in terms of its activities relevant to spatial planning. Its economic dimension is not evaluated. Climate Change Impact on selected Sectors Like in the entire Alps the climate in the district is expected to change within the next decades according to the knowledge out of CLISP WP 4 (action 4.3). A warming in all seasons between 1°C to 2°C is predicted for the Bavarian MR taking into account the difficulties of climate projections, in particular regarding precipitation. This increase of temperature is in line with the general expected warming of the Alps until the year 2050. Looking to precipitation the picture is more heterogeneous. While summer precipitation tends to decrease up to 50 mm until the year 2050, there seems to be a slight increase of precipitation for the rest of the year. The changes of precipitation patterns for the next decades are likely to be smaller than in many other parts of the Alps. Naturally, due to the mountainous topography of the Bavarian MR, the chosen priority sectors have always been exposed to the impacts of the regional climate, e. g. extreme weather events or natural hazards. But climate change alters this exposure increasing the frequency and intensity of extreme events and natural hazards. Thus, the sector built-up areas / land development will have to deal with higher risks of intensified heavy precipitation, storms, floods, mudflows, avalanches, rockfalls and mass movements. The potential impacts towards the forest are an increase of storm and snow breakages, an increase of sensitivity to forest fires and pests and a decrease of stability of the Norway spruce dominated mountain forest. The result is a reduced protective function of the forest. Finally, the potential impacts of climate change on the tourism sector are contrary. Whereas summer tourism may profit from a season extension and better weather conditions, winter tourism has to cope with more adverse conditions as snow reliability will decrease. Adaptation Requirements to Climate Change of selected Sectors The impact of climate change on the selected sectors requires adaptation measures Within the frame of the in-depth evaluation interviews with spatial planning experts were conducted (c.f. chapter 1.2 Methods and Evaluation Criteria) in which they were asked about the most urgent adaptation needs to climate change out of their professional perspective. The following paragraphs about built-up areas, forestry and tourism reflect the opinions of these experts. For the sector built-up areas/infrastructure the common opinion is that the protection of settlements and infrastructure has to adapt to the new challenges by climate change. One the one hand, this should be achieved mainly through the avoidance of further settlement development in sensitive areas that are potentially endangered by natural risks (redensification vs. new settlements). In this context a crucial point is how to deal with already built-up areas [German terminology: Bestandsproblem]. On the other hand, the installation or reinforcement of technical protection measures, e.g. for floods, avalanches or rockfalls should take climate change into account. Further on, emphasis should also be put in the future on awareness rising for the issue www.clisp.eu | [email protected] 4
WP 5, Action 5.3: in‐depth evaluation
among the population and decision makers, in order to increase the acceptance and assertiveness of spatial planning. The main adaptation requirements stated for the forest are the strengthening of natural forest regeneration (hunting of hoofed game to protect young tree sprouts) and conversion measures in order to adapt the tree species composition of the forest to the new conditions produced by climate change. Mixed forests composed by broadleafs, firs and spruces are considered the only way to maintain the protective function of the mountain forests in the face of climate change. As already mentioned above, the focus of the evaluation of the tourism sector was strictly on its activities relevant to spatial planning, i.e. the land use. Following this, it turned out during the evaluation that there are no specific adaptation requirements to climate change of the tourism sector. In fact they are similar to the sector built-up areas and were consequently covered there. Within this context, spatial planning is considered to be an appropriate way to cope with the challenges posed by climate change due to its interdisciplinary and long-term approach to spatial development.
1.1.3 Spatial Planning Instruments to meet Adaptation Requirements The chosen spatial planning instruments and procedures of Bavaria selected for the in-depth evaluation are considered to have the potential to meet the identified adaptation requirements. The selection was carried out by the experts of StMWIVT and AFI according to the methodology of CLISP WP 5 (c.f. action 5.1 / 5.2) and following former experiences of the INTERREG III-B project ClimChAlp. They are:
Bavarian Regional Development Programme 2006 [Landesentwicklungsprogramm] Regional Plan 18 “Südostoberbayern” (MR Berchtesgadener Land) / Regional Plan 17 „Oberland“ (MR Miesbach) Preparatory Land-Use Plans [Flächennutzungspläne] Urban Land-Use Plans [Bebauungspläne] Regional Management of the Berchtesgadener Land district and Regional Management of the Miesbach district 1.2 Methods and Evaluation Criteria All the overall criteria listed under the point B “General Evaluation Criteria” of the final document “General Framework” of the action 5.3 have been chosen as criteria to evaluate the climate change fitness of the selected instruments (cf. Table 1). No further targets, indicators and evaluation standards have been introduced in the evaluation. Table 1: General Evaluation Structure as agreed upon with the WP 5 Responsible ARE / WSL Step Scope Contents Comments A MR context, Priorities for cc Rather the introductory thematic focus adaptation (OC 1) part including problem awareness (part of OC 2) B Instrumental 1. Relevance of the Relevance for adaptation Assessment of focus + instrument priorities (OC 3) relevance, coherence implementation und effectiveness: the 2. Coherence of the Coherence, synergies and evaluation sensu strictu instrument conflicts (OC 6) including collaboration with sectoral planning (part of OC 8) 3. Impacts of the Political willingness (part of instrument OC 2) Flexibility/stability (OC 4) www.clisp.eu | [email protected] 5
WP 5, Action 5.3: in‐depth evaluation
Step Scope Contents Comments Binding character (OC 5) Collaboration with sectoral planning, participation and stakeholder consultation (part of OC 8) Effectiveness, efficiency and feasibility (OC 7) C Synthesis and Enhancement Synthesis of the consequences options (OC9) evaluation results, derivation of enhancement options
The method used for the evaluation of the spatial planning instruments is structured in three steps (c.f. to Bavarian WP 5.3 Evaluation Concept): Preparatory Work In a first preparatory step, the Alpenforschungsinstitut (AFI) extracted out of the Bavarian Regional Development Programme [LEP), the Regional Plan 18 “Südostoberbayern” and the Regional Plan 17 „Oberland“ all objectives and principles relevant to climate change and especially climate change adaptation (c.f. annex 1). Interviews and Workshops This comprehensive list was used as a basis for the interviews with spatial planning experts and regional stakeholders, conducted as the second step of the evaluation. With these interviews, it was intended to reveal on the one hand the view of spatial and sectoral planning responsibles and experts from supra‐local administration (Land, district / region) and of spatial planning science (University) as they have a more “external” expert position. On the other hand, the internal view of relevant MR stakeholders was enquired through conducting workshops in 4 hot spot municipalities in order to have a more differentiated and comprehensive understanding. Here it has to be mentioned that sectoral planning is considered to be very important as it provides input to the above mentioned spatial planning instruments and procedures. Therefore, also sectoral planning experts were interviewed. However, the focus of these interviews was as well on spatial planning. Only the relation of spatial planning to sectoral planning was additionally evaluated. In total 17 spatial and sectoral planning experts were interviewed. The total number of local stakeholders participating in the workshops in the 4 hot spot municipalities was 40 (c.f. annex 2). Analysis and Key Statements The AFI then processed the interviews in order to filter all contents and information relevant for the in-depth evaluation as laid down in Table 1. In the following third and last step, this synopsis was used as a basis for drafting key statements about the climate change fitness of the analyzed spatial planning instruments. This drafting process was done by the AFI, as it is not a player of any of the evaluated spatial planning instruments and thus has a more objective and external view. Out of the same perspective, enhancement options for the spatial planning instruments were developed and discussed with the StMWIVT.
2 Evaluation of selected instruments or procedures
2.1 Description of evaluated instruments or procedures
2.1.1 Objective and Implementation of the Instruments Regional Development Programme www.clisp.eu | [email protected] 6
WP 5, Action 5.3: in‐depth evaluation
On the Bundesland level [NUTS 1] there is the Regional Development Programme [LEP]. It is binding for public authorities and aims at a sustainable spatial development of the Bavarian territory and equal living conditions in all parts of Bavaria. Its task is to put up objectives and principles constituting the frame for spatial development and planning in Bavaria. For the putting in practice of the LEP´s objectives and principles an intense cooperation with the concerned sectoral planning, the respective authorities and the correct implementation by the municipalities in the frame of Urban Land‐Use Planning is very important (c.f. Table 2). The Table 2 also shows that sectoral planning is very important for spatial planning as already the LEP integrates objectives and principles stemming from the sectoral planning authorities. In the Alpine Space especially the sectoral planning authorities coping with water, forest and geological risks have since long played an important role for the protection of the population and infrastructure against natural hazards. Therefore, as already mentioned, the relation between sectoral and spatial planning in the context of natural hazards was also considered in the expert interviews.
Table 2: Organisation and Process of Bavarian Federal State Planning (BBR / BMVBS 2006: Perspektiven der Raumentwicklung in Deutschland)
Regional Plan The framework given by the LEP is concretised both in content and spatially by the Regional Plans [RP] enabling thus a sustainable development of the planning region providing attractive areas for living, economy and recreation. The level of regional planning is located between the administrative levels of Regierungsbezirk and Landkreis (i.e. between NUTS 2 and NUTS 3 level). All districts and municipalities located in one planning region are incorporated in the regional planning association [German terminology: Regionaler Planungsverband]. The idea of one planning region is to associate three or four NUTS 3 areas with similar structural characteristics. Hence, the development requirements of the NUTS 3 areas are comparable making regional planning more consistent and effective. Within the regional planning association, each administrative district [German terminology: Landkreis] and each municipality possess seat and vote. This means that regional planning is of ‘municipal character’. Determinations of the Regional Plan have to be considered in the Urban Land-Use Planning. Therefore, regional planning is an important interface between the spatial planning of the Federal State Bavaria and the self‐administered municipalities. The term ‘Region’ used in the official way usually refers to planning regions. This definition differs from the EU terminology for the term ‘Region’ referring to Regierungsbezirke [NUTS 2]. Preparatory Land-Use Planning The self‐administration competencies of the local authorities include the establishment of Preparatory Land-Use Plans and Urban Land-Use Plans which represent the implementation of spatial planning objectives on local level. This lowest planning level containing a large number of www.clisp.eu | [email protected] 7
WP 5, Action 5.3: in‐depth evaluation
on‐site specific recommendations and measures concretises the superordinate and multidisciplinary provisions of the higher levels in detail. The Preparatory Land-Use Plans set out the local authorities´ proposals for future land‐use, preliminary designation of zones for settlement and other development as well as for other types of land‐use whereas the Urban Land-Use Plans are the binding designation for all urban development on the level of the municipalities. Regional Management The Regional Management [RM] is an instrument of spatial planning in Bavaria and was included in the evaluation as it represents an interface between the legal spatial planning instruments and the local economic, political and administrative stakeholders dealing with issues relevant for spatial planning. With this background, RM is a cross sectoral approach picking up the networking idea focussing on interlinking relevant regional partners like politicians, economists and scientists. Through the deployment of project managers networks and projects are developed. The aim of these activities is to take advantage of the regions´ potentials promoting at the same time the individual responsibility of the stakeholders. In the context of RM the term region is very variable in terms of size, i.e. the association of only some municipalities, one administrative district or also some districts can compose the operating area for the RM. The RM is a bottom-up process, i.e. the process of installing a RM has always to be initiated by the local stakeholders. On this note, is has to be mentioned that a regional development concept [German terminology: Regionales Entwicklungskonzept] is an obligatory prerequisite for installing a RM. First of all, the regional development concept is elaborated in a bottom-up process and contains the strengths and weaknesses of a region as well as it sets out strategies and projects to deal with them. Afterwards the RM can get installed and is then entrusted with the implementation of the defined projects and strategies.
2.1.2 Relevance of Instruments for Climate Change Adaptation The relevance of the selected instruments (c.f. chapter 1.1.3 Spatial Planning Instruments to meet Adaptation Requirements) is directly linked to their capability to meet the adaptation requirements posed by climate change. The following paragraphs represent the opinion of the experts of StMWIVT and AFI which was elaborated within CLISP WP 5 (c.f. action 5.1 / 5.2). LEP & RP 17 / 18 The LEP is considered to be highly relevant for spatial adaptation to climate change as well as for mitigation. Due to its anticipatory character and its overall goal to enhance sustainable development, the LEP pays traditionally great attention to the fields of natural hazards and protection forests in the Alpine Space. The objectives and principles striving for the reduction of the natural hazard potential and the damage potential cover a broad range as the LEP incorporates a lot of technical input provided by sectoral planning, e.g. about flood risks, geological risks or forest issues. In this context, the objective of avoiding development in areas endangered by floods, avalanches, mudflows, landslides or rock falls can be regarded as effective (but depending on implementation by Preparatory and Urban Land‐Use Planning) (c.f. annex 1). Similar to the LEP, the RP 17 and 18 feature a range of objectives and principles aiming at avoiding natural hazards, damages to settlements and infrastructure and preservation of protection forests. Likewise, they have the same anticipatory and sustainable character which is why they are considered to be relevant for spatial adaptation to climate change. Urban Land-Use Planning Both the Preparatory Land-Use Plan and the Urban Land-Use Plan are considered to be of high relevance to climate change adaptation as they have to consider the LEP's and Regional Plan's objectives as well as the regulations of the Building Codes and shall provide corresponding binding spatial designations. The traditional local knowledge about alpine risks and the competence to manage them are part of these plans. Regional Management So far, the RM has been mostly engaged in projects about climate change mitigation. Adaptation to climate change has not been an important issue so far, as the topic is comparatively new on the political agenda. Nevertheless, RM is considered to be potentially relevant in the future for climate www.clisp.eu | [email protected] 8
WP 5, Action 5.3: in‐depth evaluation
change adaptation through spatial planning. The RM offers options and ways for action going beyond the possibilities of the classic spatial planning instruments. 2.2 Assessment of evaluated instruments or procedures First of all, some best practice examples (c.f. chapter 2.1.1 Objective and Implementation of the Instruments) are given on how Bavarian spatial planning instruments have already contributed in the past to reduce the vulnerability of settlements and infrastructure against natural hazards in the Bavarian Alpine Space. The assessment (c.f. chapter 2.1.2 Relevance of Instruments for Climate Change Adaptation) is carried out for the Bavarian LEP and the RP, the Urban Land-Use Planning [Preparatory Land-Use Plan & Urban Land-Use Plan] and the RM following three different aspects: 1. Specifications of content (objectives and principles) relevant to climate change adaptation 2. Formal Scope (legal framework) of the instruments enabling climate change adaptation 3. The Implementation Procedure of designations made by the instruments leading to spatial climate change adaptation These aspects correspond on the one hand widely with part B of the agreed Bavarian “General Evaluation Structure” (Relevance, Coherence and Impact) and on the other hand they turned out to be appropriate with regard to the development of enhancement options. Within the frame of the first and second aspect the strengths and weaknesses as well as particular enhancement options are identified for the LEP and the RP, the Urban Land-Use Planning and the RM. Afterwards, the third aspect is discussed in the same way for all of the evaluated instruments as these are linked to each other and thus can only unroll their impact in close interaction. If not marked other, the statements represent the opinions of the interviewed planning experts and the local stakeholders.
2.2.1 Best practice examples to meet challenges of Climate Change The following best practice examples are a selection of existing Bavarian spatial planning instruments contributing already nowadays to the protection of built-up areas against natural hazards. The selection was done by the experts of StMWIVT and AFI. Plan for the Alps The “Plan for the Alps” *German terminology: Alpenplan+ as a aim of the LEP *c.f. part B V 1.8.2+ is certainly one important approach of Bavarian spatial planning being already nowadays very useful for coping with the challenges by climate change in the Alpine Space. It was put into practice in 1972 in order to impede an overwhelming development of infrastructure (e.g. ski-lifts, mountain railways, roads, airports) in the Bavarian Alpine Space and to cope with the natural risks like avalanches and erosion. The Bavarian Alpine Space is divided in the three zones A, B, C avoiding hardly any site development (zone C) to development obeying certain restrictions (zone A). The zoning is among other issues based on the existence and intensity of natural hazards keeping thus potentially endangered areas free of infrastructure and buildings. The control effect is unrolled in zone B and C through restrictions regarding the development of traffic infrastructure. Over the years, the “Plan for the Alps” turned out to be a very effective and useful instrument, not only in terms of a sustainable development of the Bavarian Alps but also to cope with the effects of climate change. Since the aim was put into practice it was consequently implemented and no violation to it is reported. However, a systematic monitoring system does not exist. Determination of flood areas Another Bavarian approach for coping with natural risks is the determination of flood areas [German terminology: Überschwemmungsgebiete] and retention space along all water bodies. Once determined as flood area, further site development is hardly allowed or has to be done according to certain rules. Thus, the damage potential in flood areas was kept comparable low. Besides to the legally binding flood areas, the identification of priority areas for flood protection [Vorranggebiete www.clisp.eu | [email protected] 9
WP 5, Action 5.3: in‐depth evaluation
für Hochwasserschutz, c.f. to LEP, part B I 3.3.1] in the RP assures further keeping free of areas for flood retention and discharge. Commandment to connect new building areas Finally, the commandment to connect new building areas [German terminology: Anbindungsgebot, c.f. to LEP, part B VI 1.1] to already existing built-up areas turned out to be an effective instrument in terms of keeping the urban sprawl on a small scale. The protection of natural hazards of compact settlement structures is easier than for dispersed settlements. Consequently, this commandment is useful for coping with natural risks in the Bavarian Alpine Space and offers possibilities in the future to take climate change in further urban development into account.
2.2.2 Specifications & Formal Scope LEP & RP 17 / 18 – Strengths & Potentials Long-term perspective and steering potential - Most interviewed experts emphasize the continuous long-term perspective of spatial development provided especially by the LEP going even beyond legislative periods. Besides to that the LEP and the RP make it possible, due to their integrative, cross sectoral and anticipatory approach to spatial planning, to solve sectoral conflicts (e.g. economic site development vs. keeping the site free of any development as it is needed as flood retention area) in favour of spatial climate change adaptation. Hence, there is a common sense that spatial planning, as a supra-local discipline is the right approach to control future spatial development and to cope with new challenges posed by climate change. Specifications aiming at climate change adaptation - Although climate change and adaptation to climate change have not been explicitly named in the LEP and the RP within the last decades, almost all interviewed experts recognize that there already exist a number of specifications useful for the protection of settlements and infrastructure of natural hazards and for adaptation to climate change. Yet, the interviewed experts didn´t specify any further objectives and principles out of the LEP and the RP besides the comprehensive list (c.f. annex 1) used for the evaluation. Internal and external coherence - It was stated by the interviewed experts that the formal internal coherence of the LEP and the RP as well as the external coherence between the LEP and the RP is given. LEP & RP 17 / 18 – Weaknesses & Constraints Not enough specifications aiming at climate change adaptation - Basically all interviewed experts acknowledge the objectives and principles already serving at least indirectly for spatial adaptation to climate change and protection of natural hazards. Yet, they express that more of these specifications are needed with regard to the new challenges posed by climate change and the likely adaptation needs in the Bavarian Alps. In particular, the integration of climate change issues as additional justification to the already existing objectives and principles aiming at spatial adaptation to climate change is regarded as necessary. Low binding character of specifications - On the same note, it was stated by several experts and stakeholders that the legally binding character of the objectives and principles is too low. On the one hand, this is due to the differentiation between objectives that are legally binding and principles underlying a weighing process. On the other hand this is because of the sometimes low concreteness of the objectives and principles as regards contents and their spatial location. Low importance of specifications by the RP - Within the MR workshops, it was clearly indicated by the responsible planning persons of the municipalities that the objectives and principles out of the RP concerning natural hazards hardly play any role for the Urban Land-Use Planning as they almost never go further than the legal regulations [Baugesetzbuch, Bayerische Bauordnung]. The additional value and the relevance of the RP are in this context comparatively low. Large territorial scale of the LEP and the RP - By some experts it was stated that the territorial scale (1:100.000) of the RP and especially of the LEP is very large. Thus, a representation of concrete adaptation measures with regard to contents and related to specific locations in the territory is not possible. www.clisp.eu | [email protected] 1 0
WP 5, Action 5.3: in‐depth evaluation
Long updating periods - It was remarked that the updating periods of the LEP and the RP are very long. Hence, it takes too long to incorporate and reflect new conditions, e.g. posed by climate change, for spatial planning. LEP & RP 17 / 18 - Enhancement Options Increasing quantity and quality of specifications relevant for climate change adaptation - In order to reflect the increasing importance of spatial adaptation to climate change, the LEP should have a “pioneer character” for all the other instruments of spatial planning. This means on the one hand that the need for climate change adaptation should be incorporated in the LEP and also in the RP as an additional argumentative support for the implementation of already existing objectives and principles, e.g. keeping flood areas free of settlements and other infrastructure or the conservation of the protection forest. On the other hand this refers to the possibility to formulate new objectives and principles explicitly aiming at spatial adaptation measures to climate change. According to a suggestion done by an interviewed expert, the latter could be achieved by opening up a new “spatially significant division” *German terminology in LEP: “raumbedeutsamer Fachbereich”] addressing exclusively climate change adaptation issues. Yet, the expert also stated that by doing this it has to be taken into account that this division would overlap with other already existing divisions. The expert rather preferred the approach of increasing the concreteness of the objectives and principles as mentioned above taking always into account the constraints by the territorial scale of the LEP and RP. This would correspond more to the coordinative and integrative task of spatial planning. Comprehensive illustration of natural hazards in RP - The idea was brought up, to allow different sectoral planning authorities and when appropriate also public authorities [German terminology: Träger öffentlicher Belange] to illustrate their concerns in the RP. This could be done in a rather rough scale as the aim is only to give a comprehensive and complete overview on the natural hazards, restrictions etc. to be considered for a site to be developed. This kind of overview could be of a great advantage for all stakeholders of a planning process, in particular when it comes to supra- local plans and measures with greater public interest, as it provides with one glance all aspects that have to be regarded. Shortening of updating periods - Further on, the updating periods of the LEP as well as of the RP should be shortened in order to be able to react faster and with more flexibility to changing preconditions for spatial planning. In the case of Bavaria, the need to adapt to climate change is an important issue on the political agenda but so far not explicitly addressed within the LEP. Yet, the idea that was brought up by several experts is questionable as climate change is a rather slow process, so that the effort of shortening the updating periods might not be reasonable.
Urban Land-Use Planning (Preparatory Land-Use Plan & Urban Land-Use Plan) – Strengths & Potentials Relevance of Urban Land-Use Planning - Only one expert attributes a high relevance to Urban Land- Use Planning as the plans are developed and implemented right on-site providing thus the appropriate means for coping with changed natural hazards scenarios on local level. External coherence of Urban Land-Use Planning - Likewise is the opinion of the experts about the coherence of Urban Land-Use Planning and the LEP / RP. Only a few experts stated that the objectives and principles of the LEP / RP provide, as the superordinate level, the right frame and support for an effective Urban Land-Use Planning in terms of spatial adaptation to climate change. Urban Land-Use Planning (Preparatory Land-Use Plan & Urban Land-Use Plan) – Weaknesses & Constraints Low relevance of Urban Land-Use Planning - As already indicated above, the relevance for climate change adaptation that some of the interviewed experts contribute to Urban Land-Use Planning is low as the knowledge about natural hazards is not always included properly in the planning processes. This is on the one hand due to the development procedure of the plans which does not set out exactly what knowledge about natural hazards has to be incorporate, especially with regard www.clisp.eu | [email protected] 1 1
WP 5, Action 5.3: in‐depth evaluation
to geological risks (exception to this are flood risks). On the other hand this is often because of a lack of education and awareness of the planners and architects responsible for the Urban Land-Use Plans regarding natural risks. Besides, following the experts´ opinion there exist cases in which the awareness about changing natural hazards and adaptation needs and the willingness of municipalities to put these issues on the local political agenda is low. Hence, the anticipated impacts by climate change on natural hazards and thus on the settlement infrastructure are not always reflected properly in Urban Land-Use Planning. In addition to that, experts of sectoral planning said that these deficits of the Urban Land-Use Plans can´t be compensated adequately by them. Low external coherence of Urban Land-Use Planning - As to the coherence of Urban Land-Use Planning and the LEP / RP it was noted by some experts and also by some stakeholders of the MR that the Urban Land-Use Plans are often only a replication of the objectives and principles of the superordinate level. They only correspond to the minimum demands set by the LEP / RP but don´t provide any informational added value as regards climate change adaptation on local level. Urban Land-Use Planning (Preparatory Land-Use Plan & Urban Land-Use Plan) - Enhancement Options Early involvement of sectoral planning - The Urban Land-Use Planning is closely related to the implementation procedure as it is the lowest level of spatial planning. Nevertheless, it emerged in the hot spot municipalities that a closer and more active incorporation of the sectoral planners already in a very early stage of the planning process would improve the results in terms of climate change fitness. The municipalities don´t know in many cases how the sectoral planning authorities assess climate change and how this affects the requirements they have to accomplish with in their planning process. Referring to Table 2 an early informational exchange in particular between the local authorities and the sectoral planning authorities would decrease these uncertainties as the latter provide important technical input for both, the superordinate as well as the local level.
Regional Management – Strengths & Potentials Flexibility and networking - Several spatial planning experts expressed that the main capacity of the RM is its implementation orientated focus and its ability to react to new challenges and changed conditions for spatial planning faster and more flexible than the LEP or the RP. Thus, it can cope with issues that aren´t integrated in the LEP and the RP so far compensating their deficits in dealing for example with adaptation needs to changed natural hazard scenarios. The RM is already taking advantage of this ability by networking and organizing projects. Yet, these activities are so far only dealing with climate change mitigation. Regional Management – Weaknesses & Constraints Binding character and available resources - As far as activities by the RM are concerned contributing to spatial climate change adaptation, the low binding character of this instrument is problematic, i.e. the implementation of projects depends a lot on the willingness of local stakeholders and decision makers. Together with the small personal and financial resources being available for the activities of the RM, its potentials for putting up activities aiming at spatial adaptation to climate change are reduced. Regional Management - Enhancement Options Stronger coordination of RM and the RP - Besides improving the personal and financial resources of the RM, further improvement options are given by the interviewed experts. A closer and stronger coordination of the RM and the regional planning associations (responsible for the RP) would at the same time not only avoid overlaps in the work but also take advantage of the flexibility of the RM. An idea of an expert was that the regional planning associations entrust the RM with the implementation of specific projects related to climate change adaptation.
2.2.3 Implementation Procedure As identified and described above (c.f. 2.1 Description of evaluated instruments or procedures), the objectives and principles as regards climate change as well as the legal framework of the Bavarian spatial planning instruments provide a formal frame already enabling planers and architects to make www.clisp.eu | [email protected] 1 2
WP 5, Action 5.3: in‐depth evaluation designations relevant for dealing with the challenges of climate change. As also shown, this formal frame can still be further improved in order to increase its capability to deal with climate change scenarios. According to the statements gained through the expert interviews and the experiences made through the stakeholder interactions in the hot spot municipalities, it emerged that the implementation procedures and processes of the objectives and principles of spatial planning dealing with adaptation to climate change are of crucial importance for the future development. Evaluated Instruments - Strengths & Potentials Successful climate proof spatial planning - Climate proof spatial planning in the sense of CLISP is already taking place in the Bavarian Alpine Space, because natural hazards have always played a role in the urban development of the alpine Bavarian municipalities. Following the statements of several interviewed experts, there exist many cases in which designations made through the Bavarian spatial planning instruments are implemented completely and correctly. The impact of the “Plan for the Alps” was emphasized as a good example as well as the impact of the LEP and RP on the development of settlements and infrastructure in areas endangered by floods or geological risks (c.f. chapter 2.2.1). The impact was unrolled through the comprehensive and correct implementation on local level of the objectives and principles provided by the LEP and RP contributing thus to the spatial adaptation to changing natural risks. Although the original goal of these objectives and principles was not the adaptation to climate change, they proofed to be effective. Evaluated Instruments - Weaknesses & Constraints Possibility of deviation from objectives and principles - The objectives and principles given by the LEP and RP are legally binding for all levels of spatial planning. However, the possibility of a weighting process for principles and also the big scale of the LEP and RP give a lot of space for interpretation to the stakeholders when putting up and implementing the Urban Land-Use Plans. Thus, already in the process of putting the Urban Land-Use Plans up, interests of single persons or of interest groups can achieve acceptance although not being totally coherent with the superordinate levels. In a lot of cases these contradictory interests concern the future use of land for settlement, infrastructure and agriculture, which is itself often a rare property within the Alpine Space. Following the experts, especially the objectives and principles out of the RP concerning the forest are not always implemented as foreseen. Likewise, the experts reported cases where public as well as private stakeholders try to keep on developing sites that were already subject to floods. Hence, successful adaptation to climate change depends strongly on the understanding and willingness of the local stakeholders and decision makers. Responsibility of local administration - This topic was also explicitly addressed by several interviewed experts emphasizing the key role of local political decision makers in the approval and implementation process of the Urban Land-Use Plans. Especially the district administrations respectively the heads of the district administration (Landräte) play a key role in this sense. They don´t only approve the Urban Land-Use Plans but are also in charge of monitoring their correct implementation. A lack of taking this responsibility is stated by some experts, in particular in cases when it comes to the monitoring of designations made by the sectoral planning authorities affecting land-use possibilities (designation of flood areas, hunt of hoofed game). Responsibility of regional governments - On the same note, this is apparently also true on higher level. Some interviewed experts stated that the regional governments [German terminology: Bezirksregierung, e. g. Regierung von Oberbayern) have an equivalent position like the district administrations. The RP are elaborated within the regional planning associations, but their correct formal implementation is controlled by the regional governments. Accordingly, the controlling of the compliance with the RP in the Urban Land-Use Planning could be further intensified by the regional governments. Not enough communication between all actors of spatial planning - Another outcome of the expert interviews as well as of the stakeholder workshops in the hot spot municipalities is that the cooperation and communication between all actors of the planning process can be further intensified. This statement refers on the one hand to all phases of a planning procedure beginning www.clisp.eu | [email protected] 1 3
WP 5, Action 5.3: in‐depth evaluation
with the first written comments about a planning topic ending with the implementation of concrete measures on local level. On the other hand it refers to all planning entities from state to local level as well as to the sectoral planning and public agencies. So far, the cooperation is widely based on a simple information exchange mainly via written statements [German terminology: schriftliche Stellungnahmen] but not on an intensive dialogue between partners. Evaluated Instruments – Enhancement options Basically, for all interviewed experts and stakeholders out of the MR improvements of the implementation procedure are related to better cooperation and communication of all actors involved in spatial planning. Regular dialog and information exchange between all actors of spatial planning - On the level of Urban Land-Use Planning there exists no formal platform for a regular and mutual knowledge and information transfer between the local responsible persons, the spatial and sectoral planners and private interest groups. Yet, it turned out through the evaluation that a regular dialog would be crucial for the success of spatial planning, in particular when it comes to the complex challenge of adaptation to climate change. For example this kind of information exchange would strongly support the local authorities in their complex process of Urban Land-Use Planning. As the stakeholders in the MR workshops stated, it is a difficult task for the municipalities to gather and handle all relevant information, i.e. to find out where to get the information, to classify the information according to their importance and to distinguish which information is finally relevant for their planning objectives. In the context of climate change, these uncertainties are even bigger as climate change projections itself are afflicted with uncertainties. More comprehensive and effective implementation of planning processes - A further identified advantage of this dialog process would be that due to the permanent information exchange the legal and administrative constraints as well as the opportunities of a planning project could be indentified in a very early stage of the planning process. This doesn´t only refer to the uncertainties of climate change and changing natural hazard scenarios, but also to the possibility to discuss various development options with all actors at the same time. A more comprehensive and effective design of the respective planning process would be the result increasing the quality of the outputs. As a side effect, the costs for which the municipality has to correspond (costs-by-cause principle) would decrease making it even more attractive for the administrations to invest in climate proof planning. Comprehensive Urban Land-Use Plans - An innovative approach aiming to cope with these circumstances was shown in two hot spot municipalities where Urban Land-Use Plans should be put up showing all known natural hazards within one plan. This planned rough graphic presentation of all natural hazards goes beyond the actual legal standards as up to now procedures like that are not foreseen for the compilation of the Urban Land-Use Plans. On a rather large scale informal hatchures shall roughly indicate the potential risks of a certain zone providing an overview on local level at one glance. A regular dialog with the sectoral planners, who provide most input related to climate change, with the public agencies and further stakeholders could be a good arrangement for the local planners to support them in their efforts for climate proof spatial planning. Awareness rising among decision makers and the population - Additionally, a regular platform for knowledge transfer would provide the sectoral planners the possibility for first awareness rising activities about climate change among the local planners and political decision makers. It turned out in the hot spot municipalities and the expert interviews that due to a lack of knowledge and uncertainness about what to expect from climate change, local stakeholders don´t attribute sufficient attention to climate change issues in the planning processes. Yet, awareness rising like it was done in the frame of the CLISP hot spot municipality workshops was considered by the stakeholders to be a valuable and appreciated input. Following the statements the implementation of these activities could be on the one hand for the stakeholders of the local planning authorities itself. On the other hand these activities could also aim at supporting the local planning authorities in their risk communication activities among the population of their own municipality. www.clisp.eu | [email protected] 1 4
WP 5, Action 5.3: in‐depth evaluation
Stronger involvement of local administrations - Finally, it was suggested that the involvement of the district administrations could be increased in order to improve the correct implementation of designations made especially by the Urban Land-Use Plans. By increasing e.g. the responsibility of the heads of the district administrations for the case of damages to infrastructure caused by disregarding spatial planning designations, the correct implementation as foreseen in the RP and the Urban Land-Use Plans could be assured. Decreasing space for further development - Another topic mentioned by the experts and local stakeholders that has to be addressed by any spatial planning strategy is the following: Climate change is likely to increase the threat of natural hazards for settlements and infrastructure, but also for still undeveloped areas in the Alpine Space. According to its task, this increased hazard potential will be reflected by spatial and sectoral planning through higher and stronger protection requirements. For the municipalities in the Alpine Space this will result in a decrease of undeveloped areas suitable for future urban site development worsening the general inner alpine problem of low availability of space
3 Conclusion and Summary
Note: The chapter 3 was drafted by AFI and discussed with StMWIVT. If not marked different it represents the opinions of the experts of AFI and StMWIVT. 3.1 Climate Change Fitness Summing up the statements and information by the spatial planning experts and local stakeholders with an external view, it can be said that there is so far no massive need for action to adapt the Bavarian spatial planning instruments to the new challenges posed by climate change. However, according to the In-depth evaluation, the judgment of the climate change fitness of the Bavarian spatial planning instruments requires a differentiated description as some weaknesses could be identified regarding the climate change fitness of the evaluated Bavarian spatial planning instruments. The general well functioning is in particular true regarding the development of new building areas. Sectoral planning provides the adequate input for spatial planning to protect the inner alpine infrastructure. In contrast to that the potential influence of spatial planning on already built-up areas is rather small. Taking the new challenges for spatial planning due to climate change into account, it can´t be denied that especially the LEP and the RP have deficits in dealing with climate change adaptation, e.g. as regards the priority of their objectives and principles relevant for the protection of built-up areas and infrastructure against natural hazards or also regarding new coordination tasks arising from climate change. The reason is that adaptation to climate change became just recently an explicit topic on the political agenda. Again following the experts´ opinion the Bavarian spatial planning system is the right approach to cope with climate change. Hence, the common opinion is that no new instruments are necessary but rather certain enhancements (c.f. 3.2 enhancement options) of the LEP and RP are necessary. Above all however, a great step towards more climate change fitness of Bavarian spatial planning would be a change in the planning philosophy of all actors towards a constant and cooperative information and knowledge transfer. In any case, climate change and adaptation to the impacts of climate change will become a more and more important task for spatial planning as it has due to its precautionary and cross sectoral approach the capability to deal with the upcoming challenges. Therefore, in the following paragraph enhancement options will be identified from an external point of view always taking into account the findings gained through the in-depth evaluation. 3.2 Enhancement Options Giving higher priority to objectives and principles dealing with natural hazards - The actual set of objectives and principles out of the LEP and also the RP relevant for spatial adaptation to climate www.clisp.eu | [email protected] 1 5
WP 5, Action 5.3: in‐depth evaluation change is complete, i.e. it provides an effective frame to cope with the challenges posed by climate change. As no redundancies were identified no reductions of objectives and principles are possible as they unroll their impact only while interacting with each other as a whole. Although the scope and the content of the objectives and principles should be maintained they should be given a higher priority in the future compared to competing objectives and principles of the LEP and RP. A possible way to do so could be a regrouping, i.e. changing the place, the order and / or the number of appearance of the respective objectives and principles with the aim of increasing their significance and impact within the LEP and the RP fostering thus the climate change fitness of Bavarian spatial planning. Climate change as additional justification - There was a common sense within in the interviewed experts and the local stakeholders that climate change will require adaptation measures affecting the spatial development of settlement and infrastructure in the Alpine Space. Yet, climate change and adaptation requirements to climate change are missing within the LEP and the RP. In order to consequently increase the significance and impact of the existing objectives and principles dealing with natural hazards out of the LEP and RP climate change issues and adaptation requirements to climate change could be added. Specific and well funded amendments, e.g. climate change as additional argument for the maintenance and protection of the forest in order to foster its protective function, would create an additional justification [German terminology: Begründungszusammenhang] for the concerned objectives and principles giving them the priority in spatial planning that they need in the future. Regional planning associations as coordinator for Urban Land-Use Plans following natural topographic interdependencies - In the Alpine Space, the impacts of natural hazards aren´t limited to administrative borders as well as the impacts of urban development on natural hazards don´t cease at theses limits. Thus, a lot of inner alpine municipalities are interlinked that way. Putting up a common Preparatory Land-Use Plan for several municipalities that belong to one topographic region, e.g. a valley would increase the climate change fitness of the Urban Land-Use Planning. Making this extra effort would bring several benefits for the participating municipalities. First of all, through the necessary information and knowledge exchange a first risk communication process is started. Secondly, the responsibility for the neighboring municipalities increases the pressure on each municipality to stick to the commonly made designations in order to not increase the damage potential. Finally, the site development by each municipality is done in a more comprehensive way taking also into account the potential natural hazards from the neighboring municipalities. In the same way as for topographically interlinked municipalities a common Preparatory Land-Use Plan could be put up for several municipalities belonging together through structural linkages. Giving an example, further large scale site development (e.g. industrial zone) important to each of the municipalities could again be done in a more comprehensive way considering the urban development needs as well as the potential natural hazards. The LEP could stimulate the regional planning associations with giving them through respective objectives and principles the mandate to initiate and coordinate the common activities of municipalities connected topographically. That way, the regional planning associations would create an added value for several municipalities by introducing its objectives and principles relevant to climate change adaptation on an intermunicipal level. RM and adaptation to climate change by spatial planning - It was previously mentioned that the RM is considered to have a lot of potential to contribute to the spatial adaptation to climate change in the Bavaria Alpine Space, also up to now only activities were realized dealing with mitigation issues. As described, the obligatory prerequisite for installing a RM is the regional development concept. So far there were no standards about which topics have to be addressed in the concept. Without changing the bottom-up character of the RM, interdisciplinary key topics like adaptation to climate or demographic change that have to be treated within the regional development concept could be set as a standard in order to assure the realization of projects coping with crucial issues.
www.clisp.eu | [email protected] 1 6
WP 5, Action 5.3: in‐depth evaluation
Climate change adaptation could be one of these topics increasing the pressure on the local stakeholders to deal with it. At the same time the raised awareness and the new activities by the RM could give an impulse to the regional planning associations to update their RP taking the adaptation requirements to climate change into account. Identification of climate vulnerable areas into the RP - Identifying areas in the Alpine Space with high vulnerability to climate change and indicating these areas roughly in the RP would increase the climate change fitness of Bavarian spatial planning. First of all, the process of identifying the vulnerable areas to climate change could be done as a first awareness rising activity with the involvement of the local stakeholders. This local knowledge gained for example in workshops combined with quantitative data could lead to the hatchures in the RP indicating the areas vulnerable to natural hazards and climate change impacts. Afterwards, the RP provide on a glance a first overview on the hazard potential to all actors of a planning objective. Hence, further site development in these areas could be connected with special requirements like intensified information exchange between all involved actors (dialog platform) in order to take the increased vulnerability to climate change impacts into account in the planning process. Consequently, the legal binding character of this procedure and especially of the determinations in the RP would have finally to be clarified. One suggestion could be to integrate the hatchures based on the identified vulnerable areas in separate maps with a reasonable scale as an annex of the RP in combination with a textually principle. 3.3 Lessons Learned The first lesson learned is that the CLISP topic matters to the municipalities in the Alpine Space. Many municipalities are aware of the issue and appreciate any support and help as regards future planning activities. Especially, as it is new and complex and also as there exist hardly any experiences how to deal with the uncertainties of climate change itself. Very closely related to the uncertainties of climate change is the second lesson learned. The question arose during the evaluation, how to deal with natural hazards in general in the Alpine Space? Natural hazards and protected areas already limit the space for further development of a lot of inner alpine municipalities. These restrictions are likely to increase with climate change so that an answer has to be found on how further development opportunities can be created or at least maintained for the respective municipalities? Yet, this is also a social and legal problem and only to some degree the responsibility of spatial planning. Following that, the next important lesson learned is about risk communication. It turned out that risk communication towards decision makers as well as towards the local population is very important for every adaptation activity. However, these communication activities have to be conducted in a very sensible and precautious way in order to raise interest and the willingness of the local stakeholders to get involved in adaptation activities and not to make them afraid and reluctant to deal with the future challenges. But also to keep the acceptance of spatial planning as a reliable and effective development tool high among the local population. Finally, there was a great common understanding that especially spatial planning as an integrative cross sectoral discipline offers the right procedures and instruments to cope with the complexity of climate change and changing natural hazard scenarios.
www.clisp.eu | [email protected] 1 7
WP 5, Action 5.3: in‐depth evaluation
4 References
Bayerisches Staatsministerium für Wirtschaft, Infrastruktur, Verkehr und Technologie 2006: Landesentwicklungsprogramm Bayern 2006. München. Bundesamt für Bauwesen und Raumordnung / Bundesministerium für Verkehr, Bau und Stadtentwicklung 2006: Perspektiven der Raumentwicklung in Deutschland. Bonn / Berlin. Planungsverband Region Oberland (17): Regionalplan Oberland (17). Garmisch Partenkirchen. Planungsverband Region Südostoberbayern (18): Regionalplan Südostoberbayern (18). Traunstein.
www.clisp.eu | [email protected] 1 8
WP 5, Action 5.3: in‐depth evaluation
5 Annex 1 - Zusammenstellung der für das Thema „Klimawandelanpassung“ relevanten Inhalte des LEP Bayern und der Regionalpläne 17 und 18
Inhalt und Struktur
In diesem Dokument sind alle aus CLISP-Sicht relevanten Inhalte des Landesentwicklungsprogramms Bayern und der beiden Regionalpläne Oberland (für den CLISP-Modelllandkreis Miesbach) und Südostoberbayern (Modelllandkreis Berchtesgadener Land) zusammengestellt. Relevant sind dabei alle Ziele und Grundsätze der Instrumente, die in einem expliziten oder impliziten Zusammenhang mit der Anpassung an die Folgen des Klimawandels zu sehen sind. (Hinweis: Aspekte des Klimaschutzes, also der Minderung klimaschädlicher Emissionen, werden nicht behandelt!) Die vorliegende Auflistung bildet damit eine Grundlage für die Evaluierung dieser Raumordnungsinstrumente im Hinblick auf ihre „Klimawandel-Fitness“ im Rahmen von CLISP. Im Mittelpunkt der beiden Modellregionsstudien steht die räumliche Anpassung an die Folgen des Klimawandels im Bereich Siedlung und Infrastruktur. Die zentrale Rolle spielt dabei die Vermeidung bzw. Verringerung potenzieller Beeinträchtigungen und Schäden durch Naturgefahren. Neben expliziten Bestimmungen hierzu wird der Wald mit seinen Schutzfunktionen für Siedlung und Infrastruktur gesondert behandelt (auch wenn es einige Überlappungen zwischen den Themenfeldern Siedlung und Infrastruktur einerseits und Wald andererseits gibt). Zusätzlich werden auch raumrelevante Bestimmungen zu Erholung und Tourismus aufgeführt. Damit ergibt sich folgende Gliederung der Auflistung: Siedlung und Infrastruktur Naturgefahren allgemein Überschwemmungen Muren Lawinen Steinschlag und Felssturz Schutzwald und Schutzfunktionen des Waldes Erholung und Tourismus
Die Auflistung der relevanten Inhalte erfolgt für jeden Gliederungspunkt in der Reihenfolge LEP, RP 17, RP 18 und für die einzelnen Instrumente jeweils chronologisch.
Erklärung der Bezeichnungen der Spaltenköpfe: Instr. = Betroffenes Instrument LEP = Landesentwicklungsprogramm Bayern 2006 RP 17 = Regionalplan Oberland RP 18 = Regionalplan Südostoberbayern Nr. = Fundstelle im Text des Instruments Z / G = Ziel bzw. Grundsatz der Raumordnung Inhalt = Wörtlicher Inhalt des Ziels bzw. des Grundsatzes
www.clisp.eu | [email protected] 1 9
WP 5, Action 5.3: in‐depth evaluation
Siedlung und Infrastruktur
Naturgefahren allgemein
Instr. Nr. Z / G Inhalt (Naturgefahren allgemein) LEP A I 4.5 G Es ist anzustreben, das Alpengebiet unter Berücksichtigung der Alpenkonvention und deren Protokolle so zu ordnen und nachhaltig zu entwickeln, dass *…+ die alpinen Gefahrenpotenziale minimiert werden *…+ RP 17 B II 1.7 1 Z Lawinen-, überschwemmungs- und murengefährdete Bereiche sowie Wälder mit einer besonderen Funktion gemäß Waldfunktionsplan sollen von einer Bebauung freigehalten werden. RP 17 B XI 7.1 1 G Zum Schutz vor Bodenabtrag, Hochwasser, Lawinen, Muren und Steinschlag soll in den Alpen vordringlich ein naturnaher, standort- und funktionsgerechter Bergmischwald erhalten oder neu entwickelt werden. RP 17 B XI 7.2 Z Nutzungen, die Veränderungen des von Natur aus labilen Gleichgewichtes alpiner Ökosysteme zur Folge haben und Schäden im Gewässerhaushalt verursachen können, sollen unterbleiben. Bereiche, die alpinen Naturgefahren ausgesetzt sind, sind von Bebauung frei zu halten. RP 17 B XI 7.3 G Die Sanierung von Schäden soll möglichst durch natürliche Maßnahmen wie Aufforstungen erreicht werden. Bautechnische Maßnahmen als Ersatz für den natürlichen Schutz sollen dort erfolgen, wo Siedlungen und wichtige Verkehrs- und Versorgungsanlagen gefährdet sind. (Hinweis: im Zusammenhang mit Erosionsschutz, Wildbach- und Lawinenverbauung) RP 18 B II 8 1 Z Lawinen-, hochwasser- und murengefährdete Bereiche sollen von einer Bebauung freigehalten werden. RP 18 B IV 6.1 1 G Zum Schutz vor Bodenabtrag, Hochwasser, Lawinen, Muren und Steinschlag ist in den Alpen vordringlich ein naturnaher, standort- und funktionsgerechter Bergmischwald zu erhalten oder neu zu entwickeln. RP 18 B IV 6.2 Z Nutzungen, die Veränderungen des von Natur aus labilen Gleichgewichtes alpiner Ökosysteme zur Folge haben *…+ können, sollen unterbleiben. RP 18 B IV 6.3 G Die Sanierung von Schäden soll möglichst durch natürliche Maßnahmen wie Aufforstungen erreicht werden. Bautechnische Maßnahmen als Ersatz für den natürlichen Schutz sollen dort erfolgen, wo Siedlungen und wichtige Verkehrs- und Versorgungsanlagen gefährdet sind. (Hinweis: im Zusammenhang mit Erosionsschutz, Wildbach- und Lawinenverbauung)
Überschwemmungen
Instr. Nr. Z / G Inhalt (Überschwemmungen) LEP B I 3.2.1.1 G Eine Verringerung von Abflussextremen ist anzustreben. Hierzu ist von besonderer Bedeutung, auch geeignete Standorte für Wasserspeicher und sonstige Rückhalteeinrichtungen insbesondere in den Regionalplänen offen zu halten.
1 Hinweis: Ziel wird für einzelne Naturgefahren in folgenden Abschnitten wiederholt www.clisp.eu | [email protected] 2 0
WP 5, Action 5.3: in‐depth evaluation
Instr. Nr. Z / G Inhalt (Überschwemmungen) LEP B I 3.3 G Es ist anzustreben, den Schutz vor den Gefahren des Wassers durch natürlichen Rückhalt in der Fläche, technische Schutzmaßnahmen und eine weitergehende Vorsorge sicherzustellen. Es ist von besonderer Bedeutung, das Risiko für bestehende Siedlungen und bedeutende Infrastruktur ökologisch und sozial verträglich zu reduzieren. LEP B I 3.3.1.1 G Die Erhaltung und Verbesserung der Rückhalte- und Speicherfähigkeit der Landschaft ist anzustreben. Es ist von besonderer Bedeutung, Überschwemmungsgebiete von konkurrierenden Nutzungen, insbesondere von Bebauung, freizuhalten. Es ist anzustreben, in natürlichen Rückhalteräumen die Bodennutzung auf die wasserwirtschaftlichen Anforderungen abzustimmen. Der Erhaltung oder Wiederherstellung regelmäßig überfluteter Flächen als Auwald oder Grünland kommt besondere Bedeutung zu. Es ist von besonderer Bedeutung, dass landwirtschaftliche Flächen in der Regel nicht hochwassergeschützt werden. LEP B I 3.3.1.2 Z Gebiete außerhalb wasserrechtlich festgesetzter Überschwemmungsgebiete sowie geeignete (re)aktivierbare Flächen, die für den vorbeugenden Hochwasserschutz benötigt werden, sollen als Vorranggebiete für den Hochwasserabfluss und -rückhalt (Vorranggebiete für Hochwasserschutz) in den Regionalplänen gesichert werden. LEP B I 3.3.1.3 G Es ist anzustreben, dass trotz aller Maßnahmen zur Sicherstellung des Hochwasserschutzes auch das vorhandene Schadenspotenzial reduziert wird. LEP B I 3.3.2 G Es ist anzustreben, dass alpinen Naturgefahren durch eine geeignete Bodennutzung sowie durch den Erhalt und die Wiederbegründung von standortgerechtem Bergwald vorgebeugt wird. Dass gefährdete Bereiche von Bebauung freigehalten werden, ist von besonderer Bedeutung. RP 17 B I 2.2.2 Z Zur Sicherung eines intakten Wasserhaushalts *…+, insbesondere auch im Hinblick auf die Wasserrückhalte- und Speicherfunktion der Landschaft *…+ sollen Moore, naturnahe Auwälder und andere Feuchtflächen in ihrer bedeutenden Funktion für Naturschutz und Wasserhaushalt erhalten, optimiert und ggf. in ihrer Funktion wieder hergestellt werden. Hochwassergefährdete Tallagen als Abfluss- und Rückhalteflächen von damit unvereinbaren Nutzungen freigehalten werden. RP 17 B II 1.7 Z *…+ überschwemmungs- *…+ gefährdete Bereiche *…+ sollen von einer Bebauung freigehalten werden. RP 17 B III 2.1 Z In Überschwemmungsgebieten *…+ soll überwiegend Grünlandwirtschaft betrieben werden. RP 17 B XI 6.1 G Der Schutz vor den Gefahren des Wassers soll sich auf natürlichen Rückhalt in der Fläche, auf technische Schutzmaßnahmen und eine weitergehende Vorsorge stützen. Auf die Erhaltung und Verbesserung der Rückhalte- und Speicherfunktion der Landschaft soll hingewirkt werden. RP 17 B XI 6.2 Z Der vorbeugende Hochwasserschutz wird durch Rückhalt des Wassers in der Fläche gewährleistet. Rückhalteflächen sollen hierfür so weit wie möglich reaktiviert oder neu geschaffen oder vergrößert werden.
www.clisp.eu | [email protected] 2 1
WP 5, Action 5.3: in‐depth evaluation
Instr. Nr. Z / G Inhalt (Überschwemmungen) RP 17 B XI 6.3 Z Zur Sicherung des Hochwasserabflusses und der Retention werden folgende Vorranggebiete Hochwasser ausgewiesen: *…+ Landkreis Miesbach: Leitzach oberhalb der Mündung in die Mangfall (Weyarn, Irschenberg) Leitzach bei Wörnsmühl (Fischbachau) Leitzach unterhalb Bayrischzell (Bayrischzell, Fischbachau) Buchergraben (Fischbachau) Rottach (Rottach-Egern) Dürnbach (Gmund a.Tegernsee) Festenbach-Moosbach (Gmund a.Tegernsee, Waakirchen) (Abgrenzung Vorranggebiete Hochwasser nach Tekturkarte "Wasserwirtschaft" zur Regionalplan-Karte 2 "Siedlung und Versorgung") Die Vorranggebiete Hochwasser sollen in ihrer Funktion als Rückhalteflächen erhalten werden. Soweit aus überwiegenden Gründen zum Wohl der Allgemeinheit eine entgegenstehende Nutzung erforderlich wird, sollen auf gleicher Planungsebene die notwendigen Ersatz- und Ausgleichsmaßnahmen geschaffen werden. RP 17 B XI 6.4 G In den landwirtschaftlich genutzten Vorranggebieten Hochwasser soll Grünlandnutzung angestrebt werden. Abflussmindernde kleinteilige Strukturen sollen erhalten bleiben. RP 17 B XI 6.5 Z Zur Wasserrückhaltung und aus ökologischen Gründen sollen insbesondere naturnahe Auwälder wiederhergestellt werden. RP 17 B XI 6.6 G Gefährdete Siedlungen sollen vor Hochwasser geschützt werden. Verbesserungen sind vordringlich erforderlich in: Landkreis Miesbach: Fischbachau, OT Stauden: Leitzach Rottach-Egern: Rottach Kreuth: Felserbach Bad Wiessee: Söllbach Gmund a.Tegernsee: Festenbach-Moosbach Weyarn: Narringer Bäche Durch eine vorsorgende Bauweise soll das Schadenspotential vor allem in hochwassergefährdeten und auch in durch Deiche geschützten potentiellen Überflutungsbereichen möglichst klein gehalten werden. RP 17 B XI 6.8 G Der Eintiefung der *…+ der Mangfall und der Leitzach soll unter Berücksichtigung der natürlichen Gewässerdynamik mit möglichst naturnahen Maßnahmen entgegengewirkt werden. RP 17 B XI 6.9 Z An allen Gewässern sollen die Stabilität der Flusssohlen, der Hochwasserschutz und die ökologisch bedeutsame Auefunktion gewährleistet werden. RP 17 B XI 6.12 Z Die Bewirtschaftung des Tegernsees soll zur Abflussminderung im Mangfalltal beitragen. RP 17 B XI 7.1 G Zum Schutz vor *…+ Hochwasser *…+ soll in den Alpen vordringlich ein naturnaher, standort- und funktionsgerechter Bergmischwald erhalten oder neu entwickelt werden. www.clisp.eu | [email protected] 2 2
WP 5, Action 5.3: in‐depth evaluation
Instr. Nr. Z / G Inhalt (Überschwemmungen) RP 18 B I 2.2 Z Auf Grünlandstandorten wie z.B. Überschwemmungsgebieten und erosionsgefährdeten Lagen soll auf Grünlandumbruch verzichtet werden. RP 18 B I 2.4 Z Überschwemmungsgebiete und Hochwasserrückhalteräume sollen vor weiterer Bebauung und Besiedelung oder sonstiger intensiver Nutzung freigehalten oder den wasserwirtschaftlichen Bedürfnissen entsprechend wieder freigemacht und erweitert werden. Nutzungsänderungen von Überschwemmungsgebieten und Hochwasserrückhalteräumen bedürfen wirkungsgleicher Ausgleichsmaßnahmen, soweit dem nicht überwiegende Gründe des öffentlichen Wohls entgegenstehen. RP 18 B II 8 Z *…+ hochwasser- *…+ gefährdete Bereiche sollen von einer Bebauung freigehalten werden. RP 18 B IV 5.2 Z Die Versiegelung des Bodens soll auf ein Mindestmaß beschränkt werden. Nicht mehr genutzte Flächen sollen entsiegelt werden. Rückhalteflächen sollen so weit wie möglich reaktiviert werden. RP 18 B IV 5.3 Z Die natürlichen Überschwemmungsgebiete sollen erhalten werden. In dem Maße wie solche Gebiete in Anspruch genommen werden, ist auf gleicher Planungsebene bei entsprechendem Hochwasserschutz für Ersatz zu sorgen. Das Überschwemmungsgebiet der unteren Mangfall soll unter weitgehendem Erhalt des Retentionsraumes beschleunigt hochwasserfrei gelegt werden. (Abgrenzung Überschwemmungsgebiete nach Karte "Wasserwirtschaftliche Vorranggebiete und Überschwemmungsgebiete" zu Regionalplan-Karte 2 "Siedlung und Versorgung") RP 18 B IV 5.4 G In landwirtschaftlich genutzten Überschwemmungsgebieten ist Grünlandnutzung vorzusehen. *…+ Abflussmindernde kleinteilige Strukturen sollen erhalten bleiben. RP 18 B IV 5.5 Z Natürliche Rückhalteräume sollen insbesondere in Auwäldern erhalten, in ihren natürlichen Funktionen optimiert und so weit wie möglich wiederhergestellt werden. RP 18 B IV 5.6 G Der Hochwasserschutz im Bereich der Siedlungen an der Salzach in Fridolfing Laufen (Triebendorf) und Tittmoning, an der unteren Mangfall in Feldkirchen- Westerham, Bruckmühl, Bad Aibling, Kolbermoor und Rosenheim an Inn/Mangfall sowie in den Siedlungenan der Rohrdorfer und Tiroler Achen soll verbessert werden. RP 18 B IV 5.8 G Der Eintiefung *…+ von Saalach, Salzach *…+ soll unter Berücksichtigung der natürlichen Gewässerdynamik entgegengewirkt werden. RP 18 B IV 5.9 Z An Saalach und Salzach soll die Stabilität der Flusssohlen, der Hochwasserschutz und die ökologisch bedeutsame Auefunktion gewährleistet werden. RP 18 B IV 6.1 G Zum Schutz vor *…+ Hochwasser *…+ ist in den Alpen vordringlich ein naturnaher, standort- und funktionsgerechter Bergmischwald zu erhalten oder neu zu entwickeln. RP 18 B IV 6.2 Z Nutzungen, die Veränderungen des von Natur aus labilen Gleichgewichtes alpiner Ökosysteme zur Folge haben und Schäden im Gewässerhaushalt verursachen können, sollen unterbleiben.
www.clisp.eu | [email protected] 2 3
WP 5, Action 5.3: in‐depth evaluation
Muren Instr. Nr. Z / G Inhalt (Muren) RP 17 B II 1.7 Z *…+ murengefährdete Bereiche *…+ sollen von einer Bebauung freigehalten werden. RP 17 B III 2.1 Z In *…+ erosionsgefährdeten Hanglagen *…+ soll überwiegend Grünlandwirtschaft betrieben werden. RP 17 B XI 7.1 G Zum Schutz vor Bodenabtrag *…+, Muren *…+ soll in den Alpen vordringlich ein naturnaher, standort- und funktionsgerechter Bergmischwald erhalten oder neu entwickelt werden. RP 18 B II 8 Z *…+ murengefährdete Bereiche sollen von einer Bebauung freigehalten werden. RP 18 B IV 6.1 G Zum Schutz vor Bodenabtrag, *…+ Muren *…+ ist in den Alpen vordringlich ein naturnaher, standort- und funktionsgerechter Bergmischwald zu erhalten oder neu zu entwickeln.
Lawinen Instr. Nr. Z / G Inhalt (Lawinen) RP 17 B II 1.7 Z Lawinen- *…+ gefährdete Bereiche *…+ sollen von einer Bebauung freigehalten werden. RP 17 B XI 7.1 G Zum Schutz vor *…+ Lawinen *…+ soll in den Alpen vordringlich ein naturnaher, standort- und funktionsgerechter Bergmischwald erhalten oder neu entwickelt werden. RP 17 B XI 7.3 G Durch Lawinenverbauung insbesondere am Fahrenberg oberhalb des Walchensees (Gem. Kochel am See), am Grüneck (Schutz der B 305) und am Hagenberg (Zufahrt zum Spitzingsee) soll das Entstehen von Lawinen verhindert und die Wiederaufforstung gefährdeter Hanglagen ermöglicht werden. RP 18 B II 8 Z Lawinen- *…+ gefährdete Bereiche sollen von einer Bebauung freigehalten werden. RP 18 B IV 6.1 G Zum Schutz vor *…+ Lawinen *…+ ist in den Alpen vordringlich ein naturnaher, standort- und funktionsgerechter Bergmischwald zu erhalten oder neu zu entwickeln. RP 18 B IV 6.3 G Durch Lawinenverbauung soll das Entstehen von Lawinen verhindert und die Wiederaufforstung gefährdeter Hanglagen ermöglicht werden.
Steinschlag, Felssturz
Instr. Nr. Z / G Inhalt (Steinschlag, Felssturz) RP 17 B XI 7.1 G Zum Schutz vor *…+ Steinschlag soll in den Alpen vordringlich ein naturnaher, standort- und funktionsgerechter Bergmischwald erhalten oder neu entwickelt werden. RP 18 B IV 6.1 G Zum Schutz vor *…+ Steinschlag ist in den Alpen vordringlich ein naturnaher, standort- und funktionsgerechter Bergmischwald zu erhalten oder neu zu entwickeln. www.clisp.eu | [email protected] 2 4
WP 5, Action 5.3: in‐depth evaluation
Schutzwald und Schutzfunktionen des Waldes
Instr. Nr. Z / G Inhalt (Schutzwald) LEP B IV 4.3 Z Die Funktionsfähigkeit der Schutzwälder im Alpenraum soll erhalten und ggf. verbessert werden. In ihrer Funktion gestörte oder gefährdete Schutzwälder sollen vorrangig saniert werden. Zur Sicherung der Waldfunktionen sollen die Schalenwildbestände auf ein für die natürliche Verjüngung gemischter Bestände verträgliches Maß angepasst, die Waldweide im Hochgebirge und im Bayerischen Wald bereinigt sowie Forstrechtsbelastungen und ähnliche Nutzungsrechte abgelöst werden. LEP B IV 4.4 Z Durch eine standortgemäße, naturnahe Bewirtschaftung sowie natürliche Weiterentwicklung sollen im Staats- und Körperschaftswald • Zustand und Stabilität der Wälder erhalten oder verbessert sowie die Anpassungsfähigkeit an veränderte Umweltbedingungen und gesellschaftliche Anforderungen gewährleistet, • Auwälder, Bergwälder, Schutzwälder sowie Wälder auf Sonderstandorten in einem naturnahen Zustand erhalten oder dahin zurückgeführt *…+ werden. RP 17 B I 2.6.1 Z *…+ Zur Verbesserung der Schutzfunktion überalterter Bergwälder sollen frühzeitig durch geeignete Verjüngungsmaßnahmen naturnahe und standortgerechte Wälder angestrebt werden. *…+ Bislang unbestockte potentielle Waldstandorte, die in besonderem Maße erosionsgefährdet sind oder nur in bestocktem Zustand einen optimalen Objektschutz bieten, sollen mit standortheimischem (autochthonem) Pflanzgut aufgeforstet oder durch natürliche Verjüngungsmaßnahmen wiederbewaldet werden. Hierbei sind bei der Artenwahl das natürliche Artenspektrum und auch die sich abzeichnende Klimaänderung zu berücksichtigen. RP 17 B II 1.7 Z *…+ Wälder mit einer besonderen Funktion gemäß Waldfunktionsplan sollen von einer Bebauung freigehalten werden. RP 17 B III 3.1.1 Z Die Wälder im Alpenraum und im Alpenvorland sollen in ihrem Flächenbestand erhalten und so bewirtschaftet werden, dass sie ihre Funktionen langfristig erfüllen können. RP 17 B III 3.2 Z Im Alpenvorland, vornehmlich auf labilen Standorten, soll auf die Erhaltung bzw. Wiederbegründung stabiler naturnaher Waldbestände hingewirkt werden. RP 17 B III 3.3.1 Z Die Schutzwirksamkeit von Waldbeständen im alpinen, subalpinen und montanen Bereich soll in Bezug auf Waldschäden durch geeignete forstliche Pflege erhalten, verbessert und in Teilräumen wiederhergestellt werden. Durch Verjüngungsverfahren, die den Besonderheiten des Gebirges angepasst sind, durch gezielte Bestandspflege und durch Absenkung der Schalenwilddichte auf ein waldverträgliches Maß, soll eine naturnahe Baumartenzusammensetzung gewährleistet werden, um dadurch stabile Waldbestände aufzubauen und zu sichern. RP 17 B III 3.3.2 Z Die Belastung durch Beweidung im gefährdeten Hochlagenwald soll durch Trennung von Wald und Weide verringert werden. Vordringlich ist die Bereinigung der Waldweide auf labilen Standorten durchzuführen. Der Ausübung der unbehirteten und ungekoppelten Schafweide im Wald soll hier entgegengewirkt werden. www.clisp.eu | [email protected] 2 5
WP 5, Action 5.3: in‐depth evaluation
Instr. Nr. Z / G Inhalt (Schutzwald) RP 17 B III 3.6 Z Die Jagd soll zum Gleichgewicht zwischen Vegetation und Wildbestand im Alpenraum und im Alpenvorland beitragen. Dabei soll der Grundsatz "Wald geht vor Wild" beachtet werden. Der Schalenwildbestand soll durch die Jagd so reguliert werden, dass die standortgerechte, natürliche Verjüngung des Bergwaldes grundsätzlich ohne Schutzvorrichtungen möglich ist. RP 18 B I 2.3 Z Bei Erstaufforstungen und der Bewirtschaftung der Wälder sollen standortgerechte, artenreiche und stabile Mischbestände aufgebaut werden, die die vielfältigen Funktionen des Waldes ausreichend ausfüllen können. Insbesondere im Gebirge ist der Sicherung der Schutzwälder höchste Priorität einzuräumen. RP 18 B I 2.6 Z Auf eine dauerhafte Sicherung von funktionsfähigen Schutzwäldern in den Berggebieten soll mit größtem Nachdruck hingewirkt werden. Bestehende Schäden sollen schnellstmöglich ausgeglichen werden. Die Schalenwildbestände sollen in einem waldverträglichen Maß gehalten werden. RP 18 B III 3.1 Z Der Wald in der Region soll in seinem Bestand erhalten und so bewirtschaftet werden, dass er seine Funktionen bestmöglich erfüllen kann. *…+ Bei Inanspruchnahme von Waldflächen soll zur nachhaltigen Sicherung ihrer Funktionen und zur Verbesserung des ökologischen Gesamthaushalts gleichwertiger Ersatz geschaffen werden. RP 18 B III 3.3 Z Auf die größtmögliche Stabilität der Wälder, insbesondere im Alpenraum und Alpenvorland, soll hingewirkt werden. RP 18 B III 3.4 Z In den Wäldern der Region sollen Wald und Weide getrennt und Waldweiderechte vordringlich auf den labilen Standorten in der Bergwaldzone abgelöst werden. *…+ Der Ausübung der nichtbehüteten und ungekoppelten Schafweide im Bergwald soll entgegengewirkt werden. RP 18 B III 3.5 Z Auwälder und sonstige flussbegleitende Wälder sollen in einem naturnahen Zustand erhalten oder dahin zurückgeführt werden. RP 18 B III 3.6 Z Aufforstungen sollen außer in extremen Hochlagen standortgemäß als Mischwald angestrebt werden. RP 18 B III 4.1 Z Die Jagd soll auf die Belange der Landeskultur abgestellt werden. Dabei soll die Wilddichte einem waldverträglichen Maß angepasst werden, so dass eine standortgerechte, natürliche Verjüngung des Waldes grundsätzlich ohne die üblichen Schutzvorrichtungen möglich ist. Im Alpenraum sollen insbesondere die Schalenwildbestände entsprechend angepasst werden.
Erholung und Tourismus
Instr. Nr. Z / G Inhalt (Erholung, Tourismus) LEP B III 1.2.2 Z Mechanische Aufstiegshilfen, Skiabfahrten und Beschneiungsanlagen sollen nur noch dort errichtet werden, wo sie eine sinnvolle Ergänzung vorhandener Erholungseinrichtungen darstellen, und keine Erhöhung der Erosionsgefahr erwarten lassen.
www.clisp.eu | [email protected] 2 6
WP 5, Action 5.3: in‐depth evaluation
Instr. Nr. Z / G Inhalt (Erholung, Tourismus) LEP B V 1.8.2.1 Z Zur Ordnung der Verkehrserschließung in der Erholungslandschaft Alpen B V 1.8.2.2 werden Zonen bestimmt, die sich aus der *…+ Karte Erholungslandschaft Alpen ergeben. B V 1.8.2.3 In der Zone A sind Verkehrsvorhaben im Sinn von 1.8.2 mit Ausnahme von B V 1.8.2.4 Flugplätzen landesplanerisch grundsätzlich unbedenklich, soweit sie nicht durch Eingriffe in den Wasserhaushalt zu Bodenerosionen führen können oder die weitere land- und forstwirtschaftliche Bewirtschaftung gefährden. *…+ In der Zone B sind Verkehrsvorhaben im Sinn von 1.8.2 landesplanerisch nur zulässig, wenn eine Überprüfung im Einzelfall ergibt, dass sie den Erfordernissen der Raumordnung und Landesplanung nicht widersprechen. In der Zone C sind Verkehrsvorhaben im Sinn von 1.8.2 landesplanerisch unzulässig. Dies gilt nicht für notwendige landeskulturelle Maßnahmen. RP 17 B VII 1.3 Z In den südlichen Teilräumen der Region, im Alpenraum, sollen Erschließungsmaßnahmen nur noch zur Ergänzung bestehender Einrichtungen und in Abstimmung mit der ökologischen Belastbarkeit und der Belastbarkeit des Landschaftsbildes durchgeführt werden. RP 17 B VII 2.1.1 Z Zusätzliche Erschließungsmaßnahmen sollen in bestehenden Skigebieten nur zur Ergänzung vorhandener Einrichtungen vorgenommen werden. RP 17 B IX 4 Z In bestehenden Skigebieten sollen neue Aufstiegshilfen nur zur Ergänzung vorhandener Einrichtungen errichtet werden. RP 18 B VI 2.6 Z Zusätzliche Bergbahnen, Skilifte und Skiabfahrten sollen nur zur Abrundung bestehender Anlagen zugelassen werden. Die erforderliche Verkehrserschließung soll in den Zonen A und B der Erholungslandschaft Alpen nur behutsam gestaltet werden.
www.clisp.eu | [email protected] 2 7
WP 5, Action 5.3: in‐depth evaluation
6 Annex 2 - Übersicht Interviewpartner und Zeitplan
Interview-Runde 1, Teil a: Raumplanungsexperten (Landes-/ Regionsebene) Nr. Institution / Funktion Fokus Instrumente Interviewtermin Interviewer 1+2 Regierung von Oberbayern, LEP, RP Südostoberbayern 20.4. Thomas Sachgebiet Raumordnung, Landes- Probst (TP) u. Regionalplanung + Felix Sachgebietsleiter, Hörmann Regionsbeauftragte (FH) 3 Regierung von Oberbayern, LEP, RP Oberland 20.4. TP + FH Sachgebiet Raumordnung, Landes- u. Regionalplanung Regionsbeauftragte 4 Regierung von Oberbayern, Regionalmanagement 10.5. TP Sachgebiet Raumordnung, Landes- u. Regionalplanung Beauftragte für Regionalmanagement und regionale Initiativen 5 Universität der Bundeswehr LEP, Regionalpläne, 7.5. TP + FH München, Institut für Bauleitplanung Verkehrswesen und Raumplanung Professur Raumplanung und Mobilität 6 Regionaler Planungsverband LEP, RP Südostoberbayern 20.5. FH Südostoberbayern Geschäftsführer 7 Bayerisches Staatsministerium des LEP, Regionalpläne, 7.5. TP + FH Inneren, Oberste Baubehörde Bauleitplanung Sachgebiet IIB6 Städtebau, stv. Referatsleiter 8 Ehem. Sachgebietsleiter LEP, Regionalpläne, 25.5. TP Raumordnung, Landes- u. Bauleitplanung Regionalplanung (Regierung von Oberbayern)
Interview-Runde 1, Teil b: Vertreter der Fachplanungen (Landes-/ Regionsebene) Nr. Institution / Funktion Fokus Instrumente Interviewtermin Interviewer 9 + Bayerisches Staatsministerium für LEP, Regionalpläne, 10.5. TP 10 Umwelt und Gesundheit Bauleitplanung / Referat 56: Wasserwirtschaft im Wasserwirtschaft ländlichen Raum, Wildbäche 11 Bayerisches Landesamt für Umwelt LEP, Regionalpläne, 3.5. FH Referat 61: Hochwasserschutz und Bauleitplanung / Wasserwirtschaft www.clisp.eu | [email protected] 2 8
WP 5, Action 5.3: in‐depth evaluation
alpine Naturgefahren 12 Wasserwirtschaftswirtschaft LEP, RP 18, Bauleitplanung / 9.6. FH Traunstein Wasserwirtschaft Amtsleiter 13 Wasserwirtschaftswirtschaft LEP, RP 17, Bauleitplanung / 23.4. TP + FH Rosenheim Wasserwirtschaft Abteilungsleiter Miesbach/Rosenheim West 14 Referat 106: Ingenieurgeologie, LEP, Regionalpläne, 3.5. FH Georisiken Bauleitplanung / Geologie 15 Bayerisches Staatsministerium für LEP / Schutzwald 25.5. TP Ernährung, Landwirtschaft und Forsten
16 Amt für Ernährung, Landwirtschaft LEP, RP 18, Bauleitplanung / 12.5. FH und Forsten Traunstein, Bereich Schutzwald Forsten Bereichsleiter Forsten 17 Amt für Ernährung, Landwirtschaft LEP, RP 17, Bauleitplanung / 11.5. FH und Forsten Miesbach, Bereich Schutzwald Forsten Abteilungsleiter Forsten
www.clisp.eu | [email protected] 2 9
Executive Summary
In‐depth evaluation of the Hazard Zone Plan (HZP) in South Tyrol
European Territorial Cooperation Alpine Space Programme
Institut für Regionalentwicklung und Standortmanagement C. Hoffmann und T. Streifeneder Europäische Akademie Bozen Drususallee, 1 39100 Bozen Tel. 0471‐055328 [email protected]
Bozen, im November 2010
www.clisp.eu | [email protected] 1 In‐depth Evaluation: Hazard Zone Plan ‐ South Tyrol
1 Introduction
The legal basis for spatial planning in South Tyrol is the Provincial Act (PA) no. 13, 1997, whose core element is the spatial development and land use plan (LEROP). It is a strategic planning tool that was first approved in the policy guidelines Südtirol‐Leitbild 2000. When the initial plan expired, the Provincial Government called for a new LEROP. Up to now LEROP 1995 is still applied as no decision has been made to put LEROP 2007 into force.
1.1 Description of Model Regions South Tyrol’s settled areas are suffering temporarily from natural hazards. Floods, avalanches, rock‐falls endanger urban zones. Areas appropriate for being settled are rare. Pressure on the 6,6% settled zones is high. Hence particular municipalities and districts were chosen to analyse the potential of hazard zone plans (HZP). Natural hazards in Wipptal (Alta Valle d’Isarco) The Southern Wipptal is the northernmost district and borders on North Tyrol in Austria. It is a narrow transit valley, characterised by the A22 Brenner‐Modena motorway and the Bolzano‐Verona railway line. There are five valleys branching out of the Wipptal: Ridnauntal, Ratschingstal, Jaufental, Pflereschertal and Pfitscher Tal. The natural conditions of this narrow valley are characterised by mountains stretching to the west and east of the river Eisack. Thereof emerges potential endangerment from landslides, flooding, structural collapses concerning the whole area and lateral slipping movements, as well as occasional complex avalanches. Natural hazards in Unterland (Bassa Atesina) The Unterland (Bassa Atesina) district community borders the Autonomous Province of Trento. It is also cut into an Eastern and a Western half by the A22 Brenner‐Modena motorway and the Bolzano‐Verona railway line running parallel to the river Etsch. Its riverbed is widely U‐shaped and glacially formed. The final geomorphologic shape results from the erosive activity of the Etsch river which is bordered on both sides by valley walls. The potential for natural hazards includes landslides, rock falls and structural collapses.
1.2 Methods and evaluation criteria 1.2.1 Methods To demonstrate the potential of the HZP and to document its current implementation status, experts from different departments, technical bureaus and authorities from municipalities and districts were interviewed. Therefore, two basic methods have been applied: 1) Structured qualitative interviews and 2) Analysis of literature. The questionnaire for the interviews combined two approaches. First, it served as a qualitative assessment of expert views. Second, the issues of some questions were evaluated quantitatively on a five step ordinal scale. The review of the relevant literature was focused on the: . Guidelines for elaborating the HZP and for classifying the specific risks, . Art. 22bis, PA no. 13, 1997 and the Provincial governor’s decree (PGD no. 42, 2008) concerning HZP. . Activity report of the Department 30 – “waterproofing” buildings, and . Information system of the hydro‐geological risks, methodological report. 1.2.2 Evaluation Criteria In order to get a clear picture of the framework conditions for the priorities of climate change (CC), the problem of awareness and political willingness in South Tyrol, experts’ opinions were collected regarding: . CC awareness in society, . Affected sectors from CC, . Relevant hydro‐geological threats/hazards, and . Synergies of HZP with other spatial planning instruments. Regarding the instrument – hazard zone plan (HZP) – experts should evaluate various aspects: www.clisp.eu | [email protected] 2 In‐depth Evaluation: Hazard Zone Plan ‐ South Tyrol
. Its flexibility regarding realization, implementation, and application: How precise are regulations and which interpretation options are acceptable for elaborating HZP? Are there possibilities applicable for modifying HZP after its approval? To what extent can alternative utilisation‐measures be applied in the endangered hazard zones? . The binding character for the entities responsible for its application: Is the legal character clearly defined and accepted by the planning offices and stakeholders? Is the implementation process reasonable and are all relevant stakeholders involved? . The coherence/synergies and conflicts of the HZP with other spatial planning instruments: Do best practice examples exist elsewhere in the Alps to improve the HZP adaptation strategies? How good is the HZP in line with other spatial planning tools? Are there difficulties in developing and coordinating HZP with the urban land use plan (ULP)? Which obstacles for CC adaptation measures can be determined? Is there concordance about restrictions in HZP and constructions build for protecting urban zones. Finally the experts evaluated efficiency and effectiveness. The key points to be judged were the adequateness of HZP in terms of CC adaptation and the impact of historical events for deriving future CC hazards. Concerning possible enhancement options the experts were confronted with the introduction of a monitoring system, the collaboration with other spatial planning instruments and the integration of CC adaptation measures in HZP.
2 Evaluation of the HZP
HZP as a sectoral spatial planning instrument is anchored in Article 22bis (PA no. 13, 1997). Its implementation is adopted by the Provincial Governor’s Decree (PGD) no. 42, 2008 and the guideline for drawing up HZP contains provisions to prevent or reduce natural hazards. Until 2011 it should be installed in all South Tyrolean municipalities. Currently, this does not seem possible, although there is great effort in implementing HZP.
2.1 Description of HZP To elaborate the HZP and the map of the specific risks, all hydro‐geological hazards in South Tyrol need to be analysed. Mass‐movements (landslides, rock falls), water‐hazards (floods, mudflows, erosion) or avalanches are considered. Their particular risk level has to be documented particularly for urban areas. 2.1.1 Objective . The concept puts its focus on the protection of lives, settlements and economic areas. . Each municipality can co‐determine the evaluation of all infrastructure facilities itself. . Implementation of protecting facilities should reduce the intensity and the potential of vulnerability. . The HZP has to be updated periodically on behalf of the municipality but at least every ten years. . The ULP of each municipality has to be coordinated with the HZP. 2.1.2 Spatial priorities for reducing vulnerability For elaborating the HZP for South Tyrol in an adequate time frame and for a justifiable amount of money, techniques, and personal, the planning territory is separated into three categories. Dependent on existing and planned settlements or utilizations, different working‐scales for elaborating the hazard zones are defined. Settled areas (category a): Working-Scale: 1:5000 Urban zones and their existing and potential building areas as well as touristic and public infrastructures are considered. Hereby a 300 m buffer around the settlements defines the extension‐areas and prospected building zones are also integrated. Single houses and small villages have to be analysed in this way as well. Areas with important infrastructure facilities (category b): Working-Scale 1:10000 Areas with scattered buildings or unsettled but hosting infrastructure services relevant for the public; Areas and facilities of low interest regarding HZP: Working-Scale 1:10000 Natural landscapes not populated and with low interest in infrastructure services;
www.clisp.eu | [email protected] 3 In‐depth Evaluation: Hazard Zone Plan ‐ South Tyrol
Relevance for CC adaptation The adaptation of maps and plans depend on the municipality’s foresight on the change of hazard processes and the installed protection facilities. If the protective character is not guaranteed anymore, the HZP has to be updated on behalf of the municipality in order to maintain the HZP’s primary function as planning instrument. The HZP is updated in a two‐step approach: 1. Hazard zones are delineated independent of existing objects. 2. Specific risk and vulnerability is detected and evaluated in a combination matrix of the expected damage (V) dependent on the intensity of the hazard (H). The guideline for establishing the HZP contains a map of phenomena such as permafrost, which is particularly affected by CC. As permafrost unfreezes due to CC, processes in relation to permafrost need to be considered. 2.1.3 Implementation The establishment of the HZP and the specific Risk Zone Plan are following a procedure in four phases: . Phase 1: Detecting, assessing and documenting areas with hydro‐geological risk. . Phase 2: Delineation and evaluation of the different risk levels. . Phase 3: Evaluating the specific risk and the definition of appropriate measures. . Phase 4: Evaluation of HZP by departments; approval by mayors and the provincial government.
2.2 Assessment of the evaluated instrument In general CC adaptation aspects are only considered indirectly in form of incentives, requirements and recommendations in few parts of the sectoral spatial planning legislations. The practical implementation of spatial planning legislation and instruments, though, appears to be inadequate, due to weak institutional strength of the spatial planning service, poor consistency in tackling key planning issues, inadequate knowledge and information, lack of awareness among local political representatives, and poor integration of climate protection (CC adaptation and mitigation) strategies in support schemes. PA no. 13, 1997 and associated implementing regulations specify that the use of resources has to consider CC issues. On that basis, spatial planning authorities prepare standards for reduced traffic, settlement development and a sustainable distribution of land use functions. These standards are now integrated. CC‐ related aspects are not subject of a separate set of rules but are incorporated into the sectoral legislation in force. Thus, issues of CC adaptation are not only a field of environmental protection but become also a task for the whole society. 2.2.1 Current approaches/solutions Before introducing HZP, measures against hydro‐geological hazards were governed by the PA no. 35, 1975 which contained provisions on soil protection, torrent and avalanche control. Regulatory measures applicable to streams and rivers are outlined in Article 1, paragraphs 3 and 4 of the Act no. 35, 1975. Therein, activities of general public interest – particularly along sensitive sites – are prioritised by the Provincial Government. 2.2.2 Contribution to foster CC fitness The timely discrepancy between implementing the HZP and the insecure long term effects of CC is the reason why CC is not directly considered in legally binding instruments. Nevertheless the guidelines of the HZP themselves consider very much approaches to deal with CC adaptation indirectly. The approach for delineating the different types of hazard zones with different degrees of endangerment, considering the specific risk combining the evident hazards with the degree of vulnerability for the next 100 to 300 years, makes the HZP an instrument that includes CC adaptation measures. 2.2.3 Potential of HZP to reduce vulnerability To reduce vulnerability of hydro‐geological hazards related to CC, a legal framework has been set up consisting of HZP, urban land use and torrent control. Specialised agencies are responsible for proper implementation. The variety of disciplines thus requires inter‐agency co‐operation and an interdisciplinary approach.
www.clisp.eu | [email protected] 4 In‐depth Evaluation: Hazard Zone Plan ‐ South Tyrol
Basically HZP is legally anchored in Article 22bis, paragraph 1 of PA no. 13, 1997. Therein permissible projects and measures to avert damage are classified according to the degree and type of risk. Article 22bis regulates the HZP priority over the ULP. Clashes between natural hazards and settled zones can thereby be prevented. Impact on urban land use HZP is limited to settled zones or areas awaiting urbanisation. Delimitation of hazard zones occurs only for urban areas. Hazards outside populated areas, where no infrastructure is at risk, fail to be indicated on HZP. The following aspects should be highlighted in this context: . Theoretically HZP provisions should not affect urban land use, since Article 1 of the Provincial Governor’s Decree (PGD) no. 5, 1988 already required an investigation of the hydro‐geological risk. . Land use conflicts may come up, if article 1 of PGD, no. 5, 1988 was not sufficiently applied or ignored for designating new building zones. Those conflicts can only be solved by the current rules in force. The implementing decree (Provincial Governor’s decree: PGD no. 42, 2008) The implementing decree (Article 1, paragraph 1) contains the provisions for risk avoidance or reduction with respect to natural hazards included in the HZP. Test procedures to estimate the vulnerability of projects/objects Articles 10 and 11 concern the assessment of hydro‐geological risks and compatibility. They specify that in future standard test procedures for planned construction projects shall be allowed only in areas where hydro‐ geological risk has been previously assessed. Article 11 also requires construction projects to be checked for compatibility and sustainability regarding hydro‐geological risks listed in the municipal HZP. Building projects not in compliance with the HZP Article 22bis, paragraph 7 of the PA no. 13, 1997 regulates construction projects which contravene HZP. It specifies that authorities shall suspend any planning applications until the project is amended, protective structures are realized or hazardous situations are otherwise eliminated. Provisions are implemented under the following conditions: . Admissibility of buildings in hazard zones is governed by the implementing decree concerning HZP. . Establishing buildings in a hazard zone requires that its specific risk is medium or low. Adaptation measures to reduce vulnerability require a compatibility test. . Existing buildings can be preserved. Pursuant to Article 107 of PA no. 13, 1997, owners are entitled to relocate only if it is impossible to achieve a medium risk exposure level with reasonable effort. Building regulations / Protective structures Article 11 deals with the assessment of the hydro‐geological compatibility of building plans and protective structures. The “compatibility test“ determines whether the project is compatible with the hydro‐geological hazards listed in the municipal HZP. The test produces binding statements on the following items: a) Assessing the specific risk considering natural hazards, current and planned land uses; b) Presence of vulnerable elements and severity of potential damage; c) Assessment of the necessary protective measures; d) Assurance that third parties will not suffer damage or be exposed to even greater dangers. Guideline: hazard zone plan (HZP) and map of specific risks (MSR) The guidelines for creating HZP and classifying specific risks are used to assess South Tyrol’s hydro‐geological hazards. Associated vulnerability levels are defined for them. Natural hazards as the following are considered: . Mass movement (rock fall, landslide, collapse, debris flow), . Water hazards (flooding, overbank flooding, mud flows, erosion), . Avalanches: flowing avalanche/dense snow, powder snow avalanche, gliding snow. The guidelines focus on the protection of life, settlements and economic facilities. Therefore four different hazard zones are defined (Provincial Governor’s decree: PGD no. 42, 2008): . Red zone (H4): very high danger: supernal and subterranean enlargement of buildings is forbidden (Art. 4).
www.clisp.eu | [email protected] 5 In‐depth Evaluation: Hazard Zone Plan ‐ South Tyrol
. Blue zone (H3): high danger: supernal and subterranean enlargement of buildings is possible as long as they don not influence or increase security requirements (Art. 5). . Yellow zone (H2): medium danger: enlargement of buildings and the allocation of new building zones are allowed as long as it is complied with security standards . Grey zone (H1): low danger: Phenomenon’s of remaining risks occur with a recurrence rate of 300 years. To quantify the specific risk the hazard zones (H2 – H4) are combined with four different levels of vulnerability in the specific risk matrix: . V4: very high risk: loss of human lives, great damages on buildings and infrastructure. . V3: high risk: Persons are injured, functional damages on buildings and infrastructure. . V2: medium risk: damages on buildings and infrastructures have to be considered. . V1: low risk: social and economic damages are low. As HZP classifies the specific risk exposure level (combination matrix of hazard level and vulnerability) of residential areas and the infrastructures, municipalities are "forced" to comply with this spatial planning instrument. However, a HZP can prove beneficial for municipal authorities as it offers them the chance to: . Assess the vulnerability of the municipal territory objectively. . Assess the benefit‐cost ratio for new building projects along the designated hazard zones. . Adjusted the HZP regularly every ten years or if natural conditions have changed. As the HZP is currently in force in only three municipalities, the legal consequences and effects on spatial and land use planning may only be estimated as discussed in the SWOT analysis (Effectiveness). Technical report of the hazard zone plan The HZP must be accompanied by a detailed technical report containing general and specific descriptions. This should include detailed descriptions of individual processes and phenomena as well as the databases of event documentation. Additionally, geomorphologic maps with data gathered through on‐site inspections need to be added. Moreover, data and maps, methods, simulation techniques, computer programmes used for analysing for deriving the reasons to delineate the hazard zones have to be documented. Approval of the hazard zone plan by the local service board HZP requires coordination with the ULP. It is approved by the Provincial Spatial Planning Committee and the Provincial Government. The Committee includes various experts, institutions and authorities who assess risks and hazards. While making sure that innovative solutions are considered and flow into the assessment process, responsibility for any decision is spread among the participating parties. Additional information: Major expert panels The River Basin Forum is a working group consisting of representatives of various administrative departments and organizations in charge of defining overall guidelines for the future development of the river basin along the Etsch and Eisack rivers and their tributaries. Informing the members of the represented organizations and obtaining their opinions and suggestions are tasks of the River Basin Forum. Topics include: . Terrestrial ecology and space, . Aquatic ecology and water management, . River hazards and public relations. The topics addressed by the Forum are intended to provide the necessary information for the development of participative guidelines accepted by stakeholders. Reference has been made to the possible synergies between energy production, agriculture and ecology that may become current when HZP is applied. 2.2.4 SWOT Analysis In 2008 the Provincial Government mandated the implementation of HZP in municipal territories: within a period of three years, the municipalities had to devise their own HZP. By means of standard questionnaires the views of experts and authorities from municipalities and district communities were surveyed. These reflect the current state of implementation of the HZP and the consequences of CC to be expected in the future. Participation of experts from technical departments
www.clisp.eu | [email protected] 6 In‐depth Evaluation: Hazard Zone Plan ‐ South Tyrol
The drafting and implementation of the plan is entrusted to experts in several disciplines. This shall enable them to make a comprehensive assessment to designate hazard zones appropriately. All pertinent natural hazards shall be considered so as to clearly define responsibilities and competences of individual authorities. Administration As many authorities are involved, bureaucratic procedures and decision making processes may become more complicated. There is currently no central administrative department at the province responsible for the HZP implementation. The efficiency of implementing HZP suffers from that and from having to handle the associated documentation. That has to be considered as every HZP has to be updated every ten years. The responsibility of the Municipalities Participation Municipalities play an active role in introducing HZP. They are responsible for financing a majority share of implementation costs. Thus they can state their own decisions. Hence HZP is accepted among a wider base. However municipalities have up to now capacity deficits to benefit from steering decisions. For technical and organisational reason it is difficult to influence HZP creation, maintenance and review processes or to cope with damaging events. Municipalities thus have to become more aware on their responsibility concerning HZP. Challenge The efforts of the Provincial Government to promote a strong municipal participation in the HZP process might conceal an attempt to transfer a great share of the HZP implementation costs to the municipalities. This leads to the creation of a heavy financial burden for municipalities. Therefore, it is easy to predict that there will be appeals against the designated hazard zones. The number of such appeals shall determine the length of time required for completing the implementation process. Given this uncertainty, it must be assumed that it will not be possible to attain the ambitious goal of introducing the HZP in all of the 116 municipalities by the end of 2011. Currently, only the municipalities of Neumarkt, St. Christina and Plaus have applied HZP. Flexibility The guidelines and executive orders concerning hazard zone planning allow flexible of interpretation. In this way, the conditions of each individual municipality can be taken into account. Review of the plan The HZP shall be reviewed every ten years, as foreseen in the land‐use plan. Should the natural framework conditions of a specific urban settlement change as a consequence of extraordinary events – laminar windblasts, flooding or debris flow – the associated HZP has to be immediately adapted to the new conditions. Event simulation Simulations shall be carried out for natural disasters expected to occur every 30, 100, 200 and 300 years. This is important for estimating vulnerability trends. Chains of events and effects, such as the failing of protection structures, which could make the consequences of an event much worse, are not considered yet. Based on the simulation results designated hazard zones shall be categorised anew. Anyway it has to be noticed that simulations are not appropriate to replace field surveys or detailed analyses of the catchment area. Specific Risk The outcomes of the various scenarios should be the starting point for elaborating the map for assessing the specific risks. Such a map combines hazard stages and vulnerabilities. It allows taking into account changes in framework conditions and thus indirectly the consequences of CC. According to the derived specific risk the designation of zones and the dimensioning of protective structures are hence adjusted. So far the only issue in terms of CC explicitly considered in the guidelines of the HZP is the thawing phenomenon of permafrost. Relocation of cubage Part of the guidelines can be used in a flexible manner. With regard to settled or built‐up areas (red hazard zones) specific risk ‐ thanks to the adoption of appropriate protection structures ‐ can be reduced to a small or residual level. Hence it becomes evident that the limitations of utilisation in any settled zone are removable. In case technical protection measures are not worth to be taken for some buildings in endangered zones, agricultural grassland to relocate the cubage is a solution. Before it is also feasible for settled area to relocate cubage, the only option is to first convert the land into agricultural grassland. www.clisp.eu | [email protected] 7 In‐depth Evaluation: Hazard Zone Plan ‐ South Tyrol
Effectiveness Co-ordination of spatial planning tools The ULP of the municipalities has to be adapted to the HZP and is thus dependent on the restrictions specified by the HZP of each municipality. The HZP shall be authorised by the local service board, as laid down by law.
Thematic maps and event documentation sheets Numerous thematic maps and data sets are available for the Province of South Tyrol. They offer a solid base to recognize, determine and assess hydro‐geological processes in HZP. Urban sprawl – loss of building land The introduction of HZP requires municipalities to draft long‐term plans. For new building projects in settled areas, replenishment areas have to be taken into account first and foremost. This allows to easier prevent urban sprawl. Most municipalities usually have sufficient replenishment areas ‐ therefore arguing that the designating red areas will cause remarkable decrease in the available building land of municipalities in the future is not appropriate. Rights of ownership Land speculators fear that they will be obliged to book higher value losses for their developed or developable land. They argue not to be able to sell those plots of land anymore not even for their initial purchase price as no new building or extension projects could be initiated there anymore, if such areas end up in a red zone of HZP. If, on the contrary, red zones were to be designated within the settlement areas, the guidelines foresee that the specific risk should be brought down to a medium or low level by an appropriate protection structure. Anyway, conflicts may arise if scattered buildings are located in red zones. This does not require abandonment by itself. If owners themselves take responsibility and install protection structures, nothing changes. The consequence is that it might not be possible anymore to enlarge or to add new building structures on the premises. Industrial location Business representatives are uncertain whether the consequences of CC will occur in the expected form within the assumed observation periods of 30, 100, 200 or 300 years. Accordingly it appears irrational to limit the foundation of business locations for the next 100 to 300 years in expectation of simulated CC consequences. Likelihood of recurrence The likelihood that due to CC high intensity natural events may recur at shorter intervals is rising. This has an impact on the effectiveness of protection structures. Hence dimensioning of these constructions need to be adapted towards CC effects. Authorities have thus to decide carefully between two options: If everything is kept as is, the applied structures might have to protect in future from events, on which they are dimensioned, more frequently. In contrast if the protective structures have to withstand natural events, for which their recurrence period was defined in the past, they need to be re‐dimensioned. Cost transparency The introduction of the HZP influences the planning and decision processes of the municipalities. In terms of super ordinate spatial planning, HZP establishes strategic planning stages and urban planning limitations for each municipality. This allows municipalities to have higher cost transparency in their strategic planning in the long run. Hence it is possible to prevent municipalities from designating favourable building land in unfavourable natural areas. Follow‐up costs for required structures, construction and maintenance of protection installations and possible requests for damages would thus be avoided. Legal basis The HZP is subordinate to the ULP. All requirements of the HZP need to be considered within the ULP. Its implementing decree and the guideline for HZP provide valid arguments for dealing with conflicts of spatial planning respectively economic repercussions. It provides legal protection to the municipalities against possible claims for damages and other financial and juridical consequences. If the question of liability should arise nevertheless, responsibility would be divided among those who cooperated in drafting the plan.
www.clisp.eu | [email protected] 8 In‐depth Evaluation: Hazard Zone Plan ‐ South Tyrol
"Occupational Therapy" and bureaucratic costs Seeing HZP as an instrument resulting in an additional bureaucratic effort, whose purpose it is to create jobs for technicians and young professionals seems pointless. This fear might hail from the municipalities’ opinion that too many instruments (HZP, ULP, etc.) interfere with their own spatial planning strategies. Yet those municipalities have not yet recognised their long term legal and financial benefit from the HZP. Ecological Renaturation Despite the alleged planning limitations, the HZP also offers positive opportunities. Areas designated as hazardous can be used as retention areas along the course of rivers and torrents or be used as ecological renaturalize sites. Walking paths or cycling tracks could be created along river embankments. Good Practice Example Due to its flexibility and effectiveness, the HZP is an appropriate instrument and an appropriate example for CC adaptation. Although its primary interest focuses on vulnerability, indirectly CC adaptation always needs to be considered. As the simulations of the specific risk for delineating hazard zones or re‐dimensioning of protective buildings to decrease a hazard zone level is calculated for periods lasting 100 to 300 years into the future, CC adaptation is thereby crucial. 2.2.5 Enhancement Options Since HZP has just been launched and only few municipalities have implemented it until now, little experience has been gained so far. Both administrative and technical experts agree that the guidelines and the regulation concerning the implementation of HZP are applicable and enforceable. It has great potential as it helps governing vulnerability of urban areas with regard to hydro‐geological hazards and the consequences of CC. Technical enhancement Scale CC will not be taken seriously if it fails to be perceived as a measurable phenomenon. Thus no concrete actions against CC will seem justified. Economically, it is not reasonable to renounce some land‐use options for the sake of preventing negative events that could probably occur in the next 40‐50 years. If HZP enters into force as currently planned, it will cover between 90 and 95 % of all settlements in South Tyrol. For areas of the categories b and c (sale 1:10000) funds are misallocated as damages only occur in rare cases. Thus it is worth considering to omit category b and c areas. A 1:10000 scale seems too small to zone potential hazards. HZP should thus rather focus on settled areas (category a, scale: 1:5000). Land outside settlements should be regarded at a larger scale, in case this allows localising and delimiting the causes of the relevant hazard in a better way. The decision whether the costs for extending the investigation zones are justified shall be made jointly by responsible authorities and technical experts. Implementation Municipalities may decide whether to draw up the HZP on their own or pool resources with neighboured municipalities. This becomes relevant whenever the sphere of influence of any hazard extends municipal boundaries and thus harmonisation and fine tuning of HZP at supra‐ and inter‐municipal level is required. Under these circumstances it is advisable that one technical expert analyses the entire sphere of influence of any supra‐municipal hazard source. To some extent this approach has already been implemented by the River Basin Forum 2010. Along the main rivers (Eisack and Etsch) HZP are elaborated across municipal boundaries in a supra‐municipal dimension. Simulation The Scenarios applied simulate events appearing every 30, 100, 200 and 300 years additionally take into account functional conditions of existing protective structures. Although the failure of a protective structure could amplify the damage effect, this option is not foreseen in the scenario calculations. As an adaptation measure key structures should be identified and registered in a separate inventory. These installations need to be checked for proper operation and maintenance each year, even though this procedure is not stated as a compulsory issue in HZP guidelines. the procedure regarding dikes is complex since they might be damaged by long‐lasting floods. As forecasting such failures is not possible, they are excluded from the scenarios and included in the “Map of phenomena“ as a residual risk. www.clisp.eu | [email protected] 9 In‐depth Evaluation: Hazard Zone Plan ‐ South Tyrol
Monitoring The introduction of a monitoring system should be the task of supra‐local spatial planning. It should provide an overview of the implemented plans, including the special technical sections of the spatial development and land use plan (LEROP). A comparison between plans should help identifying mistakes and undesired effects or cases of inefficient implementation with a view on how to adopt countermeasures. Currently, such measures are integrated provided by the strategic land use plan, which could link all available technical plans in the future. Administrative enhancement Central specialised office The preparation of HZP involves all technical functions and authorities. While this constellation of decision makers and experts is generally positive, problems might arise when the involved institutions are in charge with the HZP implementation besides their regular activities. It would have been more efficient to create a central office in charge with pooling expertise and coordinating capacities for a more efficient implementation of HZP. Since authorities provide support as an additional activity, they end up in a control function instead of offer valuable service. It is worth noting that any HZP must be revised every ten years, like the ULP to which it is linked. The current arrangement raises doubts over the security of data bases, which could get lost or become unavailable or unusable as a result of the multiple changes made in the implemented version of the HZP. A central office could archive data in databases, define standardised data formats for common data exchange and thus ensure data compatibility by suitable software packages. Tendering process – legal and financial issues In addition such a central office could help the municipalities to organise the tendering calls for the technical implementation of HZP. The tendering process and the objective assessment of technical bureaus having the appropriate capabilities, know‐how, and implementation skills, which allows a more efficient implementation. The challenge for municipalities is to reconcile costs with the spatial planning consequences of HZP. Primarily, municipalities need to save money to prepare and implement HZP. The less endangered zones are identified, the better and cheaper it is for municipalities. On the contrary engineers and technical experts who are known for insisting on the safety aspects of hazard zone planning fail to receive assignments. Entrusting municipalities with the preparation of the HZP has various advantages: first, municipalities are actively being involved in the process; second, it secures the favour of the stakeholders by providing funds to cover up to 40 % of the costs associated to the preparation of a HZP; third, it allows saving funds in terms of plan production and central process administration. The municipalities’ policy options are once again challenged with authorities when assessing the compliance of the plans. At this stage, opinions diverge: municipalities do not anticipate that they might have to revise their plans. Besides the legal consequences, these ensuing delays have direct temporal and monetary effects for the municipalities. Hence the money saved in a prior implementation stage needs to be spent for the revision. Training Awareness for the objectives and opportunities of HZP among municipal officers is low. This is due to the fact that they are often overstrained by the requirements of HZP. Insecurities are particularly evident when it comes to legal measures (liability). Decisions are thus made on a high degree of uncertainty. When damages occur this lack might have serious consequences. Although administrative processes and competences are legally defined, some municipalities struggle with their implementation. Partly they have proven to be poorly aware of their responsibilities and legal consequences. Current discussions are hence more likely focused on bureaucratic procedures than on implementation itself. Raising awareness would improve the situation. Mayors and councillors must be made aware of their tasks regarding the implementation of the HZP. HZP enables the application of flexible solutions within the spatial planning competences. These opportunities and responsibilities have to be clarified during training sessions.
www.clisp.eu | [email protected] 10 In‐depth Evaluation: Hazard Zone Plan ‐ South Tyrol
Active risk management The risk definition matrix is an excellent tool to assess hazards. Yet it is not an active risk management strategy until now. Techniques to analyse costs and benefits, to identify and assess what constitutes an acceptable “risk of damage”, or to design protection and coverage measures using “insurance models” are not in use yet. Juridical Enhancement Measures to save natural resources It is crucial that the special plans of LEROP contain measures to save resources. Here, the KlimaHaus initiative and the thrust to increase the use of renewable energy set an example in South Tyrol by helping to gain popularity among society. Using renewable energy sources allows cost reduction: if consumers harness and use renewable energy sources efficiently and phase out fossil fuels, they can contribute to climate protection. Semi-natural protection measures Legally viable, attempts (EU Water Framework and the directive on the assessment and management of flood risks) are being made to enhance biological protection or site‐specific cultivation plans. The Basin Fora are defining measures for flood protection and flood risk reduction. It seeks sustainable solutions for flood protection, water ecology, land use, settlement, industry, agriculture, energy and tourism. This approach has been adopted in numerous projects: River Ahr, Mareiterbach or Talfer. Theoretically land use management might reduce flood risk when applied properly. Practically the numerous interests involved render this impossible. On the one hand, retention areas for flood protection are too expensive. On the other, legal security is a challenge since protected areas have to remain available for a long time. From a legal point of view this cannot yet be guaranteed. Including these areas as “protected urban settlement areas“in the land register would be more legally binding. Conflict management Introducing HZP is likely to generate conflicts in the future. The zoning process has an impact on market values of land, properties, and prospected building zones. As no new buildings or enlargements are allowed in “red zones”, conflicts are likely to arise from the drop in market values of land and restrictions on property rights. It may be sensible to clearly define regulations within the implementation decree in order to offer a general range to solve that individual cases. Hence establishing an independent panel is recommended to make decisions independent from political interference. The guidelines for creating HZP and classifying risks lay down that specific risks should be minimised by taking to suitable measures. This already simplifies the handling of conflicts. What remains though is the knowledge of possible residual risks or of maintenance work to be performed on protective devices already installed. Conversely, when unforeseen events changed conditions, the guidelines contain insufficient rules to adapt the maps. It would be advisable to include instructions to revise HZP whenever crucial conditions change. Indeed, under the current legislation it is unlikely that the plan is going to be revised beyond the required update period. Awareness building Initiatives to raise awareness for HZP are essential to implement the plan and promote its acceptance, while reassuring citizens that the plan is going to come along with new restrictions. The challenge is to encourage citizens to consider a long‐term development horizon. Citizens cannot relate to events that are likely to take place every 30, 100 and even 300 years as mapped in the HZP. The challenge is to sensitize them to understand that an event expected to occur every 300 years could happen even tomorrow, and that it may be directly related to CC.
3 Conclusion and Summary
3.1 Climate change (CC) fitness None of the spatial planning tools currently in use address the issue of CC in a specific and explicit way. Only one provision of the PA no. 13, 1997 makes reference to CC by stating that buildings should be adapted to
www.clisp.eu | [email protected] 11 In‐depth Evaluation: Hazard Zone Plan ‐ South Tyrol
climate conditions. In LEROP 1995, CC is mentioned only in the introduction concerning greenhouse gases. Later in the text, the climate issue appears just one more time in a passage on the importance of forests.
Provincial Spatial Development and Land Use Plan The newly edited version of LEROP 2007 does tackle the issues of CC and its consequences by focusing on the impacts of CC on the environment, climate protection through sustainable building activities and the promotion of renewable energies. However, LEROP 2007 is not yet in force. Excerpts taken from LEROP 2007 not yet in force: CC and associated environmental impacts: . CC and the many potential natural hazards call for preventive measures; attention should be paid to said aspects in spatial planning and economy. . In the medium term, CC is expected to cause more extreme weather events also in South Tyrol. This presents new challenges in terms of flood control and water use. . CC will alter the alpine region in many ways (landscape, vegetation, water resources, permafrost, pre‐ cipitation forms and distribution). This will also change framework conditions for land use in valleys. . CC, new economic trends and life styles increase the pressure on the highlands. For instance, changes in the natural snow cover duration trigger the quest for snow‐safe sites at higher altitude. Economic changes in agriculture lead among other things to manage alpine pastures in different ways. . The CC impact on mountain regions should be investigated accurately. Where interactions with settled areas and land uses are reported, appropriate precautionary scenarios must be developed. . Monitoring climate events shall be enhanced. Especially in high mountain regions more attention shall be paid to the effects of global warming. Constant monitoring of permafrost soils is required. CC and consequences for the construction industry: . Incentives, tax schemes and authorisation procedures (building cubage etc.) are increasingly attentive to land‐saving, energy‐efficient and climate‐neutral building practices.
. South Tyrol assumes a pioneering role in the use of biomass and the field of CO2‐neutral building at national and pan‐alpine level; that will have to be extended to other relevant energy‐related sectors. . In the case of new buildings and renovations, measures to promote climate‐neutral, energy efficient and environmentally friendly building should be further enhanced by providing additional incentives. CC and the energy-saving society: . Sustainable economic development requires minimum energy consumption. An energy‐saving society is the concept that supports our energy policy vision and our climate protection actions. Hazard zone planning (HZP) Like other spatial planning instruments, the HZP is vague on CC issues. The implementation decree and guideline concerning HZP and PA no. 13, 1997 don not explicitly consider CC topics. The only reference to CC appears in the guidelines, more precisely in the section devoted to the “Map of phenomena“ which contains a requirement to consider processes in connection with the thawing of permafrost, a direct effect of CC. HZP is an instrument reducing vulnerability. In 2008, the Provincial Government decided to introduce it across South Tyrol. Currently, all 116 municipalities implement HZP. The process includes four steps; all municipalities passed the tendering phase (step 1). They were given three years to complete, but the time limit is unlikely to be respected due to delays. Six months before deadline, only few municipalities have their HZP in force. As derived from SWOT analysis, municipalities may use the HZP for a two purposes: reducing vulnerability to hazards and performing strategic spatial planning. Thus the delimitation of different types of hazard zones with different endangerment degrees itself is already an effective approach that indirectly considers CC adaptation. The HZP as a sectoral instrument for reducing vulnerability has therein an obvious impact on spatial and urban land use planning. Due to the flexible constitution of the HZP, it has to consider CC as the
www.clisp.eu | [email protected] 12 In‐depth Evaluation: Hazard Zone Plan ‐ South Tyrol
specific risk for the delineated hazard zones need to be calculated for periods lasting 100 to 300 years into the future. This flexibility is a crucial strength of the HZP. Since the risk zone map – the final product of the HZP process – assesses only the status quo, it provides only short‐term guidance and requires constant updating. The preparation of maps draws on several fields of knowledge. They are based on state of the art knowledge. On the one hand the multiplicity of source represents a technical advantage on the other hand seen from the legal perspective it allows spreading liability risk among multiple responsible parties. The designation of hazard zones provides valuable support to municipalities in their strategic planning. HZP is excellent for municipalities to assess costs and benefits of construction projects: it determines in advance whether specific restrictions, requirements or protection measures generate additional costs in specific zones. The hazard zones themselves are due to their flexible, administrable and binding character appropriate and thus good examples of an instrument that has to take care of CC due to its impact on vulnerability.
3.2 Enhancement Options An evident improvement opportunity is the explicit integration of CC issue into the current spatial planning instruments. As mentioned, references to CC are few. That should change: all spatial planning instruments should handle CC as a crucial topic for planning activities. Following the examples of LEROP 2007, specific recommendations should be indicated for all cases which until now consider CC consequences only indirectly. To help the implementation of the HZP it would be wise to set up a working group on conflict management. It is to be expected that particularly the designation of “red zones“ in settled areas will lead to tensions and that some residents will appeal against the authorities’ decision on the grounds of economic damage. The higher the number of appeals, the longer the time required to implement the HZP successfully. To some extent such conflict management function is currently performed by the River Basin Fora.
3.3 Lessons learned Problems of the municipalities with the implementation of the HZP Surveys clearly reveal that municipalities struggle with the technical and administrative requirements associated with the implementation of the HZP. Municipalities aim at introducing the HZP as soon as possible and as inexpensive as possible; an important side condition for them is that preferably few red zones are designated. In many cases municipalities lack the human resources and capacity to support the HZP implementation process. Strategic elements and legal responsibility issues, particularly those connected to liability, tend to be kept in the background during the current introductory phase. The problems enlightened could be better addressed if the Provincial Government set up a central office in charge of implementing HZP. While at first a top‐down approach might convey the impression to exclude municipalities, that necessarily does not need to be the case. Much depends on the way municipalities decide to become involved. From the bureaucratic view that would simplify the introduction of HZP more efficiently. Risk management Although zoning performed in the course of hazard zone planning can contribute to risk reduction, there is still a long way to go before active risk management can be considered. Similarly, one is still far away from the introduction of a system to analyse costs and benefits or coverage options through the use of insurance models or financial instruments. Awareness rising Focused strategies are needed to raise citizens’ awareness of CC, its effects and consequences. It would be wise to start specific training programmes in schools or centres for adult and community education. By involving such institutions one could reach a wider public, thereby raising awareness for CC in the long run. Expert opinions Although the guidelines for implementing the HZP in South Tyrol provide clear instructions, there are different opinions among the experts regarding the issue of CC Fitness. It is interesting to consider the different ways in
www.clisp.eu | [email protected] 13 In‐depth Evaluation: Hazard Zone Plan ‐ South Tyrol
which the interviewees perceived and appraised CC and its consequences. In particular, there are diverging opinions as to whether regional climate models may influence simulation results. There are also different opinions regarding the sectors that could profit from adaptation measures and the sectors that could be negatively affected by such measures. There seems to be no agreed position on the procedures to be followed for managing emerging conflicts.
4 References
Bergmeister (2010): Hazard Zone Plan a challenge for all participants [Gefahrenzonenplanung eine Herausforderung für alle Beteiligten], Bauakademie Bergmeister in collaboration with TIS Innovation Park. Flussraumagenda (2005): River basin forum upper Eisack, River basin agenda – News [Flussraumforum Oberer Eisack, Flussraumagenda News], editon 1 / April 2005. Online, URL: http://www.flussraumagenda.de/cms_files/18download.pdf. GL‐HZP (2008): Guidelines for elaborating the hazard zone plan (HZP) and for classifying the specific Risk, [Richtlinie zur Erstellung der Gefahrenzonenpläne (GZP)] und zur Klassifizierung des spezifischen Risikos (KSR) gemäß Landesraumordnungsgesetz], Provincial Act from the 11th of August 1997, No. 13, article 22bis (current edition) and the adequate legal implementation ordiance regarding hazard zone plans, resolution of the provincial government from the 28th of July 2008, No. 2741. IHR, (2008): Informationssystem for hydrogeological risiks, methodological final report, provincial authority of torrent conrol buildings [Landesabteilung Wasserschutzbauten], Autonomous Province of Bolzano. Online, URL: http://www.provinz.it/wasserschutzbauten. LEROP (1995): Provincial development and spatial planning instrument [Landesentwicklungs‐ und Raumordnungsplan] 1995, edition 2002, spatial planning authority [Abteilung Raumordnung], Autonomous Province of Bolzano – Soth Tyrol. LEROP (2007): Provincial development and spatial planning instrument [Landesentwicklungs‐ und Raumordnungsplan] 2007, unpublished version from the institute for Regional Development and Location Management of the European Academy Bolzano, EURAC.research. PA, no. 13, (1997): Provincial Act [Landesgesetz] from the 11th of August 1997, No. 13., provincial spatial planning law [Landesraumordnungsgesetz]. PA, no. 35, (1975): Provincial Act [Landesgesetz] 12. Juli 1975, No. 35: Regulation of the special authority for soil protection, torrent and avalanche control [Regelung des Sonderbetriebes für Bodenschutz, Wildbach‐ und Lawinenverbauung], 1975. PGD, no. 5, (1988): Provincial Governor’s Decree [Dekret des Landeshauptmanns] from the 23rd of February 1998, No. 5, the implementing decree of the provincial spatial planning law [Durchführungsverordnung zum Landesraumordnungsgesetz]. PGD, no. 42, (2008): Provincial Governor’s Decree [Dekret des Landeshauptmanns] from the 5th of August 2008, No. 42, the implementing decree regarding the hazard zone plan [Durchführungsverordnung betreffend die Gefahrenzonenpläne]. Resolution of the provincial government, No. 2740 from 28.07.2008. River Basin Forum, 2010: Constitutions for the collaboration of stakeholders and lobbyists in the project “River basin valle isarco” „Flussraum Eisacktal“. Online, URL: http://www.stadtlandfluss.it/de/downloads.php. TB‐Wasserschutzbauten, 2008 Activity report of the provincial authority [Tätigkeitsbericht der Landesverwaltung] – 2008. torrent control building [Wasserschutzbauten], S. 404‐419. Online, URL: http://www.provincia.bz.it/ressorts/generaldirektion/bericht2009/30_tb09.pdf. Weber, (2009): Hazard Zone Planning in South Tyrol [Gefahrenzonenplanung in Südtirol], Information day for municipalities, department 27, spatial planning [Raumordnung], Autonomous Province Bolzano – South Tyrol.
www.clisp.eu | [email protected] 14
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
WP 5.3: In‐depth evaluation of spatial planning instruments and procedures in Gorenjska (SLO)
Executive Summary
Author: Andrej Gulič (Urban Planning Institute of the Republic of Slovenia)
Ljubljana, 18.02.2011
www.clisp.eu | [email protected] 1
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
1. Introduction
1.1 Description of the model region The main thematic focus of the in‐depth evaluation will be on built‐up areas / land development sector with an emphasis on settlement areas and transport infrastructure. As the main climate change impact flooding as well as debris and mud flows, will be considered along with impacts and potential damages to housing, public buildings, business premises, industrial sites and on transport infrastructure (roads, railway).
1.1.1 Main characteristics of the Gorenjska region
Gorenjska lies in the northwest of Slovenia. The region is crossed by the Pan‐European Transport Corridor No. 10, its infrastructure consisting of a motorway as well as of a 1st order railway line. In the region there is also Slovenia's main airport.
Gorenjska is an Alpine and sub‐Alpine region with relatively big differences in altitude between valleys and summits. 70% of the region is of mountainous character while 30% lie in the depressed part of the central Slovenia. Approximately 40% of the region is more than 1.000 meters above sea level. The distinctive feature of landscape is also forest; 59,4% of land is covered with forests, 25,6% is agricultural land and 9,9% infertile land. A large part of the region is protected as the Triglav national park. Almost 45% of the territory is designated as NATURA 2000 area.
Compact settlements are found in wider flat areas at the bottom of the valleys. Scattered settlements and solitary homesteads are characteristic of mountainous and hilly parts of the region. Population density is 93,9 inhabitants/km2 and is under the national average. Around 40% of the population lives in urban settlements, which are concentrated on the development axis running from Jesenice to Radovljica, Kranj, Šenčur and Škofja Loka. The regional centre is Kranj, serving as industrial, service and educational centre.
Gorenjska region has a long industrial tradition, which is reflected also in the employment and GVA structure. Sectors contributing most to region’s gross value added in the year 2005 were manufacturing with 34,6%, real estate and business services with 15,5%, commerce with 11,5% and transport and communication with 8,0%. GDP per capita amounted to 12.018 EUR, which was 85,1% of the Slovenian and 73,9% of the EU‐27 average.
Gorenjska is determined by the Alpine climate, but due to diversity of the relief climate differs within short distances. There is sufficient precipitation distributed throughout the year with a primary maximum in November and a secondary maximum in the summer. Average annual temperature in 2007 ranged from ‐0,3°C at Kredarica (2514 m above sea) to 10,1°C at Brnik (364 m above sea).
1.1.2 Main characteristics of two »hot spot« municipalities Železniki and Jesenice
Municipality of Železniki
The Municipality of Železniki lies in the upper part of the Selška valley and has a surface of 165 km2. The municipality consists of 6 local communities and 29 settlements with around 6.800 inhabitants. The settlement pattern is characterized by larger and smaller settlements clustered on the edges of
www.clisp.eu | [email protected] 2
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO) the valleys, the hills area is dominated by small scattered settlements, mostly cluster villages and solitary farms. The central settlement is the town of Železniki with 3.130 inhabitants.
The municipality's physical environment is characterized by the steep slopes of impervious rock, which torrents have cut into a number of torrential ravines. Mild continental climate is typical for the area. The western part of the area is open to the influences of a wet climate from the west, whereas cold alpine climate influences are felt in the northwestern part of the municipality.
Through the municipality and town of Železniki flows the Selška Sora river. Its water catchment is, due to the natural givens and anthropogenic interventions, one of the most problematic water catchment areas in Slovenia from the water management point of view. This is a typical mountainous torrent area. Selška Sora, which is the main recipient of the valley, is a torrential river and has a marked torrential water regime. The majority of its tributaries are very active and violent torrents which, during the floods, release heavy wear and deposited sediments out of the river / torrents beds.
The town of Železniki is located in a narrow valley running along the riverbed and flood zone of the Selška Sora river, but partly also on the floodplains of its torrential tributaries Dašnica, Češnica and Prednja Smoleva (see Picture 1). The newer parts of the city and also the industrial and commercial zones have been expanding on the flood zones in the recent decades. Many villages and small hamlets are located on the torrential floodplains: Zali Log, Podrošt, Davča, Rudno, Selce, Dolenja vas. The main regional road Škofja loka ‐ Železniki ‐ Podbrdo and other local roads are running along the riverbeds, across the flood‐prone areas and through floodplains (see also Klabus, 2007)1. Most of the municipality is also at risk from landslides (Picture 2).
Picture 1: New flood zones along the Selška Sora river Picture 2: Landslide susceptibility map of the considering hydraulic flood model results (source: Cof, Municipality of Železniki (source: Susceptibility map of 2010) Slovenia, GSS, 2008)
1 Aleš Klabus, 2007, Visoke vode 18. septembra 2007 – že četrte poplave v povodju Selške Sore v zadnjih 17 letih, 18. Mišičev vodarski dan 2007 – Posvet na temo upravljanja z vodami, Maribor. www.clisp.eu | [email protected] 3
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
Municipality of Jesenice
Jesenice is a municipality and town in the Upper Sava Valley. The Municipality of Jesenice is surrounded by the Karavanke mountain range to the north and by the mount Mežakla to the south. It consists of 9 settlements with around 21.700 inhabitants. The surface of the municipality is 75,8 km². The settlement pattern is characterized by one large (Jesenice) and a few smaller suburbanised settlements located in the Sava valley. Small scattered settlements can be found in the northern part of the municipality. The central settlement is the town of Jesenice with 13.429 inhabitants.
The rock structure and relief are the most important factors affecting physical conditions in the municipality of Jesenice. The northern part of the municipality, i.e. the area of the Karavanke mountains is, due to lower stability of soil, subject to erosion and there is a greater risk of landslides. The southern part of the municipality – the area of the Mežakla mountain – is steeper, but also more stable and covered with forests. To a lesser extent, avalanches from the Mežakla mountain threaten the highway which runs along the foot of the mountain in the valley floor.
The water catchment of the Sava Dolinka river is highly asymmetric with all tributaries,mainly streams, entering the river from the northern Karavanke mountain. All streams are characterized by short length and high gradient which gives them a torrential character. Consequently the danger of floods in the area is significant too (Picture 3).
Due to potential debris flows and filling of riverbed there is flood risk in the Sava Dolinka river valley upstream of the hydropower plant Moste dam., There is, furthermore, a high risk of debris flows endangering human settlements in the municipality of Jesenice, especially the settlement of Koroška Bela. An active landslide is located above the Koroška Bela settlement at a height of more than 1000 m. Beside that, the hinterland of the settlement is characterized by a sharp drop in the slope and a large volume of sediments (Picture 4) (more in Mikoš et al., 2008)2.
Picture 3: New flood zones in the Sava Dolinka Picture 4: Depth of the potential debris river valley considering hydraulic flood model flow at the Koroška Bela fan (source: Mikoš results (source: Cof, 2010) et al., 2008)
2 Mikoš, M., et al., 2008, Ocena ogroženosti zaradi delovanja drobirskih tokov (Vulnerability Assessment for Debris Flows), Končno poročilo (Final report), Ljubljana. www.clisp.eu | [email protected] 4
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
Municipalities of Železniki and of Jesenice have been described in more detail because they relevantly represent the Gorenjska as a model region. Both are exposed to climate change impacts, namely floods, landslides and debris flows. More than half of the Gorenjska region is very highly or highly vulnerable to debris flows (Picture 5). In both municipalities, settlements and transport infrastructure are strongly exposed to the mentioned climate change impacts. The settlements and transport infrastructure of the Železniki municipality were severely hit by two floods in the recent years. Both sectors could be heavily hit by a potential debris flows in the case of heavy precipitation in the municipality of Jesenice.
Picture 5: The assessment of the likelihood of debris flows by communities in Slovenia (Mikoš, 2008)
1.1.3 Main climate change adaptation requirements and impact chains concerning Gorenjska Region out of the perspective of spatial planning
Gorenjska is a statistical / development region and the only common strategic development document of the region is the Regional Development Programme 2007‐2013 (RDP). At the same time, the Gorenjska region does not have a regional spatial plan.
In RDP, the issue of climate change is dealt with within the SWOT analysis. The potential spread of diseases and negative impacts of climate change on winter tourism development are highlighted as threats. Development of settlements and transport infrastructure is not considered in direct connection to the issue of adaptation to climate change. In the SWOT analysis, such weaknesses and threats are exposed as: lagging behind of transport infrastructure development, non‐existence of analytical and expert background study for regional spatial plan, the absence of a regional spatial plan, unforeseen consequences of hazards. In the field of settlement and transport infrastructure there are no requirements or proposals of policies and measures aimed at adapting both systems to climate change impacts in the RDP.
www.clisp.eu | [email protected] 5
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
Climate change adaptation requirements for the Gorenjska region – or for any other Slovenian statistical / development region – have not been explicitly defined at the national level either. The main spatial planning instruments, such as the Spatial Planning Act (2007), Public Roads Act (1997), Railway Transport Act (1999), Spatial Development Strategy of Slovenia (2004), contain objectives that are indirectly related to the issue of climate change and adaptation. In the Spatial Development Strategy of Slovenia (2004) for example the following objectives are indirectly related to climate change adaptation: to steer spatial development away from areas threatened by natural and other disasters and to redirect the existing activities away from areas threatened by natural and other disasters, as well as to improve protection against the consequences of such events.
The interviewed representatives of municipalities of the Gorenjska region did not explicitly mention any requirements which are relevant to the issue of climate change adaptation either. At the same time they stressed the need to reduce hazard risk by adapting to extreme events such as floods, landslides and debris flows.
To conclude, the main adaptation requirements concerning the Gorenjska region which were (in)directly expressed during the participatory processes implementation (working meetings, interviews, workshops) are aimed at providing effective flood, landslides and debris flows protection for settlement and transport infrastructure (see also Picture 6).
Picture 6: Climate change impact chain – Built‐up areas / land development in Gorenjska region
www.clisp.eu | [email protected] 6
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
1.1.4 Spatial planning instruments and procedures which potentially could meet main climate change adaptation requirements
Spatial planning instruments / procedures which potentially could meet the main climate change adaptation requirements are: • Spatial Planning Act, draft Climate Change Act and other national level sectoral acts, • Spatial Development Strategy (goals and guidelines) of Slovenia (SDSS) (2004), • Regional Development Programme for the Gorenjska region (RDP) (2006), • Municipal spatial plans (valid plans and plans in preparation), • National spatial plan for providing flood protection in the municipality of Železniki, • National spatial plan for the rehabilitation and upgrading of the hydroelectric power plant Moste (2001).
1.2 Methods and evaluation criteria
1.2.1 Evaluation criteria, targets, indicators and evaluation standards for evaluation of the climate change fitness of the selected instrument/procedure
For the evaluation of the climate change fitness of the selected instruments, the following main evaluation criteria, targets and indicators were chosen3:
General criteria Targets Indicators Common goals and guidelines Goals and Goals and guidelines included into: for CC adaptation guidelines defined 1. RDP 2. municipal spatial plans Priorities for CC adaptation Priorities defined Priorities included in municipal spatial plans for settlements and transport infrastructure Table 1: Criteria, targets and indicators concerning the context of the Gorenjska region and the spatial and thematic foci
Criteria Targets Indicators Relevance for Selected planning instruments (SDSS, Qualitative description of the relevance of the adaptation priorities RDP and municipal spatial plans in selected instrument based on expert judgement, force and/or in preparation) goals, accomplished interviews and workshops with guideliness (land use zoning) are regional stakeholders relevant for cc adapatation in general / for the selected sectors Binding character 1. Content of the SDDS is binding for 1. Binding for local authorities local planning authorities 2. Binding for land owners 2. Contents of municipal spatial plans are binding for land owners Table 2: Criteria, targets and indicators concerning the instrumental focus of the Gorenjska region
3 For more information see Gulič, A., 2010, WP 5.3: In‐depth evaluation of spatial planning instruments and procedures in Model Regions ‐ Evaluation Concept Gorenjska, UIRS, Ljubljana.
www.clisp.eu | [email protected] 7
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
Criteria Targets Indicators Effectiveness, efficiency 1. Implementation of adaptation 1. Examples and experiences of successful and feasibility activities politically feasible implementation through political support 2. Implementation of adaptation 2. Strategic environmental impact assessment (SEIA) activities according to standards of sustainable spatial development Enhancement options 1. Enhancement options to foster 1. Elaboration of amendments in the course of cc adaptation exist and are preparation of future action plans identified 2. Enhanced knowledge base and tools for decision support in order to assist other players to adapt elaborated Table 3: Criteria, targets and indicators concerning implementation of the chosen instruments in the Gorenjska region
1.2.2 Evaluation process methods
In the evaluation process document analysis, expert interviews, expert and local/regional/national stakeholder workshops, as well as SWOT analysis have been used.
Three workshops were conducted: • Impacts of climate change on spatial development in the Gorenjska region (Municipality of Tržič, 13 October 2010). • Impacts of climate change on tourism in the Gorenjska region (Municipality of Kranjska Gora, 3 November 2010). • Impacts of climate change on energy sector in the Gorenjska region (Municipality of Kranj, 16 November 2010).
Picture 7 and 8: Images from the Tržič and Kranjska Gora workshop
www.clisp.eu | [email protected] 8
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
Picture 9: Images from the Kranj workshop
2. Evaluation of selected instruments
2.1 Description of evaluated instruments
2.1.1 Legal instruments
Draft Climate Change Act
Draft Climate Change Act (2010)4: • calls for integration of climate targets into sectoral legislation and into national, sectoral, regional, local programmes and plans, • also deals with the challenges of adapting to climate change, mainly to the problems of providing for greater flood protection, • imposes an obligation for anticipation of change through preparation of vulnerability assessment studies and cc adaptation measures in spatial planning.
According to the Draft Act, adaptation measures will be designed and implemented in order to reduce the negative impacts of climate change on: • water resources and water quality, flood control, erosion and landslides, • transport infrastructure facilities, • other facilities and human systems including cultural heritage.
When the Act is finalized and adopted in the near future, the necessary legal basis for implementation of activities needed to reduce vulnerability of the Gorenjska region and of Slovenia as a whole will be provided. The Draft Act also prescribes preparation of a National Climate Strategy. Implementation of its policies and measures will help reduce vulnerability to climate change impacts at the national level. The impacts on the regional level (Gorenjska region) are currently difficult to foresee, considering the fact that preparation of regional climate strategies is not anticipated.
4 http://www.vlada.si/fileadmin/dokumenti/si/projekti/2010/Zakon_o_podnebnih_spremembah_splet.pdf. www.clisp.eu | [email protected] 9
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
Spatial Planning Act
The Spatial Planning Act (2007)5 contains objectives that are indirectly related to the issue of climate change and adaptation. The objective of spatial planning is to enable coherent spatial development by considering and harmonizing different development needs and interests with public benefits in the areas of environmental protection, conservation of nature and cultural heritage, protection of natural resources, defense and protection against natural and other disasters.
Implementation of the Act only indirectly affects the current and future reduction of vulnerability of Gorenjska region to climate change impacts.
Public Roads Act and Railway Transport Act
The Public Roads Act (1997)6 and the Railway Transport Act (1999)7 contain objectives that are also indirectly related to the issue of climate change and adaptation and are directed at ensuring transportability by road and rail network in case of natural disasters.
The implementation of both Acts thus only indirectly affects the reduction of vulnerability of Gorenjska region to climate change impacts.
2.1.2 Guiding instruments
Spatial Development Strategy of Slovenia
Aspects of adaptation to climate change are not directly mentioned in the Spatial Development Strategy of Slovenia (SDSS)8. SDSS nevertheless contains objectives that are indirectly related to the issue of climate change and adaptation, such as: • to guide activities with spatial impact so as to produce maximum positive effects towards a spatially balanced and economically efficient development, social integration, and the quality of the natural and living environment, • to improve situations involving negative spatial development trends by taking spatial and environmental measures, • to steer spatial development away from areas threatened by natural and other disasters, • to redirect the existing activities away from areas threatened by natural and other disasters, or to improve protection against the consequences of such events.
Despite the presented indirect aspects contributing to climate change adaptation, the contents of the SDSS ‐ which is the basic document and instrument of spatial planning at the national level – are not a sufficient basis for the design of spatial arrangements at national, regional and local level, which would take due account of climate change adaptation aspects.
Other sectoral development programmes
Similar situation exists more or less also with reference to other analyzed sectoral strategies: National Programme of Motorway Construction9, National Development Programme for Public
5 http://www.mop.gov.si/fileadmin/mop.gov.si/pageuploads/zakonodaja/prostor/nacrtovanje/prostorsko_nacrtovanje_en.pdf. 6 http://zakonodaja.gov.si/rpsi/r06/predpis_ZAKO1366.html. 7 http://zakonodaja.gov.si/rpsi/r04/predpis_ZAKO1614.html. 8 http://www.sycp.si/Portals/0/Files/filebroker.aspx@id=4588.pdf. www.clisp.eu | [email protected] 10
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
Railway Infrastructure10 and National Civil Aviation Development Programme11. The mentioned documents do not contain objectives and policies that take into account the issue of climate change adaptation.
All aforementioned documents are implemented in the process of preparation of the municipal spatial plans and specific plans for transportation sector.
Regional Development Programme Gorenjska region 2007‐2013
The Regional Development Programme Gorenjska region 2007‐2013 (RDP) deals with the issue of climate change in the SWOT analysis where, as fundamental threats, the negative impacts of climate change on the potential spread of diseases and on the future development of winter tourism are exposed.
Development of settlements and transport infrastructure is not considered in a direct connection to climate change adaptation. In the SWOT analysis, weaknesses and threats such as delays in transport infrastructure development, lack of analytical and expert bases for regional spatial development, the absence of a regional spatial plan, unforeseen consequences of hazards, are exposed.
RDP does not provide policies and measures aimed at adapting the settlements and transport infrastructure to the climate change impacts.
Municipal spatial plans of the Gorenjska region
In‐depth analysis of the valid municipal spatial plans of the Gorenjska region has shown that the involvement of the general objectives, guidelines and priorities of the settlement and transport infrastructure climate change adaptation is very modest.
In none of the currently valid municipal spatial plans climate change adaptation issues are explicitly included into the land use concepts. This situation is understandable for the majority of municipalities, for which the spatial plans currently in force were prepared in the mid‐eighties of the last century, in a different social system, other climatic conditions and a different local government organization. Since then, spatial plans have been updated many times, mainly in the area of land use change. Updates were mostly about new land reservation for settlement and infrastructure expansion, but there were no major conceptual changes. Two of the currently valid municipal spatial plans have nevertheless been prepared recently, but the situation regarding climate change adaptation is still the same as in the older plans. The state of the art of climate change adaptation issues inclusion into the valid municipal spatial plans of Gorenjska region is depicted in Table 4.
9 http://www.uradni‐list.si/1/objava.jsp?urlid=200450&stevilka=2300. 10 http://www.sindikat‐szps.si/downloads/Nacionalni_program_razvoja_Slovenske_zelezniske_infrastrukture.pdf. 11 http://www.mzp.gov.si/fileadmin/mzp.gov.si/pageuploads/DL_predpisi/NPRCL_osnutek_18062009.pdf. www.clisp.eu | [email protected] 11
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
Municipality General Priorities for the settlements Priorities for the transport objectives and cc adaptation in guidelines and infrastructure cc adaptation in policies of cc land use concept guidelines and land use adaptation concept Guidelines Land use Guidelines Land use concept concept Bled Bohinj Cerklje na Gorenjskem Gorenja vas ‐ Poljane Gorje Jesenice Jezersko Kranj Kranjska Gora Naklo Predvor Radovljica Šenčur Škofja Loka Tržič Železniki Žiri Žirovnica Table 4: Inclusion of general objectives, guidelines and priorities of the settlement and transport infrastructure cc adaptation in valid municipal spatial plans of Gorenjska region
guidelines / land use concept, that includes aspects of cc adaptation are available indirect guidelines / land use concept are available indirect guidelines / land use concept are not available Table 4 Key
2.2 Assessment of evaluated instruments or procedures
The assessment of instruments was carried out using document analysis, expert interviews, expert and local/regional/national stakeholder workshops. Some analytical findings, based on document analysis, were presented in chapter 2.1.
Analysis of the currently valid municipal spatial plans has shown that: • none of the plans has climate change adaptation issues explicitly included into objectives, policies and land use concepts,
www.clisp.eu | [email protected] 12
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
• in some plans general objectives and policies of indirect spatial adaptation to climate change were included (Table 5).
Cerklje na Gorenjskem spatial growth should be subordinated to the natural environment protection natural environment must be integrated into the urban ambience Gorenja vas ‐ Poljane integration of the environmental protection in the planning of spatial development Gorje providing conditions for effective protection against natural and other hazards Kranj raise the quality of the environment and physical living conditions necessary for sustainable development Naklo balanced spatial development nature and cultural heritage conservation, protection of natural resources, defense and protection against natural and other hazards Table 5: General objectives and policies of indirect spatial climate change adaptation in Gorenjska region municipalities
As concerns the new municipal spatial plans which are in the proces of preparation, we have received only a few of the drafts and none of them explicitly considers climate change adaptation policies and measures. In the following, the relevant content of the updated draft spatial plan of the Škofja Loka municipality12 will be presented as the most elaborated example of indirect adjustment of settlement and transport infrastructure to climate change through spatial planning instruments. The mentioned draft municipal spatial plan was presented and discussed during the workshop in which the impacts of climate change on spatial development in the Gorenjska region were elaborated.
The proposed guideliness which could be understood as indirect climate change adaptation measures are the following: »It is necessary to: • maintain the existing natural retention areas (wetlands and flood areas outside the settlements), to protect them from further degradation, preserve and maintain the vegetation belts along the streams, maintain natural watercourses in their natural state and prevent further regulation of the river, • perform renaturation of regulated rivers especially in the areas where large recreational areas are planned or in protected natural areas, • spatial location of activities outside the areas of potential hazards, • build flood‐control reservoirs for high waters, • construction of gravel reservoirs« (op. cit., p. 44‐46).
Despite the fact that the currently valid municipal spatial plans and the assessed spatial plans in preparation do not explicitly include climate change adaptation objectives, policies, priorities and measures, many representatives of the Gorenjska region municipalities were quite optimistic concerning the inclusion of indirect climate change adaptation issues into the valid spatial plans and even more into the spatial plans in preparation. This was one of the outcomes of expert interviews (Pictures 9 – 12).
12 Municipality of Škofja Loka, 2010, Municipal spatial plan of Škofja Loka ‐ updated draft (in Slovene language), http://www.skofjaloka.si/default.aspx?Tip=1551651&KeyID=225&Naslov=29._redna_seja_‐_priloga_OPN. www.clisp.eu | [email protected] 13
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
Picture 9: Evaluation of the existing spatial structures climate change adaptation in the valid municipal spatial plans, according to subjective opinion of the environment and spatial planning municipal departments representatives (Scale: no data, not at all... completely)
Picture 10: Evaluation of the planned spatial structures climate change adaptation in the valid municipal spatial plans, according to subjective opinion of the environment and spatial planning municipal departments representatives (Scale: no data, not at all... completely)
www.clisp.eu | [email protected] 14
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
Picture 11: Evaluation of the existing spatial structures climate change adaptation in the municipal spatial plans in preparation, according to subjective opinion of the environment and spatial planning municipal departments representatives (Scale: no data, not at all... completely)
Picture 12: Evaluation of the planned spatial structures climate change adaptation in the municipal spatial plans in preparation, according to subjective opinion of the environment and spatial planning municipal departments representatives (Scale: no data, not at all... completely)
www.clisp.eu | [email protected] 15
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
3. Conclusion and Summary
3.1 Climate change fitness
Evaluation of the spatial planning (Spatial Planning Act, Spatial Development Strategy of Slovenia, Regional development programme for the Gorenjska region, valid municipal spatial plans and municipal spatial plans in preparation) and other climate change relevant general (Draft Climate Change Act (2010) and sectoral instruments (Public Roads Act, Railway Transport Act, Water Act) has shown that it is only possible to speak about climate change fitness in a conditional and indirect way.
Although the term climate change and climate change adaptation (also mitigation) is not directly used in Spatial Planning Act and Spatial Development Strategy of Slovenia, especially the Strategy contains a number of objectives and guidelines which are indirectly referring to climate change adaptation. The problem remains that the strategy is not sufficiently used as a reference in the process of preparation of municipal spatial plans.
The basic objectives and guidelines of the currently valid municipal spatial plans were – except in two cases – prepared at the end of the eighties, in a different socio‐political systems, different climatic conditions and different structure of local government. During the period that followed, municipal spatial plans were, in most cases, amended considering the changes in the legal system and growth in demand for land.
In summary we can say that, as regards their potential impact as well as their current implementation in Slovenia and in the Gorenjska region, the spatial planning instruments are »unfit« rather than »fit«. If we use a rating scale from 1 to 7, and define »unfit« as 1 and »fit« as 7, then we could subjectively say that the Gorenjska region is located on the rating scale between 2 and 3.
3.2 Enhancement options
The main enhancement options in order to foster climate change fitness within Slovenia and the Gorenjska region are divided into five groups, namely: legal, guiding, managing, awareness raising and capacity building instruments.
3.2.1 Legal instruments
1. Amending of the Draft Climate Change Act with the following: a. Inclusion of the regional climate (adaptation and mitigation) strategy as a planning instrument. b. Supplement the concept of adaptation to climate change – which is now focused only on reducing the vulnerability of natural or human systems and addressing the expected impacts of climate change – to include exploiting of the opportunities or positive impacts that climate change could bring to different systems. c. Supplement the current set of core principles, which includes the principles of precaution, external costs, environmental and social integrity of the measures, cost efficiency, public participation and promotion with the following additional principles: change of system of values and beliefs, related and interdependent implementation of the developmental objectives, readiness for cooperation in a period of uncertainty, a systematic monitoring and
www.clisp.eu | [email protected] 16
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
evaluation of the effects of policies and measures of mitigation and adaptation to climate change and changing / adapting existing structures, policies and processes. d. The Act provides for preparation of a state climate change strategy which will determine the policy of mitigation of climate change and adaptation to it in the Republic of Slovenia up to the year 2050. In addition, the law must set a baseline year against which to set the goals of policies and measures of mitigation and adaptation to climate change. 2. Amendment of the Spatial Planning Act with the inclusion of climate change adaptation and mitigation objectives and guidelines.
3.2.2 Guiding instruments
1. Greater consideration of Spatial Development Strategy of Slovenia's objectives and guidelines that are indirectly related to the issue of climate change and adaptation in the preparation of municipal spatial plans. 2. Full consideration of the new General water management guidelines for preparation of municipal spatial plans in Slovenia. 3. Preparation of a new spatial development strategy of Slovenia in which climate change adaptation and mitigation issues and solutions (objective, guidelines and concepts) will be included. 4. Preparation of regional spatial plans and regional climate strategies for all 12 statistical regions in Slovenia regardless of the direction and pace of reorganization of second‐tier local self‐ government. 5. Updating of the valid and preparation of a new generation of municipal spatial plans which will be aligned with the Climate Change Act, the new Spatial Planning Act and the new Spatial Development Strategy of Slovenia.
3.2.3 Management instruments
1. Strengthening the water management institutions and increasing financial resources for effective implementation of all statutory roles of these institutions (especially for regular maintenance – such as the cleaning of riverbeds – and investment). 2. Strengthening the power of inspection services by improving inspection efficiency of: verifying the compliance of the project documentation with the implementation on the ground and controlling the land operations in areas endengered by natural distasters. 3. Strengthening the role of water management institutions in efforts to reduce the risk from natural disasters by increasing their powers to take direct action on the ground (eg. initiate appropriate procedures for the physical removal of facilities that increase the direct threat to the area from natural disasters – floods, landslides, rock falls etc.).
3.2.4 Awareness raising instruments
1. Informing and awareness raising of people towards increasing their general knowledge on the operation of natural laws, associated climate change and changing their attitude towards nature and natural phenomena (the key stakeholders being government and nongovernment organizations). 2. Informing and awareness raising of the population in vulnerable areas (endangered by floods, landslides and avalanches, fires etc..) in the direction of increasing their specific knowledge on the operation of natural laws and the associated climate change processes on the local and wider area of residence.
www.clisp.eu | [email protected] 17
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
3. Increasing the ability of the population and their active relationship to natural phenomena (monitoring, forecasting, information on the problems and prevention of threatening natural events in the residential areas) in collaboration with relevant public agencies.
3.2.5 Capacity building instruments
1. Increasing the capacity of people for self‐help in cases of extraordinary natural event (flood, landslide, fire etc.). As an example of good practice the effort of the Municipality of Ljubljana can be mentioned. In 2010, the municipality issued a flyer »Prepare yourself now so that you are not surprised by a flood«. The flyer contains a set of instructions for self‐help before, during and after the flood (http://www.poplavljen.si/images/stories/poplavljen_si/Brosura_poplavnaOgrozenost_LJ_2010. pdf, http://www.poplavljen.si/).
3.3 Lessons learned
A high level of interest in the CLISP project has been shown by the representatives of the Ministry of the Environment and Spatial Planning – The Spatial Planning Directorate, which is also one of the Slovenian observers in the project.
Municipalities, on the other hand, being the only formal representatives of the Gorenjska region, do not perceive climate change and adaptation to it as a serious problem. To overcome this situation, the information and knowledge level of municipal administrations and decision makers should be raised. Furthermore, climate change mitigation / adaptation issues should become mandatory components of the spatial planning instruments.
In the three conducted workshops representatives of 2 out of the 18 Gorenjska region municipalities participated. In none of these workshops representatives of the two »hot spot« municipalities were present. More than half of the municipalities did not provide us the interim versions of municipal spatial plans which are in the process of preparation.
Without establishing regions as local self‐government units it will be, from our point of view, very difficult to actively promote climate change issues and adaptation to them. Preparation of regional climate strategies should also be envisaged in the Draft Climate Change Act.
www.clisp.eu | [email protected] 18
W.P. 5.3: In‐depth evaluation of spatial planning in Gorenjska (SLO)
References
1. BSC Regional development agency, 2006, Regional Development Programme (Regionalni razvojni program), http://www.bsc‐kranj.si/Adout‐regional‐development/Regional‐development‐ programme 2. Cof 3. Government Office of the RS of Climate Change, 2010, Draft Climate Change Act (Zakon o podnebnih spremembah ‐ osnutek), Ljubljana, http://www.vlada.si/fileadmin/dokumenti/si/projekti/2010/Zakon_o_podnebnih_spremembah_ splet.pdf. 4. Gulič, A., 2010, WP 5.3: In‐depth evaluation of spatial planning instruments and procedures in Model Regions – Evaluation Concept Gorenjska, UIRS, Ljubljana. 5. Klabus, A., 2007, Visoke vode 18. septembra 2007 – že četrte poplave v povodju Selške Sore v zadnjih 17 letih, 18. Mišičev vodarski dan 2007 – Posvet na temo upravljanja z vodami, Maribor. 6. Mikoš, M., et al., 2008, Ocena ogroženosti zaradi delovanja drobirskih tokov (Vulnerability Assessment for Debris Flows), Končno poročilo (Final report), Ljubljana. 7. Ministry of the Environment and Spatial Planning, 2007, Spatial Planning Act (Zakon o prostorskem načrtovanju), Ljubljana, http://www.mop.gov.si/fileadmin/mop.gov.si/pageuploads/zakonodaja/prostor/nacrtovanje/pro storsko_nacrtovanje_en.pdf. 8. Ministry of Transport, 1997, Public Roads Act (Zakon o javnih cestah), Ljubljana, http://zakonodaja.gov.si/rpsi/r06/predpis_ZAKO1366.html. 9. Ministry of Transport, 1999, Railway Transport Act (Zakon o železniškem prometu), http://zakonodaja.gov.si/rpsi/r04/predpis_ZAKO1614.html. 10. Ministry of the Environment and Spatial Planning, 2004, Spatial Development Strategy of Slovenia (Strategija prostorskega razvoja Slovenije), Ljubljana, http://www.sycp.si/Portals/0/Files/filebroker.aspx@id=4588.pdf. 11. Municipality of Škofja Loka, 2010, Municipal spatial plan of Škofja Loka – updated draft (Občinski prostorski načrt občine Škofja Loka (dopolnjeni osnutek) – 1. obravnava (in Slovene language), http://www.skofjaloka.si/default.aspx?Tip=1551651&KeyID=225&Naslov=29._redna_seja_‐ _priloga_OPN.
www.clisp.eu | [email protected] 19
CLISP Modellregion Kanton Graubünden Amt für Raumentwicklung Amt für Wald Amt für Natur und Umwelt
AdAdaptivityaptivityAdaptivity of the Spatial Planning System exemplified by the WWWaterWater UUUseUse in the Canton Graubünden ––– Evaluation Report
Executive Summary
Chur, 30 of september 2010 / 25. März 2011
ImImprintImprprintintint
CustomerCustomerCustomer
Amt für Raumentwicklung Graubünden Grabenstrasse 1 CH 7000 Chur
Contact person Dr. Boris Spycher Phone +41 81 257 23 06 e Mail [email protected]
ProjectProjectProject
Esther Casanova Raumplanung Jochstrasse 27 CH 7000 Chur
Contact person Esther Casanova Phone +41 81 353 72 62 e Mail esther.casanova@casanova plan.ch Web www.casanova plan.ch
TABLE OF CONTENTS
1 Introduction ...... 1 1.1 Description of Model Region ...... 1 1.1.1 Current climate situation ...... 1 1.1.2 Climate change ...... 4 1.2 Methods and evaluation criteria ...... 5 1.2.1 Evaluation criteria ...... 5 1.2.2 Approach ...... 5 1.2.3 Methodology ...... 6
2 Evaluation of selected instruments or procedures...... 7 2.1 Description of evaluated instruments or procedures ...... 7 2.1.1 Cantonal structure plan [kantonaler Richtplan] ...... 7 2.1.2 Regional structure plan [regionaler Richtplan] ...... 7 2.2 Assessment of evaluated instruments or procedures ...... 8 2.2.1 Approaches / solutions ...... 9 2.2.2 Support for climate change fitness ...... 9 2.2.3 Reducing vulnerability to climate change ...... 9 2.2.4 Strenghts and potentials of the instrument ...... 9 2.2.5 Weaknesses and constraints of the instrument ...... 9 2.2.6 Enhancement options ...... 10
3 Conclusion and summary ...... 10 3.1 Climate change fitness ...... 10 3.2 Enhancement options ...... 11 3.3 Lessons learned ...... 12 3.4 Conclusions from the spatial planning perspective ...... 12
4 References ...... 13
LIST OF ILLUSTRATIONS
Figure 1: Precipitation map of Graubünden, average precipitations totals (mm) April – September, 1985 2004. (Source: Göpfert, Ermittlung der Bewässerungsbedürftigkeit landwirtschaftlicher Nutzflächen im Kanton Graubünden) ...... 2 Figure 2: MeteoSchweiz, 2009, Klimabericht Kanton Graubünden, Arbeitsberichte der MeteoSchweiz, 228, p. 9 ...... 2 Figure 3: MeteoSchweiz, 2009, Klimabericht Kanton Graubünden, Arbeitsberichte der MeteoSchweiz, 228, p. 16 ...... 3 Figure 4: MeteoSchweiz, 2009, Klimabericht Kanton Graubünden, Arbeitsberichte der MeteoSchweiz, 228, p. 24 ...... 4 Figure 5: Methodology water use and climate change ...... 6 Figure 6: The 13 Regions of Graubünden ...... 8
111 IIIntroductionIntroduction
1.1 DescriDescriptionption of MMModelModel RRRegionRegion
Characteristic of the Region Graubünden:
• Size 7'105,2 km2, Population 189’000 residents (2007)
• Elevation Piz Bernina: 4048 m, San Vittore 278 m
• Main land use types (2006): Settlement area 1,8 %, Agricultural area 29,8 %, Forests and copses 26,7 %, non productive areas 41,7 %
• Relevant economic sectors (2005): Employed in primary sector: 8’400; em ployed in secundary sector: 24’095; employed in tertiary sector: 67’263; business establishments in the primary sector: 3’114; Business establish ments in the secundary sector: 2’422; business establishments in the terti ary sector: 9’218; the revenues from tourism provide about half of the jobs and incomes of the population of Graubünden. Every year, approximately twelve million visitors spend the night in the 170,000 beds. International companies as Würth, Hamilton, Hoppe Group, Trumpf; important indus trial companies: Ems Chemie, CEDES
1.1.11.1.11.1.1 Current climate situation
The chosen model region is the canton Graubünden, Switzerland, with a detailed focus on the sub region Albula.
Graubünden can be subdivided into three climate regions:
a. northern and central Graubünden
b. the valleys of Engadin and Münstertal
c. southern Graubünden with the valleys Poschiavo, Bregaglia and Mesolcina
A particular climate situation can be found in the intra alpine arid valleys (Churer Rheintal, Domleschg, region of Ilanz, Albulatal and Surses, Engadin and Münster tal) which are surrounded by the Alpine chain both in the north and in the south (figure 1). These valleys are exposed to an exceptionally dry climate.
1
Figure 1: Precipitation map of Graubünden, average precipitations totals (mm) April – Septem- ber, 1985 - 2004. (Source: Göpfert, Ermittlung der Bewässerungsbedürftigkeit landwirtschaftli- cher Nutzflächen im Kanton Graubünden)
The Climate Report Graubünden 2009 (figures 2 4), developed by MeteoSchweiz on behalf of the Office for Nature and Environment Graubünden, states that
“A climate warming in the canton Graubünden can be clearly proved by the measured data. With respect to the average values, periodic fluctuations of the seasonal precipitation total are the typical characteristic. The main results can be summarized as follows:
• Since 1990 there is a strongly significant positive temperature trend in winter (0.1°C 0.2°C per 10 years) as well as in summer (0.2°C 0.15°C per 10 years).
• Since 1961 there is a strongly significant and even more distinct temperature trend both in winter (0.3°C 0.4°C per 10 years) and in summer (0.4°C 0.5°C per 10 years).
• Both in the periods since 1990 and since 1961 no clear long term trend can be observed with respect to the precipitation average. ”
Figure 2: MeteoSchweiz, 2009, Klimabericht Kanton Graubünden, Arbeitsberichte der MeteoSchweiz, 228, p. 9
2
“During the past 50 year, various climate indicators which influence society, economy and tourism, clearly indicate a climate change in the canton Graubünden. Besides strong trends in the altitude related temperature measures (number of freeze up and summer days, freezing level) there are partial changes also in the precipitation related measures (heavy precipitation, drought periods) where the latter may be rather different for the various climate regions of the canton. In short, the most important results for the canton of Graubünden are the following:
• Strongly significant decrease of the number of freeze up days (all regions and altitudes).
• Strong increase of the number of summer days (all regions and altitudes).
• Clear increase of the freezing level in all seasons (not significant only in au tumn). The freezing level rises about 150 200 m per 1°C of warming. ”
Figure 3: MeteoSchweiz, 2009, Klimabericht Kanton Graubünden, Arbeitsberichte der MeteoSchweiz, 228, p. 16
3
“The most important results with respect to the development of the climate measure snow during the past 50 years in the canton Graubünden can be sum marized as follows:
• Significant decrease of the number of days with a total snow depth (≥5 cm / ≥30 cm) on all altitudes except on altitudes above 2000 m.
• Strongly significant decrease of the sums of new snow during the hydrologi cal year on altitudes below 2000 m.
• Only partially significant decrease of the maximal snow depth on medium altitudes as well as the number of days with new snow on low and high alti tudes.
The evaluation of the long term time series of new snow for the locations Arosa, Chur, Davos and Segl Maria show:
• large decadic fluctuations of the days with new snow and sums of new snow. For the parameter maximum new snow the decadic fluctuations are rather small but the variabilities are large.
• Similar low values as today for the sums of new snow were already measured between 1930 and 1940 and for the days with new snow before 1900 and in the middle to the 20th century. “
Figure 4: MeteoSchweiz, 2009, Klimabericht Kanton Graubünden, Arbeitsberichte der MeteoSchweiz, 228, p. 24
1.1.1.21.21.1.2 Climate change
The project water use is based on the following climate scenario:
• Average summer temperatures up to +2.5°C, with exceptionally hot summers (like 2003) every few years • Increase of precipitations up +10% in winter • Decrease of precipitations up to 20% in summer • During spring and autumn precipitations may increase or decrease • Increase of temperature extremes • Increase frequency of drought periods, particularly in the intra alpine arid val leys • Increased number of days with heavy precipitations • Risen freezing level by about 150 200m per each decade, i.e. 300 600m higher than today > more precipitations as rain during winter > reduced snow cover > faster water discharge in spring • Retreat of glaciers (i.e. decrease of 50 90% of the glacier surface area, de pending on temperature and precipitation scenario). Graubünden will have lost almost all of its glaciers by 2050. 4
Since climate predictions are subject to uncertainty, climate factors may change differently depending on location and altitude.
1.2 Methods and eeevaluationevaluation cccriteriacriteriariteriariteria
1.2.11.2.11.2.1 Evaluation criteria
The main evaluation criterion is the effectiveness of the cantonal and regional structure plan [kantonaler und regionaler Richtplan] to deal with the changing water demand.
1.2.21.2.21.2.2 ApproachApproachApproach
The identified main sectors of water use are: households (drinking water), agri culture (irrigation), energy production (hydroelectricity), and tourism (generation of artificial snow).
Existing basic information related to Graubünden was reviewed and interviews were conducted with representatives of the public administration and companies which represent the four main sectors of water use:
• Office for Agriculture and Geoinformatics
• Office for Economy and Tourism
• Office for Energy and Traffic
• Office for Nature and Environment
• Albula Landwasser Kraftwerk Filisur (hydroelectric power company)
• Municipality of Davos (drinking water supply)
• Bergbahnen Davos (mountain railway) (interview in writing)
The interviews were conducted with a structured questionnaire in the form of a spontaneous interview with the following questions:
• Which impact do you expect on your domain (summer, winter)?
• Which are the consequences for your domain?
• Which measures did you already implement or do you intend to implement?
• By what means do you intend to implement those measures, and who is re sponsible?
• Which basis for decision making do you need (existing information, gaps) und in what time frame will it be provided?
5
• Do existing regulations have to be changed?
• Do existing instruments have to be modified, or do we need new instruments?
• What do think about a water management plan (spatial reference, content, re sponsibility, ...)?
1.2.31.2.31.2.3 MethodMethodMethodologyMethodologyologyology
Based on the system boundaries and the project target the following methodol ogy has been developed:
Water supply Climate change Water use & demand Discharge conditions Temperature Regulations Today Precipitation Today Evaporation
Scenarios Graubünden Climate regions & zones Chains of action
Iterativeprocess
Water supply Impact on supply Water use & demand Discharge conditions Impact on use & Future Future demand
Water balance Shortages / bottlenecks Conflicts Impact on water use
Water management Recommendations for action
Figure 5: Methodology water use and climate change Implementation Spatial planning 6
222 Evaluation of selected iiinstrumentsinstruments or ppproceduresproceduresroceduresrocedures
2.1 DescriDescriptionption of evaluated instruments or procedures
Since the project focuses on the regional level, the relevant instruments are the cantonal structure plan and the regional [kantonaler und regionaler Richtplan] structure plan.
2.1.12.1.12.1.1 Cantonal structure plan [[[k[kkkantonalerantonaler Richtplan]
The cantonal structure plan [kantonaler Richtplan] is the government's manage ment instrument for spatial development. The cantonal master plan sets the guidlines for the spatial development of the Canton Graubünden. It defines the actions for the realization of the intended spatial organization.
Due to the diversity of the tasks and their distribution across the various planning authorities, the cantonal structure plan [kantonaler Richtplan] is more a concep tual plan. Where feasible on the basis of the superior legislation, the cantonal structure plan [kantonaler Richtplan] is substantiated by the regional structure plan [regionaler Richtplan] and the land use plan [Nutzungsplan] on the ap propriate levels.
2.1.22.1.22.1.2 Regional structure plan [[[regionaler[regionaler Richtplan]Richtplan]Richtplan]
Graubünden consists of 13 regions. These are responsible for the regional struc ture plan [regionaler Richtplan].
Structure planning on the regional level is an integral part of the spatial planning policy of Graubünden. The high importance of regional structure planning re flects the cultural diversity and the size of the canton as well as the various cha racteristics of the valleys.
By their structure plans the regions set important cornerstones for the cantonal structure plan [kantonaler Richtplan]. The regional structure plans [regionale Richtpläne] are approved by the government and they are binding for the canto nal authorities. However, they are not binding for the federal authorities because the law lacks a provision that federal authorities may comment on regional struc ture plans [regionale Richtpläne]. However, for various permits, licenses and plan approvals respective entries in the regional structure plans are legally mandatory. The regional structure plans [regionale Richtpläne] cover the following topics:
• skiing areas and touristic transport facilities; • land protection areas; • extraction of material and landfills; • further topics such as locations of industry and business of regional impor tance, sports facilities, golf courses, major campgrounds, nature preserves and game reserves during winter as well as smaller roads and shooting ranges. 7
Figure 6: The 13 Regions of Graubünden
2.22.2 AssessmAssessmentent ofof evaluated instruments or procedures
With the existing instruments it would be possible to face the challenges of cli mate change. However, during the project it became clear that there are consid erable gaps between the availability of basic data on one hand, and the coordina tion between the administrative levels (municipalities, canton) and the sectors of water use on the other hand. Therefore, it is suggested to introduce a water man agement plan to face the threat of water allocation disputes.
The cantonal structure plan [kantonaler Richtplan] and regional structure plan [regionaler Richtplan] give the general possibility to face challenges of climate change in the water sector; climate change is a general topic in the cantonal structure plan [kantonaler Richtplan]. But major shortcomings exist concerning
• the availability of basic data on water demand and water consumption • the coordination between the administrative levels (municipalities, canton) and the sectors of water use because responsibilities are distributed hetero geneously among different authorities and levels • cantonal spatial planning is not able to implement long term structure plan ning tackling future water shortages as water sovereignty is with the mu nicipalities
8
Enhancement option:
• water management issues should be monitored and coordinated cross sectorally on cantonal level. introduce a water management plan to face the threat of water allocation dispu tes. The cantonal structure plan [kantonaler Richtplan] of Graubünden will be re vised in the coming years. The studies conducted in CLISP will serve as basis for this revision. The revision could include an obligation to implement a water management plan on cantonal level and define the responsibilities, the delimita tions of the catchment and the planning procedure.
2.2.12.2.12.2.1 Approaches /// sssolutionssolutionsolutionsolutions
Politics are aware of the challenges of climate change as well. A respective sen tence is part of the mission statement of the government of Graubünden. Climate change is a (general) topic in the cantonal structure plan [kantonaler Richtplan] as well.
2.2.22.2.22.2.2 Support for climate change ffitnessitnessitnessitness
Besides general statements regarding the awareness of the climate change chal lenge, this has not led to direct recommendations so far.
2.2.32.2.32.2.3 Reducing vulnerability to climate change
Since in Graubünden water sovereignty is with the municipalities and the canton has no coordination role in the supply of drinking water, long term structure planning is not able to adequately respond to future water shortage threats.
2.2.42.2.42.2.4 Strenghts and potentipotentialsalsalsals of the instrument
Since the structure plan [Richtplan] is able to coordinate sector related planning, the instrumental prerequisites for a coordination task in the area of water supply exist.
Also the participation of the population in the procedures of the cantonal an re gional structure plan [kantonaler und regionaler Richtplan] is ensured.
2.2.52.2.52.2.5 Weaknesses anandddd constraints of the instrument
Given the responsibilities which are distributed heterogeneously among different authorities and levels, an entire coordination can hardly be achieved. In addition, the availability of basic data is poor since there is an almost complete lack of in formation regarding water consumption. In this situation it is difficult to formu late and implement overall and well coordinated directives and measures .
9
2.2.62.2.62.2.6 Enhancement options
To enhance the situation, it is recommended that in a first step basic data regard ing water supply are analysed, including changes in water consumption patterns.
In a second step the coordination responsibilities in the area of water supply should be improved. Here, the canton might play a more important and consid erably stronger role than today. Such an improvement is required, particularly to face the challenges of upcoming water allocation disputes.
333 ConclusionConclusion and summary
3.1 ClimClimateate change fitness
Even under the influence of the climate change, Graubünden as a water reservoir will have enough water. However, due to temperature increase and changed pre cipitation structure water supply shortages and disputes may arise in certain geographic areas.
Problems may be expected in the following domains:
• drinking water supply (e.g. due to a decrease of spring discharges and changing ground water levels), • water supply for the irrigation of cultivated land (particularly in the arid ar eas Ilanz Churer Rheintal, Domleschg Heinzenberg, Albulatal Surses, En gadin, Poschiavo and Münstertal), • water supply for the generation of artificial snow for skiing, • changed management of water reservoirs, • competing interests between energy use and residual water regulations regarding the withdrawal of water from streams and rivers as well as regu lation related to nature and cultural heritage, ecological aspects and fishing. Though a legal framework regarding the drinking water supply exists only par tially, public interest secures a working drinking water supply.
Main climate change related challenges in the water sector (securing water sup ply for drinking water, irrigation, artificial snow production, energy production) cannot be tackled by spatial planning instruments. The structure plan [Richtplan] serves as a prerequisite to coordinate sector related planning of water supply.
Knowledge gaps exist in the following areas:
• Insufficient or missing overview of water supply of municipalities (en hancement of the water supply atlas with data regarding spring discharges, reservoir contents, overflow water, ground water withdrawals, etc.). • Insufficient knowledge of climate change impacts on discharge conditions of rivers and streams, ground water (levels, quality, temperature) and spring discharges (quantity and quality) due to glacier retreat, changes of
10
the snow cover and changes of the precipitation structure for the different climate regions in Graubünden. • Insufficient information of residents, municipalities, companies and farmers regarding saving and effective use of water. Climate change related challenges are not mentioned in the mission statement of the government of Graubünden. Nevertheless, politics are aware of challenges of climate change.
3.23.2 EnhancemEnhancementent oooptionsoptionsptionsptions
In certain geographic areas the development of a water management plan will be necessary and appropriate. Such a plan secures:
• the availability of sufficient basic data with respect to discharge conditions of rivers and stream, ground water conditions, already used rivers, streams, springs and ground water (monitoring). In order to secure such monitoring and since the sovereignty for waters is with the municipalities, the perform ance mandate of the Office for Nature and Environment has to be modified in the area of drinking water supply.
• the availability of an integrated concept for a larger area as a basis for de cision making. Today, the focus is on the evaluation and handling of individu al projects. The opinions of what such a “larger area” should contain were quite different among the interviewed subjects. The answers range from “the whole canton Graubünden”, “river basins”, “regions” to “supra municipal ar eas”. The question of how large such an area should be depends on different factors: benefit considerations (large demand for irrigation of cultivated land and/or artificial snow for skiing, planned small hydroelectric power plants), withdrawal places and volumes and affected rivers, streams and drinking wa ter facilities. In the case of water use, the perimeter will be local because nor mally only a few companies and municipalities will be affected. In the case of water supply, whole river basins tend to be the appropriate perimeter.
• an improved coordination between the cantonal authorities which are re sponsible for permissions. During the approval procedure, the responsible cantonal authority mainly checks a project for conformity with those regula tions which are relevant for the specific responsibility domain of the authority e.g. a small hydroelectric power plant is assessed with respect to economy, energy and ecology while possible consequences for irrigation, artificial snow or water supply are normally not discussed.
• making available and analyzing existing basic data regarding water supply, including changes in water consumption patterns.
• Developing a water management plan as integrated concept for larger areas, perimeter not clear yet
• Improve inter sectoral coordination responsibilities of cantonal spatial plan ning in the field of water supply by defining the role of coordination (e.g. Can ton).
11
3.33.33.3 Lessons llearnedearned
Lessons learned from the in depth evaluation of the selected planning instru ments and procedures are:
• The available instruments and procedures are sufficient to respond to the ex pected climate changes.
• Raising of consciousness in the various sectors of spatial planning regarding shortages of water resources will become more important.
• The enhancement options will be a basis for the upcoming revision of the can tonale structure plan [kantonaler Richtplan] of Grisons.
3.4 Conclusions from the spatial planning perspective
Prior to a revision of the structure plan [kantonaler Richtplan] of Graubünden, basic work regarding water use needs to be done. Only after these fundamentals will be available, the structure plan will be able to define the need for action in the individual regions. If required, the regions shall be requested to work out a water management plan.
The available data do not allow to define these instructions.
With the structure plan of Graubünden, an adequate instrument for responding to the challenges of climate change exists today. It would, for example, allow to in stall a water management plan in the regions. But the basics are missing.
12
444 References
• Anpassungsfähigkeit des Planungssystems an die Auswirkungen des Kli mawandels am Beispiel der Wassernutzung in Graubünden; Bericht • Der Kantonale Richtplan, Kanton Graubünden, Stand: 31. Dezember 2009, www.richtplan.gr.ch • Kipfer Rolf, Livingstone David M.: Wasserressourcen und Klimawandel, For schungsberichte, EAWAG News 65d, September 2008 • Baumgartner Hansjakob: Natürliche Ressourcen in der Schweiz, Umwelt 02/09; Unsere Energiezukunft, Schweizerische Eidgenossenschaft, Bunde samt für Umwelt BAFU, Wasserkraft; Viel mehr liegt nicht drin, Seite 20 ff • Wasserverbrauch im Haushalt; Studie des SVGW in Zusammenarbeit mit dem BUWAL, Information Nr. TWI 5, 2001 • Der Trinkwasserkonsum in der Schweiz sinkt weiter, SVGW, Information Nr. TWI 9, 2002 • Amt für Natur und Umwelt, Umwelt Info 2/07; Chur • Kozel Ronald, Schürch Marc, Erwartete Auswirkungen der Klimaänderung auf das Grundwasser in der Schweiz, BAFU, Bern, 2010 • ALK, Albula Landwasser Kraftwerke AG, Geschäftsbericht 2007/2008, Filisur, 2008 • ALK, Albula Landwasser Kraftwerke AG, Infobroschüre, Filisur • Amt für Wasser und Abfall des Kantons Bern, Wassernutzungsstrategie 2010, Bern, 2010 • Bundesamt für Energie, Methodik zur Bewertung und Klassierung der Nutzungseignung von Fliessgewässerstrecken; Grundlagen für die räum liche Prioritätensetzung bei der Wasserkraftnutzung und dem Schutz von Gewässern, Schlussbericht, Bern, 2. Oktober 2009 • Berücksichtigung der Schutz und Nutzungsinteressen bei der Wasserkraft nutzung, Beilagen zum Bericht "Methodik zur Bewertung und Klassierung der Nutzungseignung von Fliessgewässerstrecken", 7. Oktober 2009
Chur, 30. September 2010, 25. März 2011 / Ca
13
STABSSTELLE LANDESPLANUNG FÜRSTENTUM LIECHTENSTEIN
CLISP Modellregion Fürstentum Liechtenstein Stabsstelle Landesplanung
AdAdaptivityaptivityAdaptivity of the Spatial Planning System exemplified by the Water Use in the Principality of Liechtenstein ––– Evaluation Report
Executive Summary
Chur, 26. November 2010, 25. March 2011
ImImprintImprprintintint
CustomerCustomerCustomer
Stabsstelle Landesplanung Principality of Liechtenstein Städtle 38 FL-9490 Vaduz
Contact person dipl. ing. (BOKU) Catarina Proidl Phone +423 236 64 72 e-Mail [email protected]
ProjectProjectProject
Esther Casanova Raumplanung Hartmann & Sauter Jochstrasse 27 Quaderstrasse 7, Postfach CH-7000 Chur CH-7002 Chur
Contact person Esther Casanova Joseph Sauter Phone +41 81 353 72 62 +41 81 253 73 13 e-Mail [email protected] Web www.casanova-plan.ch
TABLE OF CONTENTS
1 Introduction ...... 1 1.1 Description of Model Region ...... 1 1.1.1 Current climate situation ...... 1 1.1.2 Climate change ...... 1 1.2 Methods and evaluation criteria ...... 3 1.2.1 Evaluation criteria ...... 3 1.2.2 Approach ...... 3
2 Evaluation of selected instruments or procedures...... 6 2.1 Description of evaluated instruments or procedures ...... 6 2.2 Assessment of evaluated instruments or procedures ...... 6 2.2.1 Approaches / solutions ...... 8 2.2.2 Support for climate change fitness ...... 8 2.2.3 Reducing vulnerability to climate change ...... 8 2.2.4 Strenghts and potentials of the instrument ...... 8 2.2.5 Weaknesses and constraints of the instrument ...... 8 2.2.6 Enhancement options ...... 8
3 Conclusion and summary ...... 9 3.1 Climate change fitness ...... 9 3.2 Results in detail ...... 9 3.3 Enhancement options ...... 10 3.4 Lessons learned ...... 11 3.4.1 Conclusions from the Spatial Planning perspective ...... 11
4 References ...... 12
LIST OF ILLUSTRATIONS
Figure 1: Temperature [ Liechtenstein‘s Fifth National Communication under the UNFCCC and the Kyoto Protocol January 2010, page 116 ] ...... 2 Figure 2: Precipitations [ Liechtenstein‘s Fifth National Communication under the UNFCCC and the Kyoto Protocol January 2010, page 116 ] ...... 2 Figure 3: Methodology Water Use and Climate Change ...... 5 Figure 4: structure plan [Landesrichtplan] with planned ground water protection areas ...... 7
111 IIIntroductionIntroduction
1.1 DescriDescriptionption of MMModelModel RRRegionRegion
1.1.11.1.11.1.1 CurrentCurrentCurrent climate situation
The chosen model region is the Principality of Liechtenstein.
The Principality of Liechtenstein is located between 47°02’ and 47°16’ north and 9°28’ to 9°38’ east. It is situated in the heart of Europe between Austria and Swit- zerland and covers an area of 160 km2. The lowest point is the Ruggeller Riet (430 m) and the highest mountain is the Grauspitz (2599 m).
Liechtenstein has 36'000 inhabitants (end of 2008) and 11 municipalities.
The relevant economic sectors are finance/banking; mechanics (Hilti, Oerlikon, Presta), healthproducts (ivoclar, vivadent) and foodproduction (Hilcona, Malbun- er).
The vertical segmentation of the country into the Rhine Valley and the mountain- ous part rising from the valley is significant. The mean precipitation amount is 900 mm (in the valley areas) and 1’900 mm (in the alpine areas), respectively. During winter temperatures seldom drop below minus 15°C, while the average temperatures in the summer oscillate between 20°C and 28°C.
The mean annual temperature of Liechtenstein is 10.4°C (1996 - 2006). The mean annual temperature has increased from 1980 to 2007 by 1.3°C. From the begin- ning of systematic recording the annual precipitation has increased by 4%. Pe- riods of intensive rainfall lasting 1 to 5 days during autumn and winter are also more frequent than 25 years ago.
Despite the mountainous location of the country it has a mild climate which is heavily influenced by the south wind Föhn. Wine and corn thrive primarily be- cause of the moderating influence of this warm south wind. It lengthens the ve- getation period in spring and fall, but sometimes it also dries out the soil and damages the cultivation of fruit.
Source: Statistisches Jahrbuch Liechtensteins 2010
1.1.21.1.21.1.2 Climate change
Mean temperature projections for the years 2030, 2050 and 2070 have been calcu- lated for the northern side of the Alps (Frei 2004). The results for winter and summer are graphically shown below, together with observed temperature ano- malies from 1864 to 2008. Winter data refer to December to February, summer data refer to June to August. Positive anomalies (warmer than the average) are shown in red, negative ones (colder than the average) in blue. The red line represents the projected trend of the mean temperature and the grey areas indi-
1
cate the uncertainty in the projection (5-95% confidence intervals). The black line denotes the linear trend from 1901-1990.
According to mean estimates (median value) temperatures will increase in Liech- tenstein and northern Switzerland by 1.8°C in winter and 2.7°C in summer. For the transitional seasons, warming is expected to be similar to the trend projection for winter (spring: +1.8°C; autumn: +2.1°C).
Figure 1: Temperature [ Liechtenstein‘s Fifth National Communication under the UNFCCC and the Kyoto Protocol January 2010, page 116 ]
Projections of the mean precipitation amount for the years 2030, 2050 and 2070 have been calculated for the northern side of the Alps (Frei 2004). The results for winter and summer are graphically shown below together with the observed pre- cipitation anomalies from 1864 to 2008. Winter data refer to December to Febru- ary, summer data refer to June to August. Positive anomalies (wetter than the average) are shown in green, negative ones (dryer than the average) in orange. The red line represents the projected trend of the mean precipitation amount and the grey areas indicate the uncertainty in the projection (5-95% confidence inter- vals). The black line shows the linear trend from 1901-1990.
Figure 2: Precipitations [ Liechtenstein‘s Fifth National Communication under the UNFCCC and the Kyoto Protocol January 2010, page 116 ]
2
The project Water Use1 is based on the following climate scenario:
• Average winter temperatures up to +1.8°C • Average summer temperatures up to +2.7°C, with exceptionally hot summers (like 2003) every few years • Increase of precipitations up to +10% in winter • Decrease of precipitations up to -20% in summer • During spring and autumn precipitations may increase or decrease • Increase of temperature extremes • Higher frequency of drought periods, particularly in the intra-alpine arid val- leys • Increased number of days with heavy precipitations • Risen freezing level by about 150 – 200 m per each decade, i.e. 300 – 600 m higher than today -> more precipitations as rain during winter -> reduced snow cover -> faster water discharge in spring • Retreat of glaciers (i.e. decrease of 50 - 90% of the glacier surface area, de- pending on temperature and precipitation scenario).
Since climate predictions are subject to uncertainty, climate factors may change differently depending on location and altitude.
1.2 Methods and eeevaluationevaluation cccriteriacriteriariteriariteria
1.2.11.2.11.2.1 EEEvaluationEvaluationvaluationvaluation criteria
The main evaluation criterion is the effectiveness of the structure plan [Landes- richtplan] and land use plans [Nutzungspläne] to deal with the protection of the ground water areas considering enlarging settlements.
1.2.21.2.21.2.2 ApproachApproachApproach
The identified main sectors of water use are: households (drinking water), agri- culture (irrigation), energy production (hydroelectricity), and tourism (generation of artificial snow).
Existing basic information related to Liechtenstein was reviewed and four inter- views were conducted with representatives of the public administration and companies which represent the four main sectors of water use:
− Office for Agriculture − Office for Environment Protection
1 Anpassungsfähigkeit des Planungssystems an die Auswirkungen des Klimawandels am Beispiel der Wassernutzung im Fürstentum Liechtenstein, Bericht, Chur, November 2010 3
− Gruppenwasserversorgung Liechtensteiner Oberland (GWO) (water supply) − Wasserversorgung Liechtensteiner Unterland (WLU) (water supply)
The interviews were conducted with a structured questionnaire in the form of a spontaneous interview with the following questions:
− Which impact do you expect on your domain (summer, winter)? − Which are the consequences for your domain? − Which measures did you already implement or do you intend to implement? − By what means do you intend to implement those measures, and who is re- sponsible? − Which basis for decision-making do you need (existing information, gaps) und in what time frame will it be provided? − Do existing regulations have to be changed? − Do existing instruments have to be modified, or do we need new instru- ments? − What do think about a water management plan (spatial reference, content, responsibility)?
4
MethodMethodMethodologyMethodologyologyology
Based on the system boundaries and the project target the following methodol- ogy has been developed:
Water supply Water use & demand Climate change Discharge conditions Temperature Regulations Today Precipitation Today Evaporation
Scenarios Principality of Liechtenstein Climate regions & zones Chains of action
Iterativeprocess Water supply Impact on supply Water use & demand Discharge conditions Impact on use & Future Future demand
Water balance Shortages / bottlenecks Conflicts Impact on water use
Water management
Recommendations for action
Implementation Spatial planning
Figure 3: Methodology Water Use and Climate Change
5
222 Evaluation of selected iiinstrumentsinstruments or ppproceduresproceduresroceduresrocedures
2.1 DescriDescriptionption of evaluated instruments or procedures
Since the project focuses on the country level, the relevant instrument is the structure plan [Landesrichtplan] Principality of Liechtenstein.
The structure plan [Landesrichtplan] targets a positive and future-proof develop- ment of the living and business space Liechtenstein. In order to fulfill this task, all activities with a spatial impact have to be coordinated.
Land use plans [Nutzungspläne] focus on the municipality level and implement the goals of the structure plan [Landesrichtplan].
2.2.22 AssessmAssessmentent of evaluated instruments or procedures
With the existing basic data and spatial planning instruments it is possible to re- spond to the challenges of climate change. In particular, the available high quality basic data allow the identification and assessment of conflicts.
The structure plan [Landesrichtplan] clearly identifies the main goals of water supply and ground water protection as the following:
− Ensure high quality drinking water for everybody − Protection of the existing and planned ground water wells − Ensure water supply emergencies
Mesures were implemented as
− Identify locations of pumping stations and reservoirs − Identify and purify conflicts between water protection areas and building areas or traffic facilities − Raise ground water level
These measures are indicated in the structure plan (see example on the next page). As one important mesure, ground water protection areas were indicated provisional. Municipalities whit support of the office of protection of the envi- ronment [AUS] were held to fix binding ground water zones in their land use plans.
This last step seems to be hard, because the municipalities hesitate whit this pro- cedure. So, ground water protection in areas with planned ground water areas is still missing on the land owner level.
6
Figure 4: structure plan [Landesrichtplan] with planned ground water protection areas
To ensure ground water protection on land owner level in regions with conflicts (as shown in the map above) the country should have discretionary power on the land use plans in order to fix ground water zones. But this suggestion interferes in the autonomy of the municipalities.
Probably, a water management plan could help to fill the gap between structure plan and land use plans and help to ensure the implementation of the structure plan. A water management plan should be a piece of the structure plan and be binding for the municipalities as well.
7
2.2.12.2.12.2.1 Approaches /// sssolutionssolutionsolutionsolutions
In 2001, 2005 und 2010 Liechtenstein has published a climate report, the most recent one is Liechtenstein‘s Fifth National Communication under the UNFCCC and the Kyoto Protocol January 2010.
2.2.22.2.22.2.2 Support for climate change ffitnessitnessitnessitness
Besides general statements regarding the awareness of the climate change chal- lenge, this has not led to direct recommendations related to spatial planning so far.
2.2.32.2.32.2.3 Reducing vulnerability to climate change
There is a large potential for conflicts between existing and future ground water protection zones on the one hand and the extension of settlements on the other hand. The highest pressure for additional land-consuming use exists in well de- veloped areas with available land. In many cases ground water protection zones exist in such areas. With the climate change and the expected increase of water demand, ground water protection will be of high importance.
2.2.42.2.42.2.4 Strenghts and potentipotentialsals of the instrument
Because the structure plan is able to coordinate sector related planning, the in- strumental prerequisites for a coordination task in the area of water supply exist.
2.2.52.2.52.2.5 Weaknesses anandddd constraints of the instrument
The structure plan is a binding instrument for the authorities but it is not binding for the land owners. During the implementation of the structure plan at the level of the municipalities, weighing up of the competing interests may favour settle- ment development rather than ground water protection.
2.2.62.2.62.2.6 Enhancement options
The future ground water protection can be realized by designating ground water protection zones. In order to reach this goal, it will be necessary to forego the development and use of construction zones (and their reserves) in certain actual or future ground water protection areas.
8
333 Conclusion and summary
3.1 ClimClimateate change fitness
Even under the influence of climate change, Liechtenstein will have enough wa- ter. However, due to temperature increase and changed precipitation structure water supply shortages and disputes may arise in certain areas.
In general, it is very important to implement the ground water areas of the struc- ture plan. For the land use plans, this will be ground water zones for existing and planned ground water wells. Only by implementing in the land use plans, ground water zones will become liability.
3.3.22 ResultResultss in detail
Problems may be expected in the following domains:
HouseholdsHouseholds
According to the structure plan of Liechtenstein, the building zones for residential and commercial use offer a capacity for 100’000 inhabitants. Currently, 75% of the building zones (including reserves) are fully developed.
In situations of water supply bottlenecks from spring discharges more ground water is used, thus increasing both the energy demand and the dependency on ground water. A contamination of ground water in the drainage area Bündner Rheintal would have severe consequences. The definition of ground water pro- tection areas is therefore of utmost importance for securing the long term drink- ing water supply. Furthermore, the extension of existing and the development of new ground water wells are of high importance in the long term horizon. Rele- vant areas need to be designated and protected as soon as possible with the planning law instruments. Immediate action is recommended in cases where building zones (or their reserves) overlap with ground water protection areas. In such cases priority should be given to the protection of ground water. The zone plans of the municipalities should define and adequately protect ground water areas. Conflicts may be expected in connection with existing building zones or the designation of their reserves (e.g. bottleneck Vaduz / Triesen).
The water source areas are already captured and used today. An extension is not possible. Therefore, measures should focus on a further reduction of water losses and on a continuous maintenance of the piping system.
Agriculture
Fewer precipitations in summer in connection with an increased number of hot days will lead to an increased demand for agricultural irrigation. In order to esti- mate such a demand, the risk for harvest losses for cropland and grassland caused by dryness as well as the temporal trend for drought periods have to be estimated based on the relative evapotranspiration of the soil.
9
The impacted soil’s ability for irrigation has to be checked as well, including the water storage capacity of the soil, the slope of the territory and the availability of water for irrigation. The local availability of water at the required quantities and potential conflicts with other domains of water use have to be checked in detail. Once such basic data will be available, irrigation measures will have to be eva- luated from the economical perspective as well.
Furthermore the introduction of a simple approval procedure for the withdrawal of water for agricultural use should be evaluated.
TourismTourismTourism
Due to climate change snow at the winter sports area Malbun (1600 m – 2000 m) will be less guaranteed in the future. Even snowless winters have to be taken into account. Because of the increased temperatures the existing infrastructure for snow-making will become useless.
In parallel, summer tourism has to be promoted and developed. The combination of hiking and mountain-biking in the mountain area with attractive activities in the valley such as culture, art, event and sports offers good opportunities in the market.
EnergEnergEnergyEnergy Production
Due to climate change the national energy production will decrease by 7% - 10% according to different sources. In the same time the energy demand will increase. The share of national energy production of 18% today will therefore further de- crease in the future.
3.33.3 EnEnEnhancementEnhahancementncement oooptionsoptionsptionsptions
The following enhancement options are necessary and appropriate:
• Implement the structure plan on the land use plan level, which will not be possible without political enforcement.
• The protection of ground water zones by spatial planning measures [land use plans] for existing and planned ground water wells. Conflicts have to be ex- pected in well developed areas near highway exits. These areas are attractive for the establishment of land-consuming industries like logistics companies. This applies in particular to the bottleneck Vaduz / Triesen.
• The identification and protection of areas for the extension of ground water wells.
• The quality assurance of existing spring water and ground water wells, in par- ticular the reduction of water loss.
• A continued development of the legal framework regarding thermic ground water use.
10
• The continuation of the existing coordination with GWO and WLU regarding ground water supply. This allows for a holistic view und helps to avoid bottle- necks.
• The identification of irrigation needs.
• The evaluation of the irrigation capability of impacted soils.
• The introduction and enforcement of an approval obligation for the withdrawal of water for agricultural irrigation in a simple and feasible way.
3.4 Lessons llearnedearned
• The spatial planning instrument structure plan on the country level adresses the main instructions concerning water use.
• The land use plan on the municipality level knows adequate measures for the implementation. Due to the democratic process during the elaboration of the land use plan, a complete implementation is not ensured. More competences for the country and political enforcement would be needed.
• With the water act and the water protection regulations the instruments to im- plement an approval procedure for agricultural irrigation exist. A change of practice is required.
• The spatial planning instruments for a new long term positioning of the winter sports area Malbun (1600 m -2000 m) exist.
3.4.13.4.13.4.1 Conclusions from the Spatial Planning perspective
High quality basic data of water use in the Principality of Liechtenstein are availa- ble today.
With the structure plan an adequate instrument exists today to respond to the challenges of climate change. However, in order to use its full potential, it has to be implemented in the zone plans on the municipality level. Conflicts between use (construction zones) and protection (ground water protection zones) have to be expected. In order to be prepared for an increased future water demand, the weighing up of interests has to be done with care.
11
444 References
− Anpassungsfähigkeit des Planungssystems an die Auswirkungen des Klima- wandels am Beispiel der Wassernutzung im Fürstentum Liechtenstein, Be- richt, Chur, November 2010 [Project Water use] − Amt für Natur und Umwelt, Umwelt Info 2/07; Chur − Amt für Wasser und Abfall des Kantons Bern, Wassernutzungsstrategie 2010, Bern, 2010 − Baumgartner Hansjakob: Natürliche Ressourcen in der Schweiz, Umwelt 02/09; Unsere Energiezukunft, Schweizerische Eidgenossenschaft, Bundesamt für Umwelt BAFU, Wasserkraft; Viel mehr liegt nicht drin, Seite 20 ff − Berücksichtigung der Schutz- und Nutzungsinteressen bei der Wasserkraftnut- zung, Beilagen zum Bericht "Methodik zur Bewertung und Klassierung der Nutzungseignung von Fliessgewässerstrecken", 7. Oktober 2009 − Bundesamt für Energie, Methodik zur Bewertung und Klassierung der Nut- zungseignung von Fliessgewässerstrecken; Grundlagen für die räumliche Pri- oritätensetzung bei der Wasserkraftnutzung und dem Schutz von Gewässern, Schlussbericht, Bern, 2. Oktober 2009 − Der Trinkwasserkonsum in der Schweiz sinkt weiter, SVGW, Information Nr. TWI 9, 2002 − Energiestatistik 2009, Amt für Statistik Fürstentum Liechtenstein, Vaduz − Entwicklungskonzept Alpenrhein, Internationale Regierungskommission Al- penrhein (IRKA), Dezember 2005, http://www.alpenrhein.net/ − Frei Christoph: Die Klimazukunft der Schweiz, Eine probabilistische Projektion. OcCC, Bern, 2004 (www.occc.ch/Products/CH2050/CH2050-Scenarien.pdf ) − Hydrologisches Jahrbuch der Schweiz, Bundesamt für Umwelt, 2008 − Institut für Schnee- und Lawinenforschung SLF, Vorläufige Ergebnisse der Klimaszenarien CLISP für Graubünden, Davos, November 2010 − Interreg IIIA Erholung und Freizeit im Alpenrheintal - Ein Projekt zur grenz- überschreitenden Zusammenarbeit auf dem Gebiete der Raumplanung (2006) − Jahresbericht 2009 Gruppenwasserversorgung Liechtensteiner Oberland (GWO) − Jahresbericht 2009 Wasserversorgung Liechtensteiner Unterland (WLU) − Kipfer Rolf, Livingstone David M.: Wasserressourcen und Klimawandel, For- schungsberichte, EAWAG News 65d, September 2008 − Kozel Ronald, Schürch Marc, Erwartete Auswirkungen der Klimaänderung auf das Grundwasser in der Schweiz, BAFU, Bern, 2010 − Landesrichtplan Fürstentum Liechtenstein, Stand Oktober 2007 − Landwirtschaftsstatistik 2009, Amt für Statistik Fürstentum Liechtenstein, Va- duz − MeteoSchweiz, 2009, Klimabericht Kanton Graubünden, Arbeitsberichte der MeteoSchweiz, 228
12
− Nationaler Klimabericht Liechtenstein 2010, http://www.llv.li/pdf-llv-aus_bericht_klima_2010e.pdf (Liechtenstein‘s Fifth National Communication under the UNFCCC and the Kyoto Protocol, January 2010) − Stabsstelle für Kommunikation und Öffentlichkeitsarbeit, Postfach 684, 9490 Vaduz (www.liechtenstein.li) − Statistisches Jahrbuch Liechtensteins 2010, Amt für Statistik Fürstentum Liechtenstein, Vaduz − Überblick über die Anpassungsstrategie „Wasser“, Bruno Schädler, Oeschger Centre for Climate Change Research, Gruppe für Hydrologie, Geographisches Institut, Universität Bern; Symposium Klimawandel: Die Anpassungsstrategie der Schweiz, 26. November 2010, Bern http://proclimweb.scnat.ch/portal/ressources/1525.pdf − Wasserverbrauch im Haushalt; Studie des SVGW in Zusammenarbeit mit dem BUWAL, Information Nr. TWI 5, 2001 − Wasserwirtschaftsstrategie des Landes Vorarlberg, Herausgeber: Amt der Vorarlberger Landesregierung, Bregenz, November 2010 http://www.vorarlberg.at/pdf/dokumentwasserwirtschafts.pdf
Chur, 26. November 2010 / 22. März 2011 Ca
13
European Territorial Cooperation 2007‐2013, Alpine Space Programme CLISP – Climate Change Adaptation by Spatial Planning in the Alpine Space
WP5 Spatial Planning Fitness
Action 5.3: In‐depth evaluation of spatial planning instruments and procedures in Steiermark
Climate change fitness test for spatial planning instruments of Styria
T ERRA C ONSULT AGL
Commissioned by: Office of the Government of Styria, Dept. 16
Project team: Erich Dallhammer (ÖIR) Barbara Bory (ÖIR) Heidi Collon (ÖIR) Raffael Koscher (ÖIR) Ulrike Pröbstl (AGL) Alexandra Jiricka (AGL) Cornelia Krajasits (ÖIR‐Projekthaus) Iris Wach (ÖIR‐Projekthaus) Helmut Hiess (Rosinak & Partner) Gabriele Hinterberger (Terra Consult) Arthur Kanonier (TU Wien)
Österreichisches Institut für Raumplanung (ÖIR) | 1010 Wien, Franz Josef Kai 27
Arbeitsgruppe für Landnutzungsplanung | D‐82398 Polling, St.‐Andrä‐Straße 8a
ÖIR‐Projekthaus | 1140 Wien, Nisselgasse 1/5
Rosinak & Partner Ziviltechniker GmbH | 1050 Wien, Schloßgasse 11
Terra Consult Regionalberatung | 1010 Wien, Franz‐Josefs‐Kai 27
Vienna/Polling, November 2010 | ANr. 700265
„Climate change fitness of spatial planning instruments of Styria“
Contents
A. Executive summary 7
1. Introduction 7 1.1 Description of Model Region 7 1.1.1 Demography 7 1.1.2 Economy and labour market 8 1.1.3 Impacts of climate change 9 1.2 Methods and evaluation criteria 9 1.2.1 Thematic focus 9 1.2.2 Analysis of planning goals 9 1.2.3 Spatial focus 10 1.2.4 Chosen criteria 11 1.2.5 Method: SWOT‐Analysis 11
2. Evaluation of selected instruments or procedures 12 2.1 The spatial planning system in Styria and under the light of climate change 12 2.1.1 The linkages between the spatial planning instruments in Styria 12 2.1.2 Planning goals with relevance for climate change 13 2.2 Description of evaluated instruments and procedures 14 2.2.1 Landesentwicklungsprogramm Steiermark 2009 (Development program for Styria 2009) 14 2.2.2 Programm zur hochwassersicheren Entwicklung der Siedlungsräume (Program for a flood protected development of settlements) 14 2.2.3 Regionales Entwicklungsprogramm inkl. SUP (regional development program incl. SEA) 15 2.2.4 Regionales Entwicklungsleitbild Bezirk Liezen (regional development guidance for the district of Liezen) 15 2.2.5 Örtliches Entwicklungskonzept (ÖEK) inkl. SUP (local development concept incl. SEA) 15 2.2.6 Kleinregionales Entwicklungskonzept (sub‐regional development concept) 15 2.3 Assessment of evaluated instruments or procedures 16 2.3.1 Landesentwicklungsprogramm Steiermark 2009 (Development program for Styria 2009) 16 2.3.2 Programm zur hochwassersicheren Entwicklung der Siedlungsräume (Program for a flood protected development of settlements) 16 2.3.3 Regionales Entwicklungsprogramm inkl. SUP (for regional development program incl. SEA) 17 2.3.4 Regionales Entwicklungsleitbild Bezirk Liezen (regional development guidance for the district of Liezen) 18 2.3.5 Örtliches Entwicklungskonzept inkl. SUP (local development concept incl. SEA) 18 2.3.6 Kleinregionales Entwicklungskonzept (sub‐regional development concept) 19
www.clisp.org | [email protected] T ERRA C ONSULT AGL 4
„Climate change fitness of spatial planning instruments of Styria“
3. Conclusion and Summary 20 3.1 Climate change fitness 20 3.1.1 Landesentwicklungsprogramm Steiermark 2009 (Development program for Styria 2009) 20 3.1.2 Programm zur hochwassersicheren Entwicklung der Siedlungsräume (Program for for a flood protected development of settlements) 20 3.1.3 Regionales Entwicklungsprogramm inkl. SUP (regional development program incl. SEA) 20 3.1.4 Regionales Entwicklungsleitbild Bezirk Liezen (regional development guidance for the district of Liezen) 20 3.1.5 Örtliches Entwicklungskonzept inkl. SUP (local development concept incl. SEA) 21 3.1.6 Kleinregionales Entwicklungskonzept (sub‐regional development concept) 21 3.2 Enhancement Options 21 3.2.1 Landesentwicklungsprogramm Steiermark 2009 (Development program for Styria 2009) 21 3.2.2 Programm zur hochwassersicheren Entwicklung der Siedlungsräume (Program for a flood protected development of settlements) 22 3.2.3 Regionales Entwicklungsprogramm inkl. SUP (regional development programs incl. SEA) 22 3.2.4 Regionales Entwicklungsleitbild Bezirk Liezen (regional development guidance for the district of Liezen) 22 3.2.5 Örtliches Entwicklungskonzept inkl. SUP (local development concept incl. SEA) 22 3.2.6 Kleinregionales Entwicklungskonzept (sub‐regional development concept) 23 3.3 Lessons learned 23
1. Einführung 26 1.1 Aufgabenstellung 26 1.2 Das Planungssystem der Raumplanung der Steiermark und Klimawandelaspekte 26 1.2.1 Instrumente der nominellen Raumplanung 27 1.2.2 Instrumente der Regionalentwicklung 28
2. Analyse klimarelevanter Zielsetzungen der Raumplanung 28 2.1 Vorgangsweise 28 2.2 Bewertungsergebnis 29 2.3 Klimarelevante Ziele und Maßnahmen der Raumplanung 32
3. Beurteilung der Instrumente hinsichtlich Klimawandelfitness 33 3.1 Methodische Vorgangsweise 33 3.1.1 Das Konzept der SWOT Analyse 33 3.1.2 Auswahl der untersuchten Instrumente 34 3.2 Ergebnisse der SWOT Analyse für ausgewählte Instrumente 35
www.clisp.org | [email protected] T ERRA C ONSULT AGL 5
„Climate change fitness of spatial planning instruments of Styria“
4. Schlussfolgerungen und Empfehlungen 47 4.1 Landesentwicklungsprogramm (LEP 2009) 47 4.2 Programm zur hochwassersicheren Entwicklung der Siedlungsräume 47 4.3 Regionales Entwicklungsprogramm und SUP im REPRO 48 4.4 ÖEK inkl. SUP im ÖEK 49 4.5 Regionales Entwicklungsleitbild – Beispiel Bezirk Liezen (NUTS3) 50 4.6 Kleinregionales Entwicklungskonzept (KEK) 50 4.7 Empfehlungen zum Monitoring – RaumIS klimawandelfit machen 51 4.8 Weitere raumentwicklungsbeeinflussende Instrumente 51 4.9 Resümee bezüglich der Klimafitness der Planungsinstrumente 52
Figures Figure 1: The three level approach of the evaluation of spatial planning instruments in Styria 10 Figure 2: Criteria concerning the chosen instrumental focus 11 Figure 3: The relationship between climate change and spatial planning instruments in Styria 13 Figure 4: Climate change relevant goals in spatial Planning 14
Abbildungen Abbildung 1: Verhältnis Klimaschutz und Raumplanung in der Steiermark 27 Abbildung 2: Analyse raumplanungs‐ und klimaschutzrelevanter Rechtsgrundlagen und Konzepte der Steiermark hinsichtlich klimawandelrelevanter Zielsetzungen 29 Abbildung 3: Klimawandelrelevante Ziele der Raumplanung 32 Abbildung 4: Vorlage des Beurteilungsrasters der SWOT‐Analyse 33
www.clisp.org | [email protected] T ERRA C ONSULT AGL 6
„Climate change fitness of spatial planning instruments of Styria“
A. Executive summary
1. Introduction
1.1 Description of Model Region
The district of Liezen is situated in the Austrian Alps and is characterized by mountains of 2,000 to 3,000 m altitude. The main settlements and economic activities are concentrated in the Enns Valley and in the Styrian Salzkammergut. The whole region covers an area of about 3,300 km². The Northern Limestone Alps, situated north of the Enns Valley are the predominant topographic feature. The Niedere Tauern mountain range is located to the south of the Enns Valley. In the East, the region is defined by the Ennstaler Alpen. Due to its mountainous characteristics and the high share of forests, mountain pastures and wilderness areas, just about 13% of the area can be used for permanent settlement. The population density is 25 inhabitants per km² of total area, referring to the permanent settlement area it is 189 inhabitants per km².
The district of Liezen consists of 51 municipalities resp. 200 villages including 5 towns. The main settlements of the municipalities are located between 428 and 1.135 meters above sea level.
The district is divided into three very different subregions: The western part is the most important touristic area of Styria, comprising Schladming, host of the skiing world championships 1978 and 2013, the glacier of Dachstein offering summer skiing and the Styrian Salzkammergut with recreational tourism. The central area with the regional capital Liezen and the Palten Valley is characterized by industry. The eastern part, the Lower Enns Valley and the Gesäuse feature mostly rural structures with soft tourism.
In 2009, more than 65% of the total area of the district of Liezen was agricultural and forestry area and 14% was alpine space. About 3,700 hectares were declared as building area.
The region of Liezen is connected to the high‐level road network by the A9 (Pyhrn motorway). In terms of public transport the railway connections Graz to Salzburg and Innsbruck are important national and international traffic links.
On regional level, the railway line Stainach/Irdning to Bad Ischl is very important. Furthermore, there are regional bus connections and alternative mobility offers to meet both the provision of regional public transport and the tourism induced traffic.
1.1.1 Demography
About 81,000 persons – this is equivalent to 6.7% of the total Styrian population – lived in the district of Liezen at the beginning of 2009. The share of foreign population amounts to 6%.
www.clisp.org | [email protected] T ERRA C ONSULT AGL 7
„Climate change fitness of spatial planning instruments of Styria“
In 2009, about 15% of the population was younger than 15 years (Styria: 14%, Austria: 15%), the share of the population aged 65 and above was 20% (Styria: 19%, Austria: 17%). In 2001 the average household size accounted for 2.58 persons (Styria: 2.50, Austria: 2.38).
Between 2002 and 2009 population declined by 1.6%. Thus, the regional demographic trend is contrary to the Styrian and Austrian trend (+1.6%, Austria: +3.6%). Although the municipalities located along the high‐level transport networks show an increase of population, there is a remarkable decrease in population due to emigration especially in the remote areas of the region.
1.1.2 Economy and labour market
In 2007 the GDP per capita (in purchasing power standards – PPS) in the district of Liezen accounted for about 79% of the Austrian average, compared with the EU‐27 average it amounted to about 98%. In consideration of its economic power the region is a mid‐fielder in relation to the other Austrian regions and generated about 6% of the Styrian GDP in 2007.
Between 2001 and 2007 the economic development basically followed the Styrian and the national trend. In this period the GDP (PPS) showed an increase of about 27% (Styria: 28%, Austria: 28%).
In terms of gross value added (GVA) in 2007 the primary sector in the entire region accounted for 6% (Styria: 3%, Austria: 2%), the secondary sector for 32% (Styria: 37%, Austria: 30%) and the tertiary sector accounted for 63% (Styria: 61%, Austria: 68%).
According to Eurostat in 2007 the number of employed persons amounted to about 37,300. Thereof about 10% in the primary sector (Styria: 10%, Austria: 7%), 27% in the secondary sector (Styria: 26%, Austria: 24%) and 63% in the tertiary sector (Styria: 64%, Austria: 70%). 46% of the employed persons are females.
Between 2008 and 2009 the number of employees declined by 1.5%, whereas the decline of the number of the male employees (‐2.4%) was considerably higher than the decline of the number of the female employees (‐ 0.4%).
In 2009, the (living place‐related) activity rate (national calculation, sum of unemployed persons and (self‐ )employed persons as a percentage of the 15‐64‐year‐old male resp. the 15‐59‐year‐old female population according to population register) amounted to 75% (females: 71%, males: 78%) and therewith corresponded approximately to the Styrian average (Styria total: 73%, females: 69%, males: 76%).
The most important labour market centre is the city of Liezen, which is the capital of the district. In the census year 2001, about 16% of all jobs were registered here, followed by the municipalities Schladming, Rottenmann and Bad Aussee each offering 7‐9% of employment.
The job density (number of employed persons per 1,000 inhabitants) amounted to 390 in the district of Liezen and therewith was under the average of Styria (421) and Austria (441).
The concentration of jobs in only a few labour market centres (in 2001 only 12 municipalities accounted for about 70% of employment) leads to heavy commuting within the region. Outside of the labour market centres and touristic centres the rates of outgoing commuters mostly amount to 70% and more.
The level of unemployment is under the Styrian average and corresponds approximately to the Austrian average.
www.clisp.org | [email protected] T ERRA C ONSULT AGL 8
„Climate change fitness of spatial planning instruments of Styria“
The unemployment rate (national calculation) amounted to 7.1% in 2009 (Styria: 7.7%, Austria: 7.2%), the unemployment rate of the females (7.3%) was higher than the those of the males (6.9%). In 2009, about 2,350 persons were registered as unemployed, thereof 47% females. Between 2008 and 2009, the number of unemployed persons increased by 18%, whereas the increase of the number of the unemployed males (+26%) was considerably higher than the increase of the number of the unemployed females (+9%).
In 2008, the gross median income of the employed persons amounted to 1,930 € (employees and workers, apprentices and public servants are not included). This value equates 90% of the Austrian average. The gross median income of the employed males amounted to 2,283 € (90% of the Austrian average), the one of the employed females amounted to 1,518 € (90% of the Austrian average).
1.1.3 Impacts of climate change
As winter tourism is one of the main economic activities and the skiing areas range down to 750 m altitude, the region is vulnerable to higher temperatures, more rainfall and less snowfall in winter. Moreover, the settlement is concentrated in the valleys and often located near rivers, hence the built‐up areas and the existing infrastructure are vulnerable to higher risk of flooding.
1.2 Methods and evaluation criteria
1.2.1 Thematic focus
According to the analysis of the relevance of the different sectors the evaluation in the district of Liezen focuses on the following two thematic issues: (Winter) Tourism and recreation Built‐up areas/land development
1.2.2 Analysis of planning goals
As a first step existing planning goals were analysed according to their relevance for climate change taking into account climate change mitigation as well as climate change adaptation. The goals were assessed according to the following criteria: Relevance according to the impact on climate change — highly relevant – direct link to climate change — indirect link to climate change — not relevant – insignificant link to climate change Effects of the spatial planning instruments on climate change — mitigation — adaptation
Based on the analysis of the planning goals, a list of relevant goals to be reached through the application of the analysed spatial planning instruments was elaborated.
www.clisp.org | [email protected] T ERRA C ONSULT AGL 9
„Climate change fitness of spatial planning instruments of Styria“
1.2.3 Spatial focus
The further analysis aimed at answering the question, how do the planning instruments fit to the climate change relevant goals? Based on this analysis recommendations for improving of the spatial planning instruments were elaborated in order to enhance their “climate change fitness”.
As there exist relevant spatial planning documents in Styria on different regional scales a three level approach has been chosen: Level 1: The state level – Land Steiermark Level 2: The regional level – the district of Liezen (NUTS3) Level 3: The sub‐regional level (Kleinregion) as e.g. Region Schladming, Wirtschaftsregion Steiermark Nord
Figure 1: The three level approach of the evaluation of spatial planning instruments in Styria
According to the different levels the following spatial planning instruments will be analysed: Level 1 – Land Steiermark: — Landesentwicklungsprogramm (Development program for Styria 2009) — Programm zur hochwassersicheren Entwicklung der Siedlungsräume (Program for a flood protected development of settlements) Level 2 – district of Liezen (NUTS3): — Regionales Entwicklungsprogramm inkl. SUP (regional development program incl. SEA) — Regionales Entwicklungsleitbild (NUTS3) Bezirk Liezen (regional development guidance for the district of Liezen) Level 3 – Kleinregion — Kleinregionales Entwicklungskonzept (Ex ante analysis) (sub‐regional development concept) — Örtliches Entwicklungskonzept (ÖEK) inkl. SUP (local development concept incl. SEA)
www.clisp.org | [email protected] T ERRA C ONSULT AGL 10
„Climate change fitness of spatial planning instruments of Styria“
1.2.4 Chosen criteria
The following criteria were chosen to evaluate the climate change fitness of the selected instruments.
Figure 2: Criteria concerning the chosen instrumental focus
Criterion Guiding questions Evaluation standard Relevance of the — For which climate change relevant planning goals is — Qualitative description of impact chains instrument the selected instrument relevant? linking climate change goals with the — What are the concrete mechanisms of the instrument regulation of the existing planning to influence land use in order to meet the climate instruments and its impact on the actual change relevant goals? land use — Expert judgment: High relevant/relevant/not relevant flexibility of the — How flexible is the instrument concerning — Qualitative description instrument amendments? — Does it allow a modification of the of the regulation? Binding — What is the binding character of the instrument or — Qualitative description according to existing character procedure and how relevant is the binding character regulation and planning praxis in respect of the climate change goals? Coherence of the — Are the instrument, its adaptation‐related contents, — Qualitative description according to existing instrument and the planning procedure coherent within the regulation and planning praxis. vertical system of spatial planning? — Is there coherence with sectoral planning? Are there synergies or conflicts with sectoral planning? Political — How is the acceptance of the regulation by the — Qualitative description based on workshop willingness political decision makers? results — What are the consequences for climate change relevant regulations? Stability — How stable are climate change relevant regulations? — Qualitative description based on workshop — Are there ways to “by‐pass” the regulation? results Participation and — How is public participation applied? — Qualitative description based on workshop stakeholder — Are climate change relevant regulations results communication communicated?
1.2.5 Method: SWOT‐Analysis
In order to answer the core evaluation questions a SWOT analysis has been conducted for each of the selected instruments. The SWOT‐analysis followed a common template enabling the assessment of the climate change fitness of the planning instruments. The SWOT analysis was conducted in six steps: 1. A framework for the evaluation of the selected planning instruments was elaborated by the project team with different professional backgrounds as e.g. spatial planning, regional development, landscape planning, geography, planning legislation and economics. 2. The project team experts analysed the regulation frame and the actual content of the selected planning documents (desk research and literature analyses). 3. The draft results of the SWOT analysis for all instruments were discussed in the project team.
www.clisp.org | [email protected] T ERRA C ONSULT AGL 11
„Climate change fitness of spatial planning instruments of Styria“
4. The results of the core team were discussed with the steering group (Level 1 Styria) and further selected regional experts, representing the following stakeholders: — Office of the Government of Styria, Dep. 16 Regional and local development — Climate change agent — Office of the Government of Styria, Dep. 18A Transport — Office of the Government of Styria, Dep. 19A Water management planning and sanitary environmental engineering — Office of the Government of Styria, Dep. 13B Building regulation and local planning — The regional development agency (“Regionalmanagement”) — The district administration (Bezirksbauleitung) 5. Selected results of the planning instruments on regional and local level were presented at a regional stakeholder meeting and discussed with the regional stakeholders. 6. The project team summed up all results and elaborated the evaluation report.
2. Evaluation of selected instruments or procedures
2.1 The spatial planning system in Styria and under the light of climate change
2.1.1 The linkages between the spatial planning instruments in Styria
The environmental and climate protection goals are the framework for the Styrian spatial planning instruments and consequently affect the development of settlements. Thus, goals that are set up on a higher level of the existing planning hierarchy influence the performance of the regional and local instruments.
In Styria there exist two types of planning instruments (see figure below): 1. Spatial planning instruments root directly in the spatial planning legislation. They effect the building application and other application procedures and have a direct impact on the building developments. 2. Regional development instruments influence the building developments indirectly through the coordination of investments and subsidies.
Beside these two groups of instruments there exit various additional subsidies and programs, which influence the development of buildings and consequently climate change which were not assessed in this context.
www.clisp.org | [email protected] T ERRA C ONSULT AGL 12
„Climate change fitness of spatial planning instruments of Styria“
Figure 3: The relationship between climate change and spatial planning instruments in Styria
Climate change and spatial planning in Styria
Reg i o n al Spatial planning development Spatial planning law + goals n Reg i o n a l io s t development n c o Landesentwicklungs- e concept ti t p programm „Flood protection ro development e p xc program“ concept for e te subregions Regional a development scheme lim SEA c & t ÖEK en m SEA n ro vi Lan d Use Plan n e f In vest m en t s, Building scheme o subsidies s al o G Building permits, administrative process
economy Construction activity Tr a f f i c p o l i c y ...
T ERRA C ONSULT AGL
2.1.2 Planning goals with relevance for climate change
In order to get a first overview about the role of climate change in Styria the following framework documents for spatial planning and for climate protection were assessed: Steiermärkisches Raumordnungsgesetz 1974 (Styrian spatial planning law 1974) Landesentwicklungsprogramm Steiermark 2009 (Development program for Styria 2009) Programm zur hochwassersicheren Entwicklung der Siedlungsräume (Program for a flood protected development of settlements) Entwicklungsprogramm zur Versorgungsinfrastruktur – Einkaufszentrenverordnung (Development program for shopping centres) Entwicklungsprogramm für die Reinhaltung der Luft (Development program for air pollution prevention) Gesetz über Einrichtungen zum Schutze der Umwelt (Environmental protection law)
In these six documents 20 goals could be identified as relevant for climate change. Thereof, three goals dealt with climate change adaptation, especially concerning natural hazards. 15 goals focused on mitigation strategies and two covered both aspects, mitigation as well as adaptation. Based on these goals the following goals with relevance for the relation between spatial development and climate change could be formulated (see the following figure).
www.clisp.org | [email protected] T ERRA C ONSULT AGL 13
„Climate change fitness of spatial planning instruments of Styria“
Figure 4: Climate change relevant goals in spatial Planning
Climate change relevant goals in spatial Planning 1. Development of settlements enabling to reduce traffic and to shift non‐reducable traffic to environmentally friendly modes of transport (walking, cycling, public transport) in order to minimize CO2 emissions. This requires the development of settlements 1.1 according to the principle of polycentric concentration 1.2 within the catchment areas of public transport 1.3 with a consequent mix of users 1.4 supporting the redevelopment of brownfilds 1.5 with a net of decentralized concentrated central places which can be reached within a reasonable distance in order to reduce transport energy and emissions. 2. Development of settlements enabling to save energy for buildings and a better use of renewable energy. 3. Development of settlements which reduce the danger of natural hazards 3.1 through a careful site selection 3.2 through anticipatory keeping free potential flooding zones and endangered zones by torrents and avalanches
These goals are a guidance for the assessment of the climate change of the pspatial planning instruments of Styria.
2.2 Description of evaluated instruments and procedures
2.2.1 Landesentwicklungsprogramm Steiermark 2009 (Development program for Styria 2009)
The development program was decreed by the Styrian government in 2009 according to §§ 8 and 9 of the Styrian spatial planning law. This instrument is legally binding for all measures with territorial impact of the government, the communities and all corporations under public law. The main aim of the program is the co‐ ordination on regional and sectoral level; other responsibilities of the program are: Identification of regions for which a regional development program should be worked out The organisation of the spatial structure The identification of principles for the creation of the regional development visions and the sub‐regional development concepts.
2.2.2 Programm zur hochwassersicheren Entwicklung der Siedlungsräume (Program for a flood protected development of settlements)
This program was released by the Styrian government according to § 8 of the Styrian spatial planning law. The instrument aims at minimizing the risks of flood events and avalanches with spatial planning instruments. It intends to integrate the fields of water engineering, water management, force of nature management and regional development planning and is legally binding for all measures with territorial impact of the government, the communities and all corporations under public law.
www.clisp.org | [email protected] T ERRA C ONSULT AGL 14
„Climate change fitness of spatial planning instruments of Styria“
2.2.3 Regionales Entwicklungsprogramm inkl. SUP (regional development program incl. SEA)
The legal basis for regional development programs is set up in § 10 of the Styrian spatial planning law. The program aims to describe the spatial development of the region and to define supra‐local development goals with accordant measures, such as settlement boundaries, supra‐local functions of municipalities, guidelines for settlement development, prioritised areas for special use and open land or designated areas for supra‐local infrastructure
According to directive 2001/42/EC, which is incorporated in §3 and §3a of the Styrian spatial planning law for regional development programs a strategic environmental assessment is compulsory . The potential impact on the following targets is to be assessed: soil, water, air, flora, fauna, biodiversity, human health, material assets and cultural heritage.
2.2.4 Regionales Entwicklungsleitbild Bezirk Liezen (regional development guidance for the district of Liezen)
The aim of the regional development guidance is to co‐ordinate different paths of development, to define thematic interfaces and leading themes of the region and to cordinate sub‐regional strategies within the district.
2.2.5 Örtliches Entwicklungskonzept (ÖEK) inkl. SUP (local development concept incl. SEA)
The local development concept (ÖEK) is the core instrument of the spatial development of local level. It is enacted by the municipalities and defines the long‐term development of the municipality for the next 15 years. It defines the spatial structure of the municipality the main directions of the further development as well as borders of the development of settlements. It can define special locations for housing, trade and industry as well as restrictions of land‐use.
During the preparation of the development concept, a strategic environmental assessment has to be conducted. All significant impacts including impacts on climatic factors and interdependencies between factors have to be considered. Furthermore, appropriate measures to mitigate these impacts have to be defined.
2.2.6 Kleinregionales Entwicklungskonzept (sub‐regional development concept)
The sub‐regional development concept is designed for sub‐regions consisted out of 6 – 12 municipalities. The concept contains a status analysis and a determination of common strategies for the sub‐region. By means of sub‐regional development concepts municipalities can devolve local tasks unto a regional level to take advantage out of more efficiency and higher subsidies from state level.
www.clisp.org | [email protected] T ERRA C ONSULT AGL 15
„Climate change fitness of spatial planning instruments of Styria“
2.3 Assessment of evaluated instruments or procedures
The evaluation of the relevant spatial planning instruments aims to outline to what extent they consider climate change issues and to assess their strengths, weaknesses, opportunities and threats concerning climate change. Furthermore the instruments were graded according to in which way they take effect: adaptation, mitigation ode the both of them.
2.3.1 Landesentwicklungsprogramm Steiermark 2009 (Development program for Styria 2009)
Strengths Obligatory sectoral and regional cooperation and coordination Participation of all important actors Implementation of: — Environmental assessments — Special areas for regional open‐land use, esp. Protection areas — Topics of climate change and adaptation — Special areas for further spatial and settlement development
Weaknesses Climate change and adaptation strategies are not obligatory subjects for subordinated programs and concepts Specific assessment of climate change fitness is not intended No incentives for the implementation of climate change and adaptation strategies No exclusionary factors for zoning of building areas determined
Opportunities Possibility to investigate climate change, its consequences and strategies of mitigation and adaptation
Threats Exceptions on subordinate levels can undermine climate strategies
The instrument pursues both, strategies of adaptation and mitigation.
2.3.2 Programm zur hochwassersicheren Entwicklung der Siedlungsräume (Program for a flood protected development of settlements)
Strengths No building permits within HQ‐100 areas (areas that are flooded within a 100 years a probability) Priority of forward‐looking building prohibitions over ex post redevelopment Red natural hazard danger zones and blue reservation areas are directly legally binding Clear arrangements for exceptions within the HQ‐100 areas Application is expanded on avalanche and mountain torrent areas
www.clisp.org | [email protected] T ERRA C ONSULT AGL 16
„Climate change fitness of spatial planning instruments of Styria“
Gradation of the juridical parameters with prohibitions of zoning Obligatory for the federal state and municipalities
Weaknesses No regulations for existing building areas in danger zones Flood retention areas and drain areas are not always defined clearly No regulation for burden sharing between upstream and downstream municipalities No zoning restriction in yellow danger zones Missing regulations for exceptions in red danger zones and blue reservation areas Increased risk potential due to climate change is not considered
Opportunities Adaption to growing risk potential possible Integration of regulations for existing buildings and land uses in the risk areas Creation of land use category for flood retention areas and drain areas
Threats Missing designation of red risk areas and blue reservations areas as well as flood retention and drain areas Planning scope of municipalities is considerable constricted
The instrument includes adaptation measures against impacts of floods, avalanches and debris flows.
2.3.3 Regionales Entwicklungsprogramm inkl. SUP (for regional development program incl. SEA)
Strengths Prevention of housing sprawl by means of settlement boundaries and priority zones for open‐land use Selective actions against climate change possible Important aspects of adaptation and mitigation are indirectly addressed Climate protection is defined as task of supra‐local spatial planning
Weaknesses Priority zones: no direct reference for use for climate protection Indirect effects of climate protection are mentioned, a direct link is missing No identification of risk areas and retention areas No regulations for existing land use possible No regional concepts for public transport required No monitoring of implementation on local level No official statements of authorities for torrent control and water engineering required No reasons for exclusion of zoning of building land specified SEA: missing reference to climate change
www.clisp.org | [email protected] T ERRA C ONSULT AGL 17
„Climate change fitness of spatial planning instruments of Styria“
Opportunities Regulation on limitation of emissions can be used as a link to climate change strategies Additional priority zones possible, like for areas to keep green land free Monitoring can include climatic issues SEA can be the basis to assess the climatic impact of measures
Threats No coordination of development regarding renewable energy (e.g. priority zones) Regulations are not binding
The topics of the regional development program focus on mitigation issues, but also comprise some adaptation measures.
2.3.4 Regionales Entwicklungsleitbild Bezirk Liezen (regional development guidance for the district of Liezen)
Strengths Pooling of development tendencies of the district Definition of thematic intersections, cross‐sectoral Leading issues for the district are developed out of intersections Enables a coordination of sub‐regional strategies
Weaknesses Range of topics is limited, aspect of climate change are not considered Heterogeneity of tourism regarding impacts on climate change is not considered A cross‐sectoral analysis is not mandatory Contradictive analysis regarding the use of natural landscape Designation of commercial areas without thorough needs assessment Outline of concepts very unspecific
Opportunities The concept is a good basis for cross‐sectoral adaption strategies
Threats Possible impacts adaptation concepts are missing in the strategies Climate change is not covered as a specific topic and not defined as a possible future determinant
The instrument pursues both, strategies of adaptation and mitigation.
www.clisp.org | [email protected] T ERRA C ONSULT AGL 18
„Climate change fitness of spatial planning instruments of Styria“
2.3.5 Örtliches Entwicklungskonzept inkl. SUP (local development concept incl. SEA)
Strengths Decentralized concentration as a goal and definition of settlement focus criteria: public transport, supply of public and private services, technical infrastructure suitable environmental conditions possibility to define development goals for special fields, e.g. energy concepts
Weaknesses environmental conditions are not compulsory defined air pollutants: no other possibilities of heating no reference to adaptation strategies on the juridical level no prioritizing of measures
Opportunities linkage of traffic and new zoning of building areas
Threats No monitoring whether measures are sustainable for the region
The local development concept focuses on mitigation measures, such as dezentralized concentration but alos should contain measures for adaptation strategies.
2.3.6 Kleinregionales Entwicklungskonzept (sub‐regional development concept)
Strengths Climate‐energy‐“quick check”: questionnaire energy and climate; allows the demonstration of the situation of different municipalities concerning topics like climate, energy and resources. Financial analysis to estimate financial possibilities for investments Implementation is scheduled; evaluation of intended projects Voluntariness fosters commitment and cooperation
Weaknesses Topics to be covered are not preset, e.g. climate protection
Opportunities Collaborative development of goals leads to collaborative implementation of measures Concepts developed with regards to needs of the sub‐region Promotion of cross‐municipal thinking and acting
Threats Contents depend on interest of municipalities
www.clisp.org | [email protected] T ERRA C ONSULT AGL 19
„Climate change fitness of spatial planning instruments of Styria“
Possible avoidance of politically delicate topics, e.g. environment Measures for climate protection only voluntary
The instrument contains mitigation strategies such as climate‐energy quick‐check, but also measures for both, adaptation as well as mitigation.
3. Conclusion and Summary
3.1 Climate change fitness
3.1.1 Landesentwicklungsprogramm Steiermark 2009 (Development program for Styria 2009)
The development program is the foundation for adaptation strategies on regional level. Nevertheless, a direct reference to climate change is missing in the structural analysis as well as in the determination of topics for the subsequent sub‐regional development schemes.
3.1.2 Programm zur hochwassersicheren Entwicklung der Siedlungsräume (Program for for a flood protected development of settlements)
The program presents an example of good practise as an instrument for adaptation strategies on regional level. It links local planning procedures and decisions directly with the hazard zone planning and contains distinct spatial regulations for settlement areas in respect to the risk of flooding. Prevention is senior to ex post restoration. Moreover, a monitoring system is set up.
3.1.3 Regionales Entwicklungsprogramm inkl. SUP (regional development program incl. SEA)
Climate protection is defined as a task of supra‐local spatial planning. Thus, the regional level is proper to define settlement structures that meet the demands of climate protection. Nevertheless risks due to climate change and thereby altered land use conditions are not subject of the regional development programs. The compulsory SEA could be used to assess consequences on climate change. Up to now, this opportunity is not used in practise efficiently. Guidelines for methodical and strategic procedures to reach the goals set are currently missing. The linkage with the existing monitoring on state’s level is a great opportunity for monitoring the impacts and evaluating the efficacy of the measures.
3.1.4 Regionales Entwicklungsleitbild Bezirk Liezen (regional development guidance for the district of Liezen)
Up to now, regional guidances are focused on economic development. However, they are very capable to cover a broader range of topics. Thus, the regional development guidance presents a good basis to address climate
www.clisp.org | [email protected] T ERRA C ONSULT AGL 20
„Climate change fitness of spatial planning instruments of Styria“
change issues on a regional level and to promote projects for mitigation. The regional guidance is cross‐sectoral and therefore can define thematic interfaces to derive leading themes for the region. In Liezen, for instance, an information point about subsidies for renewable energies is proposed.
Nevertheless, there is the risk that due to the concentration on certain issues, an overall evaluation of the proposed measures in terms of their effects on climate change is not possible. By way of example the regional guidance Liezen covers the development of commercial areas, but an assessment of demand is missing. In the field of rural development and renewable energy, possible conflicts in land‐use are not treated.
3.1.5 Örtliches Entwicklungskonzept inkl. SUP (local development concept incl. SEA)
The local development concept frames the settlement structure and thus is currently the most powerful instrument to prevent negative climatic impacts. Nevertheless, at present no direct reference to climate change is demanded.
This instrument helps municipalities to prepare transparent and comprehensible concepts and can be seen as a good practise example. By linking the measures with a SEA the development concepts gets more tangible and impacts on climate change can be assessed.
3.1.6 Kleinregionales Entwicklungskonzept (sub‐regional development concept)
The sub‐regional development concept has the capability to be used as an efficient instrument for climate protection, as it is supra‐local and thus can avoid harmful competition between municipalities. The consideration of climate protection issues nevertheless is voluntary. Good practise examples show how climate change can be considered (e.g. energy vision Murau).
3.2 Enhancement Options
The proposed enhancement options are structured according to their aim whether on adaption, mitigation or both of them.
3.2.1 Landesentwicklungsprogramm Steiermark 2009 (Development program for Styria 2009)
Adaptation as well as mitigation: Implementation of strategies for climate mitigation and adaptation into structural analysis on regional and sub‐regional level Establishment of existing spatial monitoring system and reference to indicators of climate change
Mitigation: Establishment of the possibility to designate priority areas for wind power plants Establishment of the possibility to designate priority areas for photovoltaic plants
www.clisp.org | [email protected] T ERRA C ONSULT AGL 21
„Climate change fitness of spatial planning instruments of Styria“
3.2.2 Programm zur hochwassersicheren Entwicklung der Siedlungsräume (Program for a flood protected development of settlements)
The identification of risk areas is based on preceded flood events. Still it remains the question of additional climate induced risk in following events. Thus, cooperation with the responsible authority for natural risk area plans is necessary. A nationwide standardisation is essential.
Further recommendations are: Adaptation: Distinct and comprehensible definition of retention and drain areas Creation of priority zones “flood area of regional importance” with compulsory implementation in local land‐use planning Addition of regulations on existing building areas in risk areas with possibility of re‐designation to green land Directive to identify HQ‐300 areas in regional programs for information
3.2.3 Regionales Entwicklungsprogramm inkl. SUP (regional development programs incl. SEA)
Adaptation as well as mitigation: Description of impacts of climate change in analysis as a specific chapter
Mitigation: Agreement to involve other sectors (e.g. water engineering) and take interdependencies into account Definition of priority areas for wind power plants where relevant Definition of priority areas for photovoltaic plants where relevant Definition of zones with restricted settlement development if public transport infrastructure is not available Assessment of regional needs before zoning of building land and commercial areas Process integrated preparation of SEA at the same time as the development concept
3.2.4 Regionales Entwicklungsleitbild Bezirk Liezen (regional development guidance for the district of Liezen)
Adaptation as well as mitigation: Integral and cross‐sectoral view on climate change relevance Observation of interdependencies between the sectors respectively in conflicts of land‐use Financial incentives to enlarge thematic scope towards climate change strategies
3.2.5 Örtliches Entwicklungskonzept inkl. SUP (local development concept incl. SEA)
Adaptation as well as mitigation:
www.clisp.org | [email protected] T ERRA C ONSULT AGL 22
„Climate change fitness of spatial planning instruments of Styria“
Monitoring of measures for quality control Distinct prioritization of measures and financing
Adaptation: Reservation of fresh air zones
Mitigation: Explicit reference to climate change, especially with SEA Process integrated preparation of SEA at the same time as the development concept Prevention and reduction of climate change effects by compact settlement structures
3.2.6 Kleinregionales Entwicklungskonzept (sub‐regional development concept)
Adaptation as well as mitigation: Consulting and support of municipalities in the preparation of sub‐regional development concepts regarding climate change relevant topics with potential for municipal cooperation Creation of financial incentives to take up topics on sub‐regional level
3.3 Lessons learned
Concerning adaptation strategies for the enhanced risk of natural hazards the spatial planning system in Styria is already quite well prepared through the existing program for a flood protected development of settlements. However, the zoning of flooding risk areas is based on previous flood events. The enlargement of these zone due to higher risk of flooding caused by climate change lies in the competence of the federal ministry and consequently needs a nationwide standardisation.
Some spatial planning instruments are well prepared to integrate climate change aspects. The coordinated and integrated elaboration of the SEA when elaborating regional development programs and local development concepts can contribute to increase the climate change fitness of these tools.
The existing spatial information system RaumIS enables a monitoring of the spatial development in Styria. This is an excellent basis to take climate change relevant indicators on board in order to assess the effects of climate change policy on spatial development.
www.clisp.org | [email protected] T ERRA C ONSULT AGL 23
CLISP Projektteil Salzburg
Climate Change Adaption by Spatial Planning INTERREG IV B Alpenraum
In-depth evaluation of spatial planning instruments and procedures in Model Regions
Model Region Pinzgau / Pongau
STAND: 10.02.2011
Technisches Büro für Raumplanung Technisches Büro für Raum- und angewandte Geographie und Landschaftsplanung Claudia Schönegger KG Dipl. Ing. Sibylla Zech Gmb Linzergasse 17- 19, 5020 Salzburg Kirchengasse 19/12, 1070 Wie T: 0662 / 846 892-0 T: 01 / 236 19 12 F: 0662 / 846 892-20 F: 01 / 236 19 12 90 [email protected] [email protected] www. terracognita.at www.stadtland.at CLISP Projektteil Salzburg Climate Change Adaption by Spatial Planning
In-depth evaluation of spatial planning instruments an procedures in Model Regions
Auftraggeber – transnationaler Projektpartner: Land Salzburg Abteilung Raumplanung Postfach 527, 5021 Salzburg Projektleitung Auftraggeber: Univ. Doz. Dr. Franz DOLLINGER, Fachreferent Raumforschung und grenzüberschreitende Raumplanung T: 0662 / 8042 - 4650 [email protected]
Auftragnehmer: Terrra Cognita Claudia Schönegger KG Schallmooser Hauptstraße 85 A, 5020 Salzburg stadtland Sibylla Zech GmbH Kirchengasse 19/12, 1070 Wien Bearbeitung: Lydia LAMPELMAIER Claudia SCHÖNEGGER T: 0662 / 84 68 92 - 12 [email protected] Stefan KLINGLER T: 01 / 236 19 12 - 19 [email protected]
Übersetzung: Dr. Elisabeth Zeil-Fahlbusch
Das Projekt CLISP wird aus Mitteln des Europäischen Fonds für Regionale Entwicklung (EFRE) sowie Landesmitteln gefördert.
Salzburg am 07.02.2011
Evaluation Report Salzburg
INHALT
A)EXECUTIVE SUMMARY ...... 4
1.INTRODUCTION ...... 4
1.1 Description of the Model Region ...... 4
1.2 Methods and evaluation criteria ...... 4
2.EVALUATION OF SELECTED INSTRUMENTS AND PROCEDURES ...... 5
2.1 Description of evaluated instruments and procedures ...... 5
2.1.1 Regional development concept Pongau ...... 5
2.1.2 Regional program “Unteres Saalachtal” ...... 6
2.1.3 Spatial development concepts (REK) of Kaprun, Goldegg, Zell am See, Eben ...... 6
2.2 Assessment of evaluated instruments and procedures: SWOT ...... 7
3.CONCLUSION AND SUMMARY ...... 10
3.1 Climate change fitness ...... 10
3.2 Enhancement Options ...... 11
3.2.1 Awareness creation and Information ...... 11
3.2.2 Conditioning relevant data and basic principles ...... 11
3.2.3 Adapting existing planning instruments ...... 12
3.2.4 Best Practices ...... 13
3.3 Lessons learned ...... 13
B)REFERENCES AND ANNEX ...... 14
Stand: 07.02.2011 Seite [3]
Evaluation Report Salzburg
A) EXECUTIVE SUMMARY
1. INTRODUCTION
1.1 Description of the Model Region
The Model Region covers the political districts Zell am See and Sankt Johann im Pongau with a total area of 4’379.17 km². 162’906 (2009) people live in 53 municipalities. The econ- omy is dominated by the tertiary sector with about 25% of wage earners employed in the tourist industry. The region is characterized by mountainous landscape with distinct relief, variable climatic conditions and a permanent settlement area that is restricted to the valleys of the Salzach and Saalach and their narrow side-valleys. Due to tourism and its demand for building land and infrastructure there is pressure on development areas outside compact settlements encroaching on hill-sides and leading to scattered settlements beyond the bor- ders of the permanent settlement area.
The main adaptation requirements relevant for spatial planning in Pinzgau-Pongau are:
Climate change related hazards and their impact on built-up areas and infrastruc- ture;
Climate change related impacts on tourism and recreation, particularly on winter tourism but also on recreational activities in summer.
1.2 Methods and evaluation criteria
Planning instruments have been evaluated using the following set of overall criteria that has been partly adapted to the requirements of the MR:
(1) Relevance of the instrument – including binding character and flexibility (2) Coherence of the instrument (3) Main impact of the instruments and enhancement options.
The following methods have been employed:
Interviews with regional actors and decision makers: Secretary Regionalmanagement Pongau Representative Regionalverband Pongau Secretary Regionalmanagement Pinzgau Bezirkshauptfrau district Pinzgau Mayors of municipalities Kaprun and Goldegg Head of planning department/ building control office of municipality Zell am See
Stand: 07.02.2011 Seite [4]
Evaluation Report Salzburg
Local planners [3] of the municipalities Goldegg, Kaprun and Eben Workshops with regional actors and decision makers Working group on Natural Hazards, Pinzgau (representatives of Bezirkshauptmann- schaft Pinzgau, torrents and avalanche protection, alpine police, hunters associa- tion, mountain rescue; 2 Workshops with representatives of the municipalities in the MR, representatives of the federal administration and interested NGOs; Workshop with mayors of the model municipalities and their local planners; Workshop with staff of local and supra-local spatial planning in the federal adminis- tration (department 7 Spatial Planning); Literature analysis.
2. EVALUATION OF SELECTED INSTRUMENTS AND PROCE- DURES
2.1 Description of evaluated instruments and procedures
Regional programs and regional development concepts are two important planning instru- ments to pursue regional objectives.
2.1.1 Regional development concept Pongau
For advancing the coordination of the member-municipalities the regional unit may work out a regional development concept. A concept contains objectives and measures for regional development – but does not need to include detailed spatial determinations. It aims at developing regional structural models as a framework for a regional spatial program and at a common set of internal (informal) guidelines that can serve as a basis for further more de- tailed decisions. Determinations of a regional development concept are considered to be valid for the region and document regional aims vis-a-vis the federal state, but in contrast to the regulations of regional spatial programs are not legally binding. Implementation is based on the „good will“ of municipalities. The regional development concept Pongau of 2010 was developed in cooperation of all mu- nicipalities in the district, broad public participation and in co-ordination with the federal state. In the in-depth evaluation the concept was examined for its fitness to respond to climate change.
Stand: 07.02.2011 Seite [5]
Evaluation Report Salzburg
2.1.2 Regional program “Unteres Saalachtal”
The regional program is the most important planning instrument on regional level, is devel- oped by the regional unit (unit of municipalities in accordance with the spatial planning law) and is declared binding by an order (by-law) of the federal state. Determinations of the pro- gram are binding for all municipalities of the region and their local spatial planning as well as for the federal state. It comprises a structural analysis, problem definitions and a catalogue of objectives and measures which includes detailed spatial determinations. The regional spatial program “Unteres Saalachtal”, comprising the municipalities of Unken, Lofer, St. Martin bei Lofer and Weißbach was declared binding in 2001. In the in-depth eval- uation the concept was examined for its fitness to respond to climate change.
2.1.3 Spatial development concepts (REK) of Kaprun, Goldegg, Zell am See, Eben
The REK is a local spatial planning instrument and provides the framework for land use and building regulation plans (FWP). Up to 2009 the federal state government had to appraise local spatial development plans, but they did not need to be approved by supervisory authority and did not constitute legal municipal acts. They were thus not legally binding; however alterations of land use/ building regulation plans of a municipality had to conform to the REK. With the introduction of the new federal spatial planning law (ROG 2009) local spatial development plans need to be assessed and cleared by supervisory authority. With respect to adaption strategies to climate change it is worth noting that a strategic environmental assessment is now mandatory for local spatial development plans. The stipulations of ROG 2009 further require that REKs have to be reviewed every 10 years with respect to attainment of regional development goals, designations in the local land use plan and projected environmental impacts, and be adapted appropriately. The in-depth evaluation examined the spatial development concepts of the municipalities of Eben im Pongau, Goldegg, Kaprun and Zell am See for their fitness to respond to climate change The most significant objectives and principles of the ROG 2009 with respect to climate change, which have to be taken into account in local planning instruments (REK and FWP) can be summarized as follows:
Goals and objectives
Safeguarding natural life resources in order to preserve them in sufficient quality and quantity for future generations. Best possible protection of citizens against risks of natural hazards and disasters of ex- ceptional proportions as well as against environmental damages, threats and stresses by locating infrastructures in suitable sites and by protective measures.
Stand: 07.02.2011 Seite [6]
Evaluation Report Salzburg
Settlement structures shall be developed in such manner that population density is in balance with ecological and economic carrying capacity of the natural space and that lo- cations for living, industrial activity and recreation are reconciled as best as possible. Maintaining and improving the basis for sustainable development of the economy, infra- structure and housing as well as for required structural adaption measures. Safeguarding and sustaining viable rural agriculture and forestry. Tourism shall be developed and sustained on a competitive edge taking into account the ecological and economic carrying capacities of natural spaces, respecting the require- ments of landscape and nature protection, allowing for paramount participation of the in- digenous population in the development and taking into consideration the diversity of tourist leisure and recreational needs by securing suitable spatial areas.
Principles Careful and sustainable use of land resources (sparing on building land development); Avoiding fragmentation of open spaces and giving priority to development inside existing settlement structures; Enhanced consideration for environmental concerns when weighting ecological and eco- nomic spatial demands; Supporting protection of nature and landscape; Active municipal land policy.
2.2 Assessment of evaluated instruments and procedures: SWOT
Results for all evaluated instruments can be summarized as follows:
The structural analyses are mostly based on out of date data. Trends and scenarios are not presented – with the exception of demographic and household development and spatial needs for housing and commercial areas, but are also not available for planning purposes.
More recent planning documents such as the regional development concept Pongau and the spatial development concept of Zell am See do consider the requirements of adaption to climate change and mitigation of climate change impacts. This concerns above all the consideration of flood retention areas and hazard zones of the WLV.
Awareness for necessary adaption strategies is still rather weak in planners and muni- cipalities; adaption is also disputed. The main objective of spatial planning is seen in securing available building land for the population and economic development focus- ing primarily on existing structures and population as well as commercial needs
Stand: 07.02.2011 Seite [7]
Evaluation Report Salzburg
An exceptional case is protection against natural hazards which figures in all eva- luated instruments, however in variable detail, and makes provisions for the designa- tion of building land and municipal development.
Relevance of the instrument (including binding character and flexibility) Instrument Strengths Weaknesses Regional development Concept developed in an intensive No binding character; implementa‐ concept Pongau communication process involving the tion guidelines only refer to spatial local population and dealing with is‐ designations up from a particular size sues of particular concern for the re‐ and category, not comprising all re‐ gion; levant designations in the municipali‐ Data are up‐to‐date and include recent ties; studies (e. g. snow reliability of ski Objectives partly formulated in gen‐ runs); eral terms only, without detailed Climate change is dealt with in relation spatial reference; to tourism: quality strategies for a Low awareness in local decision‐ form of tourism that focuses on natu‐ makers of the need for foresighted ral spatial conditions and existing in‐ adaptation strategies; frastructure; Fears of restrictions on tourist indus‐ Quality standards for settlement de‐ try prevail over the will to steer de‐ velopment relating to mobility, how‐ velopments. ever broad exemption regulations (e. g. for existing scattered settlements). Regional spatial pro‐ Binding supra‐local instrument; Hardly any relevant mentioning of gram “Unteres Comprehensive structural analysis; climate change; Saalachtal” List of hazard‐prone areas (flood Data out of date; prone areas, catchment areas of tor‐ Hazard‐prone areas without spatial rents and avalanches); reference necessary for spatial plan‐ Binding measures for flood retention ning. (areas determined in detail). Spatial development Instruments provide basic opportuni‐ Data for risk assessment too old and concept of Eben im ties for identifying objectives and not detailed enough; Pongau measures relating to issues of climate Natural hazards (forests, torrents, change in the context of “good spatial landslides) only mentioned in pass‐ planning”; ing; Procedures for developing the con‐ Objectives and measures in rather cepts provide good opportunities for static terms; expert input and use as a planning ba‐ sis; Only natural hazards mentioned as potential impacts of climate change. Mandate for creating public awareness Spatial development provides opportunity to sensitize on Out of date data make risk and vul‐ concept of Goldegg issues of climate change, particularly nerability assessment problematic; with respect to the need of concen‐ Absence of hazard zoning plans trating settlement development. make overview problematic; Risks of mud flows and floods are considered low, therefore not dealt
Stand: 07.02.2011 Seite [8]
Evaluation Report Salzburg
with in detail. Spatial development Going beyond the Goldegg und Eben Out of date data make risk and vul‐ concept of Kaprun concepts, nerability assessment problematic; Natural hazards are dealt with in detail Designation of development areas in in both the text and the planning parts hazard zones as re‐designation is (yellow, red and blue torrent hazard considered hardly feasible; zones, HQ 30, protection forest meas‐ Low priority of adaption to climate ures to prevent avalanches, mud change and mitigation of impacts. flows, etc.). Spatial development Going beyond the Goldegg und Eben Pressure by the population on avail‐ concept of Zell am See concepts, able building development areas Up to date data; which are however not provided in only the most suitable locations; Structural analysis contains detailed information on climate, geology, air, Concerns and requirements of a natural hazards; foresighted planning strategy for su‐ pra‐municipal retention areas can Sustainable development (e. g. mitiga‐ hardly be politically conveyed or car‐ tion of impacts) defined as an objec‐ ried through. tive; Climate change referred to in‐directly. Coherence of the instrument and binding character Instrument Strengths Weaknesses Regional development •Guidelines for settlement develop‐ •Quality strategies without detailed concept Pongau ment following existing transport in‐ spatial reference allow broad scope for frastructure (see LEP); arguing for exemptions from the strate‐ Plans for determining locations of gies. holiday villages and large accommo‐ dation facilities. Regional spatial •The program adheres to the objec‐ •As neither the ROG nor the LEP made program “Unteres tives and guidelines of the ROG and detailed provisions for taking climate Saalachtal” the LEP in principle. change and its impacts into account hardly any respective measures identi‐ fied. Spatial development Defined location criteria for new •As neither the ROG nor the LEP made concept of Eben im designations of building land focusing detailed provisions for taking climate Pongau on suitability of natural spaces; change and its impacts into account hardly any respective measures identi‐ Defined measures for particular mu‐ fied; nicipal sections taking existing risks Planning mainly concerns settlement into account (e. g. flood areas in the areas. planned industrial area Ennsbogen); Building ban and restriction areas delineated in settlement model. Spatial development The concept adheres to the objec‐ concepts of Goldegg, tives and guidelines of the ROG and Kaprun and Zell a. See the LEP in principle. Main impact of the instrument and enhancement options Instrument Strengths Weaknesses Regional development Regional consensus on long‐term To date, no preparedness to define concept Pongau developments and quality strategies detailed measures and binding restric‐
Stand: 07.02.2011 Seite [9]
Evaluation Report Salzburg
on natural spaces, spatial develop‐ tions on regional level. ment, mobility and cooperation. Regional spatial Binding provisions for local spatial Data relevance and topicality need program “Unteres planning. improving; Saalachtal” Hazard zone plans and forest devel‐ opment plan need up‐dating. Since the municipal spatial development concepts currently do not define criteria or measures for adap‐ tion to climate change which would go beyond the implementation of objectives and principles of spatial planning, no direct respective impacts can be identified. The instruments rely on impacts and influences of “good spatial planning” such as compact settlements and infrastructure development in suitable locations. The criteria for suitability, e. g. locating settlements and infrastructure outside of hazard‐prone areas, avoiding detrimental effects (e. g. unfavourable orientation of ski runs), good access and public utilities in‐ directly contribute to adaption to climate change but have not been evaluated in detail for the single loca‐ tions.
3. CONCLUSION AND SUMMARY
3.1 Climate change fitness
The concepts and programmes are found „fit“ to respond to the impacts of climate change. The existing “traditional” spatial planning instruments on local and regional levels generally provide good or sufficient scope for adapting spatial structures and developments to current and future impacts of climate change.
However:
Spatial planning instruments are currently built on a rather static basis (e.g. natural hazard zoning plans).
Opportunities provided by “good spatial planning” to react to the impacts of climate change are not entirely perceived or dealt with selectively when implementing objec- tives into planning practice.
Opportunities for steering development are under regional and local political pres- sure and are not entirely exploited.
Strong courage for self-restriction or determining developments is not evident in the municipalities.
Particularly in those municipalities and areas with winter tourism creating a high per- centage of the regional net product the impacts of climate change are perceived but are associated with awareness of investment risks and liability claims rather than with the need for foresighted planning.
Stand: 07.02.2011 Seite [10]
Evaluation Report Salzburg
The evaluated instruments on local level have a clear and strong focus on settlement areas. A foresighted planning approach especially for the use of open spaces is not in evidence and has not been requested on the parts of the FSS as a means for bal- ancing different land use needs.
Currently, only the natural hazard zoning plans and the definition of flood stop angles provide a basis for defining measures to deal with the impacts of climate change. Here high problem awareness is evident and – based on the guidelines of the ROG – a high awareness of the need for adequate planning.
3.2 Enhancement Options
Propositions for enhancing climate change fitness of spatial planning in the FSS fall into three main categories, namely “Awareness creation and Information“, “Conditioning relevant data and basic principles” and “Adapting existing planning instruments”.
3.2.1 Awareness creation and Information
Measures for awareness creation on climate change should be enhanced in order to communicate the advantages and chances of „good“ and foresighted planning which is based on detailed spatial objectives and determinations.
Climate change adaption and protection strategies should be coupled with economic incentives (Förderpolitik).
Up-to-date information on climate change should be compiled for the public at large, e. g. by creating an internet information platform on climate change and adaption (the existing SAGIS-Online could serve as a technical platform for this).
"Good practice"- examples for climate-robust planning should be made available.
3.2.2 Conditioning relevant data and basic principles
Up-to date data (e. g. variation of precipitation, temperature, snow-line, exposure to radiation und slope orientation, hazard-prone areas outside the permanent settle- ment area) should be accessible for municipalities and local planners, e. g. on SA- GIS Online; as well as
o Identification of hazard-prone and vulnerable areas for the entire federal state;
o Translation of climate scenarios into spatial impacts and climate change im- pact assessments;
By applying a more flexible approach to hazard zoning and by securing retention (e. g. by long-term, supra- municipal retention areas) it would be possible to better take extreme events into account in planning;
Stand: 07.02.2011 Seite [11]
Evaluation Report Salzburg
Methods for designating hazard zones and flood stop angles should be harmonized between the WLV and the federal hydraulic engineering department;
The operational structures of the regional units in the FSS should be used for com- munication and information in an intensified manner for embedding spatial planning as a core function of regional units in accordance with the ROG 2009.
3.2.3 Adapting existing planning instruments
Planning guidelines, e. g. in the format of sectoral programs designating long-term retention areas, hazard zones, areas banning certain uses (e. g. depletion of raw materials, development of ski runs, etc.);
Because REKs have been re-defined in the ROG of 2009 and now need to undergo a strategic environmental assessment (SEA) it is now not only possible for them to consider issues of climate change but this can be demanded by the federal state. o For this it would be helpful to prepare a set of questions, based on a relev- ance matrix of goods to be protected (impacts and mutual effects of goods), to make sure that climate change is considered in planning. These ques- tions should take into account both climate change adaption and mitigation strategies.
Spatial planning should be re-shaped to deal with uncertainties in a more flexible and process-oriented manner:
o Information on the span of uncertainties (potential variations of future natural hazard events) in spatial plans in order to stimulate individual risk preven- tion, e. g. by designating climate change sensitive areas or banning certain uses, and defining vulnerability “hot spots”;
o Definition/ delineation of “sensitive areas” for which a certain range of as- sessments is called for before projects can be implemented; in this case a decision – whether a specific project is reasonable and possible or not – would be postponed to a point of time, at which more detailed information is available. In terms of foresighted planning the delineation of areas as “sensi- tive” in REKs would help to point out possible climate change impacts or ha- zard risks at an early stage.
Integration of climate change adaption into SEA and EIA ("climate proofing" of plan- ning measures and projects): besides impacts of projects on climate as a common good also risks on projects induced by climate change impacts should be assessed – provided suitable and verified base data are available.
Stand: 07.02.2011 Seite [12]
Evaluation Report Salzburg
The potential of land use/ building regulation plans should be used more stringently for risk reduction as well as for increasing energy efficiency.
Technical adaption measures should be incorporated in the building regulations.
3.2.4 Best Practices
Municipal decision-makers continue to face a largely missing public understanding with re- spect to climate change impacts. Measures for creating awareness in the public at large as well as in decision-makers are called for.
Publications and information
Information and exchange currently takes place mainly at the expert level in the FSS. Rele- vant publications are those of the Salzburg Institute for Spatial planning (see Band 34 SIR- Mittelungen and Berichte Klimawandel und Raumentwicklung as well as SIR Info Klimawan- del). Both publications could also help to sensitize local planners.
Example for stimulating awareness in municipalities
The municipality of Altenmarkt faces flood risks since decades. When new hazard zone plans were drafted it turned out that the entire municipal settlement area was in red and yel- low torrent hazard zones. For helping people to grasp the dimension of potential impacts wooden poles were sunk in the municipality marked with stop angles of 30- and 100 year floods. This stimulated lively public discussion in the municipality.
3.3 Lessons learned
(1) Awareness of the impacts of climate change is not very strong as yet and if so, con-
cerns first and foremost avoidance strategies such as reduction of CO2 emissions (concentration of settlements along public transport axes). From the municipal point of view (especially in inner-alpine regions) even this basic principle is hard to imple- ment – due to the existing historical settlement structure. Options for actions are not seen in steering settlement development but in the advancement of public transport opportunities.
(2) The impacts of climate change are seen and assessed as part of daily life and con- tinuous changes in the Alpine space. – „es gab schon immer Unwetterkatastrophen, und die Schneeverhältnisse sind jedes Jahr unterschiedlich“. To react to changing natural frame conditions is part of Alpine life.
(3) More sensitivity exists towards the outcome of risk assessments and their economic impacts. Hence it is more a financial question of the ski-tourist industry to react to variability and changing precipitation and temperature. In the future, the regional net product will depend even more on the willingness of cable car owners to make in-
Stand: 07.02.2011 Seite [13]
Evaluation Report Salzburg
vestments, e. g. in artificial snow production plants and quality improvements, than today. Questions of personal liability are more prominent today than in the past (for instance when obtaining building licenses in hazard zones).These stand in contrast to the opportunities of municipal autonomy in terms of foresighted planning and de- velopment.
(4) The request for more flexible and dynamic planning instruments enabling quick reac- tions to emerging changes, new data bases and improved knowledge clashes with daily requirements to take definite spatial decisions.
(5) Real change and better anchoring of adaption strategies in „daily“ spatial planning are not possible unless explicit provisions are made for all by the federal state (e. g. Sachprogramme) and awareness of local-level decision-makers is strengthened. Due to the new REK which defines new requirements for planning and can demand that these are met via a mandatory strategic environmental assessment, the chances for an improved situation in the FSS are good.
(6) In order to bring the requirements of planning with respect to climate change into a better view of stakeholders, it is necessary to communicate adaption strategies as well as avoidance strategies and to strengthen appropriate awareness for the changes that are already happening (at the moment these are perceived very selec- tively). The basic principles of “good” spatial planning including existing possibilities for adaption strategies need to be conveyed in a better way.
B) REFERENCES AND ANNEX
Aichhorn F. DI (Arbeitsgruppe Raumplanung) (1994): Räumliches Entwicklungskonzept der Gemeinde Eben im Pongau, Salzburg Aichhorn F. DI (Arbeitsgruppe Raumplanung) (1999): Gemeinde Goldegg – Räumliches Entwicklungs- konzept, Salzburg Allee 42 Landschaftsarchitekten (2006): Gemeinde Goldegg - Räumliches Entwicklungskonzept 1. Teilabänderung (Hofmark), Salzburg Allee 42 Landschaftsarchitekten (2007): Gemeinde Goldegg - Räumliches Entwicklungskonzept 2. Teilabänderung (Harlander Siedlung), Salzburg Butterling M. (ARE), Pütz M. (WSL), Kruse S. (WSL), Casanova E. (Raumplanung) (2009): Final Re- port Activity 5.1.2 – Transnational Analysis of Spatial Planning Systems and Legal Frame- works, Butterling M. (ARE), Pütz M. (WSL), Kruse S. (WSL), Casanova E. (Raumplanung) (2010): General Framework for the in-depth evaluation of spatial planning instruments and procedures in Mod- el Regions Dollinger F. (2009): Ist die Raumordnungspolitik der Schlüssel zu einer erfolgreichen Klimapolitik, in SIR Mitteilungen Band 34: Klimawandel und Raumentwicklung vorausschauen – vermeiden – anpassen, Salzburg
Stand: 07.02.2011 Seite [14]
Evaluation Report Salzburg
Land Salzburg (2009): Salzburger Raumordnungsgesetz 2009 (ROG 2009) (LGBl. Nr. 30/2009) Land Salzburg (2003): Salzburger Landesentwicklungsprogramm 2003, Salzburg Land Salzburg (2008): Sachprogramm Schianlagen – Erschließung von Schianlagen im Land Salz- burg, Salzburg Lenglachner M. Arch. DI (2005): Gemeinde Kaprun: Modifikation des Räumlichen Entwicklungskonzep- tes im Bereich „Kaprun-Nord“ zwischen der Salzach und der Kapruner Ache, Adnet Lenglachner M. Arch. DI (2007):Gemeinde Kaprun: Geringfügige Modifikation des Räumlichen Ent- wicklungskonzeptes in den Bereichen „Pichldörfl – Hinterleitenweg“ und „Pfarrgründe – Achenstraße“, Adnet Lenglachner M. Arch. DI (2008): Stadtgemeinde Zell am See: Räumliches Entwicklungskonzept, Adnet Lexer W. (2009): Workshop 09. Juli 2009 Anpassung an den Klimawandel in Salzburg - Matrix Raum- ordnung, Wien Prinz, T. Kienberger S., Neuwirth C., Reischenböck G. (2010): Bericht zur Modellregion Pinzgau Pongau – Climate Change Adaption by Spatial Planning in the Alpine Space (CLISP), Salz- burg Regionalverband Pongau (2010): Regionales Entwicklungskonzept Pongau, Bischofshofen Regionalverband Unteres Saalachtal (2001): Regional Programm „Unteres Saalachtal“ Schönegger C., Riedler W. (2010): WP 5.3 In-depth evaluation of spatial planning instruments and procedures in model regions – Evaluation Concept Salzburg Model Region Pinzgau-Pongau, Salzburg Schönegger C.; Klingler S. (2010) Protokoll Workshop Modellregion Klimawandel und Raumordnung, 13.04.2010 Schönegger C.; Klingler S. (2010) Protokoll Think Tank mit VertreterInnen der Modellgemeinden aus der Modellregion Pinzgau Pongau 29.06.2010 Semsroth K. Arch. DI Dr., Schmidt A. Arch. DI (1998): Räumliches Entwicklungskonzept Kaprun
Stand: 07.02.2011 Seite [15] WP 5.3: Evaluation Upper Austria
WP 5.3: In‐depth evaluation of spatial planning instruments and procedures in Model Regions
Upper Austria
Executive Summary
Linz, 16.2.2011
www.clisp.eu I [email protected] 1
WP 5.3: Evaluation Upper Austria
Table of Content
1. Introduction ...... 3 1.1 Description of the Model Region ...... 3 1.1.1 Characteristics of the region Upper Austria ...... 3 1.1.2 Main adaptation requirements relevant for spatial planning in Upper Austria ...... 4 1.2 Methods and evaluation criteria ...... 5 1.2.1 Evaluation criteria ...... 5 1.3 Methods ...... 5 2. Evaluation of climate change adaptation in spatial policies ...... 6 2.1 Political Framework ...... 6 2.1.1 Government Programme 2009 – 2015 ...... 6 2.1.2 Sector Policies ...... 6 2.2 Problem awareness, activities and institutions ...... 7 3. Evaluation of instruments and procedures ...... 8 3.1 Description of evaluated instruments and procedures ...... 8 3.2 Assessment of evaluated instruments ...... 12 3.3 Assessment of evaluated procedures ...... 14 3.4 Good Practice ...... 15 3.4.1 Green covering of roofs ...... 15 3.4.2 Intercommunity cooperation ...... 15 4. Conclusion and Summary...... 15 4.1 Climate change fitness ...... 15 4.2 Enhancement options ...... 16 4.2.1 Enhancement options in general ...... 16 4.2.2 Enhancement Options for the integration of climate change issues in spatial planning in Upper Austria ...... 17 4.2.3 Enhancement options for the management of land use changes caused by climate change ...... 17 5. Lessons learned ...... 19 5.1 General aspects ...... 19 5.2 Next Stepps in Upper Austria ...... 19 Bibliography ...... 20 Gesetze und Verordnungen ...... 20 Other Sources...... 21
GZ 09376/Ber./WP5_3_Hiess_englisch_20110216.doc/Hie‐Alt
www.clisp.eu I [email protected] 2
WP 5.3: Evaluation Upper Austria
1. Introduction
The in‐depth evaluation was carried out for the whole area of Upper Austria.
1.1 Description of the Model Region
1.1.1 Characteristics of the region Upper Austria Upper Austria is characterised by a great variety of cultural landscape and climatic situations: Fig. 1: Geographical and climate data Area 11.981,9 km ² Highest point 2.995 m Lowest point 239 m Precipitation 750 mm – 3.000 mm / year Climate change exposure heavy weather events: heat days, intense rain decreasing snow coverage in flatlands drought problems in grassland areas
Upper Austria has 1,411.000 inhabitants at the moment (2010). Fig. 2: Population development 1981 – 2009 2009 – 2010 Alpine districts + 12,2 + 5,3 Other districts + 10,7 + 7,3 Upper Austria total + 11,1 + 6,4 Source: Statistik Austria (2010): Statistical Yearbook 2010 The population in alpine districts grew above average of Upper Austria in total in the last twenty years. In the next 20 years additional population growth is to be expected. The share of the age group 65 years and older will increase from 17 % in the year 1981 to 24 % in the year 2030. The regional net product is above the European average (Regional net product index: EU 27 = 100, Upper Austria = 122,6). The unemployment rate is rather low (2009: 4 %). Land use patterns are characterised by increasing settlement areas and woodlands, while fields and grasslands are decreasing. Fig. 3: Development of land use patterns in Upper Austria Land use development in % Land use 1980 – 2005 2005 – 2030 2005 in % Settlement areas 1) + 10 % to + 40 % 6,7 % Fields + 1,6 % ‐ 2 % to – 7,5 % 2,5 % Grasslands ‐9,6 % ‐ 10 % to – 14 % 21,9 % Woodland + 2,1 % + 4 % to + 8 % 36,6 % 1) no comparable data for 1980 available Source: Hiess H. (2010): Scenarios for the Spatial Development of Upper Austria. On behalf of the provincial government of Upper Austria.
www.clisp.eu I [email protected] 3
WP 5.3: Evaluation Upper Austria
1.1.2 Main adaptation requirements relevant for spatial planning in Upper Austria The main adaption requirements relevant for spatial planning in Upper Austria are as follows: (1) Dealing with new and aggravated climate‐related natural hazards on the basis of hazard zone plans / hazard maps. This includes the following goals and measures: Avoidance of new building zones in hazard zones, in particular in climate‐related hazard zones, Rezoning of building land located in hazard zones, in particular in climate‐related hazard zones, Securing of areas for additional protective measures: expanding water retention areas, flood dams, avalanche protection, torrent control, Specifying hazard protection regulations in building regulation plans: e. g. roof inclinations, roof loads, prohibition zones for storage and use of hazardous substances in vulnerable basements and ground floors. (2) Prevention of heat islands in densely build‐up core cities. This includes the following measures: Development of basic information on micro climatic changes caused by climate change, Study and formulation of basic micro climatic conditions in the context of new planning for large‐scale development areas, Securing large‐scale fresh‐air corridors, Securing green areas of sufficient size, promotion of green roofs, planting of inner courtyards, facades and roadside areas. (3) Management of land use changes caused by climate change or reactions to climate change, e. g.: Abandonment of existing land use, e. g. pastures because of water stress, Expansion of land use and activities with spatial relevance, e. g. ski‐resorts or summer tourist activities in higher alpine areas or in protected areas, Intensification of land use, e. g. usage of biomass for energy production, New land usages like renewable energy zones: windmills, photovoltaic, geothermal energy, biogas plants, Additional infrastructure: electric power lines, water pipes. The focus of the evaluation consists of two main parts: (1) Evaluation of the ongoing spatial policies as regards the status quo and future perspectives. (2) The instruments and procedures covering spatial planning in Upper Austria.
www.clisp.eu I [email protected] 4
WP 5.3: Evaluation Upper Austria
1.2 Methods and evaluation criteria
1.2.1 Evaluation criteria The following criteria and indicators have been choosen to evaluate the climate change fitness of spatial policies, instruments and procedures: Fig. 4: Evaluation criteria and indicators Overall criteria Indicators Relevance Explicit goals mentioned, explicit measures mentioned Implicit goals mentioned, implicit measures mentioned Obligatory provision of basic information Existing checklists, standards or guidelines for the elaboration of plans, programs and examination Flexibility / Stability Planning horizon, planning cycles Option for the integration of adaptation goals and measures Binding character Binding for authorities Binding for land owners and land users Coherence, synergies, conflicts Obligatory integration of sectoral or federal goals, plans, measures and actions Obligation to obtain a permit by superior authorities Procedures to deal with conflicts Effectiveness and flexibility means‐end relation as regards climate adaption goals and measures Examples realised, impacts achieved Collaboration with sectoral Obligatory and voluntary coordination procedures planning Participation and stake holder Obligatory and voluntary participation and stake holder consultation consultation
1.3 Methods In the first step the evaluation of spatial policies and instruments / procedures was carried out by the Upper Austrian CLISP‐expert team. The draft evaluation report contains the description of the instruments and procedures based on the selected criteria, a SWOT‐analysis and the derived draft recommendations. Then the draft evaluation report was sent to a selected group of experts to assess and comment the report in general and the recommendations in particular. Additional each of the experts was available for a two hour interview, which had been documented in a transcript. Finally the interview partner had the possibility to correct or to supplement the transcript. The following experts have been interviewed: Fig. 5: Experts Head of the department for land use plans and building plans on municipality level Expert responsible for legislation relating to spatial policy Consultant for spatial planning Director of a regional management unit and former mayor of a rural municipality Director of the building and environmental authority Head of the Torrent and Avalanche Control in Upper Austria Head of the Upper Austrian Ombud’s Office for Environmental Protection Expert responsible for water protection Based on the desk research of the CLISP team and on the expert insight information the evaluation report had been revised and finalised. The integration of the evaluation criteria in the SWOT‐analysis is described in the long version of the evaluation report.
www.clisp.eu I [email protected] 5
WP 5.3: Evaluation Upper Austria
2. Evaluation of climate change adaptation in spatial policies
2.1 Political Framework
2.1.1 Government Programme 2009 – 2015 In the year 2005 the federal government of Upper Austria has passed a resolution to achieve the Kyoto‐ objectives for Upper Austria (‐ 13 % of green house gas emission from 1990 to 2010). On this purpose a “climate package” with a lot of sectoral mitigation measures was fixed. This climate package does not contain any tasks for spatial planning. Climate change adaptation activities are not part of the package as well. But climate policy is defined as transsectoral task. For the first time goals and measures concerning climate change adaptation are addressed in the recent governmental working programme 2009 to 2015: Development of a comprehensive scenario of the impacts of climate change and the need for action (adaption concept). In this context new models of risk management should be assessed. The implementation of ongoing flood protection programme will be continued.
2.1.2 Sector Policies On the sectoral policy level the following climate change adaptation activities are stated: (1) Forestry Fostering natural species composition and promotion of suitable species (2) Water Management Increasing share of settlement areas, which are not concerned by 100‐year flood risk
After the flood event of 2002 hazard management in general and flood risk management in particular became matters of priority. This includes The development and implementation of a flood protection programme. The development of hazard maps for the whole area (up to now available for 30 % of rivers, 100 % of torrents and avalanches, geogenic hazards for settlement areas). The resolution of a new law for the management of natural disasters. The integration of flood protection measures and the obligatory consideration of flood zones in the spatial planning and the building laws. Development of hazard maps for geogenic risks covering settlement areas.
Due to the European guidelines on the Management of Flood Risk the legal framework for flood protection is “under construction”: The harmonisation of hazard mapping between River Administration and the Torrent and Avalanche Control is under discussion. In hazard maps the 300‐year flood risk area has to be visualized in the future. Regional Programmes for Water Management will be implemented as new instrument. The Regional Programmes for Water Management can state public interests like conservation of retension areas. They will get the status of an ordinance.
www.clisp.eu I [email protected] 6
WP 5.3: Evaluation Upper Austria
The integration of climate change related risks is not a topic in the debate on hazard zones on the regional level at the moment. Harmonised methods and regulations on the national level are required by the regional and local authorities. Climate change mitigation is addressed in the Upper Austrian Traffic Concept (2008) [Oberösterreichisches Verkehrskonzept] with direct requirements for spatial planning policies: No expansion of building zones before mobilisation of existing building zones Definition of criteria for a traffic‐minimising spatial structure Promotion of settlement development in areas with good access to public transport by instruments of spatial planning and subsidies for housing.
The energy strategy 2030 [Energiestrategie 2030] does not address spatial planning explicitly but will affect spatial development heavily by complete coverage of energy demand for housing and electrity by renewable resources (Water power, Wind mills, photovoltaic, solar heating)
Soil protection policy does not address climate mitigation explicitly, but implicitly with direct requirements for spatial planning: Continuous reduction of land use for settlement areas Reduction of land use shall be an important issue in all spatial planning proceedings
2.2 Problem awareness, activities and institutions Climate mitigation strategies have been developed and implemented since the year 2000. They contain the following activities: Yearly reporting of greenhouse gas emissions Yearly climate report to the Umweltausschuss of the Upper Austrian Landtag Installation of a Climate Protection Ombuds Person (2000) Development of a yearly climate protection activity programm Studies, e. g. climate impacts of waste management and development of environmental optimised concepts Additional a lot of communities take part in the Climate Alliance‐Programme and develop mitigation measures often in cooperation with Agenda 21 initiatives. Ten energy and climate model regions operate in Upper Austria. They focus on energy efficiency and energy self supply on the basis of renewable regional resources. None of the above mentioned activities are connected to spatial planning instruments or procedures. It is quite new, that climate change adaption is subject of climate policy in Upper Austria. The first step was to launch a research programme to study the impacts of climate change on the regional level. The following reports are available: Observed changes in heat periods in Upper Austria and assessment of future developments (2007) Impacts of climate change on flood risks in Upper Austria (2007) Impacts of heat waves on the mortality in Upper Austria (2007) Impacts of climate change on agriculture in Upper Austria and adaptation strategies (2008) Impacts of climate change on tourism in Upper Austria (2009)
www.clisp.eu I [email protected] 7
WP 5.3: Evaluation Upper Austria
3. Evaluation of instruments and procedures
3.1 Description of evaluated instruments and procedures The Upper Austrian spatial planning law constitutes the organisation of spatial planning in Upper Austria. The law contains the goals, the instruments and the procedures (see Fig. 3 – 5). The following instruments and their procedures were evaluated as regards the contribution to climate fitness: State Development Programme [Oberösterreichisches Landesraumordnungsprogramm] Regional Spatial Programme [Regionales Raumordnungsprogramm] Sectoral Spatial Programme [Raumordnungsprogramm für Sachbereiche] Guidelines of the State Government [Richtlinien der Landesregierung] Spatial Development Concept on local level [Örtliches Entwicklungskonzept] Land Use Plan on local level [Flächenwidmungsplan] Building Plan on local level [Bebauungsplan] Building Law [Bauordnung] Law on Civil Engineering [Bautechnikgesetz] The Strategic Environmental Assessment (SEA), which is obligatory for some of the instruments was part of the evaluation of the specific instrument.
www.clisp.eu I [email protected] 8
WP 5.3: Evaluation Upper Austria
Fig. 6: Constitution of Spatial Planning in Upper Austria ‐ Instruments
Spatial Planning Law
State Development Programme Sectoral Legislation Environmental and Plans of Regional Spatial Planning Sectotral Spatial Assessment Bund and Land Programme Programme Consideration and manifestation Guidelines of the Spatial Development Concept (Municipality) State Government Concept for Built Concept for Open Traffic Concept up‐Areas Spaces Environmental Assessment
Land Use Plan Permit by planning authority
Building Plan
Building Law
Law on Technical Building Regulations only in specific areas
www.clisp.eu I [email protected] 9
WP 5.3: Evaluation Upper Austria
Fig. 7: Procedures in Regional Planning
Tendering Procedure for elaboration of basic informations for Climate Change Mitigation and Regional Spatial Planning Programmes Adaptation as subject
Communities Regional‐ Elaboration of Concepts, Studies and Reports managements Integration of relevant sectoral departements
Elaboration of a draft Programme
Climate Change Mitigation and Environmental Assessment and revision of the draft Adaptation as subject
Ombud’s Office for Participation of communities, Social Partners, the Advisory Board for Spatial Climate Protection Planning, Ombud’s Office for Environmental Protection, others to finish the ordinance (right of consulation)
Ordinance of th Regional Planning Programme
voluntary, not obligatory
www.clisp.eu I [email protected] 10
WP 5.3: Evaluation Upper Austria
Fig. 8: Procedures in Local Planning
Public announcement Procurement by tender for the elaboration of land use plans Definition of standards regarding the Collection of individual content and the design of land use planning interests plan by the federal planning autority Elaboration of concepts fort he Spatial Development Programme (Built up area, Traffic, Open Space) Regional Programms
Public announcement Draft of the Land Use Plan Sectoral plans for consideration and manifestation
Statement, response of institutions Assessment of the environmental relevance
Environmental Assessment (SEA) Definition of criteria
Resolution of the community council Definition of standards
Assessment and permit by the superior Planning Autority
voluntary, not obligatory
www.clisp.eu I [email protected] 11
WP 5.3: Evaluation Upper Austria
3.2 Assessment of evaluated instruments At present the instruments do not contain any goals and measures concerning climate change adaptation explicitly. Some goals and measures support climate change adaptation implicitly by addressing the protection against natural hazards. The spatial planning instruments are able to contribute to climate change adaptation in different ways: Strategic level: goals, guidelines for implementation Level of implementation: programmes, plans and regulations
Fig. 9: SWOT analysis of instruments as regards goals and measures for climate change adaptation (strategic contributions green coloured, support for implementation red coloured) Contribution to climate Instrument Strengths Weaknesses change adaptation Protection against State Development Goals for regional and No goals addressing climate change caused Programme [Landes‐ local programmes and climate change natural hazards raumordnungspro‐ plans adaptation or climate gramm] change risks Regional Spatial Planning Securing of regional No connection to climate Programme [Regionales water retension areas, risks and climate change Entwicklungsprogramm] flood dams, avalanche adaptation 1) protection Retension areas are oriented at minimum requirements Only 29 of 444 communities are covered by a Regional Spatial Planning Programme Sectoral Spatial Sectoral Programme on At present no Sectoral Programme [Raum‐ Natural Hazards is an Spatial Programme ordnungsprogramme für option addressing natural Sachbereiche] hazards is existing Guideline of the State Map of geogenic risks for Not area‐wide available Government [Richtlinie settlement areas No binding character der Landesregierung] Land use Plan Clear restrictions for No provision for climate [Flächenwidmungsplan] building zones in flood related risks 1) zones and geogenic risks comparable to flood zones No regulations for rezoning of building land located in hazard zones Building law Permit for the building No provision for [Bebauungsplan] site has to take into additional climate account hazard zones change related risks 1) Law on Technical Technical regulation No provision for climate Building Regulations concering rebuilding and related risks 1) [Bautechnikgesetz] construction in flood No regulations zones concerning existing buildings in flood zones
www.clisp.eu I [email protected] 12
WP 5.3: Evaluation Upper Austria
Contribution to climate Instrument Strengths Weaknesses change adaptation Prevention of micro State Development At present do not contain climatic worsening Programme [Landes‐ goals and measures raumordnungspro‐ gramm] Regional Spatial Planning Appropriate to secure Only 29 of 444 Programme [Regionales large scale fresh‐air‐ communities are covered Raumordnungspro‐ corridors by green belts by a Regional Spatial gramm] and settlement Planning Programme development limits Lack of basic technical informations Land use Plan[Flächen‐ Important to secure Rezoning of building land widmungsplan] green belts and green and conversion in green areas in built up‐zones land is limited by high land prices Building Plan Regulations on planting Building plans are not [Bebauungsplan] and preservation of obligatory. Many green elements (trees, communities do not have court‐yards) a bulding plan Regulations on green roofs Abandonment of State Development Goals are available Goals force preservation, grassland and pastures Programme[Landes‐ Strategy concerning because of water stress raumordnungspro‐ abandonment is missing and conversion to wood gramm] or building land Regional Spatial Planning No Programmes existing Programme [Regionales for affected regions, low Raumordnungspro‐ range of influence gramm] Land use Plan Restrictive zoning of No management capacity [Flächenwidmungsplan] building zones is possible Risk of sprawl by rezoning to building land New land usages by State Development No goals and measures development of Programme[Landes‐ at present
renewable energy raumordnungspro‐ gramm] Regional Spatial Planning Specifying of priority and No goals and measures Programme [Regionales exclusion areas is at present Raumordnungspro‐ possible gramm] Sectoral Spatial Planning No programme existing Porgramme [Raum‐ yet ordnungsprogramme für Sachbereiche] Guidelines of the State No guideline existing yet Government [Richtlinien der Landesregierung] Land Use Plan Zoning possible, Individual case handling [Flächenwidmungsplan] guidelines for wind mills concerning photovoltaic existing plants
www.clisp.eu I [email protected] 13
WP 5.3: Evaluation Upper Austria
Contribution to climate Instrument Strengths Weaknesses change adaptation Touristic resorts and State Development Regional coordination No regulations yet activities in higher Programme [Landes‐ obligatory alpine areas or raumordnungspro‐ protection areas gramm] Regional Spatial Planning Specifying of priority and No programmes for Programme [Regionales extensions areas is relevant regions yet Raumordnungspro‐ possible gramm] Sectoral Spatial Sectoral Programme for No Sectoral Programme Programme [Raum‐ tourism is an option yet ordnungsprogramme für Sachbereiche] Land Use Plan Obligation for zoning in Individual case handling [Flächenwidmungsplan] the Spatial Development No Spatial Impact Concept Assessment obligatory Additional State Development No goals yet infrastructure (electric Programme [Landes‐ power lines, water raumordnungspro‐ pipes) gramm] Sectoral Spatial Sectoral Programme for No Sectoral Programme Programme [Raum‐ Renewable Energy is an yet ordnungsprogramme für option Sachbereiche] 1) Basic information is not available Strategic level Implementation level
Wether climate change mitigation nor climate change adation goals and measures are implemented in spatial planning instruments and procedures of Upper Austria yet.
3.3 Assessment of evaluated procedures Most of the procedures in regional and local planning as presented in Fig. 7 and 8 are obligatory due to the requirements of the legal framework. Not having given climate change as obligatory subject matter of programms and plans, climate change is not addressed in procurements by tender, in concepts, studies or reports, which have to be carried out in the stage before the resolution of programms and plans. In consequence the topic climate change is even not a subject matter in the approval procedures of spatial development concepts [Örtliches Entwicklungskonzept] and land use plans [Flächenwidmungsplan] by planning authorities. The planning department (responsible for regional planning) and the municipalities (responsible for spatial development concepts and land use plans) are free to integrate climate change in general and climate change adaptation in particular on a voluntary basis. But no good practise examples are documented in Upper Austria yet. However, the implementations of climate change as subject matter in the planning procedures would be an important step for the integration of climate change in spatial planning (see chapter 4.2).
www.clisp.eu I [email protected] 14
WP 5.3: Evaluation Upper Austria
3.4 Good Practice
3.4.1 Green covering of roofs In the City of Linz the building plan regulates the green covering of roofs. Since 1985 80 % of all new buildings with a roof pitch up to 20 degree have been planted (500.000 m²). The temperature on a green covered roof is 30 to 60 degrees below the temperature on normal roofs. The sewage flow is reduced and the sewage system disburdened, because 40 to 90 % of the precipitation is retained and evaporated.
3.4.2 Intercommunity cooperation The experience of the flood catastrophe in the year 2003 induced the up‐stream and down‐stream municipalities in the Feldaist / Waldaist region to establish an intercommunity cooperation to reduce the damage potential and to conserve and develop retension areas. A cooperative approach is needed because costs and benefits are distributed unequally between up‐stream and down‐stream municipalities. A formal cooperation with influence on local land use planning, on the development of common planning strategies in catchment areas and on the agreement on compensation measures has been established. The planning strategies and the agreements were based on the expertise of the Upper Austrian Torrent and Avalanche Control. 27 municipalities of 33 municipalities in the catchment area of the Wald‐ and Feldaist are member of the “Flood Protection Association Aist” [Hochwasserschutzverband Aist]. The success of this initiative is based on the shock of the flood catastrophe 2003, the strong commitment of charismatic individual stakeholders (mayors), a solidary attitude of the municipalities involved.
4. Conclusion and Summary
4.1 Climate change fitness In the past ten years climate policy of Upper Austria has been focused on mitigation policy. Spatial planning has been addressed explicitly by traffic and soil protection policies. The development of a comprehensive concept for climate change adaption is announced in the Governmental Working Programme 2009 to 2015. A regional research programm has been launched, but national basic informations (climate change modelling on regional scale units, harmonised methods of hazard mapping and integration of climate risks) are expected as precondition for further own activities. However, strong implications on spatial development and in consequence on spatial planning can be derived from the energy strategy 2030 and the challenging objectives as regards the supply by renewable energy resources. At the moment projects which react to climate change (e. g. plants for renewable energy, expansion of tourism resorts in higher regions) are handled as the case arises. General concepts, programmes or plans are not available yet. The various activities of Climate Alliance‐communities and of the ten energy and climate model regions are not connected to spatial planning. Wether climate change mitigation nor climate change adaptation goals and measures are implemented in spatial planning instruments and procedures of Upper Austria yet.
www.clisp.eu I [email protected] 15
WP 5.3: Evaluation Upper Austria
On the local level the Strategic Environmental Impact Assessment is obligatory only in specific cases. Therefore this instrument is not able to cover a climate change fitness proof for Land Use Plans comprehensivly.
4.2 Enhancement options
4.2.1 Enhancement options in general In the last ten to twenty years environmental protection has been implemented in the instruments and procedures of spatial planning in Upper Austria. This implementation took place by definition of goals and tasks explicitly addressing environmental issues in the spatial planning law and its instruments. The integration of climate change issues could be implemented in the same way. This means Climate change mitigation and adaption must be addressed explicitly in the Spatial Planning Law of Upper Austria [Oberösterreichisches Landesraumordnungsgesetz] The Spatial Planning Law should contain explicitly climate change mitigation and adaptation in obligatory contents of planning instruments. A climate fitness check could be implemented additionally in the proceeding of land use plans
The implication of these steps would be that Climate change issues have to be integrated as task in tendering procedures for studies, concepts and reports carried out in the stage before the resolution of programmes and plans The Ombud’s Office for Environmental Protection and the Ombud’s Office for Climate Protection has to be integrated in the consultation procedures on the level of regional and sectoral programmes Climate change mitigation and adaptation in spatial planning is quite new for the stake holders and the players in this field. Guidelines, handbooks, standards or checklists should be provided to support the implementation. An essential precondition for the consideration of climate change risks in spatial planning is the availability of hazard zone maps which already have integrated climate change risks. Yet in Austria no harmonised methods and parameters are existing.
www.clisp.eu I [email protected] 16
WP 5.3: Evaluation Upper Austria
4.2.2 Enhancement Options for the integration of climate change issues in spatial planning in Upper Austria The following optional recommendations have been carried out by the CLISP‐expert team and put up for discussion: (1) State Development Programme [Landesraumordnungsprogramm] Integration of explicit goals addressing climate change mitigation and climate change adaptation Integration of statements concerning the risk management of climate change (2) Regional Spatial Programme [Regionale Raumordnungsprogramme] Goals and measures concerning climate change mitigation and adaption should be part of the Programmes Micro‐climatic aspects should be addressed Hazard zones addressing all hazard aspects should be visualised in the plans and combined with requirements and orders (3) Sectoral Spatial Programme [Raumordnungsprogramme für Sachbereiche]/ Governmental Guidelines [Richtlinien der Landesregierung] It should be considered if a Sectoral Spatial Programme or a Governmental Guideline “Protection against Natural Hazards” would be an appropriate option (4) Land Use Plan [Flächenwidmungsplan] Integration of climate risk in hazard zoning and visualisation in land use plans based on standards provided by the responsible authorities Integration of climate fitness check in the proceeding (part of reporting, part of Strategic Environmental Assessment, part of the approval procedure) Rezoning of building zones in hazard zones Visualisation of flood zones with 150 or 300 year probability as information for land owners. (5) Building Plan [Bebauungsplan] Climate change adaption should be addressed explicitly as goal of the Building Plan in the Spatial Planning Law Obligatory Building Plan in communities in certain types of spatial development (e. g. urban and suburban areas, touristic communities, communities with dynamic development) (6) Building Law [Bauordnung] Climate change related risks should be integrated in hazard zones and combined with requirements in the building permit (7) Law on Technical Building Regulations [Bautechnikgesetz] Integration of requirements for existing buildings in hazard areas
4.2.3 Enhancement options for the management of land use changes caused by climate change Climate change related risks and chances as well as measures of climate change mitigation are able to initiate land use changes. In this case Spatial Planning has to deal with the following questions: (1) Are the regulations and procedures sufficient? (2) How do the land use changes correlate with the goals of spatial development? (3) Could conflicts arise between different sectoral interests (e. g. between tourism, agriculture, forestry, environmental protection) and how to manage them?
www.clisp.eu I [email protected] 17
WP 5.3: Evaluation Upper Austria
The following optional recommendations have been carried out by the CLISP‐expert team and put up for discussion: (1) State Development Programme [Landesraumordnungsprogramm] Integration of goals and measures concerning the development of renewable energy affecting land use Integration of goals and measures regarding land use changes in grasslands and pastures (2) Regional Spatial Planning Programmes [Regionale Raumordnungsprogramme] Integration of goals and measures regarding land use changes in grasslands and pastures (3) Sectoral Spatial Programmes [Raumordnungsprogramme für Sachbereiche] / Governmental Guidelines [Richtlinien der Landesregierung] Consideration if Sectoral Planning Programmes or Governmental Guidelines for the Development of renewable energy and for tourism would be an appropriate option (4) Land Use Plan [Flächenwidmungsplan] Consideration how to integrate photovoltaic plants in land use plans in an appropriate way. (5) Spatial Impact Assessment [Strategische Umweltprüfung] Integration of an obligatory Spatial Impact Assessment for specified projects and cases in the Upper Austrian Planning Law.
The management of climate related land use changes is not a matter of the regular spatial planning instruments alone. A flexible response is needed, which intgrates the variety of interests and concerns. Spatial planning could contribute by facilitation and moderation of this process. Up to now spatial planning in Upper Austria has been focused on regional planning but not so much on regional development planning, in particular on the local level. At the moment it is not quite clear who is in charge of the transsectoral task of climate change mitigation and adaption. Spatial planning could play a major role, but does not yet.
www.clisp.eu I [email protected] 18
WP 5.3: Evaluation Upper Austria
5. Lessons learned
5.1 General aspects The following aspects can be derived from the evaluation of spatial planning instruments and procedures in the Model Region Upper Austria: A top down approach is needed to provide reliable information on climate change, sensitivity and robustness on the regional level. This information should be provided by GIS‐based maps. The elaboration of such maps could be a strategic action within the new Austrian Development Concept, which is under preparation at the moment. A top down approach as well is needed to integrate additional risks caused by climate change in hazard zoning. The regions and municipatities are not able and not prepared to develop solutions on their own. Harmonised methods have to be established at least at national level. Guidance for spatial planner to deal with the topic climate change adaption is needed. On the other hand there is a strong rejection of additional instruments and tasks if the personal and budgetary resources remain unaffected or even will be reduced due to budget constraints. There is a contradiction between the goals of deregulation and lean procedures and additional regulations and time consuming procedures in consequence of climate change adaption needs. Some additional ideas have been raised: visualisation of risks, for example in land use plans / building plans or land marks to make visible the borders of red or yellow hazard zones in the landscape, certification of land and buildings not located in risk or hazard zones, combination of subsidies with hazard zones (no subsidies for sites within hazard zones) However, the crucial question is the mapping of additional climate related risks.
5.2 Next Stepps in Upper Austria Climate change issues shall be integrated in the spatial planning law with the next amendment.
Linz, 16.2.2011
www.clisp.eu I [email protected] 19
WP 5.3: Evaluation Upper Austria
Bibliography
Eitzinger J. et al (2008): Der Klimawandel, seine absehbaren Folgen für die Landwirtschaft in Oberöstereich und Anpassungsstrategien. Formayer H., Kromp‐Kolb H. (2006): Klimawandel und Tourismus in Oberöstereich, i. A. d. Landes Oberösterreich und der Landes‐Tourismusorganisation Oberösterreich. HIESS H. (2010): Szenarien der Raumentwicklung Oberösterreichs 2030, i. A. d. Landes Oberösterreich. Kromp‐Kolb H. et al (2007): Auswirkungen des Klimawandels auf Hochwasserereignisse in Oberösterreich. In: Land Oberösterreich: Forschungsreihe Auswirkungen des Klimawandels auf Oberösterreich, Band 2. Kromp‐Kolb H. et al (2007): Beobachtete Veränderungen der Hitzeperioden in Oberösterreich und Abschätzung der künftig möglichen Entwicklungen. In: Land Oberösterreich (2007): Forschungsreihe Auswirkungen des Klimawandels auf Oberösterreich, Band 1. Kromp‐Kolb H. et al (2007): Abschätzung der Auswirkungen von Hitze auf die Sterblichkeit in Oberösterreich. In: Land Oberösterreich (2007): Forschungsreihe Auswirkungen des Klimawandels auf Oberösterreich, Band 3. Land Oberösterreich (2007): BodenInformationsBericht 2007. Land Oberösterreich (2008): Gesamtverkehrskonzept Oberösterreich 2008. Land Oberöstereich (2009): Grüner Bericht 2008. Land Oberösterreich (2009): Energiezukunft Oberösterreichs – die oberösterreichische Energiestrategie. Mair F., Seher W. (2009): Vertiefung und Vernetzung zukunftsweisender Umsetzungsstrategien zum integrierten Hochwassermanagement, TP 9.3.2 Praktische Umsetzung künftiger Strategien gefährdungsarmer Raumnutzung – Interkommunale Kooperation. In: BMVIT, Lebensministerium (2009): Flood Risk II. ÖROK, Statistik Austria (2010): Kleinräumige Bevölkerungsprognose für Österreich 2010 – 2030, Bevölkerungsentwicklung nach Regionen und Bezirken. Statistik Austria (2010): Statistisches Jahrbuch.
Gesetze und Verordnungen
Oberösterreichisches Raumordnungsgesetz 1993, i. d. F. 2007 Landesraumordnungsprogramm (LAROP) 1998, i. d. F. 2009 Oberösterreichisches Bautechnikgesetz 1994, i. d. F. 2006 Oberösterreichische Bautechnikverordnung 1994, i. d. F. 2008 Oberösterreichische Bauordnung 1994, i. d. F. 2008 Oberösterreichisches Katastrophenschutzgesetz 2007 Verordnung der Oberösterreichischen Landesregierung betreffend das Regionale Raumordnungsprogramm für die Region Linz‐Umland 1999 Verordnung der Oberösterreichischen Landesregierung betreffend das Regionale Raumordnungsprogramm für die Region Eferding 2007
www.clisp.eu I [email protected] 20
WP 5.3: Evaluation Upper Austria
Other Sources
Oberösterreich 2009 – 2015, Regierungsprogramm der ÖVP Oberösterreich und der Grünen Oberösterreich http://www.land‐oberoesterreich.gv.at http://de.wikipedia.org/wiki/Oberösterreich
www.clisp.eu I [email protected] 21