Zoning overhaul: Revising local zoning plans to prioritise nature

Updating or repealing old zoning plans can help municipalities in their strategy to use nature to address societal challenges and make building applications processing more efficient.

Specific Advice

A zoning overhaul helps municipalities in updating or repealing old zoning plans that conflict with current priorities, societal needs and legislation. These strategies can help municipalities and cities to rethink their land use and be a tool for achieving nature protection. In addition, an updated strategy for land-use can ensure more effective and predictable building case processing, just and equal treatment and reduce the need for dispensations.
The revision process may require a different approach for implemented versus unimplemented zoning plans. Unimplemented zoning plans are plans where construction have not yet occurred. Even if a municipality previously approved development, new knowledge or policies may suggest that the area should remain undeveloped for conservation reasons, public safety or due to changes in political interest for development in that area. Old zoning plans are, however, typically implemented or partially implemented, and the revision of these plans concerns whether the current plan is suitable for guiding further development in the area. Revising or repealing implemented zoning plans should also be considered, to ensure efficient and predictable building case processing, as updated plans may be easier to understand and enforce, lead to more just and equal processes and reduce the need for dispensations (Holth & Winge et al. 2024).

Good to Know

It is important to notify property owners that the zoning plan in their area might be revised.

Zoning overhaul may be particularly relevant when revising the municipal master plan as the municipality is then revising the land-use overall within the municipality. Reviewing existing zoning can be an important part of this process.

The choice of criteria for which areas to be re-regulated is important. These should be aligned with legislation. For example, Norwegian municipalities are expected to ensure that zoning plans older than 10 years are up to date before making any decision on building applications in that area, according to the Norwegian Planning and Building Act.

Other important criteria for which areas to be re-regulated may be whether the development conflicts with the state, value and tolerance level of nature in the area, are located in areas with potential nature disaster risk, or conflicts with outdoor recreation interests. Some areas may already play an important part in disaster risk reduction, protecting society against natural disasters or climate change.

Important nature amenities can be identified using existing databases. It is, however, important to consider that there might be important nature amenities that are not yet identified or included in the database.

Some areas may be easier to re-regulate than others and can be prioritised first. Unregulated areas may be regulated to protect its nature, as well as unbuilt but zoned areas with important nature and biodiversity.

Context

The building environment evolves over time. Zoning plans are being developed, often by private developers in some countries, and approved by the planning authorities according to the legislation, plans and strategies at the time. Today, many municipalities have old and outdated zoning plans. These plans still impact land-use today, even if priorities, societal needs and legislations may have changed. Informants in the A-DVICE project has pointed to outdated zoning plans as a challenge because the land-use do not correspond to the desired development in the municipality, including priorities related to NBS.
Zoning overhaul or zoning code revision is a systematic process of reviewing existing zoning plans based on updated knowledge, legislation and political objectives, and revising or repeal them accordingly. Thus, it helps municipalities in accommodating for new development patterns and current and future societal needs by. It is also an important step if the municipality aim to introduce a no net loss strategy or the mitigation hierarchy principle.
Many old zoning plans have regulated natural amenities for development a long time ago. Considering today’s priorities and knowledge about the state, value and tolerance level of nature, some of these areas should be protected from development. For this reason, zoning overhauls have been suggested as means to protect nature from new development. The specifics for which zoning plans can be revised/repealed or not can differ between the Nordic countries and regions depending on their legislation.

Examples and Cases

Nordic examples of zoning overhaul:

#NORWAY – Systematic revision of municipal plans

Zoning overhaul or ‘Planvask’ have been encouraged by the government and other organizations. In 2024, the government increased the funding for municipal spatial planning benefitting nature. Municipalities can apply for funding to support zoning overhauls aiming to protect and conserve natural amenities. A simplified repeal (‘forenklet oppheving’) is also possible for zoning plans that would be significantly in conflict with a plan on a higher level (e.g., the municipal master plan) if implemented.
In 2024, the Research Council of Norway awarded funding for “Operation Plan Overhaul”, a four-year research project that will use AI tools to develop an effective method for zoning overhauls. More precisely, it will develop a systematic and strategic review of all older zoning plans in one municipality. The City of Larvik will be the pilot municipality for this project.
Several Norwegian municipalities have conducted zoning overhauls to protect nature or are planning to do so. Nordre Follo municipality converted 650,000 square metres of land planned for housing into nature. Municipalities like Tønsberg, Hol and Hadsel have presented their zoning overhaul in the Norwegian Environment Agency’s webinar about the topic.
More information can be found here:
The Norwegian Environment Agency’s webpage for their funding scheme targeting safeguarding biodiversity in municipal planning: https://www.miljodirektoratet.no/aktuelt/fagmeldinger/2024/januar-2024/okt-tilskudd-til-kommuner-som-prioriterer-naturmangfold/
Learn how Norwegian municipalities are doing in protecting nature: https://naturkampen.sabima.no/

Learn more

More information on periodical revisions of land-use plans and how planning tools can be used to reduce climate risks: https://climate-adapt.eea.europa.eu/en/metadata/adaptation-options/adaptation-of-integrated-land-use-planning
For zoning overhauls in Norway, the report by Holth & Winge et al. (2024) can provide helpful insights on how to conduct zoning overhauls (‘arealplanrevisjon’).
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.