1 Introduction

1.1 Attractive and environmentally friendly cities and towns

Norwegian cities and towns have experienced strong growth in recent decades, both in terms of population and new workplaces. Large and medium sized cities have expanded the most, but smaller cities and towns have also enjoyed considerable growth. Several factors indicate that this trend will continue in years to come. A large share of the population would like to live in urban centres, where there are diverse opportunities in education, employment and housing, as well as a wide range of cultural and leisure activities. The physical environment is improved by urban renewal, environmental measures, strategic channelling of arterial traffic, and substantial reductions of industrial emissions. However, many people are still exposed to noise and air pollution, particularly from road traffic, and some citiy-areas are troubled by litter, poor building maintenance, deterioration of public squares, and a lack of quality outdoor areas. Cities and towns are, over time, gaining a more crucial role in both business and economic development. In cities, businesses are closer to markets, research institutions and a high-competency work force.

Cities and towns that can offer a high quality physical environment, an efficient transportation system, and exciting cultural activities are more competitive with regard to attracting new businesses and creating economic growth. There are strong links between policies for business development and policies for city and town development.

There are no contradictions between good conditions for city development and the development of more rural areas. Cities and rural districts have different roles in the economy, and they are mutually dependent on each other. Well-functioning cities and towns are therefore necessary for thriving environs, both in centrally located parts of the country and in more peripheral ­districts. Efforts are also needed to make smaller cities and towns in outlying districts attractive, in order to reduce the pressure on major urban centres, and to create a better balance between cities and districts. The Government wants to make the most of the entire country, and utilise the natural, cultural and human potential and resources that exist in different parts of the country.

For various cities and towns, growth results in considerable change. The larger and more visible changes occur through developing new areas for housing, establishing major businesses, developments, and public institutions, and through new infrastructure expansion. This often contributes to moving city borders into non-developed areas. Most changes are small however, and barely noticeable from year to year.

The land-use pattern of buildings and transportation infrastructure is changing relatively slowly over time, even though the use of buildings and infrastructure is changing continually. Tomorrow's cities will therefore be quite similar to our cities today. Over time though, all the new investments and numerous small changes may impact the city-environment considerably. Additionaly, we know that even smaller local changes may significantly impact both public social conditions and the competitive environment for businesses in the short term.

Since building projects have substantial consequences for urban development and are often non-reversible, the Government considers it a top priority to assure that all changes are made for the best of inhabitants, busines and the environment. We should utilise the forces of change, and the opportunities these represent, to channel growth and transformation in accordance with a long-term sustainable perspective, and to secure and develop further the qualities and diversity found in our cities and towns. This means that changes should be strategically utilised to strengthen environmentally-friendly city-structures and transport systems, improve the physical environment and promote health-enhancing activities. At the same time, the special characteristics and identities of local places — valuable cultural milieus, green structures and natural areas — should be protected and enhanced.

This White Paper discusses how this can be accomplished through long-term preventive planning and more short-term measures. A core strategy is to develop more concentrated cities and city-structures in order to reduce the pressure on important areas for recreation and outdoor activities in and around the cities, as well as coastal zones and valuable agricultural areas. Such a pattern of development will reduce the need to travel and increase the efficiency of public transport. Denser cities will also improve the possibilities for people to travel by foot or bicycle, and thus contribute to a better environment and better individual health. This White Paper further discusses potential conflicts and planning challenges related to denser development, and by a greater concentration of dwellings and businesses — in relation to housing environments, green structures, and cities' special cultural and historical characteristics. The Government believes an emphasis on quality outdoor areas and buildings is an important factor in developing greater urban density, whether this is achieved by new construction, or the transformation and infill of existing urban areas. Special measures to reduce noise and local air pollution are also necessary.

A physical environment of high quality is increasingly crucial for the development of cities and towns – not only for inhabitants, but also for industries and businesses, see Textbox 1.1.

Textbox 1.1 The River Basin Area of Akerselva in Oslo – Environmental upgrade as an important basis for modern city transformation and development

Positive city development is to a great extent about creating a constructive climate for co-operation between public authorities, private businesses and the population for creating attractive and environmentally friendly neighbourhoods. During the eighties, old, worn-down and vacant buildings, deterioration and poor environmental quality characterised the river basin area along the main river Akerselva, running through central parts of Oslo. To improve these conditions, the project Akerselva Environmental Park was established. The intention was to develop green structures and parks, improve water quality, and enhance cultural heritage sites. The project came about thanks to local initiatives, financial contributions from private parties, public support from national environmental and cultural heritage authorities, and municipal efforts.

The Akerselva Environmental Park has been an important driving force for positive development in this city district. Today, business development and cultural activities are flourishing along the river, and the area is also becoming increasingly attractive for development of housing. Several building and transformation projects are underway. The 10-kilometre corridor from the lake Maridalsvannet to the Oslo fjord has become a very popular area for outdoor life and physical activity in the city, and it constitutes an important green corridor for walking and bicycle transportation. The area is also easily accessible by public transport. New, modern offices that now house more than 10,000 workplaces, mostly in telecommunications and media, are integrated in an environment of old industry buildings. New structures are to a great extent adapted to old manufacturing buildings from earlier time periods, and elements of cultural history contribute to give the area a distinct character and a positive identity. An attractive and diverse urban life style has also developed. The Akerselva district is a good example of how protection and new development may occur side by side, and generate positive synergy.

The successful transformation process along the Akerselva river basin is the result of a positive interaction between public planning efforts and environmental upgrading on one side, and changes in industry structure and business development on the other. Public and private stakeholders have over time co-operated in ways that have made it possible to realise the potential of the area, to the enjoyment of both businesses and inhabitants.

Source Ole A. Krogness, Kosberg Arkitektkontor AS, Rolf Johnsen, Oslo Elveforum, Svein Magne Fredriksen, www.birkelunden.no, The municipality of Oslo

1.2 The purpose of this White Paper

National, regional and local authorities have all been working systematically with sustainable city development and co-ordinated land-use and transportation planning during the last decade. Many towns and cities are developing and transforming according to major political objectives of creating environmentally-friendly and health-enhancing surroundings. But there are also examples of relatively new projects where environment, comprehensiveness and a long-term perspective are not given sufficient consideration. Such projects are unfortunate and costly to society, because restorations of lost environmental qualities often require huge investments. This White Paper aims at co-ordinating and strengthening the national policy for city and town development, and illustrating the best approaches regionally and locally that support this policy. The paper describes important trends and challenges, as well as national targets and planning principles for developing attractive, environmentally-friendly, and functional cities and towns. Policy development and resource allocation within all sectors, and at all levels of authority, should be based on these targets and principles. The report also suggests strategies and measures, particularly related to planning and environmental policy.

The development of cities and towns represents serious challenges related to health and environment, transport, land-use, living conditions in general, housing policy, business development, and economic growth. These areas of policy are tightly inter-related, and measures and actions within one field frequently affect the other areas.

The Government wants to improve and clarify a comprehensive and co-ordinated national policy for city and town development in order to secure efficient utilisation of society's total resources, a targeted use of measures, and improved operational frameworks for municipalities, counties and the private sector. The policy is meant to apply across sectors and levels of authority, and will be based on long-term planning towards common goals.

The Government wants to support the development of:

• Safe, beautiful and exciting cities and towns with a high level of environmental quality and good living conditions for inhabitants

• Functional and attractive cities and towns for a competitive business environment

• City-structures and urban environments that stimulate health-enhancing lifestyles

• A functional and environmentally friendly transportation system with a strong emphasis on public transport, cycling and walking

• Cities and towns that take care of natural and cultural environments

The Ministry of the Environment has, as the national planning and environmental authority, a particular responsibility to co-ordinate national environmental policy and land-use policy, including the physical development of cities. This White Paper emphasises physical aspects of city development: land-use and location policy, transportation and centre-structures, as well as transformation and improvement of existing cities and towns.

The national planning principles are developed through several co-operative projects with city municipalities, and they are based on the fundamental objective of creating sustainable development. Three of the most important projects in recent years are the seven-year Programme of Sustainable Cities, involving the five largest cities in Norway, The Co-operation Forum of City Development, and the Project of Measures for Better Land-Use Utilisation in Cities And Towns. The need for close co-operation between different public authorities, the private sector and the populace is emphasised as an important prerequisite to achieving the aims of the Government. The municipalities have key roles in the development of more environmentally-friendly cities and towns.

Structure and content of the White Paper

Chapter 1 gives a short introduction to the most important elements of the report, as well as a description of the purpose of the report. Chapter 3 describes important trends and challenges, and threats and opportunities for cities and towns. Chapter 4 describes planning principles for the development of functional and environmentally friendly city-structures that accommodate efficient transport, urban environments of high quality, and healthy lifestyle and transportation choices. In chapter 5, specific emphasis is placed on the development of local environments in city centres, local centres and towns. General principles and requirements for the design and quality of local areas, and good examples of local solutions are presented in this chapter. Chapter 6 summarises the Government's policy, measures and actions implemented aimed at local, regional and national authorities, as well as the private sector and other stakeholders.

1.3 Relationship to other White Papers

The Government will produce several White Papers regarding the development of Norwegian cities and towns. This represents an excellent opportunity to develop a comprehensive national policy, where the measures of national authorities are viewed in a holistic context and synergy can be achieved. This White Paper describes important premises for the development of cities and towns, which will be followed up in the White Paper on City Development in general, and in the Report No. 26 to the Storting (2001-2002) Public Transport, that was sent for approval to Parliament at the same time as this paper.

With regard to the White Paper on Public Transport, this paper describes principles for the physical structure of cities and city regions as a basis for efficient public transport. Principles for co-ordinated land-use and transportation planning, as a tool for developing good overall solutions, are described. Other measures and specific actions to be taken to strengthen public transport are described in the White Paper on Public Transport, but are also briefly mentioned in this paper.

The White Paper on City Development in general will deal with a wide array of challenges, where the physical environment and land-use planning are just some of several themes. Overall living conditions in the cities, social service, economy, and the cities' roles internationally, nationally and locally are some of the other themes. Several of the challenges and strategies described in this paper, for instance, development of functional city-regions and the implementation of city transformation strategies, will be further developed in the White Paper on City Development in general. The Government will also put forward a White Paper on Housing Policy in 2003. This will be a follow-up of the national public paper on 'Markets and Policies for housing'. Measures aimed at the development and building of new Housing will be analysed here .

This White Paper emphasises the necessity of developing cities that are safe and healthy, and making an active lifestyle more attractive. These aspects will be further developed and described in the forthcoming White Papers on Physical Activity, Lifestyle and Health, and Living Conditions for Children and Adolescents. These two White Papers will be submitted later this year. The Government will also develop a national cycling stra­tegy, as part of the National Transportation Plan 2006-15, with emphasis on increasing the public’s physical activities.

For more detailed descriptions of measures within environmental policy, there are separate White Papers on Outdoor Life, Biodiversity, and the Environmental State of the Nation and the Government's overall environmental policy. In the supplemental White Paper on Norwegian Policy for Greenhouse Gas Emissions, environmentally friendly city development is emphasised as crucial to limit land-use and energy consumption, as well as greenhouse gas emissions. The Government also wants to follow up the recommendations from the national council of cultural heritage in the national public paper «The Past forms the Future – Challenges in a new Policy for Cultural Heritage».

This White Paper suggests several proposals for simplifying and improving the Planning and Building Act. Some of them are oriented towards achieving more efficient planning. These proposals will be reviewed in the ongoing revision of the Planning and Building Act. The Committee on improving the Planning and Building Act has presented its first partial report, «Improved municipal and regional planning according to the Planning and Building Act». In this report, principal questions related to the development of the planning chapters in the act are discussed. The report has been subject to a wide round of hearings. The Committee will forward proposals for act-changes in its final report, which is due by the end of 2002. The Ministry of the Environment intends to forward a follow-up report to the Storting in the spring of 2004. The Ministry of Municipal and Regional Affairs will forward an equivalent report in the spring of 2002 on the building chapter in the Planning and Building Act. The Government has also appointed a specific committee that will concentrate on simplifying the building chapters.