Integrating NBS in local planning policy

Integrating NBS on the strategic level for planning in municipalities, can enable use of NBS locally, both on public and private property.

Specific Advice

Integrating NBS in local spatial planning can ensure a coherent approach to addressing societal challenges across sectors. Municipal master plans and relevant thematic plans can be revised or adopted to encourage or require NBS in municipal planning and in urban developments.
More specifically, it can be worth considering adopting provisions and use specific land-use objectives or adopt zones requiring special consideration in the municipal master plan to protect, restore or guide the use and management of nature in certain areas. Thematic plans should be updated, and new ones adopted if needed. Moreover, old zoning plans not in compliance with the revised municipal master plan may be revised or repealed to avoid conflicts with the new master plan.

Good to Know

Integrating NBS into the land-use element of a municipal master plan is an important step to ensure such solutions are being implemented on the local level, not only on public space but also on private properties.

To set requirements for using NBS in zoning plans, it is key to ensure capacity-building within the municipality to enable the civil servants to assess each NBS as described and visualised in planning proposals.

Planners may find themselves having to prioritize considerations with clear requirements, while measures that are “nice to have” are given a lower priority. When revising or adopting the land-use element of the municipal master plan, care should be taken to ensure clear priorities and requirements for NBS. Provisions and guidelines should be clearly defined, and municipalities should carefully choose what should be adopted as provisions versus guidelines.

Consider whether old zoning plans should be repealed when adopting a new or updated municipal master plan, to avoid urban developments that are not in line with the new municipal master plan and the ambitions to use NBS rather than grey solutions to address specific societal challenges. Make sure to update the municipality’s routines and checklists for planning processes to include NBS.

Context

Land-use planning regulates land-use based on national, regional and local policies. Since land-use changes are the main driver of biodiversity loss, land-use planning is crucial for nature protection and restoration. The Nordic countries have similar physical planning structures, with the main responsibility for spatial planning at the regional and/or municipal level. By integrating NBS at the strategic level, municipalities can encourage the use of NBS as the chosen approach at a local level.
The municipal master plan serves as a roadmap for long-term vision and development for municipalities. Its land-use element is key to mainstreaming NBS in municipal planning. By adopting provisions and guidelines for NBS specifically, civil servants can prioritise and set NBS requirements at the zoning level. Moreover, thematic plans can be developed as part of the process of assessing the state and possibilities of NBS and guiding the work within the municipality.
Municipalities should specify which societal challenges to address with NBS, and how to integrate this into planning. Approaches include adopting general provisions and guidelines for NBS, using land-use objectives, or creating zones requiring special consideration to protect, restore or guide the use and management for certain areas. Some municipalities prioritise NBS for certain societal challenges, while others reform land-use priorities, following the conservation hierarchy or no net loss strategies in their municipal master plans.

Examples and Cases

Nordic examples of integrating NBS in local planning policy:

#ICELAND – Reykjavík’s municipal master plan

The City of Reykjavík has included NBS in its updated Reykjavík 2040 Municipal Plan. Integrating NBS in the city’s master plan was found to be particularly important as it has since affected all decision-making when it comes to implementing new projects, building new neighbourhoods, renovating streets and other facilities, etc, encouraging the use of NBS over other types of solutions where relevant.
More information about the municipal master plan here:
https://reykjavik.is/en/municipal-plan

#NORWAY – Stavanger’s municipal master plan (land-use element) 2023-2040

The city of Stavanger has integrated NBS on all levels in their land-use planning (Furuseth et al. 2024) and the land-use element of the municipal master plan was found to be particularly important to encourage NBS for climate adaptation in zoning plans, and especially the provisions about stormwater and NBS, blue-green factor and initial site analysis.
The following examples are quotations of some relevant provisions in Stavangers’ municipal master plan:
Provision §1.17 Outdoor Areas (our translation):
11. “Outdoor recreational areas shall have green qualities such as trees and other vegetation. Nature-based solutions shall be used to preserve and enhance biodiversity, urban nature, landscapes, ecosystems, and to manage stormwater.”
Provision §1.19 Stormwater Management and Nature-Based Solutions (our translation):
2. “Stormwater shall be delayed and managed locally, preferably through nature-based solutions. Sufficient area for open stormwater management, infiltration, and vegetation within the planning area shall be ensured, primarily on one’s own land. If conditions allow, adjacent public green structures can be included in the solutions.”
3. “Nature-based solutions that form the basis for the blue-green factor and local stormwater management shall not be removed or altered without compensatory measures.”
4. “Development shall not result in increased or faster runoff to lakes, watercourses, or existing drainage systems. Development shall not result in discharges to the sea, lakes, or watercourses that may negatively impact the aquatic environment. Measures to prevent flooding and pollution may include infiltration and detention. Nature-based open solutions should be used.”
The municipality also requires developers to prepare an initial site analysis before the start-up meeting in accordance with the municipality’s guide for site analyses. Municipal employees experienced that the initial site analysis enabled them to secure (more) space for NBS, because the topic was discussed earlier in the planning process than before.
Stavanger has also adopted general provisions and guidelines for biodiversity, blue-green structures, trees, no net loss principle (arealnøytralitet) for natural values, water and riparian zones along watercourses, and the blue-green factor. Provisions and guidelines for specific land-use objectives relevant for NBS include green structures and recreational areas, the use and protection of marine areas and several principles and instructions for planning processes (no net loss, conservation hierarchy, consequence analysis for biodiversity, landscape-ecological contexts, and blue-green structures, guidelines for trees).
This example is written based on findings from Furuseth et al. (2024).
More information about the (name of the example) can be found here:
The municipal master plan is available here: https://www.stavanger.kommune.no/stavanger2040/
Read the full analysis of nature-based climate adaptation in Stavanger here: https://www.miljodirektoratet.no/publikasjoner/2024/mars-2024/naturbaserte-losninger-i-kommunale-planer/ (Furuseth et al. 2024)

#FINLAND – NBS for urban planning in provinces and municipalities

Finnish provinces and municipalities strive for climate neutrality and sustainability and importance of inclusion of NBS in urban planning has been raised. The 2019 summary of good practices provided information for provinces and municipalities on how to operationalise NBS in the Finnish conditions including the importance of organisational commitment, inter-organisational networks to accelerate their adoption and monitoring and financing considerations as well as getting buy-in from residents.
The guide released in 2024 by Finnish Environment Institute and Finnish Meteorological Institute provides a comprehensive overview of climate risks and information, tools, and examples of solutions for urban planning, land-use, zoning, and construction including NBS aimed at planners, planners, developers, decision-makers and residents. It includes checklists, information sources as well as examples from Finnish and other cities.
More information about the NBS for urban planning can be found here:
Kestävää kaupunkisuunnittelua: luontopohjaiset ratkaisut maakunnissa ja kunnissa [Sustainable urban planning: Nature-based solutions in provinces and municipalities] (2019): http://urn.fi/URN:ISBN:978-952-287-774-1
Kohti ilmastokestävää kaupunkisuunnittelua: Opas ilmastonmuutoksen hillinnän ja sopeutumisen edistämiseen alueidenkäytön suunnittelussa, kaavoituksessa ja rakentamisessa [Towards climate-proof urban planning: A guide to mitigate and adapt to climate change in land use planning, zoning and construction] (2024): http://hdl.handle.net/10138/576343

Learn more

The EU project Urban Greenup
have designed a NBS selection tool to help local governments identify relevant nature-based solutions: https://www.urbangreenup.eu/resources/nbs-selection-tool/nbs-selection-tool.kl
The EU project Grow Green
developed a handbook targeting cities to guide them in developing and implementing NBS strategies towards water and climate resilience. https://connectingnature.oppla.eu/sites/default/files/uploads/growgreengcfhandbookfinal-version-nov22v4.pdf
Guidance on considering NBS in land-use planning
from the Norwegian Environment Agency with examples on how to do this in practice and link to information about NBS in different landscapes: https://www.miljodirektoratet.no/ansvarsomrader/klima/for-myndigheter/klimatilpasning/veiledning-til-statlige-planretningslinjer-for-klimatilpasning/vurdere-naturbaserte-losninger/
International Obligations
Kunming-Montreal Global Biodiversity Framework
Significantly increase the area and quality and connectivity of, access to, and benefits from green and blue spaces in urban and densely populated areas sustainably, by mainstreaming the conservation and sustainable use of biodiversity, and ensure biodiversity-inclusive urban planning, enhancing native biodiversity, ecological connectivity and integrity, and improving human health and well-being and connection to nature and contributing to inclusive and sustainable urbanization and the provision of ecosystem functions and services.
SDG 11.8. STRONG NATIONAL AND REGIONAL DEVELOPMENT PLANNING
Support positive economic, social and environmental links between urban, peri-urban and rural areas by strengthening national and regional development planning.