Managing post-coal assets through spatial and strategic planning : toolkit.
Date: 2024-11-04
Institutions: Directorate-General for Energy
Subjects: EU energy policy, EU initiative, EU regional policy, carbon neutrality, coalmining policy, energy transition, regional investment, regional planning, sustainable development, town and country planning

Toolkit

Managing post-coal 
assets through spatial 
and strategic planning

EUROPEAN COMMISSION 
Directorate-General for Energy 
Directorate B – Just Transition, Consumers, Energy Security, Efficiency and Innovation 
Unit B.1 - Consumers, Local Initiatives, Just Transition

EC-ENER-JUST-TRANSITION@ec.europa.eu

European Commission  
B-1049 Brussels 

ISBN: 978-92-68-20981-3  

    doi: 10.2833/7169483 

MJ-01-24-006-EN-N

Manuscript completed in October 2024

1st edition
This document should not be considered as representative of the European Commission’s official position. 
Luxembourg: Publications Office of the European Union, 2024

© European Union, 2024

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does not own the copyright in relation to the following elements:
Page 1: YouraPechkin (Envato)
Page 5: Peggy_Marco (Pixabay)
Page 6: stux (Pixabay)
Page 11: Initiative for coal regions in transition
Page 14, 16, 17( below), 34 (below), 35, 38, 40 (above): Wuppertal Institute
Page 17 (above): C Mine
Page 18: Green Mine
Page 34 (above): Lower Silesian Tourist Organization
Page 37: Jezero Most
Page 40 (below): Green Mine

3

S U P P O R T   M A T E R I A L S

Providing support materials to 
coal regions in transition

The Initiative for coal regions in transition developed the following 
support materials to assist practitioners in coal regions (including peat 
and oil shale regions) across Europe. Click below to download the toolkits.

 Transition strategies

 Governance of transitions

 Green skills

 Technology options

 Environmental rehabilitation and repurposing

 Clean air

 Transition financing

 District Heating

INITIATIVE FOR COAL REGIONS IN TRANSITIONT A B L E   O F   C O N T E N T S

Aims and scope 

Key messages 

Why strategic spatial planning is important  

How to design a successful strategic spatial plan 

Step 1: Gather data and analyse the status quo 
Step 2: Ensure coherence and policy alignment  
Step 3: Engage citizens and stakeholders  
Step 4: Develop spatial visions to detailed plans 

Land use cases of post-coal areas 

Cultural Spaces and museums 
Industrial and commercial areas 
Green Infrastructure and public spaces  
Mixed land-use areas 
Renewable energy production 
Mobility and transportation 

Spatial planning through strategic funding design 

Green Procurement 
Public Budgeting 

Helpful tools 

Further reading 

4

5

6

7

8

9
10
11
12

14

14
15
16
17
18
18

19

19
19

42

44

How to use this toolkit

Slides / Pages 5-20

This section gives an overview about the topic of 
spatial planning for managing post-coal assets for 
EU coal+ regions and covers the main messages & 
recommendations with regards to the topic.

For  each slide, more detailed information can be found in  
the report section.

In-depth report / Pages 21-44

The more in-depth report follow the same structure as the 
slides and offer a more detailed look into each section, 
including an overview about different land use cases for 
post-coal areas with further resources, links, examples,  
and case studies.

INITIATIVE FOR COAL REGIONS IN TRANSITION5

Slides

A I M S   A N D   S C O P E

This toolkit explains the central role of spatial 
planning for a sustainable transition at local 
and regional level, in particular how to deal with 
former coal mining assets, including infrastructure, 
land, and buildings.

W H O   I S   T H I S   T O O L K I T   F O R ?

 y Regional and local authorities
 y Spatial planning authorities
 y Relevant stakeholders engaged in spatial 

planning (NGOs, social partners, local business 
development agencies)

W H Y   D O   W E   N E E D   T H I S   G U I D A N C E ?

Local development strategies are often focusing on 
a sectoral approach, risking that transition projects 
become insular solutions.

An integrated spatial planning process helps to 
address and manage competing land use cases, 
which is particularly important for developing 
former coal and industrial sites.

INITIATIVE FOR COAL REGIONS IN TRANSITION6

K E Y   M E S S A G E S

 y Strategic spatial planning helps address complex 

land use conflicts and integrate economic, social, and 
environmental aspects of the transition.

 y Key steps for developing spatial plans are data 

gathering & management, policy alignment, stakeholder 
engagement, and development of plans on different levels 
and detail. 

 y Former coal sites can be repurposed for various uses. 
In many cases, a mixed land-use approach can be 
considered as the ‘gold standard’ for a climate-proof, 
sustainable spatial development.

 y Funding mechanisms like green procurement and public 
budgeting are important for implementing spatial plans 
and supporting sustainable development.

 y Tools like GIS, CAD, trade-off analyses and life cycle 

assessments can help manage the development of spatial 
plans and evaluate different planning options and their 
long-term impacts.

INITIATIVE FOR COAL REGIONS IN TRANSITION7

Why strategic spatial planning is important

Coal regions will likely face ‘wicked problems’ as competing land use 
cases, for example: 

Renewable energy 
installations

Expansion of cities (see 
figure) and a need for new 
(affordable) housing

vs.

vs.

forest conservation or 
agricultural use

maintain biodiversity and 
ecosystem services

Increase food production

vs.

reduce chemical inputs into soil 
and preserve natural habitats

Building transport networks 
or energy infrastructure

vs.

limit land take and soil sealing

Strategic spatial planning can help to act as a way to address 
competing land use needs and integrate that into a comprehensive, 
resource- and efficiency optimised way. 

An example for a spatial analysis of urban spillover 
effects in the Rhenish mining region.

Source: RWTH Aachen, 2023.

INITIATIVE FOR COAL REGIONS IN TRANSITION8

A P P R O A C H
How to design a successful strategic spatial plan

STEP 1

Gather data 
and analyse the 
status quo

STEP 2
Ensure coherence 
and policy alignment

STEP 3
Engage citizens 
and stakeholders

STEP 4
Develop spatial 
visions to 
detailed plans

Source: Own depiction

INITIATIVE FOR COAL REGIONS IN TRANSITION9

How to design a successful strategic spatial plan

Step 1: Gather data and analyse 
the status quo

Analysing the status quo of transition-related 
activities enables to define the scope for spatial 
planning on a local level, e.g., by performing

 y A mapping of relevant visions, action plans, 

strategies, policies

 y Stakeholder analysis: identifying actors and 

their positioning 

For developing spatial plans, data gathering and 
management is a prerequisite and can support not 
only policy making, but also project development 
(see example). 

E X A M P L E :   I N F O R M A T I O N   P L A T F O R M   F O R   P O S T - I N D U S T R I A L 
A N D   D E G R A D E D   A R E A S   I N   S I L E S I A   ( O P I - T P P )

OPI-TPP is an online database providing comprehensive information on over 1,000 
post-industrial sites in the Silesia region. The platform includes crucial data on 
environmental conditions, infrastructure, and land use, enabling investors, city 
planners, and spatial development experts to make informed decisions about potential 
site redevelopment. 

 Read more: Official website (in Polish) and case study

INITIATIVE FOR COAL REGIONS IN TRANSITION1 0

How to design a successful strategic spatial plan

Step 2: Ensure coherence 
and policy alignment 

To maximise their effectiveness for 
the transition, spatial plans need to be 
aligned across different levels: 

1.  Sectoral alignment

2.  Target alignment 

3.  Policy alignment 

4.  Temporal alignment 

This includes main international 
agreements, such as the UN SDGs, the 
Paris Agreement, the European Green 
Deal and the Territorial Agenda 2030.

V E R T I C A L   P O L I C Y   A L I G N M E N T   F O R   S PAT I A L   D E V E LO P M E N T. 
Source: Own depiction based on Miosga/Norck, 2017

INITIATIVE FOR COAL REGIONS IN TRANSITION1 1

How to design a successful strategic spatial plan

Step 3: Engage citizens and stakeholders 

Engaging stakeholders is a key step to ensuring ownership of the 
community for which the spatial vision, strategy or plan will be 
developed. 

The role of governance structures and inclusion of stakeholders 
for the transition as a whole are captured in more detail in the 
Governance of transitions toolkit. 

E X A M P L E S   F O R   C I T I Z E N S   A N D   S T A K E H O L D E R 
E N G A G E M E N T   W I T H I N   S P A T I A L   P L A N N I N G   P R O C E S S E S

•  ‘Luxembourg in Transition’ process, which both include a 
dedicated collaborative visioning process and a citizens 
committee

•  Cornwall Plan 2020-2050, UK

•  Planning lab ‘Spatial Images Lusatia 2050’, Germany

•  Just Transition Development plan for Greece, 2020

•  ‘Raumstrategie 2038’, Rhenish mining region, Germany

•  Spatial Development Strategy 2050, Slovenia

INITIATIVE FOR COAL REGIONS IN TRANSITION1 2

How to design a successful strategic spatial plan

Step 4: Develop spatial visions to detailed plans

Each coal region should develop visions and strategies that entail guiding principles and then subsequently evolve 
them into spatial structure plans (framework plans) and design plans, from regional to site-specific levels.

VISION/STRATEGY

Example: ‘Spatial Images Lusatia 
2050’, Germany

STRUCTURE PLAN

Example: Avila, Spain

DESIGN PLAN

Example: Katowice South

Source of figures: Wuppertal Institute

INITIATIVE FOR COAL REGIONS IN TRANSITION1 3

How to design a successful strategic spatial plan

A   D E D I C A T E D   S P A T I A L   S T R A T E G Y 
D E V E L O P M E N T   P R O C E S S   F O R   T H E 
R H E N I S H   M I N I N G   A R E A ,   G E R M A N Y 
‘ S P A T I A L   S T R A T E G Y   2 0 3 8 ’

The spatial strategy process in the Rhenish mining area 
largely uses and describes the steps outlined in this toolkit, 
including a spatial analysis of spatial-related potentials 
and challenges (including the development of detailed 
maps), citizen and stakeholder inclusion processes, links to 
broader development strategies and monitoring processes. 

What was unique about the approach is that the process 
started with the development of three visions in parallel 
(see picture), which are planned to be merged into one 
to ensure that multiple perspectives and development 
pathways are considered. 

 Read more

Source: RWTH Aachen, 2023

INITIATIVE FOR COAL REGIONS IN TRANSITION1 4

Land use cases of post-coal areas

Cultural Spaces and museums

 y On sites with industrial buildings and other 

monuments, an after use as cultural space or as 
a museum can enhance cultural identity, boost 
tourism, support the rebranding of the region, 
improve the quality of life and attract new 
businesses. 

 y Tool for redeveloping heritage sites: ForHeritage

For coal regions, developing the sites of former mines, power plants and related 
infrastructure is one of the top priorities. The following slides provides an 
overview of use cases for former coal related areas along with examples for (re)
development.

This overview excludes the management of mine rehabilitation and power plant 
redevelopment, as this is addressed in the Environmental rehabilitation and 
repurposing toolkit and Technology options toolkit.

INITIATIVE FOR COAL REGIONS IN TRANSITION1 5

Land use cases of post-coal areas

Industrial and commercial areas

 y Former coal sites and other brownfields can be used for 

industry and business development.

 y Spatial plans need to consider business needs such as 

sufficient space, good transport links and accessibility, 
proximity to customers, a certain building typology.

Examples:

 y Saša Industry and Technology Park Velenje, Slovenia 

 y Business Park Phoenix West, Dortmund, Germany

 y Nikiszowiec, Katowice - the new technologies district

 y Brainergy Park, Jülich, Rhineland Mining Area, Germany

A   TO O L   F O R   S U S TA I N A B L E   R E G E N E R AT I O N   O F   B R OW N F I E L D 

S I T E S :   A   6- S T E P   G U I D E   F O R   LO C A L   A U T H O R I T I E S 

  Read more

INITIATIVE FOR COAL REGIONS IN TRANSITION1 6

Land use cases of post-coal areas

Green Infrastructure and public 
spaces 

 y Developing green infrastructure is not a ‘nice 
to have’, but necessary to provide various 
ecosystem services,  counteract soil sealing and 
biodiversity loss. 

 y Former coal sites provide good opportunities 
for developing green infrastructure (after a 
rehabilitation process) and there exist many 
examples to look into for replication, e.g.: 

 ▶ Landscapes: Lusatian Lake District, 
Germany, Mostecké jezero, Czechia

 ▶ Parks: Parco Archeologico e Tecnologico 

delle Colline Metallifere Grossetane, Parque 
de la Minería de Almadén

Tool: SITxell territorial analysis system

INITIATIVE FOR COAL REGIONS IN TRANSITION1 7

Land use cases of post-coal areas

Mixed land-use areas

 y In a lot of cases, a mixed land use with 
businesses, housing, supply, cultural 
venues, social infrastructure, as well 
as public and green spaces will be the 
preferred use case. 

 y Examples:

 ▶ Belval, Esch-sur-Alzette, Luxemburg

 ▶ C-Mine, Genk, Belgium

 ▶ Lake Phoenix, Dortmund, Germany

 ▶ Lyon Confluence (former industrial 

site, non coal region)Source: Wuppertal Institute

INITIATIVE FOR COAL REGIONS IN TRANSITION1 8

Land use cases of post-coal areas

Renewable energy production

 y Given the need to expand renewable energy 

production to reach climate goals, former coal 
sites should be also considered as possible sites, 
especially as they often already have existing 
energy infrastructure that can be used further. 

 y An overview of the technologies available and 

examples can be found in the technology options 
toolkit.

Mobility and transportation

 y Coal-related sites often have existing 

infrastructure such as railways and roads that 
were used for the operations and can be reused 
if there is a suitable use case.

INITIATIVE FOR COAL REGIONS IN TRANSITION1 9

Spatial planning through strategic funding design

Many of the EU funds can be used for infrastructure and projects on former coal related sites. CRiT’s Transition Financing Toolkit 
provides an overview about available public funding sources on the EU level and how to set up a dedicated financing strategy. 

Green Procurement

Public Budgeting

Green procurement is the practice of using 
products and services that have a reduced 
impact on the environment compared to 
products that serve the same purpose, e.g., 
purchasing sustainable building materials or 
electric buses.

Read more

 y What does green public procurement 

mean?

 y Role of Green public procurement in 

improving resource efficiency

Public budgeting is the process through which 
governments plan, allocate, and manage 
financial resources to achieve public 
policy objectives and provide services to the 
community. 

Read more: 

 y Green budgeting in the EU
 y UNICEF-European Commission Social 

Budgeting Toolkit
 y Gender Budgeting

INITIATIVE FOR COAL REGIONS IN TRANSITION2 0

Slides

Helpful tools for spatial planning in practice

Digital spatial planning tools

 y Computer Aided Design (CAD) 

 y Geo Information Systems (GIS) 

 y Spatial simulation and modelling tools 

 y Statistical software 

Further tools for decision making towards 
a sustainable spatial development

 y SWOT analysis

 y Trade-off analysis

 y Material flow analysis

 y Life Cycle Assessment 

M A I N   S TA G E S   O F   A   L I F E   C Y C L E   A S S E S S M E N T 
Source: Envirolink

INITIATIVE FOR COAL REGIONS IN TRANSITION2 1

Slides
In-depth report

In-depth report

Table of contents

Aims and scope  PAGE 22

Who is this toolkit for?  PAGE 22

Why do we need this guidance?  PAGE 22

Introduction  PAGE 23

Why spatial and strategic planning is 
important in the context of sustainability 
transition  PAGE 25

How to design a successful strategic spatial 
plan  PAGE 26
Step 1: Gather data and analyse the status quo 
Step 2: Ensure coherence and policy alignment
Step 3: Engage citizens and stakeholders
Step 4: Develop spatial visions to detailed plans

Land use cases of post-coal areas and 
possibilities for spatial development   PAGE 33
Historical and cultural heritage 
Industrial and commercial areas
Green Infrastructure and public spaces 
Mixed land-use areas
Renewable energy production
Mobility and transportation

Spatial planning through strategic funding 
design  PAGE 41
Green procurement
Public budgeting

Helpful tools  PAGE 42

Further reading  PAGE 44

INITIATIVE FOR COAL REGIONS IN TRANSITIONAims and scope

The aim of this toolkit is to explain the central 
role of strategic and spatial planning for a 
sustainable transition at local and regional 
level, in particular how to deal with former 
coal mining assets, including infrastructure, 
land, and buildings. 

The toolkit aims to enable practitioners 
in coal+ regions to understand the link 
between spatial planning and (just) 
transition strategies, and in particular, 
the relationship between social and 
environmental aspects of the transition.

It also strives to provide various examples 
of regional spatial planning of coal-
related infrastructure, tools, and links to 
additional materials that can support the 
implementation of changes on the ground. 
Examples have bene chosen with a specific 
focus on geographic balance and come from 
coal phase out regions, but also from other 
parts of Europe, if relevant in the described 
context. 

Who is this 
toolkit for?

The target audience for this toolkit comprises 
all stakeholders in transition planning in coal+ 
regions, although the principal stakeholders 
span: 

 y National, regional and local decision 
makers involved in the transition of 
coal regions

 y Spatial planning authorities involved 
in territorial development and wishing 
to learn about practices for coal site 
development options and integration into 
local strategies. 

 y Businesses in the region, including 
SMEs that actively would like to shape 
their region and want to ensure an 
integrated approach to developing their 
(own) land and premises. 

 y NGOs in the environment and economic 

development fields.

 y Local business development agencies 

& chambers of commerce with a 
macro perspective on business interests 
in a region.

Why do we need 
this guidance?

While strategic planning is important in 
all regions to build pathways to become 
climate-neutral by 2050, coal regions 
face some specific challenges as they are 
often left with an abundance of different 
kinds of coal mining legacies; these include 
energy infrastructure, such as pipelines, 
high-capacity grid connections, but also 
brownfields with good transportation access, 
industrial sites, or historical buildings. This 
industrial heritage can be a burden, but it is 
also a source of cultural and social legacy 
generating pride that that makes the locals 
proud and self-aware and can ultimately be 
the basis for new development opportunities. 

It is imperative that complex circumstances 
in every coal region call for place-based 
approaches that take local circumstances and 
prerequisites into account. Much has already 
been written about strategy development, 
including our own Transition strategy toolkit 
for coal regions in transition. However, local 
strategies often focus on a sectoral approach, 
for instance by identifying core economic 

2 2

development potentials and financial support 
for individual business projects, while the 
question of land use itself is not an integral 
part of these strategies. This generates the 
risk that visions and strategies are not 
synched enough with territorial planning 
and might lead to a situation in which 
transition projects may become insular 
solutions, unable to push the region as a 
whole towards climate neutrality, and even 
creating new lock-ins or problems. In the 
worst-case scenario, sustainability goals and 
existing spatial planning systems may be 
mutually detrimental, blocking solutions and 
acting as a barrier to reaching transition that 
would lead to a climate neutrality.

On the other hand, a successful, smart, and 
integrated strategic spatial planning can help 
to tackle multiple problems and elements 
of the transition simultaneously. Applying a 
spatial lens to regional development helps 
to take into account not only economic 
development and jobs (which are in the 
centre of the debate for a climate and 
energy transitions), but also other aspects 
of the transition, such as housing (including 
sustainable use of materials and energy 
efficiency), transportation infrastructure & 
connectivity, space for culture and leisure, 
but also the environmental effects of soil 
sealing, biodiversity, or climate mitigation 
and adaptation. All of that has a spatial 

F I G U R E   1 :   S P A T I A L   P L A N N I N G   I N   R E L A T I O N   T O   T O P I C S ,   G O A L S   A N D 
A D M I N I S T R A T I V E   L E V E L S
Source: ESPON Compass, 2018

INITIATIVE FOR COAL REGIONS IN TRANSITION2 3

from a specific neighbourhood to an 
entire region. It focuses on practical 
matters such as zoning, infrastructure 
sitting and planning permission. 

 y Strategic Spatial Planning takes a 
panoptic view, considering long-term 
goals and potential challenges. Strategic 
planning involves setting a vision for 
the development of an area, taking 
into account economic, social and 
environmental factors. It considers wider 
trends and aims to create a coherent 
plan that fits into the bigger picture, 
such as sustainable development or 
links with the outside of the region. In 
this toolkit, we focus mainly on strategic 
spatial planning, as the effectiveness 
of transition measures will depend very 
much on the extent to which spatial 
planning and overall regional planning 
‘feed off’ each other. 

 y Territorial Governance is sometimes 
used as a synonym for spatial planning 
(see above), but often describes an 
even broader view of spatial planning 
systems, focusing on the processes 
and institutions that govern a territory, 
which could be a city, a region or even 
a whole country. Territorial governance 
considers not only land use, but also 
economic development, social equity, 
environmental protection and political 
decision-making. 

dimension. In fact, spatial planning linked 
to strategic decision making should be 
considered one of the most important 
policy tools for coal regions to steer the 
transition in the desired direction – both 
due to its influence on transition-related 
policies and the fact that many regions or 
municipalities have the legal authority to set 
the primary rules for how the available space 
is organised and used. 

Introduction

In the context of sustainable transitions, 
coal regions need to undergo a variety of 
transformations to become climate-neutral. 
It is not limited to phasing out coal, but 
also covers prioritising finding economic 
alternatives for the region, decarbonising 
industry, and transport, rehabilitating former 
mining areas and protecting biodiversity and 
human health through climate adaptation 
measures.

Spatial planning, and more specifically 
the tools and methods of strategic spatial 
planning, offer several opportunities to 
manage this transformation in all these 
areas. Land availability is a critical factor in 
the transition, as multiple uses will compete 
with each other. Thus, the process and 
prioritisation of land use needs to be actively 
organised. In essence, this is what spatial 
planning is for: it is the process of organising 
and designing the use of land in a given 
area. However, there are different variations 
of spatial planning in the literature (see 
Figure 1), according to diverse scopes and 
approaches: 

 y Spatial Planning encompasses the 
processes and regulations that guide 
development and land use at all levels, 

F I G U R E   2 :   S P A T I A L   P L A N N I N G   I N   T H E   C O N T E X T   O F   V A R I O U S   G O V E R N M E N T A L 
L E V E L S
Source: TU Dortmund, 2021

INITIATIVE FOR COAL REGIONS IN TRANSITION2 4

B O X   1 :   P R E C O N D I T I O N S   F O R   I M P L E M E N T A T I O N :   C O A L   R E G I O N S 
I N   A L L   C O U N T R I E S   N E E D   C H A N G E S   I N   N A T I O N A L   F R A M E W O R K 
C O N D I T I O N S   F O R   T E R R I T O R I A L   D E V E L O P M E N T

Many coal phase out regions have set ambitious commitments to contribute to a climate neutrality of their countries. 
However, municipal and regional administrations can hardly achieve them without a close cooperation with the national 
governments, both generally, but also more specifically in relation to spatial planning. 

Several studies (such as CSE, 2023) across Europe have shown that there is a significant gap between the perceived 
potential of spatial planning and its performance in implementation. On the one hand, they need significantly changed 
framework conditions at upper political levels. On the other hand, an unwavering commitment to the implementation of 
the necessary measures are required, as well as active contribution from local and regional politicians, administrative 
units, local companies and initiatives, and even local people.

In the wider context, for a best-case adoption of spatial strategies, coal phase out regions would need to: 

1.  advocate to higher political levels to create the necessary national framework conditions for ambitious, 

municipal and regional climate protection through spatial legislation.

2.  promote capacity building, enabling the structural, personnel and process adjustments that are necessary in 

administrations.

3.  foster systemic or integrated policy design that takes into account synergy potentials and potential conflicting 
goals of climate neutrality and sustainability with other fields of action and tasks of municipal development.

4.  Advocate for a clear link of the local and regional strategies and plans with the available financial tools. 

Article 192 of the Treaty on the Functioning 
of the European Union defines land use as 
well as town and country planning as one of 
the areas in which the EU shall define action 
programmes, which had been broadly applied 
under the themes territorial development and 
cohesion policy. Apart from this, the main 
legislative authority for spatial development 
is at the EU member states level and below. 
Due to varying historical, cultural, legal, and 
political contexts, spatial planning systems 
in Europe exhibit significant diversity (see 
Figure 2). 

While most countries have national, regional, 
and local planning levels1, the emphasis and 
power distribution between these levels vary: 
Some countries such as France or Greece 
have strong national-level planning, while 
others such as Germany, Poland and Belgium 
focus more on regional or local planning. 

As the administrative diversity makes it 
impossible to develop uniform guidance 
that can be effectively applied across all 
countries, this toolkit focuses on the key 
spatial planning tools that could be applied in 
various ways across the EU, and on measures 
that are applicable on a regional level (if 
national framework conditions allow). It 
further provides an overview of various land 
use cases for former coal-industry related 
sites. In order to make the knowledge as 
useful as possible, the toolkit integrates a 
range of examples, tools and links to external 
sources.

1  Some countries have only two administrative levels (such 

as Slovenia), while others have three (Belgium; Bulgaria; 
Czech Republic; Estonia; Greece; Spain; Hungary; Poland; 
Romania; Slovakia;) or four (Germany; Ireland). 

INITIATIVE FOR COAL REGIONS IN TRANSITION2 5

Why spatial and 
strategic planning 
is important in 
the context of 
sustainability 
transition

Regions phasing out of coal face significant 
challenges in transitioning from fossil fuels; 
they need to diversify their economies, 
establish new value chains and jobs, address 
social impacts of the transition, and plan 
the land restoration of former coal-related 
infrastructure. In this process, they will face 
what can be described as a ‘wicked problem’, 
i.e. a complex, multifaceted challenge that 
inherits conflicting priorities of how land 
should be used. For example the diverging 
interests may compete between: 

5.  Renewable energy installations and 

environmental solutions, such as forest 
tree planting, or agricultural land use.

6.  Expansion of cities and a need for 

(affordable) housing and the need to 
maintain biodiversity and ecosystem 
services.

7.  Pressure to increase food production with 
efforts to reduce chemical inputs and 
preserve natural habitats.

8.  Building transport networks, business or 
energy infrastructure and efforts to limit 
land take and soil sealing.

F I G U R E   3 :   F O U R   S T E P S   T O   D E S I G N   A   S U C C E S S F U L   S P A T I A L   P L A N 
Source: Own depiction

Strategic spatial planning can help to 
act as a way to address the various 
land use needs and integrate that into a 
comprehensive, resource- and efficiency 
optimised approach. It may not solve 
the wicked problem, but can enhance 
understanding of the issues, support 
collaboration, inform decision-making, 
and enable more integrated and adaptive 
approaches to sustainability planning. By 
focusing on questions of how to use the 
available land and sites and especially how 
to deal with areas that have post-coal 
assets, strategic spatial planning can also 
be seen as an additional tool to sustainable 
development approaches.

B O X   2 :   E U   S T R A T E G I E S   A N D   P O L I C I E S 
O N   S P A T I A L   P L A N N I N G

The EU Territorial Agenda 2030 is a strategic framework document 
which Member States voluntarily agreed upon. It underlines the 
importance of and provides orientation for strategic spatial planning and 
calls for strengthening the territorial dimension of sector policies at all 
governance levels. 

The EU Territorial Agenda 2030 takes into consideration the recent 
developments described in various reports by the European Commission, 
the European Committee of the Regions, the European Investment Bank 
and the European Spatial Planning Observation Network (ESPON). It takes 
into account of the main recent policy frameworks and agendas, including 
the United Nations’ 2030 Agenda for Sustainable Development and 
the Sustainable Development Goals (2015), the Paris Agreement 
(2015), the United Nations’ New Urban Agenda (2016), the European 
Commission’s reflection paper ‘Towards a Sustainable Europe by 2030’ 
(2019), the revised Leipzig Charter (2020), the OECD’s Principles on 
Urban Policy and on Rural Policy (2019) and the European Green Deal 
(2019).

INITIATIVE FOR COAL REGIONS IN TRANSITIONINITIATIVE FOR COAL REGIONS IN TRANSITION8APPROACHHow to design a successful strategic spatial planSTEP 1Gather data and analyse the status quoSTEP 2Ensure coherence and policy alignmentSTEP 3Engage citizens and stakeholdersSTEP 4Develop spatial visions to detailed plansSource: Own depiction2 6

How to design 
a successful 
strategic 
spatial plan

The formulation of spatial visions, strategies 
and plans should follow the same principles 
as broader concepts of strategy development 
for sustainable transitions (see Transition 
strategies toolkit). Based on a policy cycle 
approach, developing a spatial strategy 
should be structured as a continuous process 
that evolves over time and is based on 
reflection, learning, and adapting to new 
knowledge and situations. In this toolkit, we 
propose a five-step approach to highlight 
some of the most important aspects of 
spatial planning processes. However, this 
can only provide a very broad overview and 
should always be adapted to regional and 
local circumstances. 

Based on a stocktake of available good 
planning practices developed within the 
Integrated Energy, Climate and Spatial 
planning project (IN-PLAN), four steps 
are presented below on how to design a 
successful spatial plan (see Figure 3).

Step 1: Gather data and 
analyse the status quo 
As every country and region has their own 
policy framework conditions, regions can start 
with assessing the framework conditions 
for spatial development. This can be done 
by mapping out relevant visions, action 
plans, strategies, policies to eventually 

define the scope for strategic spatial 
planning. This analysis should also include 
relevant policies, strategies and targets 
from international levels (see Box 2). The 
regions should also incorporate an analysis 
of responsibilities of planning, so that it is 
clear what things regional policy makers and 
institutions can accomplish themselves on a 
policy level, and what needs to be undertaken 
at the national level. A stakeholder analysis 
that dives into the relationship between 
institutions, organisations and companies 
can provide further insights about how the 
process of planning should be carried out, 
and what barriers or veto players obstructing 
implementation could be. 

Helpful tools that can support regions in that 
regard are the New Climate Institute’s Actor 
and policy mapping tool, or the Just Transition 
Readiness Evaluation Tool for coal and carbon 
intensive regions (JT:READY), which allows a 
mapping of relevant local policies based on a 
holistic approach to a just transition. 

For the spatial process itself, data gathering 
and management is crucial, including 
site characteristics such as assets and 
liabilities, land capability, topography etc. 
For Data management, using tools such as 
Geographic Information Systems (GIS) is 
imperative (see Box 3). Spatial models can 
be used to illustrate the potential impacts 
of different land uses and illustrate a 
region’s characteristic, e.g. mobility networks, 
ecological structures or settlements (see 
Figure 4).

The SITxell territorial analysis system is a 
good practice tool for data gathering and 
spatial planning on the local and regional 
level. It enables the comparison of various 
land-use characteristics and environmental 
factors, helping to create a balanced 

F I G U R E   4 :   A N   E X A M P L E   F O R   A   S P A T I A L   M O D E L   F O R   T H E   R H E N I S H 
M I N I N G   R E G I O N   S H O W I N G   U R B A N   S P I L L O V E R   E F F E C T S   W H I C H   H A S 
B E E N   D E V E L O P E D   A S   P A R T   O F   T H E   ‘ S P A T I A L   S T R A T E G Y   2 0 3 8 ’   ( S E E 
A L S O   B O X   7 )

Source: RWTH Aachen, 2023

INITIATIVE FOR COAL REGIONS IN TRANSITION2 7

overview of the area that can serve as a 
foundation for spatial plans. First developed 
for the metropolitan area of Barcelona, 
Spain, it also has been applied in smaller 
municipalities and rural areas, e.g. in Central 
Hungary.

Step 2: Ensure 
coherence and 
policy alignment
Understanding spatial development and 
planning as a way to direct activities towards 
an integrated approach for sustainability, 
with a focus on creating policy and strategy 
coherence, becomes fundamental. Broader 
visions of the future, as well as concrete 
targets and policies, therefore act as criteria 
for weighing land use cases against each 
other and ultimately deciding on a spatial 
plan that reflects a balanced mix of long-
term optimised land uses. Mechanisms for 
identifying and managing trade-offs between 
different policy objectives will also be key to 
implementing a just transition, ensuring that 
no one is left behind, and that progress in one 
area does not undermine progress in another. 
The increasing complexity of governance, and 
multi-level and multi-stakeholder processes 
make policy coherence even more important. 

To be most effective, spatial plans need to be 
aligned across sectors, targets, policies and 
time. 

1.  Sectoral alignment

Sectoral alignment requires a horizontal 
coordinated response from various sector 
departments within an administrative 
system. Policy sectors such as energy, 

agriculture, economy, and mobility have 
a relatively strong influence on spatial 
planning and need to be taken into 
account.

The EU’s spatial planning ESPON project 
developed a case study about ‘Cross-
fertilisation between Spatial Planning and 
EU Cohesion Policy in the Czech Republic’ 
that provides further lessons learnt 
for ways to increase policy coherence 
between those two domains and comprise 
an analysis of  institutional setup and 
policy processes in the Czech Republic. The 
study lists seven policy recommendations 
that can also be helpful in the context of 
the regions’ efforts to govern transition. 

2.  Target alignment

Target alignment involves vertical 
coordination among the levels 
of government, from the local to 
international. This includes a need to align 
with international climate targets (Paris 
Agreement, SDGs, etc.), national strategies 
and other important frameworks that 
will shape the amount of room for 
development in each region.

Based on the popular doughnut economics 
model, the ‘Cornwall Plan 2020-2050’ 
provides an example of how a region 
integrated international, national and 
sub-national goals (not only sustainability-
related, but more holistically for a just 
transition) into an umbrella strategy. 

OECD’s Policy coherence for sustainable 
development initiative provides a range 
of tools in order to help countries and 
regions to implement sustainability targets 
effectively, including spatial planning 
coherence tools.

B O X   3 :   I N F O R M A T I O N   P L A T F O R M   F O R 
P O S T - I N D U S T R I A L   A N D   D E G R A D E D 
A R E A S   I N   S I L E S I A   ( O P I - T P P )

The Information Platform for Post-Industrial and Degraded Areas in Silesia 
(OPI-TPP) is an innovative online database developed by the Marshal’s Office of 
Silesia Voivodeship in partnership with the Central Mining Institute in Katowice, 
Poland. This publicly accessible GIS-based tool provides comprehensive 
information on over 1,000 post-industrial sites in the Silesia region. The 
platform includes crucial data on environmental conditions, infrastructure, and 
land use, enabling investors, city planners, and spatial development experts to 
make informed decisions about potential site redevelopment. 

The platform is continuously developed further. Upcoming version 3.0 should 
also support monitoring processes for spatial development and include 
additional data and analysis that should help to assess future use case of 
individual post-industrial and degraded sites. 

 Read more: Official website (in Polish) and case study

F I G U R E   5 :   M A P   V I E W   O F   P O S T - M I N I N G   A N D   P O S T - I N D U S T R I A L   A R E A S 
C O V E R E D   B Y   T H E   O P I - T P P   T O O L 
Source: OPI TPP 2.0

INITIATIVE FOR COAL REGIONS IN TRANSITION2 8

3.  Policy alignment

To achieve consistency in spatial 
planning itself, it also must be 
coherent across various spatial scales, 
from the national level to provincial, 
municipal, neighbourhood and building 
levels. That means, each level should 
convey consistent language regarding 
socioeconomic context, landscape, and 
settlement structure, with increasing detail 
at more localised levels (see Figure 6). 

4.  Temporal alignment

Temporal alignment in spatial planning 
requires plans with different future 
horizons to be interconnected. Short-term 
plans should align with medium- and 
long-term goals and programs. This 
ensures that projects in short-term plans 
contribute to the broader objectives 
outlined in longer-term plans, creating 
a cohesive planning framework over a 
25-year period or more, specifically in 
the climate-sensitive timeline until 2050. 
This will also be necessary in regards 
to climate adaptation, that requires the 
planning of risk reduction infrastructure 
such as rainwater management or heat 
reduction (see also Box 11). Furthermore, 
temporal alignment should also include 
aligning spatial planning with investment 
schedules, such as available EU funding.

A good example for policy coherence 
across all four dimensions  is the Regional 
Spatial and Economic Strategy 2019-
2031 (RSES)  of the Eastern and Midlands 
Region in Ireland. It integrates general 
strategy development with spatial 
planning, economic development, an 
investment framework and a climate 
action strategy. It also describes 

the governance mechanism across 
policy levels and links to national and 
international development objectives. 

Step 3: Engage citizens 
and stakeholders
As spatial planning is oriented towards the 
common good, all interested parties should 
be included so that common solutions 
can be found. In general, actors with a 
crucial role in spatial planning are local and 
regional decision-makers, spatial planners/
local authorities, civil society and other 
stakeholders, such as unions and energy 
companies, but also businesses and local 
business development initiatives. Engaging 
stakeholders is a key step to ensuring 
ownership of the community for which 
the spatial vision, strategy or plan will be 
developed. 

Box 5 provides an example of a good practice 
of citizen and stakeholder involvement for 
spatial planning processes, but s everal 
other examples in this toolkit also include 
participative elements, such as Planning lab 
‘Spatial Images Lusatia 2050’, (Germany), 
Just Transition Development plan for Greece, 
2020, the Spatial Development Strategy of 
Slovenia 2050, the ‘Spatial Strategy 2038’ 
in the Rhenish mining region (Germany), the 
Regional Spatial and Economic Strategy 
(2019-2031) of the Eastern and Midlands 
Region (Ireland) or the Cornwall Plan 2020-
2050 (UK). 

The role of governance structures and 
inclusion of stakeholders for the transition as 
a whole are captured in more detail in the 
Governance of transitions toolkit. 

B O X   4 :   S P A T I A L   O P T I M I S A T I O N   A L G O R I T H M S   C A N 
H E L P   W I T H   T A R G E T   A L I G N M E N T

The use of spatial optimization algorithms can help planners balance 
competing policy objectives. For example, digital tools can identify 
land use configurations that simultaneously minimise environmental 
impacts, maximise economic benefits, and promote social inclusion. This 
helps address the challenge of conflicting stakeholder values in wicked 
problems and can be helpful in decision making.

 Read more

F I G U R E   6 :   V E R T I C A L   P O L I C Y   A L I G N M E N T   F O R   S P A T I A L   D E V E L O P M E N T 
Source: Own depiction based on Miosga/Norck, 2017

INITIATIVE FOR COAL REGIONS IN TRANSITION2 9

B O X   5 :   T H E   E X A M P L E   O F   ‘ L U X E M B O U R G   I N 
T R A N S I T I O N ’

The ‘Luxembourg in Transition’ initiative exemplifies a comprehensive 
approach to strategic spatial planning through policy integration across 
classic spatial planning, urban design, landscape architecture, and related 
disciplines. The project, supported by the Ministry of Energy and Spatial 
Planning, demonstrates a recognition of the need for a holistic strategy to 
address future challenges in spatial development.

To kick-off the planning process, the Ministry launched an urban-
architectural and landscape consultation titled ‘Luxembourg in 
Transition – Spatial visions for the low-carbon and sustainable future 
of the Luxembourg functional region’. This initiative aimed to develop a 
territorial strategy that addresses both global environmental concerns 
and aligns with broad public consensus.

Key aspects of the project included:

1.  Collaborative visioning process: 10 international multidisciplinary 
teams were brought together to envision scenarios for achieving 
carbon neutrality by 2050 in Luxembourg and its border regions.

2.  Citizen involvement: A Citizens’ Committee (Biergerkommitee 
Lëtzebuerg 2050) consisting of 30 participants evaluated the 
project outcomes.

3.  Policy impact: The initiative’s recommendations contributed to the 
development of the Programme for Spatial Planning (Programme 
directeur d’aménagement du territoire - PDAT).

This approach highlights the integration of various disciplines, including 
environmental sciences, humanities, and social sciences, in addressing 
complex spatial planning challenges. By combining expert knowledge with 
citizen participation, ‘Luxembourg in Transition’ represents an innovative 
model for developing sustainable and widely accepted territorial 
strategies.

 Read more

F I G U R E   7 :   E X A M P L E   O F   A   S P A T I A L 
V I S I O N
Source: Wuppertal Institute.

Step 4: Develop spatial 
visions to detailed plans
Irrespective of the planning tradition and 
the level under which those activities will 
be performed, each coal region should 
develop visions and strategies that entail 
guiding principles and then subsequently 
cement those into spatial plans from 
regional to site-specific levels. The more 
concrete spatial planning becomes, the 
deeper it should be formalised and integrated 
into regulations. The following describes 
briefly the most important instruments for 
spatial planning: 

Spatial visions are conceptual frameworks 
that outline the desired future state of a 
region or area. They can be helpful in setting 
objectives in the regional or local context. 
Those spatial visions should entail guiding 
principles that are in line with other relevant 
development principles and targets (see 
also Step 2). Several coal regions in Europe 
developed such spatial visions, often in 
a collaborative process with citizens and 
relevant stakeholders (see also Step 3). 

In Czechia, the Green Mine Project in the Usti 
region aims to transform the active mine 
into a lake with renewable installations, a 
new urban development area and space 
for agriculture and businesses. The project 
Planning lab “Spatial Images Lusatia 2050” 
started a process to develop spatial visions 
and guiding principles (in German) to 
develop the lignite-mining region Lusatia in 
Eastern Germany until 2050. Four different 
teams suggested spatial visions that were 
transferred into a final report. 

INITIATIVE FOR COAL REGIONS IN TRANSITION3 0

B O X   6 :   E X A M P L E   O F   A N   O V E R A L L   S T R A T E G Y   O F   R E D E V E L O P M E N T   W I T H   A S P E C T S 
O F   S P A T I A L   P L A N N I N G :   S U S T A I N A B L E   D E V E L O P M E N T   I N   T H E   J I U   V A L L E Y , 
R O M A N I A :   F R O M   S T R A T E G Y   T O   A C T I O N

The development of the Jiu Valley, a lignite-mining region in Romania, aims for a sustainable development of the region 
in 2030. Therefore, a strategy was created that elicits action in different fields. Four development pillars were defined, in 
order to cope with existing challenges. The development pillars are: 

4.  Improving life quality and creating a healthy and sustainable environment

5.  Economic diversification, innovation and entrepreneurship

6.  Sustainable capitalisation on the local specificity

7.  Accessibility, mobility and connectivity

Working with these pillars, 20 development projects were created that partly inherit elements of spatial planning such 
as integrated sustainable mobility, integrated SMART cities, land restoration, building renovation, an industrial and 
business park, functional reconversion of mining sites and sustainable tourism. Spatial plans can contribute to ensure 
the implementation of the objectives.

Read more:

•  Restructuring of coal mining in Romania between the climate crisis and the energy transition
•  Tracer Project: West Romania
•  Supporting reforms to transition to a green economy and fight climate change

Based on spatial visions, spatial strategies 
prioritise certain actions and allocate 
resources to achieve the envisioned spatial 
development. Again, they should integrate 
various policy agendas (Step 2) and involve 
collaboration among different stakeholders 
(Step 3). Dedicated spatial strategies are 
relatively rare (see Box 7). Instead, in coal 
regions spatial considerations are often 
integrated into broader regional strategies: 

The city development strategy for Katowice 
2030 in the southern Polish coal regions 
establishes options for how to cope with the 
structural change in the city, e.g., developing 
post-industrial sites and supporting new 
future-oriented economic structures. 

In the Rhenish Mining region, Germany, the 
regional strategy called the Economic and 
Structural Programme 2.0  integrates spatial 
planning as one of four focus topics for 
regional development (energy and industry, 
raw materials and agriculture, innovation 
and education and spatial development and 
infrastructure). 

The Just Transition Development Plan of 
lignite areas for Greece is a sector-based 
strategy, but it recognised “space” as an 
umbrella dimension that can ensure the 
applicability of the overall plan for the 
transition. It also concretises the setup of 
Special Urban Plans for post-coal sites and 
surroundings.

INITIATIVE FOR COAL REGIONS IN TRANSITION3 1

B O X   7 :   A   D E D I C A T E D   S P A T I A L 
S T R A T E G Y   D E V E L O P M E N T 
P R O C E S S   F O R   T H E   R H E N I S H 
M I N I N G   A R E A ,   G E R M A N Y 
‘ S P A T I A L   S T R A T E G Y   2 0 3 8 ’

The spatial strategy that was developed for the 
Rhenish mining area largely uses and describes 
the steps outlined in this toolkit, including a spatial 
analysis of spatial-related potentials and challenges 
(including the development of detailed maps), citizen 
and stakeholder inclusion processes, links to broader 
development strategies and monitoring processes. 

What was unique about the approach was that the 
process involved the development of three visions in 
parallel, which were eventually merged into one to 
ensure that multiple perspectives and development 
pathways were considered. Comparing the three 
visions, they all proposed to support the (already 
existing) network of smaller and larger towns in the 
region, to improve the public transport network in 
the region, to create extensive green networks, and 
to establish new economic centres. The final spatial 
strategy summarises this process and will be further 
developed in the future. 

 Read more

T H R E E   S P A T I A L   C O N C E P T S   W E R E   D E V E L O P E D   I N   P A R A L L E L   U N D E R   T H E   F R A M E W O R K   O F   T H E 
S P A T I A L   S T R A T E G Y   2 0 3 8   P R O C E S S - 
Source: RWTH Aachen, 2023

INITIATIVE FOR COAL REGIONS IN TRANSITION3 2

F I G U R E   8 :   E X A M P L E   O F   A   F R A M E W O R K 
P L A N
Source: Wuppertal Institute.

A structure plan can be drafted at a 
regional or city level and provides a 
vision of land use and further important 
aspects of development, such as transport 
infrastructures. Similarly, but a bit more 
detailed, a framework plan concretises the 
structure plan and sets the framework for 
(re-)development, depicting the site and its 
surroundings. In this plan, building structures, 
open spaces, streets and further framework 
setting elements can be presented. 
Depending on the size and complexity of the 
project, the structure plan and framework 
plan are not detached from one another.

Some examples are the framework plan 
for the former open-cast mine Hambach, 
Germany, the structure plan for the city of 
Avila, Spain and the transformation of a 
mining area in a park and urban forest in 
Spain. 

The design plan2 is the proposal for the 
redevelopment and sets out the functional, 
spatial and design principles for the site. It 
details the building structure, open spaces, 
and land uses. It is usually the basis for the 
preparation of regulatory and binding zoning 
plans. An example is the Design plan and 
the Urban Development plan of the quarter 
Katowice South.

2  Sometimes sectoral plans are developed in addition on a 
design plan level, focusing on mobility, climate protection 
and adaptation, water management, biodiversity. As an 
example, the climate adaptation plan of Katowice defines 
measures in the fields of public health, vulnerable groups, 
undeveloped areas, transport and water management. 

F I G U R E   9 :   E X A M P L E   O F   A   D E S I G N 
P L A N
Source: Wuppertal Institute.

INITIATIVE FOR COAL REGIONS IN TRANSITION3 3

(there are subsidence maps that show which 
areas can be further exploited, etc.). On 
the other hand, these areas have unique 
advantages - they are large, potentially well 
suited for further economic activity, they have 
built networks (capacity electricity supply, 
hot water pipelines, water pipelines, gas 
pipelines, etc.), which are challenging linear 
structures that do not need to be newly built 
or can be upgraded, and they do not need 
complex permitting processes.

The public sector is supposed to create 
the conditions for entrepreneurship, for job 
creation. The regeneration of brownfields 
left over from mining, as well as many other 
sites left over from failed suppliers to miners 
or declining heavy industry has a threefold 
effect: 

 y economic (space for new economic 

activity), 

 y social (new jobs) 

 y and environmental (old encumbrances 
and brownfields are removed and 
greenfields are not taken up for business 
development or other projects, such as 
residential).

Investing in site preparation and preparing 
speculative properties for new investments 
can create an attractive advantage.

Land use cases of 
post-coal areas 
and possibilities 
for spatial 
development 

For developing a spatial plan for a defined 
area, either for larger framework plans or 
individual sites, a wide range of use cases 
can be incorporated into the plans: industrial 
purposes, economic activities, cultural sites, 
residential projects, social infrastructure or 
green and public spaces. As described above, 
spatial planning as such can be described as 
a way to mediate different use cases that 
may conflict with each other. The criteria 
to decide on a good use case mix will be 
defined by policy framework conditions in the 
respective country, region or municipality, as 
well as the political negotiation outcomes of 
the involved actors and institutions. 

However, planning the individual use case in 
line with sustainable development and just 
transition criteria will also be important in 
order to develop coal regions towards climate 
neutrality and a future beyond fossil fuels. 
The following chapter provides an overview of 
those use cases for former coal related areas 
along with examples for (re)development. 
This overview excludes the management 
of mine rehabilitation and power plant 
redevelopment, as this has been addressed in 
the other support materials (see Box 8). 

A specific feature of the regions where mining 
has taken place is the large areas left after 
mining. Sometimes they are burdened with 
ecological burdens, such as subsidence 

B O X   8 :   G U I D A N C E   O N   M I N E   R E H A B I L I T A T I O N , 
I N D U S T R I A L   S I T E S   A N D   P O W E R   P L A N T 
R E D E V E L O P M E N T   I N   P R E V I O U S   C R I T   S U P P O R T 
D O C U M E N T S

The Environmental rehabilitation and repurposing 
toolkit provides guidance for the environmental 
rehabilitation of mines and related areas. It partly 
also focuses on financing schemes that can deal 
with liability and remediation cost issues related to 
site contamination or ownership issues.

The Technology options toolkit provides options for 
the transformation of industries towards a low 
carbon economy such as technological solutions for 
the re-use of coal-fired power plants, 
decarbonisation of energy-intensive industries and 
hydrogen strategies.

As part of the START technical assistance 
programme of CRiT, the Transformation Options 
Framework provides hands-on guidance for the 
identification and assessment of options for the 
transformation of former mining and industrial sites, 
including guidance on initial assessments, project 
preparation, and stakeholder participation. While 
predominantly developed for the Polish context, it 
may also be useful for practitioners in other 
countries.

INITIATIVE FOR COAL REGIONS IN TRANSITIONHistorical and 
cultural heritage 

Industrial buildings and other industrial 
monuments, such as conveyor towers 
or excavators from mining activities, can 
be preserved, upscaled and used for new 
purposes. The use of heritage can enhance 
cultural identity and can improve quality 
of life of the city or region, boost tourism, 
support the rebranding of the region and 
attract new businesses. Creative and cultural 
industries can contribute to the regeneration 
of places as they bring new ideas, and are 
often drawn to working in special places. 

For planning redevelopment of industrial 
sites, the ForHeritage Interreg Project 
provides a range of strategic tools for dealing 
with heritage conservation and reuse. 

Examples:

 y Katowice cultural zone, Poland

The Katowice cultural zone represents 
an inner city development of 
the former Katowice coal mine 
‘Ferdinand’/‘Katowice’ that was closed 
in 1999. The area inherits today many 
cultural places such as a sports and 
entertainment area, the Silesian museum 
associated with the former mining shaft, 
a cinema, a park that can be used for 
events and a concert hall and also 
business related uses as a conference 
centre.

 y Blegny-Mine, Belgium

The Blegny-Mine, Belgium was closed 
in 1980 and was developed to a 
museum with a permanent exhibition 
and the shafts to be visited. The mine 
is a UNESCO world heritage site today 

3 4

and offers guided tours for groups and 
schools. The mine is surrounded by a 
biotope. 

 y Centre Historique Minier de Lewarde, 

France
The Centre Historique Minier de Lewarde 
in France is a mining museum where the 
heritage of the mine was preserved. The 
buildings and the shaft can be visited 
and visitors can learn about the history 
of the mine. 

 y Stara Kopalnia w Wałbrzychu, Poland
The Old Mine Science and Art Centre 
in Wałbrzych located on the site of the 
former “Julia” mine. The revitalisation 
of the largest mine in Wałbrzych was 
completed in 2014. The mine offers visits 
to the shafts and various exhibitions (see 
picture)

 y Ferropolis, Gräfenhainichen, Germany

Ferropolis, also known as the City of iron, 
is an open air museum and event venue 
on the site of a former open-cast mine. 
It displays gigantic mining machines 
and serves as a venue for concerts and 
festivals and a lake.

 y German Mining Museum, Bochum, 

Germany

Further preserved sites with heritage 
conservation:

 y Le Bois du Cazier, Belgium (similar 

concept as Blegny-Mine)

 y Podkrušnohorské Technical Museum, 

Czech Republic

 y Mining museum Blanzy, France

T H E   S T A R A   K O P A L N I A   M I N E   T R A N S F O R M A T I O N 
Source: Lower Silesian Tourist Organization

G E R M A N   M I N I N G   M U S E U M ,   B O C H U M

INITIATIVE FOR COAL REGIONS IN TRANSITION3 5

The Business Park Phoenix West, Dortmund, 
Germany, integrates heritage with new 
business and cultural uses on the site of 
former ironworks. Industrial buildings are 
preserved and supplemented with new 
buildings for various science and technology 
companies on the site. Cultural spaces such 
as an exhibition centre, a brewery museum 
and restaurants enhance the area’s quality 
of life. The city of Dortmund has been able to 
attract new businesses to the area and has 
given existing businesses the opportunity to 
relocate and expand.

Nikiszowiec, Katowice - the new technologies 
district (planned by 2026, not yet realised)

In the New Technologies District in Katowice, 
a new gaming and technology centre will 
be created on the site of a former coal 
mine, with educational centres, technology 
laboratories and office space. Existing 
buildings will be preserved, modernised and 
equipped for new businesses in the gaming 
and technology sector. Moreover, new film 
and recording studios will also be built on the 
site. Former worker’s apartments will be used 
for housing. By 2026 the plans should be 
implemented and the new hub for technology 
and gaming will be finished.

The Business Park Brainergy Park, Jülich, 
Rhineland Mining Area, Germany is planned 
to be implemented by 2027. It is located in 
the Rhenish Mining Area in Jülich, close to 
the open-cast mine Garzweiler. The Business 
Park is not located as a redevelopment on the 
site but contributes as part of the economic 
development strategy to the future oriented 
economic development of the region. 

Industrial and 
commercial areas
When planning space for economic activities 
in industrial or commercial areas and 
attracting new economic activities, urban 
planning requirements must be combined 
with the needs of businesses and local 
authorities. Possible needs of businesses 
include sufficient space for production or 
offices, good transport links and accessibility 
(e.g. motorways or public transport in the 
vicinity), proximity to customers and, for 
some businesses, building typology and the 
urban environment. Some businesses need 
to be located farther from residential areas 
because of noise or pollutant emissions, 
while others, especially service-oriented 
businesses, benefit from being located in 
mixed neighbourhoods. As such, not all former 
coal-related sites are suitable for all kinds 
of business activities. Box 9 provides an 
overview of a step-by-step guide for local 
authorities to develop industrial brownfields 
for future business activities. Furthermore, 
the aforementioned Transformation Options 
Framework provides detailed guidance on 
transforming industrial sites in coal regions.

Examples: 

The Saša Industry and Technology Park 
Velenje in Slovenia, also known as “TecHub 
i4.0,” is a pivotal project in the economic 
restructuring of the Savinja-Šalek region 
in Slovenia. Located in the Stara Vas 
Commercial Area, this 5,000 m² facility aims 
to foster innovation and growth by retaining 
existing technology companies and attracting 
new businesses. The park is part of a broader 
initiative to transition the region’s economy 
from traditional industries to sectors with 
higher added value. 

P H O E N I X - W E S T   A R E A

INITIATIVE FOR COAL REGIONS IN TRANSITION3 6

B O X   9 :   A   T O O L   F O R   S U S T A I N A B L E 
R E G E N E R A T I O N   O F   B R O W N F I E L D 
S I T E S :   S T E P - B Y - S T E P   G U I D E   F O R 
L O C A L   A U T H O R I T I E S 

The document provides a comprehensive 
framework for local governments to effectively 
regenerate brownfield sites. Brownfields, which 
are also often found in coal regions, are defined 
as previously used, derelict, or underused areas 
that may have contamination issues and require 
intervention. The guide highlights brownfield 
activation as a crucial tool for achieving 
sustainable development and provides a step-by-
step guide for local authorities to develop new 
brownfield activation practices (see figure 9). 

 Read more

F I G U R E   1 0 :   A   6 - S T E P   G U I D E   F O R   C I T I E S ,   T O W N S   A N D   V I L L A G E S   F O R 
B R O W N F I E L D   D E V E L O P M E N T
Source: Ramboll, 2022

INITIATIVE FOR COAL REGIONS IN TRANSITIONGreen Infrastructure 
and public spaces 
Green infrastructure and public spaces 
are essential in land use in every city and 
region. Green infrastructure is defined by the 
European Commission as a ‘strategically 
planned network of natural and semi-
natural areas with other environmental 
features designed and managed to deliver 
a wide range of ecosystem services’. Green 
Infrastructure is beneficial in multiple ways 
for cities and regions, including making 
them more liveable by contributing to health 
and quality of life, maintaining ecological 
processes, supporting biodiversity, providing 
food security and improving the microclimate 
in the area. Green spaces also play a crucial 
role in climate adaptation and can be 
used strategically in urban ecosystems to 
support nature-based solutions. As cities 
and regions continue to grow and evolve, 
the incorporation of ecosystem services and 
green infrastructure into spatial planning 
becomes increasingly critical for achieving 
sustainable development goals and ensuring 
the well-being of both current and future 
generation.

In regions and cities, different types of green 
spaces can be distinguished, which vary in 
size and function (read more in box 10). In a 
regional context, agriculture, forests, water 
bodies and nature reserves play a crucial role, 
up to and including biotope network systems 
and green links. At the local level, concepts 
from regional plans are put into practice (e.g. 
green links, biotope network systems), and 
smaller green spaces such as parks, green 
infrastructure (cemeteries, sports grounds, 
allotment gardens) and private gardens may 
be  planned.

3 7

Green networks and parks are the types of 
green infrastructure often foreseen for the 
redevelopment of coal-related sites. 

Green networks
Green networks are an important part of 
the open space structure of cities and 
can be connected to green infrastructure 
of the region, outside the settlement. 
They provide fresh air, are often part of 
a biodiversity network system and can 
provide ecosystem services. Green networks 
are often planned at a larger scale through 
sectoral landscape planning and are more 
detailed at a local level through urban or rural 
spatial planning. 

Examples:

B O X   1 0 :   F I V E   P L A N N I N G   P R I N C I P L E S 
F O R   G R E E N   I N F R A S T R U C T U R E

•  Integration of green infrastructure as a type of infrastructure that is 
in sync with other urban structures as buildings, transport networks and 
water management systems

•  Multifunctionality of green spaces serving ecological, social, cultural and 

economic functions at the same time

•  Connectivity between green spaces of different scales which enhances 

physical activity

•  Multi-scale approach whereby different actors (administration, initiatives, 

etc.) can contribute to the planning of green spaces

•  Multi-object approach encompassing different kinds of green and blue 
spaces: natural and semi-natural areas, water bodies, public and private 
green spaces

 y Lusatian Lake District, Germany

 Read more: Benedict and McMahon

In Lusatia, Brandenburg and Saxony, 
a network of more than twenty lakes 
with numerous water sports facilities, 
cycling and hiking trails and holiday 
accommodations was established by 
filling former open cast mines with 
water. A new landscape was established 
that provides  high quality and novel 
recreational opportunities for inhabitants 
and tourists.

 y Mostecké jezero lake, Czechia

Located in the north west of the Czechia 
in the Ústí Region, the lake Most is a 
previous open-cast mine filled with 
water that underwent a renaturalisation 
process. Today the lake is used for 
various leisure activities such as 
kayaking, paddling and provides a beach. 
There is also a circular path around 
the lake for cyclists and pedestrians. 
Read more in the detailed analysis of 
georelief development in the Lake Most 
surroundings.

R E C R E A T I O N A L   A R E A   A T   T H E   L A K E   M O S T   I N   C Z E C H I A
Source: Jezero Most

INITIATIVE FOR COAL REGIONS IN TRANSITION3 8

 y Parco Archeologico e Tecnologico delle 

Colline Metallifere Grossetane

The park is located in Tuscany, Italy on 
an area of 24,000 hectares and includes 
21 former mining areas of different 
materials (e. g. lignite, iron and copper 
metallurgy, silver and copper mine). 
The park is nominated as a geopark 
by UNESCO, which is a park with a 
significant geological heritage. The 
former mining sites are integrated with 
natural and landscape resources. One 
special venue is the Theatre of the Rocks 
which is a theatre that is located in a 
former mine.

Parks
Parks are urban green spaces that provide 
recreation, fresh air and space for native 
species. Important elements of parks are 
lawns, trees and topography. Meadows 
provide users with different activities, trees 
provide shade and improve air quality, and 
topography can be used as a design element. 
Parks can be designed in different ways and 
according to different concepts. They range 
from more natural, less structured parks to 
conceptually designed parks with clearly 
separated areas and different functions, 
and are designed in a range of sizes, going 
from from residential green spaces to 
neighbourhood and city parks to large public 
parks. 

Examples:

 y Landschaftspark Duisburg-Nord, 

Germany
The landscape park Duisburg-Nord, 
Germany is located in the Ruhr Area 
and was transformed from former 
ironworks that closed in 1985 into a 

park where former industrial heritage is 
preserved. Today, the park offers visitors 
an industrial history circular trail, hiking 
routes, and many more leisure activities 
such as climbing, festivals, events and 
an open air cinema in summer. It has 
become a popular attraction for the 
whole region.

 y Parque de la Minería de Almadén

The park is located on the site of a 
former mine in Almaden, Spain. The park 
is a cultural and tourist destination that 
is dedicated to the history, science and 
culture of the Almadén Mines. It offers 
guided tours and an exhibition of the 
history of the mine.

 y Parc Explor Wendel, Petite-Rosselle, 

France
The park Explor Wendel is located in 
Lorraine, in the east of France. The park 
is situated on the site of the former 
Wendel coal mine that was closed in 
1986. Today the park hosts a museum, 
a theme park that illustrates the working 
conditions of the miners and offers the 
possibility to visit the mine in guided 
tours.

 y Westpark, Bochum, Germany
In the Westpark, Bochum’s 
transformation from an industrial centre 
to a modern city of culture becomes 
tangible. 150 years of iron and steel 
production have created an area with 
different levels of elevation and relics 
from this period.

 y The Be-MINE, Belgium, is a transformed 
former coal mining site that now offers 
a variety of attractions, including an 
adventure playground with hiking trails, 

W E S T P A R K ,   B O C H U M ,   G E R M A N Y

INITIATIVE FOR COAL REGIONS IN TRANSITION3 9

mountain biking routes, and a 60-meter 
high play area consisting of a pole forest, 
prismatic play surface, and coal square, 
all designed to blend the area’s industrial 
heritage with modern recreational 
opportunities.

 y Halde Hoheward, Herten, Germany 
is a park on a heap that is built of 
waste from mining activities. The park 
is designed in a semi-renaturalised 
way and offers a good view of the 
surrounding area. Guided tours are 
offered about the history of the park and 
the rehabilitation process. 

Read more: 

spatial development as they will reduce the 
need for transportation, increase efficiency 
for resource use, and therefore, avoid land 
sealing. 

A popular example of mixed use quarters 
in spatial planning is the city of Aspern in 
Austria. It is one of Europe’s largest urban 
development projects, and was developed 
as a new, multifunctional urban centre 
combining housing with office space, 
premises for manufacturing enterprises and 
science, research and educational facilities as 
well as  comprehensive urban infrastructure.

Examples for mixed used quarters on former 
industrial sites are:

 y Wirth et al. (2018). Green infrastructure: 

 y Belval, Esch-sur-Alzette, Luxemburg: 

a planning concept for the urban 
transformation of former coal-mining 
cities 

 y Benedict and McMahon (2006). Green 
Infrastructure: Linking Landscapes and 
Communities

 y Kabisch et al. (2017). Nature-Based 

Solutions to Climate Change Adaptation 
in Urban Areas: Linkages between 
Science, Policy and Practice

Mixed land-use areas
Mixed land use areas enable a variety of 
different land uses such as businesses, 
housing, supply, cultural venues, social 
infrastructure, as well as public and green 
spaces. The decision to establish a mixed-use 
development is dependent on the size of the 
city, the size of the neighbourhood, and the 
type of location. Considering contemporary 
concepts of spatial planning, like the 
15-minute city, mixed used quarters can be 
seen as the ‘gold standard’ for sustainable 

The quarter of Belval was built on the 
site of a former steel plant and the 
heritage is still preserved. Today, Belval 
is a mixed neighbourhood with housing, 
research institutions, offices and a park. 
The University of Luxembourg has set up 
its campus on the site and has created 
a “city of science”. Many start-ups and 
digital companies have also settled in 
Belval. Belval has become a mixed-use 
district that integrates heritage into a 
contemporary neighbourhood. 

 y C-Mine, Genk, Belgium: The C-Mine in 
Genk, Belgium, is a former coal mine 
that now houses cultural facilities, 
restaurants, art installations and a 
business park. The site has a visitor 
centre and serves as a venue for 
events. It is surrounded by a park with a 
labyrinth as an attraction. The business 
park provides space for around 20 
companies in the creative industry. For 
more information about the transition 
in the region see the case study “Genk’s 
ongoing transition”.

B O X   1 1 :   S P A T I A L   P L A N N I N G   N E E D   T O 
I N T E G R A T E   C L I M A T E   A D A P T A T I O N

Climate change adaptation is the process of adapting natural, social and 
economic systems to the (negative) effects of climate change as extreme 
weather events such as heavy rainfall, heat waves and storms will become 
more frequent. The aim is to respond to the impacts that are already being 
felt and those that can be expected in the future. These changes can have 
a fundamental effect on the functioning of urban systems and on human 
health, so it is important to take them into account in spatial planning as 
well. 

Tools:

The EU project NWRM presents measures for climate adaptation with a 
focus on water retention in agriculture, urban areas, forests and in hydro-
morphology. All these measures are described in detail and the benefits 
of each measure are presented. The project website also features a map 
with a collection of measures already implemented in EU countries.  The 
EU Climate ADAPT website shares knowledge on adaptation for a climate 
resilient Europe. It provides information on adaptation in different sectors, 
case studies, country profiles, and news and events. The website provides 
useful information and also focuses on climate adaptation and land use 
planning. The Covenant of Mayors also provides guidance and support for 
climate adaptation measures on the local level. 

Examples:

•  Mainstreaming climate change adaptation into urban planning: 

greyfield land redevelopment in Jena (Germany)

•  Multifunctional water management and green infrastructure 

development in an eco-district in Rouen

•  Supporting urban greening and social justice in the city of Barcelona

INITIATIVE FOR COAL REGIONS IN TRANSITION4 0

the Usti region aims to transform the active 
mine into a lake with hydro energy storage 
and floating PV (see picture). In Teruel, 
Spain, the former coal-fired power plant is 
transformed into a renewable energy hub, 
taking advantage of the vast wind energy 
potential in the region. 

The Technology options toolkit features a 
broad range of examples for the repurposing 
of power plants for different kinds of 
energy production technologies and storage 
integration. 

Mobility and 
transportation
Coal-related sites often have existing 
infrastructure such as railways and roads 
that were used for operations. During 
revitalisation, this infrastructure can be 
reused and maintained in a variety of ways. 
Rails can be continuously used for new 
public trains if the connection is suitable and 
there is a demand for transport. If a new rail 
connection does not fit into the revitalisation 
concept, the tracks can be used for other 
modes of transport, such as for streets or 
cycling paths. Similar principles would apply 
for existing roads. They should be assessed to 
see if they are the right size for the mobility 
needs of the new uses and how they can be 
transformed to support sustainable modes of 
transport.  

 y The area around Lake Phoenix, 

Dortmund, Germany is an example of 
residential areas on the site of a former 
steel plant. Lake Phoenix is an artificial 
lake surrounded by residential and leisure 
areas. The lake offers many possibilities 
for leisure activities, and is surrounded 
by apartment blocks which cover most 
of the site. Some blocks are mixed use 
with apartments, offices, restaurants, and 
cafes. 

More examples:

 y Telliskivi Creative City, Tallinn, Estonia 

(former industrial site)

 y Eternitten, Aalborg, Denmark (former 

industrial site)

 y Lyon Confluence (internationally 

considered as a best practice, former 
industrial site)

Renewable energy 
production
Renewable energy development plays a 
crucial role in former coal regions, not only 
for a sustainable energy supply but also in 
terms of creating a new identity and business 
opportunities for the region. The expansion 
of renewable energies is heavily dependent 
on the areas designated for this purpose, and 
also needs to be steered by spatial planning. 

Former coal-industry related sites often have 
existing infrastructure such as power grids, 
substations and distribution networks that 
can be adapted and upgraded to support new 
land uses, which is a benefit of reusing the 
sites for renewable energy production. For 
instance, in Czechia, the Green Mine Project in 

L A K E   P H O E N I X   A N D   R E S I D E N T I A L   A R E A S   O N   A   F O R M E R   S T E E L   P L A N T   S I T E   I N 
D O R T M U N D ,   G E R M A N Y

F L O A T I N G   P V   P L A N T S   E N V I S I O N E D   A T   T H E 
F O R M E R   Č S A   C O A L   M I N E   I N   C Z E C H I A
Source: Green Mine

INITIATIVE FOR COAL REGIONS IN TRANSITION4 1

Further reading: 

 y What does green public procurement 

mean?

 y Role of Green public procurement in 

improving resource efficiency

Public budgeting
Public budgeting is the process through which 
governments plan, allocate, and manage 
financial resources to achieve public policy 
objectives and provide services to the 
community. By implementing  green, social 
and gender budgeting, public budgeting 
can be used to reach a more sustainable 
outcome. In spatial planning, green, social 
and gender budgeting can be used to identify 
policies that contribute to a sustainable 
spatial structure. 

Green budgeting is the integration 
of environmental and climate change 
considerations into budgetary policy-making. 
In spatial planning, green budgeting can 
promote the social and environmental aims 
of spatial planning, and avoid non sustainable 
practices such as further land consumption or 
building new roads for individual motorised 
transport. Instead, budgets can be planned 
for measures that support sustainable spatial 
planning such as inner urban development, 
renovation and repurposing of existing 
buildings, green roofs, renewable energy, 
climate adaptation or public transport. 

Read more: Green budgeting in the EU and 
OECD Green budgeting guidelines

Social budgeting is the process 
of integrating social objectives and 
considerations into the planning and 
implementation of public budgets. In spatial 
planning, social budgeting can ensure a just 
distribution of spaces as for example by 
supporting social housing, accessible  spaces, 
the introduction of a land use policy oriented 
towards the common good or a high amount 
of accessible and multifunctional public 
spaces. 

Read more: UNICEF-European Commission 
Social Budgeting Toolkit

Gender budgeting is a strategy for 
integrating a gender perspective into the 
budgeting process and thereby to reduce 
inequalities. In spatial planning, gender 
budgeting can be used in order to promote 
measures that improve the everyday life 
for women in public spaces: creating safe 
spaces (e. g. enough light at night, safe 
street crossings, safe pedestrian walks and 
bike lanes) or to create affordable mobility 
options that take into account the often 
more complex travel chains of women 
(work, shopping, dropping off and picking up 
children).

Read more: Gender Budgeting - How can we 
apply gender budgeting in the EU Funds? 
Practical tools and Member State examples

Spatial planning 
through strategic 
funding design

Securing adequate funding for transformation 
projects, particularly at the local level, is 
imperative for supporting the transition 
towards climate neutrality. CRiT’s Transition 
Financing Toolkit provides an overview about 
available public funding sources on the EU 
level and how to set up a dedicated financing 
strategy. Many of the EU funds can be used 
for infrastructure and elements that have 
been defined by spatial planning processes. 
Green procurement and public budgeting 
strategies are  common tools to support the 
implementation of spatial plans: 

Green procurement
Green procurement is the practice of using 
products and services that have a reduced 
impact on the environment and human 
health compared to competing products or 
services that serve the same purpose. This 
approach considers the entire life cycle of a 
product, from raw material extraction through 
to manufacturing, use, and disposal, and 
aims to minimise environmental damage at 
each stage. Examples of green procurement 
include the purchase of electric buses, 
green electricity or choosing sustainable 
building materials. In spatial planning, green 
procurement can be used strategically by 
public authorities to ensure sustainability 
throughout the process by setting 
sustainability criteria to be met (e.g. low 
carbon emissions, good working conditions). 
The criteria can be used to decide which 
subcontractors are selected, which measures 
are implemented, and which materials are 
procured. 

INITIATIVE FOR COAL REGIONS IN TRANSITIONHelpful tools
Digital spatial planning tools 

Digital spatial planning tools offer several 
advantages over traditional methods such 
as enhancing the efficiency, accuracy, and 
effectiveness of spatial planning processes.

 y Computer Aided Design (CAD) 

programmes help to visualise data as 
spatial plans or urban designs and to 
demonstrate possible pictures of a city. 
CAD programmes offer a wide range of 
instruments and can be used for 2D and 
3D illustrations. Building Information 
Modelling (BIM) can also be done 
with CAD programmes and depicts a 
building with all its aspects in 3D. BIM 
facilitates the design, visualisation and 
documentation of construction projects.

 y Geo Information Systems (GIS) 

provide a wide range of tools for spatial 
analysis and display of spatial data. They 
can generally be used to produce maps 
and analysis and the results can be used 
as a basis for decision making.

 y Spatial simulation and modelling 

tools can be used to analyse, interpret 
and depict possible scenarios. Simulation 
and modelling is useful for a wide range 
of applications across various fields such 
as:

 - Transport modelling is used to 

design and optimise transportation 
networks, model traffic flows, 
and improve public transport 
systems. Spatial models can 
predict congestion and identify 
areas needing infrastructure 
improvements.

4 2

 - Disaster Management is useful 
in predicting and assessing the 
impact of natural disasters such as 
floods, earthquakes, and hurricanes. 
Spatial models aid in emergency 
planning, risk assessment, and 
resource allocation during disasters. 
This approach  can be applied in 
the planning process for climate 
adaptation (see Box 11).

 y Statistical software can be used 

to analyse quantitative data such as 
survey results, population statistics, 
data on air quality or property prices and 
present the results for use in decision 
making. Statistical analyses range from 
descriptive statistics such as frequency 
distributions to more complex analyses 
such as regression or multivariate 
analysis.

 - Environmental modelling 

 y Flood or subsidence maps are 

SWOT analysis

A SWOT analysis is a strategic assessment 
tool used to identify and evaluate the 
Strengths, Weaknesses, Opportunities, and 
Threats of a scenario. In spatial planning, a 
SWOT analysis can be conducted to analyse 
possible effects of a plan on a particular area 
or region. It helps planners understand the 
internal and external factors that can affect 
the spatial development and management of 
an area, facilitating informed decision-making 
and strategic planning.

Read more: SWOT Analysis - EXACT External 
Wiki

specialized cartographic tools used to 
visualize and assess areas at risk of 
flooding or land sinking. These maps 
typically show the extent of potential 
inundation or ground settlement, often 
using color-coded zones to indicate 
different levels of risk or severity. They 
serve as crucial resources for urban 
planning, emergency preparedness, 
insurance assessments, and public 
awareness. The rainman project offers 
a useful toolbox for risk reduction 
measures, including several case studies 
and practice examples. 

Read more: Behnisch and Meinel (2018). 
Trends in Spatial Analysis and Modelling
Rocha and Tenedorio (2018). Spatial Analysis, 
Modelling and Planning

helps to analyse ecological data, 
model habitat distribution, assess 
environmental impacts and 
manage natural resources. It helps 
in planning and understanding the 
effects of climate change. In coal 
regions, contamination may also be 
an aspect that could be considered 
in spatial modelling and used to 
illustrate potential environmental 
impacts, and to identify spatial 
planning constraints. This method 
can be applied in the planning 
process for green infrastructure, 
climate mitigation and adaptation.

 - An urban digital twin is a virtual 
representation of a city’s physical 
assets, processes, and systems 
which is continuously updated with 
real-time data to reflect the current 
state of the urban environment.  
This digital replica integrates data 
from multiple sources, including 
sensors, technical devices and 
historical records, to create a 
comprehensive and dynamic model 
of a city. By using real-time data 
and advanced analytics, cities can 
become more responsive to the 
needs of their residents.

Strengths:
Internal attributes of the area that generate 
advantages and should be leveraged

Weaknesses
Internal attributes that are 
disadvantages and need improvement

Opportunities
External factors that the area 
could exploit to its benefit

Threats
External factors that could pose challenges 
or harm the area’s development

T A B L E   1 :   E L E M E N T S   O F   A   S W O T - A N A L Y S I S
Source: Own depiction based on EXACT External Wiki.

INITIATIVE FOR COAL REGIONS IN TRANSITION4 3

Trade-off analysis

A trade-off analysis in spatial planning is 
a helpful tool for making decisions about 
competing objectives or competing interests 
in developing areas. It involves assessing the 
benefits and costs associated with different 
spatial options or scenarios, considering 
the trade-offs between various competing 
factors. For this, ranked lists or matrix-based 
techniques may be used. By systematically 
analysing trade-offs, spatial planners can 
strive to achieve  sustainable and balanced 
development that meets the needs of current 
and future generations. In coal regions, trade-
off analyses can be used to compare different 
options, such as which new land uses should 
be developed, and whether buildings should 
be modernised or demolished.

Read more:

 y Trade-off analysis 
 y A systematic review of the methodology 

of trade-off analysis in agriculture 

Material flow analysis (MFA)

A material flow analysis is a systematic 
method used in urban planning to quantify 
the flow of materials and energy within a 
city or urban area. The analysis considers 
the goods and materials and their dynamics 
in a system. It helps planners to understand 
how resources are consumed, transformed, 
and discarded within an urban system, 
providing insights for more sustainable 
resource management and waste reduction. 
Material flow analysis can help to optimise 
resource use and reduce waste, to develop 
lower emission impact on urban systems, 
and identify opportunities for recycling and 
reuse in a circular economy (e. g. building 
materials). In coal phase out regions, a 

material flow analysis can be conducted 
in order to steer a more sustainable 
development by depicting material flows and 
showing options for reuse and recycling of 
materials.

In order to define the scope of the analysis, 
four methodological decisions should be 
made prior to the analysis: Setting the 
temporal scope, the spatial scope, the 
material scope and the system modelling 
approach. 

Read more:

 y REPAiR Project
 y Wang et al. (2020). An urban 

material flow analysis framework 
and measurement method from the 
perspective of urban metabolism.

Life Cycle Assessment 

A Life Cycle Assessment (LCA) aims to 
describe the life cycle of a building (or 
product) throughout its lifetime and to 
evaluate its environmental impact during the 
whole life cycle (see Figure 12). The stages 
of a life cycle range from the extraction of 
raw materials to demolition and recycling of 
materials. In spatial planning in coal+ regions, 
a Life Cycle Assessment can be useful in 
decision making to assess the environmental 
impact of different options and to choose 
a less harmful option. For example, it can 
weigh whether to maintain and modernise an 
existing building or construct a new building. 
A life cycle assessment can also estimate 
how long these options could be maintained. 

Read more:

 y Building Life Cycle Assessment
 y Project EFIResources: Resource Efficient 
Construction towards Sustainable Design

F I G U R E   1 1 :   O V E R V I E W   O F   A   M A T E R I A L   F L O W   A N A L Y S I S 
Source: Wang et al. 2020

F I G U R E   1 2 :   M A I N   S T A G E S   O F   A   L I F E   C Y C L E   A S S E S S M E N T
Source: Envirolink

INITIATIVE FOR COAL REGIONS IN TRANSITIONSlides

Further reading

4 4

Benedict M.A., McMahon E.T. (2006). Green infrastructure. Linking landscapes and communities. Island Press, Washington, DC https://link.springer.com/article/10.1007/s10980-006-9045-7 

Commission for Environmental Cooperation (CEC) (1997). The EU Compendium of Spatial Planning Systems and Policies Commission of the European Communities. Luxembourg, LU: EU Publications Office.

Colantonio, Andrea, und Timothy J. Dixon (2011). Urban Regeneration & Social Sustainability: Best Practice from European Cities. Real Estate Issues. Chichester, West Sussex, UK ; Hoboken, NJ: Wiley-
Blackwell.

Dühr, Stefanie (2021). „Investigating the Policy Tools of Spatial Planning“. Policy Studies 44, Nr. 2 (4. März 2023): 258–75. https://doi.org/10.1080/01442872.2022.2040473.

ESPON (2018). COMPASS – Comparative Analysis of Territorial Governance and Spatial Planning Systems in Europe. Final Report. Esch-sur-Alzette: ESPON.

European Commission (2013). Communication from the Commission to the European Parliament, The Council, the European Economic and Social Committee and the Committee of the Regions. Green 
Infrastructure (GI)—Enhancing Europe’s Natural Capital. COM(2013) 249 final. https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=celex%3A52013DC0249

Fernández Agueda, Beatriz. „Urban Restructuring in Former Industrial Cities: Urban Planning Strategies“. Territoire En Mouvement, Nr. 23–24 (30. November 2014): 3–14. https://doi.org/10.4000/tem.2527.

Jan Gehl (2010). Cities for People. Washington, DC: Island Press. https://search.ebscohost.com/login.aspx?direct=true&AuthType=ip,shib,uid&db=nlebk&AN=348250&site=ehost-live&scope=site.

Kabisch, Nadja, Horst Korn, Jutta Stadler, und Aletta Bonn, Hrsg. (2017). Nature-Based Solutions to Climate Change Adaptation in Urban Areas: Linkages between Science, Policy and Practice. Theory and 
Practice of Urban Sustainability Transitions. Cham: Springer International Publishing. https://doi.org/10.1007/978-3-319-56091-5.

Lombard, John R., Eliahu Stern, und Graham Clarke, Hrsg. (2017). Applied Spatial Modelling and Planning. London ; New York: Routledge, Taylor & Francis Group.

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INITIATIVE FOR COAL REGIONS IN TRANSITIONGETTING IN TOUCH WITH THE EU

In person
All over the European Union there are hundreds of Europe Direct centres. You can find the address of the centre nearest you online (european-union.europa.eu/contact-eu/meet-us_en).

On the phone or in writing
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 y by freephone: 00 800 6 7 8 9 10 11 (certain operators may charge for these calls),
 y at the following standard number: +32 22999696,
 y via the following form: european-union.europa.eu/contact-eu/write-us_en.

FINDING INFORMATION ABOUT THE EU

Online
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ses. The portal also provides access to a wealth of datasets from European countries.

Lead author
Jannis Beutel, Wuppertal Institute
Carolina Krome, Wuppertal Institute

Reviewers
Michael Buschka, Wuppertal Institute
Lynn Verheyen, Wuppertal Institute
Timon Wehnert, Wuppertal Institute

Initiative for coal 
regions in transition

Led by the European Commission, the Initiative 
for coal regions in transition assists EU countries 
and coal regions tackling challenges related to 
the transition to a low-carbon economy.

 ec.europa.eu/coal-regions-in-transition

 secretariat@coalregions.eu

 @Energy4Europe