Spatial planning

Spatial planning: a coordinating, accelerating and facilitating role

The 2023-2028 coation agreement confirms the coordinating role of the Department of Spatial Planning in relation to sectoral policies as well as municipal planning that have a territorial impact, as provided for in the (modified) Spatial Planning Law of 17 April 2018.

The objectives and means defined by the Spatial Planning Law should make it possible to accelerate the implementation of specific government projects. To achieve this, the Government wishes to use all the means and assets offered by spatial planning policy to ensure better management of public funds, faster procedures and, ultimately, the implementation of projects.

The Master Programme for Spatial Planning (PDAT)

The role of spatial planning is to define and implement a strategy that reconciles socio-economic development with the protection of resources and the environment. Spatial planning policy cannot directly influence changes in the number of inhabitants and jobs, which are directly linked to the country's economic attractiveness. Its central role is to determine how to distribute this development across the national territory in an equitable and balanced manner, with a view to sustainable development and territorial resilience. 

This strategy is defined in the new Master Programme for Spatial Planning (PDAT) adopted by the Government on 21 June 2023. The PDAT sets out the future guidelines for the country's territorial development for 2035 and 2050 through three policy objectives – concentrating territorial development in the most appropriate locations, reducing land take and strengthening cross-border territorial cooperation – and development strategies specific to each type of territory. In addition, the PDAT identifies a whole series of instruments and measures to implement these objectives and strategies.

The four primary Sectoral Master Plans (PDS)

The four primary Sectoral Master Plans – Housing (PSL), Transport (PST), Economic Activity Zones (PSZAE) and Landscapes (PSP) – came into force on 1 March 2021.  The four primary Sectoral Master Plans (PDS) came into force on 1 March 2021. They constitute Grand-Ducal regulations (RGD) implementing the modified Spatial Planning Law of 17 April 2018 and make the Master Programme for Spatial Planning (PDAT) operational by reserving land primarily for housing, transport infrastructure and industrial and commercial zones and protecting certain landscapes in the Grand Duchy of Luxembourg.

While the areas defined by the Sectoral Master Plan “Landscapes” (PSP) are, in principle, fixed in that their main objective is to establish a framework for land use planning in order to preserve landscapes, this is not the case for the other three:

• The Sectoral Master Plan “Transport” (PST) aims to ensure the implementation and redevelopment of transport infrastructure projects by automatically superimposing corridors and areas intended to accommodate them in the framework of development plans and urban development projects.
• The Sectoral Master Plan “Housing” (PSL) defines areas mainly intended for housing, 30% of which must be affordable housing.
• The main purpose of the Sectoral Master Plan “Economic activity areas” (PSZAE) is to define land intended for national, specific national and regional economic activity zones primarily intended for the establishment of industrial and commercial activities.

Rigorous monitoring will be carried out by monitoring committees, whose composition and organisation are provided for in RGDs that came into force on 1 March 2021, in order to assess land requirements in good time and, if necessary, initiate a procedure for amending or updating the four primary PDSs before the end of the legislative period.

Territorial observation

Territorial observation is enshrined in the Spatial Planning Law and is a cornerstone of spatial planning policy. The data-driven and evidence-based approach relies on the collection, analysis and use of empirical data to guide policy decisions. This approach makes the political process more transparent and strengthens citizens' trust in the decisions taken. The Raum+ instrument and the Territorial Development Observatory (Observatoire du développement territorial, ODT ) are examples of such an approach.

Regional development in urban areas and agglomerations

The development policy for urban areas is implemented through cooperation with the municipalities of the three urban agglomerations Nordstad, Agglo-Centre and Prosud, as well as through various urban development and planning initiatives. In addition to formal planning instruments, cooperation agreements encourage a dynamic and flexible planning approach based on dialogue and the development of concrete projects. They are characterised by the exchange of experience and know-how between municipalities, ministries and disciplines, and contribute to the emergence of a more participatory planning culture.

Regional development in rural areas and nature parks

Nature parks constitute the DATer's main tool for rural development. In addition, territorial cooperation agreements are also a form of cooperation with municipalities, whether rural or not, to develop joint territorial development strategies and support the implementation of concrete projects.

Cross-border territorial cooperation

Given that the Luxembourg economy is characterised by strong interdependence with neighbouring regions, spatial planning policy must necessarily have a cross-border dimension. In line with the PDAT's objective of strengthening cross-border planning, cross-border coordination and action should therefore be strengthened. 

The cross-border functional areas, which are included in the PDAT and the Interreg Greater Region programme, are an important tool for implementing cross-border cooperation. Luxembourg participates in seven functional areas. For areas currently being established, such as the Luxembourg-Wallonia North and South areas, the Eifel-Ostbelgien-Eislek trinational area and the Nature Parks area, the aim is to support the establishment of the necessary governance structures, both in terms of funding and staffing for the management structures of the various areas. In terms of implementation, the aim is to support the development of projects within these areas and to contribute to their financing if the project falls within the remit of spatial planning.

European Territorial Cooperation and Cohesion policy 

In terms of European Territorial Cooperation, the DATer has a special responsibility for European programmes as the managing authority for the ESPON programme and the Interreg Greater Region programme. The DATer is also responsible for coordinating the Territorial Just Transition Plan and its implementation within the framework of ESIF programmes in Luxembourg. With regard to urban policy at European level, the Leipzig Charter and the New Leipzig Charter continue to be implemented through the CIPU and participation in the URBACT Programme, the European Urban Initiative and the New European Bauhaus.

Finally, with regard to territorial cohesion at European level, the aim is to continue implementing the ”Territorial Agenda 2030” in Luxembourg's spatial planning policy.