The Master Programme for Spatial Planning in Luxembourg, known as “Programme directeur d’aménagement du territoire” (PDAT) 2023, is the central element of the country’s spatial planning policy. Serving as a framework for a sustainable development of the national territory and for enhancing the quality of life of all citizens, the PDAT defines an integrated strategy for sectorial policies with a territorial impact and defines guidelines, objectives and measures for the government and municipalities. The newly adopted PDAT (21 June 2023), which was prepared by the Department of Spatial Planning in cooperation with an interministerial working group, builds upon a large public participation process in 2018 and the international consultation “Luxembourg in Transition” in 2020—2022.

Structure and objectives

PDAT 2035 (Source: Département de l’aménagement du territoire (DATer) 2023)

In order to frame the strategy, objectives and measures, the PDAT was developed in accordance with the following four guiding principles:

  • Increasing the resilience of the territory
  • Safeguarding territorial, social and economic cohesion
  • Ensuring a sustainable management of natural resources
  • Accelerating the transition of the territory to carbon neutrality

Based on those guiding principles, three policy objectives and a cross-cutting objective have been identified, addressing the development issues highlighted in the spatial analysis as well as the challenges imposed by climate, environmental, geopolitical and health crises:

1. Concentration of development in the most suitable places: Central to the PDAT’s mission is guiding sector policies and supporting municipalities in locating essential functions and services in the most suitable places. This aims to facilitate access to services, anticipate and reduce mobility needs as well as plan for critical infrastructure.

By guiding future development, the PDAT enables efficient infrastructure planning and a cost-effective implementation of sector policies. The territorial strategy encompasses an urban hierarchy based on Central Places (centres de développement et d’attraction, CDA), which is supposed to steer the spatial distribution of population (i.e. development) and employment growth (i.e. attraction) in a sustainable manner.

2. Reducing land take: The PDAT focuses on limiting the process of converting natural, agricultural or forest land into built-up areas. Decreasing land take offers several benefits, including mitigating the effects of climate change, preserving natural and semi-natural areas, minimising flood risks, protecting biodiversity, and fostering carbon sequestration. The goal is to gradually reduce land take from by 2035 and tend towards no net land take (zéro artificialisation nette du sol) by 2050.

Dynamics of soil artificialisation 2007-2018 (Source: Département de l’aménagement du territoire (DATer) 2023)

To achieve this, the PDAT puts forward a planning culture that promotes urban regeneration, multifunctionality and efficient land management.

3. Cross-border spatial planning: Taking into account the functional linkages between Luxembourg and its cross-border functional region, the PDAT recognises the need for a concerted territorial development in the Greater Region (Grande Région). To address ecological and climate transition challenges, the Master Programme promotes territorial development strategies for cross-border functional areas, consultation with neighbouring regions in the framework of planning processes, and cross-border resource management.

4. Collaborative Governance as a cross-cutting objective: In the PDAT, governance is considered to be a cross-cutting objective, emphasising the coordination required for effective spatial planning. This is meant to happen horizontally across sector policies, vertically between the State and municipalities, as well as through public participation.

Time Horizon

The PDAT2023 is meant to unfold in two phases: 2023-2035 and 2035-2050. The first period until 2035 will act as a transition phase, which contributes to reversing the current development trends. Actions will focus on identifying and adopting instruments for the implementation of the Master Programme as well as initiating pilot projects and stakeholder connections.

The second phase, from 2035 to 2050, will ensure a steady transition and reverse the trends in question by the implementation of the strategies, while monitoring the developments as well as adapting approaches as needed.

Programme directeur d'aménagement du territoire 2023 - Stratégies territoriales - Portail de l'aménagement du territoire - Luxembourg
Vision 2050 in the PDAT (Source: Département de l’aménagement du territoire (DATer) 2023)

Implementation

In order to achieve the above-mentioned policy objectives in the given timeframes, two territorial strategies have been developed at different scales. First, the national territorial development strategy “Leitbild 2050” envisions a carbon-neutral and resilient territory, emphasising green, yellow and blue networks, the concentration of development in accordance with the urban hierarchy, and a sustainable mobility. This national territorial development strategy has also been broken down to so-called action areas (espaces d’action) at a functional-regional level. In this context, territorial visions for the three urban agglomerations have also been developed. Second, the territorial development strategy at the level of the Greater Region promotes cooperation in cross-border action areas, in accordance with the Interreg VI Greater Region programme. This cooperation fosters integrated territorial development in cross-border functional areas, complementing previous approaches by addressing challenges linked to the environment and natural resources. The implementation of strategies will be fostered through the adaptation of existing regulatory instruments and the potential creation of new ones.

Conclusion

The Master Programme for Spatial Planning in Luxembourg sets a forward-looking and ambitious territorial vision. By addressing climate change, resource preservation and sustainable growth, the PDAT paves the way for the ecological transition of the territory. Through clear strategic objectives and cross-sectoral coordination, Luxembourg is taking a further step towards sustainable development and enhancing citizens’ quality of life.

References

Master Programme for Spatial Planning in Luxembourg – “Programme directeur d’aménagement du territoire” (PDAT) 2023 (French): https://amenagement-territoire.public.lu/content/dam/amenagement_territoire/pdat-programme-directeur-damnagement-du-territoire-4072023.pdf

Spatial planning portal (French): https://amenagement-territoire.public.lu/fr/strategies-territoriales/programme-directeur.html

The second workshop organised by the CIPU office on the 18th of October narrowed down the annual topic of multifunctionality in the city by focusing on the integration of production and crafts in the city. The participants had the chance to delve into the concept of the Productive City from the different perspectives of municipal strategy development, the technical implementation and the regulatory framework.

The event was hosted in the former fire station barracks in Luxembourg city. The afternoon began with introductory presentations by the City of Luxembourg and the Chambre of Crafts (Chambre des Métiers). These included the Schluechthaus project in Hollerich and the development of the site around the fire station barracks and the former stadium. The focus here was on the technical conversion work on the barracks and the old Schluechthaus in order to bring the buildings up to the current safety regulations for public buildings for interim use. The third presentation dealt with the survey results of the Chambre des Métiers regarding the property requirements of craft businesses in the country.

Source: Ville de Luxembourg

The workshop began with an introductory presentation looking back on the previous thematic workshop in June and the excursion to Brussels in August facilitated by the CIPU. The tasks of the three discussion tables were then introduced. This was followed by a phase of group work in which all participants were assigned to a discussion group, each of which dealt with different aspects of the realisation of the productive city. The results of the discussions are explained in more detail in this documentation.

The first group focused on developing a comprehensive strategy for the implementation of the “Productive City” concept in municipalities. The discussion emphasized the need for both national and municipal-level actions, with the proposed national strategy serving as a guide for municipalities, linking them through centralised elements like a registry of businesses and potential mixed-use areas, as well as a crafts agency. The strategy identified the importance of clear goals, typologies in a national register, and the establishment of cross-sector working groups and a national crafts agency to ensure a multifaceted and coordinated approach. Key actors include a National Crafts Agency, municipalities, the Ministry of the Interior, the Crafts Chamber, and Luxembourg, each playing crucial roles in coordination, financial support, local implementation, and regulatory oversight.

Source: Ville de Luxembourg

The second group delved into the technical implementation of the “Productive City” concept, examining two projects within the current regulatory framework. The first project focused on a productive ground floor in an urban setting, aiming to divide 2,600 m² into flexible modules for various tenants, posing challenges related to flexibility, compatibility, and efficient building planning. The second project involved repurposing historic industrial halls for productive use, facing challenges concerning compatibility with other uses, heritage preservation, and operational concepts. The group identified challenges such as stakeholder coordination, urban integration, and flexibility of building structures, proposing solutions like national-level frameworks, internal building concepts, and zoned programming to address these concerns and make these projects feasible and adaptable over time.

The third group focused on the regulatory framework, aiming to identify obstacles and problematic provisions within existing municipal regulations (PAG/PAP QE/RBVS) related to the implementation of mixed-use areas combining residential and artisanal activities. The discussion revealed that challenges extend beyond local regulations, requiring national-level interventions. Key obstacles included the PAG zones’ strong emphasis on functional separation, parking space regulations, and the absence of a national definition for artisanal activities. Proposed solutions included national-level adjustments to the Règlement Grand-Ducal, standardised parking regulations, and clear definitions for artisanal activities to facilitate local implementation. Additionally, the group advocated for enabling densification in existing activity zones, securing existing businesses, and addressing the impact of the current real estate market on the attractiveness of various functions. The need for collaborative decision-making involving municipalities was emphasised throughout the discussion.

Source: Ville de Luxembourg

The workshop shed light on the urban challenges of blending housing and craftsmanship, emphasising the need for collaborative and holistic solutions. Group discussions pinpointed obstacles like technical requirements for buildings, zoning restrictions and parking norms, stressing the call for centralised coordination and requirement analyses. Overall, the workshop underscored the importance of a united effort to craft practical, flexible strategies for fostering dynamic, mixed-use urban spaces.

Contact

CIPU: cipu@zeyenbaumann.lu

References

CIPU website (French and German): https://site.cipu.lu/

“Luxembourg in Transition” (LiT) can be characterised as an innovative process with the aim of rethinking and reshaping the territorial transition of Luxembourg and its neighbouring regions across the border by developing visions for a desirable future until 2050. The territorial visioning approach is innovative in the sense that it goes beyond traditional planning culture and instruments in an interdisciplinary manner and the spirit of coopetition.

Aim

The main objective of this innovative process is to develop different territorial visions, based on ecological transition scenarios, strategic spatial planning solutions and demonstration projects, for a decarbonised and resilient cross-border functional region of Luxembourg until 2050. The ecological transition refers to achieving the objectives of zero carbon emission while:

  • reducing land take;
  • enhancing biodiversity, improving ecosystem quality;
  • integrating the aspects of housing, transport, energy and digitalisation;
  • creating concepts and models for a territory resilient to climate change;
  • promoting an economic development that is stable, equitable and solidarity-based; and
  • strengthening territorial and social cohesion.

The territorial visions are based on the long-term horizon of 2050. By comparing the visions with the business-as-usual scenario, it becomes possible to identify the changes required for achieving the objectives and design a roadmap.

source: Luxembourg in Transition, 2020: Logo

Partnership

The LiT process was initiated by the Department of Spatial Planning of the Ministry of Energy and Spatial Planning. The consultation was accompanied by different committees: The Scientific Committee provided expertise from research and planning practice; the Advisory Committee incorporated the interests of partner and stakeholder organisations from Luxembourg and the Greater Region; the Interministerial Committee engaged all relevant sector ministries and steered the process; and the Citizens’ Committee (Biergerkommitee Lëtzebuerg 2050) introduced the population’s perspective and addressed recommendations to political decision-makers. An external service provider was tasked with the scientific management of the process and overseeing the work of the expert teams.

Activities

The international consultation within the framework of the LiT process was designed as a three-stage cooperative competition (“coopetition”), aiming to engage international experts from various disciplines and stimulate cross-fertilisation among teams. The consultation brought together practitioners, universities and other research organisations and gathered knowledge in the fields of regional and urban development as well as architecture, environmental and social sciences. The initial ten teams started working in October 2020 and the four final teams presented their results in January 2022. The three stages of the consultation aimed to refine and concretise the so-called “transition visions” developed in each preceding phase.

Stage 1: In this stage, the expert teams were tasked with developing a quantitative approach to assess the effectiveness of measures in reducing greenhouse gas emissions. The metrics needed to quantify various aspects related to land use, energy consumption, waste management, food production, water resources or biodiversity.

Stage 2: Building upon their work in Stage 1, the expert teams were required to apply their metrics to the territory and show how innovative concepts in spatial planning could be implemented. The focus was on the cross-border functional region of Luxembourg, exploring the potentials and challenges of implementing measures in a cross-border context.

Stage 3: The final stage called for the expert teams to develop concrete strategies and exemplary projects to anchor the vision both within Luxembourg and across borders. This stage emphasised topics such as energy efficiency, the protection of biodiversity, resilience and climate change adaptation, resource scarcity and food security.

University of Luxembourg et al., 2021: Representation of a converted commercial area

For instance, the team led by the University of Luxembourg presented measures for regenerating industrial parks and commercial areas through conversion, multifunctional usage, the use of local products and renaturing. The experts developed their vision using the example of the commercial area Foetz in Mondercange, Luxembourg.

Further projects and detailed information about the entire LiT process can be found on the website: https://luxembourgintransition.lu/en/

Outlook

The LiT process represents an innovative approach to shaping the future of Luxembourg. By engaging a diverse range of actors, implementing a multi-stage competition, and incorporating cross-border aspects, the process aims to develop a sustainable and resilient Luxembourg in a sustainable and resilient manner. The vision’s long-term horizon of 2050 provides a framework for setting goals, identifying necessary changes, and establishing a roadmap for this development. The next step is to shift from theory to practical implementation, which consists of pilot projects and demonstrating the ability of the functional region Luxembourg to transition towards a carbon-free territory. Additionally, the transferability and application of the LiT process in other territories – cross border or not – is illustrated in the Guidance Note “Cross-Border Spatial Planning: A vision for a cross-border functional region” which is a Pilot Action of the Territorial Agenda. It demonstrates the applied methodology and discusses the implications of decarbonisation and sustainability for spatial planning and its cross-border dimension. Find out more about the pilot action here: https://territorialagenda.eu/pilot-actions/cross-border-spatial-planning/

Contact

Luxembourg in Transition: https://luxembourgintransition.lu/en/contact-2/

References

The European Grouping of Territorial Cooperation (EGTC) Alzette Belval plays a vital role in fostering collaboration between the French and Luxembourgish communities in the Alzette-Belval region. By facilitating cross-border projects and initiatives, the EGTC promotes sustainable development and positions Alzette-Belval as a transnational agglomeration.

Aim

Imagine a world where geographical borders do not limit collaboration between regions but facilitate it. That’s the objective of the EGTC Alzette Belval. By establishing a sustainable framework for cooperation and joint projects, it aims to bridge the administrative borders between Luxembourg and France to develop a shared vision for the future of Alzette Belval and stabilise the cross-border relationship. Additionally, the EGTC enables the transferring of local findings and perspectives to higher administrative levels and informs according regional, national or European institutions about the cross-border challenges.

Inauguration of the Cross-border Steel Curcuit in September 2022
Copyright: GECT ALZETTE BELVAL

Genesis and Composition

After first selective collaborative approaches between the French and Luxembourgish communities in the 1990s the need for a more effective and solid legal framework emerged. Therefore, the EGTC was established on March 8, 2013, with the support of the French and Luxembourgish governments and local authorities. It operates within the regulatory framework of the European Union, specifically the EGTC Regulation (No 1082/2006), which makes it a legal body.

The EGTC is compiled of a Luxembourgish delegation consisting of representatives from the state Luxembourg as well as from the four municipalities Esch-surAlzette, Mondercrange, Sanem and Schifflange. From the French side, representatives from the national level and Communauté de Communes du Pays-Haut Val d’Alzette, Région Grand Est, Conseil départemental de Meurthe-et-Moselle and Conseil départemental de la Moselle are involved.

Discovery of the ABACTIV pedestrian cycle track linking Micheville (F) and Belval (L) in September 2022. Copyright: GECT ALZETTE BELVAL

Activities, Measures, and Current Strategy (2021-2027)

A strategy is an essential instrument for an institutional body to function sustainably and effectively. The EGTC Alzette Belval developed a first strategy in 2014 for the timeframe until 2016. It was updated for the second phase 2017-2020 and the current version accounts for 2021-2027. It builds upon its previous successes and focuses on the following key areas:

  • Health
  • Mobility
  • Everyday life without borders and limitations
  • Alzette Belval: Maintenance and use of green landscapes
  • Alzette Belval: Shared and resilient future
  • Alzette Belval: Laboratory for education
  • Alzette Belval: Symbolic space of French-Luxembourgish collaboration

The EGTC Alzette Belval undertakes various measures and assumes roles to strengthen cross-border collaboration:

  • Information hub: The EGTC serves as a valuable information resource, providing updates on transborder initiatives, projects, and opportunities to the residents and institutions in the region.
  • Local link: Operating independently, the EGTC effectively represents the local interests of the Alzette-Belval community.
  • Facilitator: The EGTC facilitates exchange between stakeholders in the region, strengthening the cross-border network.
  • Project initiator: The EGTC takes the lead in developing and implementing transborder projects, often financed by European funds, e.g. through the Interreg Greater Region programme. These projects contribute to the region’s development and enhance cooperation between neighbouring communities.

A standout project within the EGTC’s portfolio is “Alzette Belval, vivons ensemble!”, which ran from 2014-2020. This initiative was developed to promote the concept of a cross-border agglomeration, aiming to cultivate a sense of belonging and regional identity. Through collaborations with several authorities from France and Luxembourg, the project facilitated cross-border projects in domains like sports, tourism, culture, and agriculture.

Games without borders between the youth centres of Belvaux (L) and Rédange (F) in summer 2022. Copyright: GECT ALZETTE BELVAL

Outlook

The EGTC Alzette Belval is dedicated to cross-border collaboration and sustainable development. By facilitating cooperation, implementing joint projects, and engaging local stakeholders, the EGTC strives to create a dynamic, interconnected, and resilient Alzette Belval that benefits residents, businesses, and institutions. Looking ahead to 2021-2027, the EGTC focuses on integrating cross-border projects and fostering a harmonious cross-border agglomeration. This strategy underscores the transformative power of collaboration, envisioning a future where borders no longer limit progress but instead facilitate collective development.

Contact

EGTC Alzette Belval: contact@gectalzettebelval.eu

References

The “National Platform for Urban Policy” (CIPU) enables cooperation between national, regional/intermunicipal and local level and initiates the debate around urban planning and development in Luxembourg. In addition to that, it raises awareness in the international context and informs about ongoing urban spatial planning trends and relevant topics in Luxembourg.

Aim

CIPU works on two levels: the European and the national level. While increasing awareness about spatial planning in Luxembourg in the international context, the platform simultaneously supports the cooperation between the local and the national level in Luxembourg. The central objective of CIPU has always been to provide a platform for exchange between the various urban policies and a multitude of municipal, national and European actors and enable cooperation – an objective which remains valid today. However, the practical topics have evolved across the years. The convention applies a focused and cooperative approach for its implementation.

Partnership

CIPU is based on an agreement between the Luxembourg Ministry of Energy and Spatial Planning, the Ministry of Housing and Ministry of Home Affairs as well as the cities of Luxembourg, Esch-sur-Alzette, Differdange and Dudelange. These partners constitute the core network of the CIPU. It is managed and organised by the CIPU which is run by Zeyen+Baumann in cooperation with Spatial Foresight. Depending on the subject, the platform’s activities are implemented in close cooperation with external partners, e.g. the Klima-Agence.

Patty Neu, November 2019: Presentation of CIPU publications during the press conference in November 2019, Claude Turmes, Minister of Energy and Spatial Planning and Henri Kox, Minister of Housing

Genesis

CIPU was developed in 2010 to support the integration of the recommendations for urban development from the European level in Luxembourgish spatial planning policy. In Luxembourg, the debate on spatial development since the beginning of the 2000s has been marked by the adoption of the second Master Programme for Spatial Planning (PDAT) in 2003, the Integrated Transport and Territorial Development Concept (IVL) in 2004 and the revision of the laws on urban (2004) and spatial planning (2013, 2018). CIPU initially aimed at transposing the objectives from the “Leipzig Charter on Sustainable European Cities” from 2007 at the national level while involving Luxembourgish municipalities in the implementation of a national urban policy, and – at the same time – considering the objectives of the PDAT which has a guiding function for national and local authorities.

Zeyen+Baumann, September 2021: CIPU excursion on Revitalising city centres in September 2021

During 2017-2021, a thematic focus was set for each year: In 2017/2018 the activities were focused on affordable housing. The year 2019 revolved around the topic of major urban development projects, the years 2020/2021 focused on both climate change adaptation in urban development and the revitalisation of inner cities. Furthermore, in the course of 2021, CIPU addressed the changing framework conditions caused by the COVID-19 pandemic and work was carried out under the overarching title “City in Transition”. In addition to workshops and events, which were dedicated to concrete issues and enabled a direct exchange between the participants, the results of the discussions were processed in numerous publications for Luxembourgish and European planners. These were produced in close cooperation with the partners involved in the CIPU and the actors participating in the workshops. The CIPU documentation is thus a significant output that actively contributes to informing and developing the expertise of Luxembourgish planners. In order to finalise this phase of CIPU and to provide space for other important topics in the future, the “Journée de la Politique Urbaine” was organised with Luxembourgish planners and experts in January 2022. In a world café-like setting, the future perspectives for a “City in Transition” were elaborated as a summarizing statement of the CIPU 2020/2021.

Patty Neu, October 2019: CIPU workshop on innovative urban development projects in October 2019

Outlook

The main topics and activities for the next two years are described in an ambitious programme. It was developed in close cooperation with all involved partners by means of in-depth discussions about relevant topics. This action programme will cover the following topics:

  • multifunctional urban areas
  • energy concepts for large-scale urban projects
  • climate resilience and climate change impact in urban development
  • building cooperatives and alternative models for housing and working

Activities for 2023 were launched in May with the online lecture series (colloque) consisting of four presentations on energy concepts in the district “Roud Lëns”, the projects “NeiSchmelz” and “Wunne mat der Wooltz” as well as the energetic renovation of existing buildings in Differdange and a low-emission district in Strasbourg. Further steps in the implementation include interactive thematic workshops, an excursion and a concluding conference on the second thematic focus of multifunctional urban areas. For external communication, and awareness-raising, CIPU will inform about ongoing activities, publications and provide a collection of funding opportunities for municipalities on its website and social media. Furthermore, this blog will inform continuously about ongoing urban planning and development trends and projects in Luxembourg – so stay tuned during the next months.

Contact

Cellule nationale d’Information pour la Politique Urbaine (CIPU): cipu@zeyenbaumann.lu

References

CIPU website (German and French): https://site.cipu.lu/

CIPU blog (English): https://blog.cipu.lu/blog/

Conclusions of CIPU 2020/2021 (German): https://site.cipu.lu/images/2022-03_publications2022/CIPU_Conclusions%202020-2021_2022-03-30.pdf

Conventions are contractual agreements that foster cooperation between municipalities and the State in Luxembourg. Conventions can cover a multitude of topics in the field of spatial planning and urban development.

Rationale for action

In Luxemburg, the national level sets the general political objectives and orientations of spatial planning and development. To a large extent, the competence for urban planning and development lies with the municipalities. An intermediate level between the state and the municipalities is missing; there is no regional level requiring neighbouring municipalities to coordinate their spatial planning procedures or future development options. Yet cooperation and coordination among all levels of government (vertical dimension) and with relevant actors at the same level (horizontal level) is necessary to achieve the objectives of a sustainable spatial development.

Objective

Conventions promote inter-municipal and multilevel cooperation to foster sustainable regional development, promote integrated planning and address specific development issues. In this context, conventions facilitate the vertical cooperation between the State and municipalities with the aim of implementing the objectives established in territorial strategies, such as the Master Programme for Spatial Planning (PDAT), the Integrated Transport and Spatial Planning Concept (IVL) and the Global Strategy for Sustainable Mobility (MoDu 2.0).

Time frame

The first convention of territorial cooperation was created on an ad-hoc basis in 2005. Since then, five more conventions have been signed. The process was formalised in 2013 with the Law of 30 July 2013 on Spatial Planning, which defined the procedure for concluding conventions with territorially contiguous municipalities. In the new Law of 17 April 2018 on Spatial Planning, conventions are defined as a proprietary instrument for the implementation of the objectives of spatial planning.

Key players

Municipalities and national authorities (in particular the Department of Spatial Planning and Development in the Ministry of Energy and Spatial Planning). Membership is voluntary and there are no explicit statistical, geographical or morphological criteria for joining. With the new Law of 17 April 2018 on Spatial Planning, municipalities do not need to be territorially contiguous anymore. The membership of a municipality is solely based on functional criteria: all municipalities in a convention area have a shared understanding of common challenges and opportunities.

Implementation steps and processes

A convention represents a contractual agreement between municipalities and the State. In accordance with the Law of 17 April 2018 on Spatial Planning, the initiative to establish a convention can come from either the interested municipalities or the Minister responsible for Spatial Planning. Following the approval by the Council of Government, the Minister can sign a convention with these municipalities. The actors draft the text of the convention in which the mission and objectives, the joint projects, the organisational structure, the procedural setup, and the budgetary provisions are defined. A convention area is managed by a so-called ‘Political Committee’ that is composed of two elected representatives per municipality (usually the mayor and an alderman/alderwoman) and the Minister responsible for Spatial Planning. This Political Committee defines the political priorities of the convention and approves the annual work programme. The discussions and decisions at the political level are generally prepared by a ‘Technical Board’ that is composed of the municipal officers responsible for urban planning and policy experts from the Department of Spatial Planning and Development and, depending on the subject, other ministries. The day-to-day business and the follow-up of projects is, in some cases, managed by a Coordination Unit. Convention areas are not recognised as an official territorial unit and there is no formal delegation of competences to the Coordination Units.

Required resources

Conventions of territorial cooperation establish an organisational structure and a financial framework for the duration of the agreement. The allocated budget may vary depending on the willingness of partners to contribute and on the resources required to resolve a specific issue. The Department of Spatial Planning and Development financially contributes to the budget of each convention area, with the rest of the budget coming from the municipalities.

Results

Conventions are an instrument allowing to bridge decision-making levels. Conventions are often a first step to initiate territorial cooperation to work on an identified issue and lead to more institutionalised forms, such as municipal syndicates. Therefore, as of 2021, there’s only one active convention remaining:

  • CIPU is a convention between the Ministry of Energy and Spatial Planning, the Ministry of Housing and the municipalities of Luxembourg, Esch-sur-Alzette, Dudelange and as of 2022, the municipality of Differdange. The convention acts as a platform for exchange on urban policies for the partners and other municipal, national and European actors. The first convention was established in 2010 and the second one became effective in 2016 and will be extended in 2022.

The following conventions have lead to more institutionalised forms of cooperation:

  • the Nordstad convention has set the political basis for developing the Nordstad, a new urban region in the North. Members include the municipalities of Bettendorf, Colmar-Berg, Diekirch, Erpeldange-sur-Sûre, Ettelbrück, Schieren and the Ministry of Energy and Spatial Planning. In 2006, the first convention was signed, which was active until 2014. The second period of the convention covers the period from 2014 until 2019. In 2019, the convention led to the foundation of the inter-municipal Nordstad syndicate, organising the municipal services of the future Northern agglomeration.
  • the objective of the PRO-SUD convention was to promote the development of the South region, which is composed of eleven municipalities in the southern part of the country. The first convention for an integrated territorial development was signed in 2015 and expired in 2020, leading to the foundation of the PRO-SUD syndicate.

More conventions existed but did not lead to fixed forms of cooperation:

  • DICI was a convention that addressed inter-municipal spatial planning and development in the South-West region around Luxembourg-City. Members included the municipalities of Luxembourg, Bertrange, Hesperange, Leudelange, Strassen and the Ministry of Energy and Spatial Planning. The first convention was signed in 2005 and the second one in 2010, the latter of which ran until the end of 2018. The convention was not extended after 13 years of inter-municipal cooperation.
  • Air Regioun was a convention between the State and municipalities East of Luxembourg City. Its objective was to weaken the expected territorial development pressure of a fastly growing Luxembourg City and to coordinate economic development in the region. It was active from 2008 to 2013.
  • Convention Uelzechtdall between the State and the five municipalities north of Luxembourg City Lintgen, Lorentzweiler, Mersch, Steinsel and Walferdange was a convention active between 2007 and 2017. Its aim was to coordinate territorial development by streamlining municipal land-use plans.

Experiences, success factors, risks

The main factor in the conclusion of conventions is the political willingness to cooperate. Moreover, continued political commitment is necessary to sustain the cooperation and to implement projects. As the basis for political commitment, a shared understanding of common challenges and opportunities at the political level is required.

An important incentive for the municipalities to participate is the enhanced cooperation with the State as well as the implementation of joint projects. In terms of regional planning, the municipalities do not delegate planning competences to the Coordination Unit. Nonetheless, there is coordinated planning and development in some fields. This degree of coordination varies from one convention area to another with different coordination mechanisms and procedures. This leads to a differentiated pattern of results. All conventions have non-binding spatial development concepts. The Nordstad convention area, for instance, has a so-called Masterplan.

This form of cooperation fosters communication and builds trust among partners. In most cases, State and municipal actors use conventions to structure coordination mechanisms.

Conclusions

Due to their flexibility, conventions can be used to tackle problems in a unique way. The implication of national authorities helps to ensure funding where the municipal contribution is not sufficient, but the State can also act as a moderator or mediator. The national authorities are actively supporting the establishment of conventions. It is also important to provide the Coordination Unit, charged with the management of day-to-day business, with enough competences to successfully implement and carry out projects. Political willingness and commitment are necessary to sustain the cooperation and to implement projects.

Contacts

Ms Myriam Bentz, Ministry of Energy and Spatial Planning: Myriam.Bentz@mat.etat.lu