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Urban–Rural Flows from Seasonal Tourism and Second Homes Planning Challenges and Strategies in the Nordics

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Urban–Rural Flows from Seasonal Tourism and Second Homes Planning Challenges and Strategies in the Nordics Urban–rural flows from seasonal tourism and second homes Planning challenges and strategies in the Nordics Elin Slätmo, Louise Ormstrup Vestergård, Johannes Lidmo and Eeva Turunen NORDREGIO REPORT 2019:13 nordregio report 2019:13 1 Urban–rural flows from seasonal tourism and second homes Planning challenges and strategies in the Nordics Elin Slätmo, Louise Ormstrup Vestergård, Johannes Lidmo and Eeva Turunen, Nordregio NORDREGIO REPORT 2019:13 Urban–rural flows from seasonal tourism and second homes: Planning challenges and strategies in the Nordics Nordregio Report 2019:13 ISBN: 978-91-87295-81-2 ISSN: 1403-2503 DOI: doi.org/10.6027/R2019:13.1403-2503 © Nordregio 2019 Nordregio P.O. Box 1658 SE-111 86 Stockholm, Sweden [email protected] www.nordregio.org www.norden.org Analyses and text: Elin Slätmo, Louise Ormstrup Vestergård, Johannes Lidmo & Eeva Turunen Cover photo: Louise Ormstrup Vestergård Layout: Agnes Stenqvist Design Nordregio is a leading Nordic and European research centre for regional development and planning, established by the Nordic Council of Ministers in 1997. We conduct solution-oriented and applied research, addressing current issues from both a research perspective and the viewpoint of policymakers and practitioners. Operating at the international, national, regional and local levels, Nordregio’s research covers a wide geographic scope, with an emphasis on the Nordic and Baltic Sea Regions, Europe and the Arctic. The Nordic co-operation Nordic co-operation is one of the world’s most extensive forms of regional collaboration, involving Denmark, Finland, Iceland, Norway, Sweden, and the Faroe Islands, Greenland, and Åland. Nordic co-operation has firm traditions in politics, the economy, and culture. It plays an important role in European and international collaboration, and aims at creating a strong Nordic community in a strong Europe. Nordic co-operation seeks to safeguard Nordic and regional interests and principles in the global community. Common Nordic values help the region solidify its position as one of the world’s most integrated and sustainable. The Nordic Council of Ministers is a forum of co-operation between the Nordic governments. The Nordic Council of Ministers implements Nordic co-operation. The prime ministers have the overall responsibility. Its activities are co-ordinated by the Nordic ministers for co-operation, the Nordic Committee for co-operation and portfolio ministers. Founded in 1971. The Nordic Council is a forum for co-operation between the Nordic parliaments and governments. The Council consists of 87 parliamentarians from the Nordic countries. The Nordic Council takes policy initiative s and monitors Nordic co-operation. Founded in 1952. Stockholm, Sweden, 2019 Contents Preface ............................................................................................................................................................ 6 Summary ........................................................................................................................................................... 7 Spatial planning for second homes .............................................................................................. 8 Nordic overview ......................................................................................................................................... 10 What is a second home? ............................................................................................................................. 10 What motivates people to have or use second homes? ..................................................................... 10 Why is the use of second homes increasing? ......................................................................................... 10 Where are the second homes in the Nordic countries located? .........................................................12 Second homes have both positive and negative impacts ...................................................................12 A formidable seasonal counter-urbanization ........................................................................................ 15 Five Nordic municipal examples .....................................................................................................17 Second homes and seasonal tourism in Denmark ................................................................................17 Property tax and regulated use and ownership ............................................................................. 19 Odsherred – an economy dependent on second homes and tourism ...................................... 19 Second homes and seasonal tourism in Finland ................................................................................... 24 Second home owners are local stakeholders .................................................................................. 25 Pargas – part-time residents are essential ..................................................................................... 25 Second homes and (seasonal) tourism in Iceland ................................................................................ 29 Regulated renting .................................................................................................................................. 30 Grímsnes- og Grafningshreppur – dominated by second homes and tourists ..................... 30 Second homes and seasonal tourism in Norway ..................................................................................34 Regulating second homes and seasonal tourism in Norway ......................................................35 Nore og Uvdal – Planning for and building more second homes ................................................36 Second homes and seasonal tourism in Sweden ................................................................................. 40 Protection, restrictions and standards ............................................................................................ 40 Härjedalen – rurality and high living standards ...............................................................................41 Combined analyses of challenges and strategies in use in the Nordics ..........46 Policy recommendations: turn challenges into opportunities for local and regional development ................................................................................................................................................... 47 Hard government tools to balance the seasonal flows of inhabitants .................................... 47 Targeted governance tools to balance seasonal flows of inhabitants .....................................48 Soft governance tools for seasonal flows of inhabitants ............................................................48 References ...................................................................................................................................................... 49 Appendix: Methods and validation of results ....................................................................54 nordregio report 2019:13 5 Preface As part of the Nordic Co-operation Programme 3) urban qualities in small and medium-sized cities for Regional Development and Planning 2017– and the urban–rural relationship; and 4) the growth 2020, three Nordic thematic groups have been es- and development of Arctic cities. Within these tablished in the following areas: broad themes, the group decides what activities to conduct, and the researchers involved are respon- 1. Sustainable rural development sible for the results. 2. Innovative and resilient regions In this report, the urban–rural relationship was 3. Sustainable cities and urban development examined through the lens of second homes and seasonal tourism. The planning challenges and The groups were set up by the Nordic Committee strategies identified in this report have a major of Senior Officials for Regional Policy (EK-R), under potential for Nordic learning as well as potential the Nordic Council of Ministers for Sustainable for contributing to the discussions of the complexity Growth, and the members are representatives of of urban–rural relationships in the Nordics. relevant ministries, national authorities, regional The authors would like to thank all the inter- authorities and cross-border co-operation com- viewees for sharing their knowledge and experi- mittees. One purpose of the thematic groups is to ences and all the readers of the draft versions who implement the co-operation programme by con- helped in the final stages of the work. A special tributing to the exchange of knowledge and ex- thanks to Hjördís Rut Sigurjónsdóttir for translations perience between regional policy stakeholders, by during the fieldwork in Iceland. promoting Nordic perspectives and by highlighting the importance of regional policy issues for sus- tainable development and growth. This report is the result of work conducted for the thematic group Sustainable Cities and Urban Kristian Elleby Sundquist Development. The group focuses on 1) social sus- Chair of the Nordic Thematic Group tainability and gender equality; 2) spatial planning; Sustainable Cities and Urban Development nordregio report 2019:13 6 Summary In this study, the impact of second homes and sea- rural development in addition to the permanent sonal tourism on spatial planning is investigated. residents. This positive development is connected Seasonal tourism and the use of second homes to job creation, planning of cultural activities
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