Luxembourg’s small size and its relatively small number of cities means there has never been an explicit national urban policy. On the national level urban issues have instead generally been handled within the larger context of spatial development.

The country’s small size also accounts for the importance of cross-border cooperation of cities in the Grand Région SaarLorLux (+ Rhineland-Palatinate and Wallonie). The cities of Luxembourg, Trier, Saarbrücken and Metz set up the trans-national Quattropole urban network to pool their strengths and resources, thus compensating for the lack of an international metropolis in the Grand Région. From the state point of view, the cities of Nancy and Kaiserslautern (and eventually Arlon) belong to the basic city network of the Greater Region.

Historical Background
From the mid 1990s three major developments in national policies occurred which would affect the cities significantly, particularly Luxembourg-City. First, urban planning was modernised and adapted to the requirements of a sustainable urban development (Loi du 21 mai 1999 concernant l’Aménagement du Territoire). Second, a new vision on spatial planning was adopted promoting an active decentralisation policy by appointing “centres of development and attraction” (Programme Directeur d’Aménagement du Territoire 2003). Although the capital is the only superior centre, activities are spread out from there to strive for sustainability and to prevent urban sprawl, congestion, land pressure and to promote the (economic) development of medium and regional centres. Finally, an integrated transport and spatial development concept (IVL) was developed by a working group with representatives from six ministries. The major objectives of the IVL are to increase the share of public transport, to develop a settlement structure fostering traffic reduction and to decrease land use.

Organisation
Three principal urbanised areas can be defined in the Grand Duchy: the monocentric agglomeration of the capital city and the two rather polycentric agglomerations of the former mining basin in the South (encompassing the cities of Esch-sur-Alzette, Differdange, Dudelange) and the Nordstad in the North (with the cities Ettelbruck and Diekirch). A major part of the country’s population lives in cities, particularly in the largest ones: Luxembourg-City (78,000 inhabitants), Esch-sur-Alzette (28,000 inhabitants), Differdange (19,000 inhabitants) and Dudelange (17,500 inhabitants). The urban system is dominated by these four Southern cities.

The neighbouring cantons of Luxembourg-City and Esch-sur-Alzette together constitute what can be identified as the ‘functional urban region’ of Luxembourg-City. This urban area thus contains 230,000 inhabitants (about 50% of the national population).

Luxembourg-City is the country’s major centre of development and attraction. Apart from being the political capital, it is also the location of numerous national and international companies as well as EU institutions. The capital thus offers jobs not only to the majority of the national population but also to many people from neighbouring regions in France, Germany and Belgium. Since the 1980s national as well as cross-border commuting to work has contributed to the dynamic though unbalanced development of Luxembourg’s cities. Whereas the population of the capital city itself, for instance, has barely increased since the 1970s, the population of Luxembourg-Canton has done so by 90%. Problems arising from this development are mainly related to transport, environmental pollution and a loss in quality of life.

Luxembourg’s local authorities are granted municipal autonomy by the constitution, so that they are fully responsible for their urban development. At the national level, urban policy is handled by the Ministry of the Interior and Spatial Development. The Department for Spatial Development (DATer) co-finances studies contributing to the implementation of the goals of the national spatial development strategy at the local level. The Minister of the Interior and Spatial Development, having guardianship over the country’s municipalities, has to formally approve municipal urban development plans. Before the plans are submitted to the Minister’s decision they will have been analysed by the Commission of Spatial Development, which advises on the final endorsement of municipal urban development plans.

Cross-sectoral and inter-ministerial coordination occurs in the Inter-ministerial Committee of Spatial Development (CIAT). The committee prepares decisions on sectoral plans, the Programme Directeur as well as regional plans.

Apart from CIAT, a Superior Council of Spatial Development (CSAT) is appointed to give advice on basic issues in terms of spatial planning. The council also appraises the Programme Directeur and the sectoral plans. It is composed of representatives of trade associations, unions, the intercommunal syndicate, etc.

Current Issues
At the national level, the Ministry of the Interior and Spatial Development promotes a sustainable urban development policy to be followed on all levels of spatial development and in all sector policies having an impact on urban development. The objectives of urban development are expressed in the Programme Directeur d’Aménagement du Territoire 2003 as follows:

The current overarching theme in Luxembourg’s urban policy measures is the implementation of integrated approaches in urban development. Integration in this respect has a twofold meaning: first, there should be a thematic or sectoral integration, e.g. by bringing settlement development and local public transport closer together while fostering mixed-use developments. Planning processes should also be interactive, involving not only the respective administrations but also the private sector and citizens.

In the country’s south, the former stronghold of Luxembourg’s steel industry, the revitalisation of brownfield sites is of major importance. The mixed-use redevelopment of ‘Belval-Ouest’ is considered as a flagship project in this field. The reuse of land is also relevant to ease the development pressure on the City of Luxembourg, to reduce urban sprawl and to foster a polycentric development.

A prevalent issue, particularly in the densely populated Southern-Central Region, is the lack of affordable housing. This is now at the top of the government’s agenda to underline the importance of finding a resolution.
Key Programmes
There is no particular programme for a national urban policy as such in Luxembourg. However the following two documents constitute the framework for the country’s spatial development in general while also referring to urban development in particular:

In addition to these programmes, the national government has set up several funds to help in overcoming specific urban problems, some of them directly targeted at Luxembourg-City, e.g. a fund for affordable housing, a fund for the urban development of the Kirchberg Plateau, and a fund for the regeneration of the capital’s old town.

21/12/2005

policy

Urban Policy