I. National policy guidelines for planning in coastal and marine areas in the Oslofjord region

Laid down by Royal Decree of 9 July 1993, cf § 17-1, first., , paragraph, of the Planning and Building Act of 14 June 1985

With II Supplementary comments on the National Policy Guidelines for planning in coastal and marine areas in the Oslofjord region.

T-1048

1 Background

The OslofJord region is the part of the country with the greatest concentration of economic activity and settlement, while the fjord and the coastal zone comprise the most intensively used area of open-air recreation in the country and contain important natural and cultural values that are worthy of preservation. It is of national importance that the region should be able to develop its function as the country's industrial centre of gravity within the framework of sustainable development.

The Government's over-riding goal of sustainable development is to be supported by cross-sectoral policies at all levels of society (Report No. 46 (1988-89) to the Storting (Norwegian National Assembly) "Environment and Development".

It is also a primary political objective to increase the opportunities for outdoor activities in areas used for daily excursions and holidays. Special priority is given to unbuilt on areas of the shore that are suitable for bathing and open-air recreation. In the OslofJord in particular, these areas are such a scarce resource that, as a rule, re-allocation of such areas for other competing purposes should not take place (Report No. 40 (1986-87) Toncerning Open-Air Recreation".

Since the mid-1950s, the coastal zone in Norway has been especially protected against development, through the legislation on shore areas and later through the provisions in § 17-2 of the Planning and Building Act, which forbid building nearer to the sea than 100 metres from the shoreline. In spite of this legislation, extensive building has taken place, with consequent deterioration of environmental and cultural assets and of opportunities for public recreation. As far as the OslofJord region is concerned, these problems are considered in Norwegian Official Report NOU 1986:21, "Outer OslofJord", and in other reports.

The over-riding environmental policy objectives for the Oslo~ord are taken up through the Oslotord Project, partly by preparing national policy guidelines, cf. Proposition No. 1 (1991-92) to the Storting, under the section contributed by the Ministry of Environment "A coordinated land-use policy", and Report No. 31 (1992-93) to the Storting "Regional planning and the land-use policy".

The purpose of the guidelines is to underline the political objectives that must be taken into account when weighing development against the need to preserve environmental and cultural values and to take care of recreational interests, in accordance with the Planning and Building Act.

2 Scope

2.1 Geographical scope

The guidelines apply to the NPG-zone (the zone to which the National Policy Guidelines apply) which on land is demarcated on the map included in these guidelines. The guidelines also apply to all islands, holms, skerries and suchlike. In the sea the guidelines apply to the total geographical area of the municipalities, including water surface, water volume and sea bed, out to the base line.

The following counties and municipalities are affected:

Telemark: Kragerø, Bamble, Skien, Porsgrunn

Vestfold: Larvik, Sandeflord, Stokke, Tønsberg, Nøtterøy, Tjøme, Borre, Våle, Holmestrand, Sande, Svelvik.

Buskerud: Drammen, Lier, Røyken, Hurum.

Akershus: Asker, Bæirum, Oppegård, Ås, Nesodden, Frogn, Vestby.

Oslo

Østfold: Moss, Rygge, Råde, Onsøy, Fredrikstad, Kråkerøy, Hvaler, Borge, Sarpsborg, Halden.

The NPG-zone on land does not include the urban settlements (towns) of Skien, Porsgrunn, Larvik, Sandefjord, Tønsberg, Horten, Drammen, Oslo, Moss, Fredrikstad, Sarpsborg and Halden, nor areas of urban development in Asker and Bærum.

2.2 Substantive scope

The municipalities concerned shall use the guidelines as a basis for their planning and when considering individual cases in accordance with the Planning and Building Act (cf. § 17-1).

The national sector authorities shall use the guidelines as a basis for their participation in the planning, and when considering individual cases that are decided in accordance with the Planning and Building Act (cf § 9-3, 20-5 and 27-2), and they should also use the guidelines in connection with their other administrative functions within the framework of the relevant sector legislation.

3 National objectives

3.1 Primary objective

Within the geographical scope of the guidelines, valuable elements of the natural environment and the cultural heritage, and values connected to recreation, shall be managed as a resource of national importance, to the benefit of the population today and in the future.

3.2 Subsidiary objectives

3.2.1 The natural resource base

The natural resource base shall be managed with a long term perspective, giving due consideration to biological diversity, productivity and the capacity for renewal. An effort shall be made to preserve characteristic features of the nature and the landscape, and valuable localities, occurrences and species must be taken care of within the ecological interrelationships existing in their own environments. In this connection it is an objective to ensure water quality which, considering the local conditions, provides a basis for natural plant and animal life and permits bathing, other outdoor activities and consumption of edible organisms without risk to health.

3.2.2 Historic monuments and sites and cultural environments

Emphasis must be placed on preserving characteristic cultural landscapes, historic monuments and sites, cultural environments and individual examples of the coastal tradition particular to the area.

3.2.3 Recreation

The basis for public recreation shall be secured and further developed. The opportunities for open-air recreation and for experiencing natural and cultural environments in the coastal zone must be maintained and improved.

3.2.4 Pattern of land use

As far as possible, further building in the NPG-zone should be concentrated to existing urban areas, so that the rest of the coastal zone is safeguarded from development.

4 Guidelines for use of land and naturalresources, divided into four categories

4.1 Definitions

The term building areas means areas for existing and planned buildings for residential purposes, commercial undertakings, etc.

The term open areas means the areas of land and sea outside building areas and the shore zone.

The term shore zone means the areas of land and sea that aredirectly inter-related with each other ecologically and/or by usage.

The term marine areas means all sea outside the shore zone out to the base line.

It is assumed that this division into categories will be applied in the municipal master plan.

4.2 Building areas

The construction of new dwellings and of business premises with associated buildings and installations should take place in connection with existing built up areas.

Within the building areas, emphasis shall be placed on safeguarding common open areas and natural elements such as continuous green structures in the local environment. Efforts should be make to maintain and improve communications to areas of open-air recreation, shores and the sea outside the built up area. Nearby shore areas should be kept intact and free of buildings.

An effort should be made to define clear boundaries between building areas and areas that shall not be built on, with emphasis on appropriate reallocation of agricultural land.

4.3 Open areas

In these areas, emphasis shall be placed on the long-term management of natural environmental values and cultural landscapes as a basis for agriculture, conservation and public recreation.

Scattered building in these areas should be avoided. Holiday cabins may be erected in accordance with approved, not yet fully implemented plans, or in the form of limited densification (building on vacant spaces between buildings) in existing areas with such dwellings, as evaluated in the planning.

4.4 Shore zone

The opportunities for general outdoor recreation, in the form of boating, walking, cycling and frequenting the shore should be secured and improved. Considerable emphasis shall be placed onmaintaining and improving accessibility to the shore zone from the land and from the sea, and possibilities for walking along the sea shore. When weighing the different interests, these considerations shall be strongly emphasized in relation to the further development of existing dwellings and holiday cabins.

In zones with high biological production, such as areas of shallow water, ecotones and other transitional areas, other valuable biotopes and localities of special value as natural areas or landscapes, consideration for the natural environment shall weigh heavily in relation to outdoor recreation and boat traffic. The same applies to valuable historical monuments and sites and cultural environments in relation to outdoor recreation and boat traffic.

Important places that are used for commercial fishing activities close to the shore, including laying out of fishnets etc., should be maintained, and should be kept free of permanent installations such as buoys, moorings, private jetties etc. that can inconvenience fishing.

In the shore zone, building that can impair the natural or the cultural environment and reduce the opportunities for recreation and fishing should not take place.

It is assumed that collective holiday facilities, service facilities for pleasure craft and other holiday and recreation facilities connected to the shore and the sea will be carefully adapted to local conditions. As a rule, erection of new holiday cabins, and significant extensions to existing holiday cabins should not be permitted to a greater extent than defined in approved, not fully implemented plans.

4.5 Marine areas

Emphasis shall be attached to these areas as biotopes and as a basis for fishing and other harvesting of renewable resources, and as a resource for transport, for use of pleasure craft and for other forms of recreation. Great care should be exercised before opening the way for measures in the sea which would lead to large installations and/or permanent encroachments which could unfavourably affect the considerations underlying the guidelines.

5. The authorities' responsibility for implementing the guidelines

5.1 The national authorities

The Ministry of Environment is responsible for providing advice in connection with the guidelines, and for development and follow-up. This responsibility can be exercised in cooperation with the other ministries and subordinate agencies concerned.

As the representatives of the national environmental authorities, the county governors are responsible for informing the planning authorities and other national sector authorities about values in the Oslotord area that are of interest in a nature management context. They shall participate actively in the planning work by providing professional advice, and shall make sure, if necessary through objections to plans and through appeals in individual cases, that the municipalities follow up the guidelines.

Other national sector authorities have a corresponding responsibility within their own areas of competence.

5.2 The county municipalities

The county municipalities shall use the guidelines as a basis for the county plans and shall advise the municipalities on how to implement the guidelines, and shall in this connection develop a common interpretation of the guidelines and a common practice for implementing them in their counties.

The county municipal cultural heritage authorities are responsible for passing on information on valuable components of the cultural heritage, and for participating in the planning process.

The county open-air recreation boards have a corresponding responsibility within their own area of competence.

5.3 The municipalities

The municipalities shall use the guidelines as a basis for municipal planning and for consideration of individual cases in relation to the plans.

In cases where an individual decision is taken, the municipality has a responsibility pursuant to § 17.1 of the Public Administration Act to obtain as much information on the case as possible before taking the decision. Therefore, in cases which may involve granting dispensation from a plan, and are significant in relation to these guidelines, it is important that the county municipality and the county governor be given an opportunity to express an opinion before the case is decided by the municipality.

II. Supplementary comments on the National Policy Guidelines for planning in coastal and marine areas in the Osloflord region

Contents

1. National Policy Guidelines: foundation and manner of working

2. The background for the National Policy Guidelines in the coastal zone of the Oslofjord (NPG chapter 1).

3. The geographical scope of the guidelines (NPG section 2. 1).

4. The substantive scope of the guidelines (NPG section 2.2).

5. National objectives (NPG chapter 3).

6. Use of land and natural resources (NPG chapter 4).

6.1 Definitions (NPG section 4.1).

6.2 Guidelines for building areas (NPG section 4.2).

6.3 Guidelines for open areas (NPG section 4.3).

6.4 Guidelines for the shore zone (NPG section 4.4).

6.5 Guidelines for marine areas (NPG section 4.5).

7. The authorities' responsibility for implementing the guidelines (NPG chapter 5).

8. Administrative and economic consequences

8.1 Administrative consequences

8.2 Economic consequences

1 National Policy Guidelines foundation and manner of working

Pursuant to the Planning and Building Act, the municipalities and the county municipalities are responsible for coordinated planning within their own particular areas. The State (the Ministry of Environment) has administrative responsibility for making sure that the planning authorities and the national sector authorities that participate in the planning give due consideration to national interests. For this purpose, the State can issue National Policy Guidelines (NPG) in accordance with § 171, first paragraph of the Planning and Building Act, where it is stated:

"The King may define general objectives and frameworks and issue guidelines for the physical, economic and social development in counties and municipalities that shall form the basis for planning pursuant to this Act".

The National Policy Guidelines are intended to serve as a norm for planning carried out by the municipalities and the county municipalities, and must be incorporated into the planning decisions. The National Policy Guidelines are not legally binding on landowners and owners of rights.

The national authorities will follow up the guidelines through their participation in the planning process as determined by the law (Planning and Building Act § 9-3, 9-4, 12-3), and through formal instruments connected to the respective plans:

- Royal Decree for approval of a county plan, and possibly stipulation of changes to the plan (§ 19-4, final paragraph).

- Approval of municipal plans by the Ministry of Environment, following objections or through the Ministry's own measures (§ 20-5, fifth and seventh paragraphs, § 27-2, subsection 2 and sub-section 3, final paragraph, § 28-2, fourth paragraph of the Planning and Building Act).

The National Policy Guidelines are directed primarily at planning and consideration of individual cases in accordance with the Planning and Building Act, but since they express national interests they will also influence administrative functions exercised in accordance with the sector legislation.

2 The background for the national policy guidelines for the coastal zone of the 0slofjord (NPG chapter l.)

Since the mid-1950s, Norway's coastal zone has been specially protected against further building and development, first through special legislation on shore areas and more recently through the provisions in § 17-2 of the Planning and Building Act prohibiting building nearer to the sea than 100 metres from the shoreline. In spite of these initiatives, extensive building has taken place in attractive parts of this zone. The trend has been particularly marked in the Oslofjord region, and has led to considerable deterioration of valuable elements of the natural and cultural environments and has reduced the general opportunities for recreation. These conditions are discussed in Norwegian Official Report 1986:21 "The Outer OslofJor& and in other reports.

The Oslofjord region contains the country's largest concentration of dwellings and work places. About 1.6 million people, that is to say almost 40% of Norway's population, live within one hour's journey by car from the fjord. Probably the region will become even more important as the country's centre of gravity for industry and settlement.

The OslofJord is unique among the country's fjord areas. Within easy reach of a large population, and with its favourable climate and attractive coastal zone containing valuable natural areas and examples of Norwegian culture, it has become the most intensively used area of recreation in the country. Its position facing the Skagerrak makes it part of a "common sea for pleasure and recreation% of major importance to the tourist industry. In addition, the fjord is the site of rich fisheries and important harbours.

It is therefore of national importance that the region should be able to develop its function as the centre of gravity of the nation in a sustainable manner. This implies implementing the over-riding goal defined in Report No. 46 (1988-89) to the Storting "Environment and Development" where it is stated in the chapter on Norway's environmental status:

"The Government's over-riding goal of sustainable development is to be supported by cross-sectoral policies at all levels of society".

The more specific political goal, to increase the opportunities for open-air recreation in areas used for daily excursions and holidays, is expressed in Report No. 40 (198687) concerning outdoor recreation, where it is stated:

"...the Ministry will continue to emphasize the need for open-air recreation in areas used for daily excursions and holidays. Priority will be awarded to - skerry areas, sea shores and the shores of watercourses..."

and:

"... in the most densely populated parts of the country, many of the shore areas suitable for bathing have been neglected. Along the OslofJord in particular, ... unbuilt on areas with opportunities for bathing should be regarded as such a carce resource that, as a rule, re-allocation for competing purposes should not take place."

In Proposition No. 1 (1991-92) to the Storting it is stated specifically in the Ministry of Environment's section on "Coordinated Land-Use Planning" that it is the intention to develop an over-riding environmental strategy for the Oslofijord, partly by preparing National Policy Guidelines for this area. This has been followed up in Report No. 31 (199293) to the Storting "Regional Planning and Land-Use Policy% chapter 8.3.2. The guidelines are intended to prevent a conflict between development and preservation and recreation interests in the coastal zone, through the instruments authorized in the Planning and Building Act.

3 The geographical scope of the Guidelines (NPG, section 2.1)

The guidelines apply to the geographical area stretching from the boundary between Aust-Agder and Telemark to the Norwegian-Swedish border (subsequently called the NPG-zone), as shown on the map.

The geographical scope has been decided after contacting themunicipalities concerned, the county municipalities and the county environmental agencies under the county governor. To all intents and purposes the NPG-zone covers the areas of land included in the coastal landscape and forming the framework of the fjord, including all islands, holms and skerries.

In the sea, the guidelines apply to the area that is subject to the provisions of the Planning and Building Act, that is to say, the area out to the base line, including the water surface, the water volume and the sea bed. This does not imply, however, that plans in accordance with the Planning and Building Act are expected to be prepared for the marine areas as a whole. They are expected only to the degree that a real need for planning exists.

Larger towns and urban areas are excluded, since the planning tasks connected with such areas are considered to be so complicated that the premisses for these National Policy Guidelines will not always be relevant. This applies to the towns of Skien, Porsgrunn, Larvik, SandefJord, Tønsberg, Horten, Drammen, Oslo, Moss, Fredrikstad, Sarpsborg and Halden, and to urban settlements in Asker and Beerum.

4 The substantive scope of the guidelines (NPG section 2.2)

The planning authorities, municipalities and county municipalities shall use the National Policy Guidelines as a basis for all planning activity pursuant to Planning and Building Act for areas in the NPG-zone. The National Policy Guidelines shall also be applied when considering individual cases, see chapter 7 of these comments for further details.

The national sector authorities should also apply the National Policy Guidelines when participating in the planning pursuant to the Planning and Building Act, and when expressing an opinion in individual cases to be decided in accordance with the Planning and Building Act.

The national sector authorities should also apply the guidelines in their other administrative functions, in so far as this isThe guidelines shall not prevent necessary activities by the Norwegian Defence in the OslofJord area.

It is emphasized that the National Policy Guidelines have no effect on the Acts, regulations and other legislation currently in force. They impose no limitations on lawful activity.

5 National objectives

The wording of the over-riding objective of the National Policy Guidelines implies that the plans prepared for the NPG-zone shall give due consideration to valuable elements of the natural environment and the cultural heritage, and qualities connected to recreation. The wording of the subsidiary objectives expresses that these values shall not only be preserved in a passive way. The goal is that, through the planning, they shall be developed and as far as possible improved.

As far as historic monuments and sites and cultural environments are concerned, these shall be managed as historic documents in themselves and as cultural elements in interaction with the natural resource base and the landscape.

The water quality in the ~ord is an important element of the natural resource base and is decisive for our ability to preserve valuable occurrences and species in the marine environment. Therefore, to ensure satisfactory water quality is defined as a specific goal, taking into account both local environmental considerations and our commitments in accordance with the North Sea Declarations. However, the expression of this goal does not change the present distribution of responsibility in the efforts to improve water quality.

6 Use of land and natural resources (NPG chapter 4)

6.1 Definitions (NPG section 4.1)

The National Policy Guidelines define four types of area, or category, within the NPG-zone. The purpose is:

a. to show that the over-riding objective will be adjusted differently, depending on the geography and the existing level of development.

b. to provide a basis for weighing the different purposes for which the land can be used one against the other, according to area category.

It is assumed that the specific division of the area concerned into the different categories will be carried out as part of the municipalities' own planning work.

In general, building areas will correspond to the areas that have been given this common designation in the land use part of the municipal master plan, in accordance with § 20-4, first paragraph, sub-paragraph no. 1 of the Planning and Building Act, but may also cover other areas, especially in accordance with sub-paragraph no. 6.

Open areas will generally correspond to agricultural areas, nature areas and areas for open-air recreation as stated in § 204, first paragraph, sub-paragraph no. 2 of the Planning and Building Act, but may also include other areas, particularly in accordance with sub-paragraph no. 4.

The shore zone is defined as the areas of land and sea that are directly inter-related ecologically or as a result of usage. This zone has been given this "broad" definition, so that it can be defined locally, taking into consideration the widely varying external conditions that exist along the long stretch of coast to which the National Policy Guidelines apply. It is natural to let this zone cover both land and marine areas, to enable the planning to give due consideration to real associations determined by ecological conditions and usage.

- An ecologically based demarcation is justified in the case of areas characterized by a transition between land and sea(littoral zones), and by the occurrence of species that are dependent on the special conditions in the transitional zone. When undertaking the evaluations it will also be reasonable to take into account coherence and totality in the landscape in the vicinity of the shore.

- A usage-based demarcation is justified when the area is the site of measures and activities involving use of both land and sea. Key phrases include holiday cabins and other holiday facilities, natural areas and areas of open-air recreation close to the sea, harbours for small boats, areas used for boat excursions, areas used for laying of fishnets and other commercial fishing activities.

The marine areas comprise the remaining areas of the sea, beyond the shoreline and out to the base line.

6.2 Guidelines for the building areas (NPG section 4.2)

The guidelines for the building areas assume that building in the NPG-zone should take place in connection with existing urban settlements. This means that it should take place mainly as:

- Densification and filling up of vacant spaces in existing built up areas.

- Building on areas of agricultural land that are reallocated for other purposes, and lying separate from continuous agricultural environments.

- Changing existing areas with holiday cabins near to urban settlements into permanent residential areas, when the conditions are suitable for such a change. It is necessary to meet the need for local areas for common use, continuous green structures and communications to areas of open-air recreation, shores and the sea close to the residential areas.

Areas close to the shore in the vicinity of urban settlements are exposed to particular pressure for development. Any development should be restricted to functions that are important in a social context and have to be located in such areas.

The principle of coordinated development does not preventseparate location of undertakings which should be placed at a distance from other buildings, for example, for safety reasons.

6.3 Guidelines for open areas (NPG section 4.3)

In the open areas it is important to preserve the basis for agriculture, conservation and public recreation. This is not an obstacle to building connected to commercial activity specific to the locality. On the other hand, it is assumed that further building of holiday cabins should be heavily restricted, and should take place only within the already existing areas for such buildings, after evaluation in the planning.

6.4 Guidelines for the shore zone (NPG section 4.4)

The shore zone is generally the most vulnerable area category covered by the guidelines, and the one where most conflicts of use are experienced. Particular weight should be attached to public interests such as free right of access and consideration for the landscape. Therefore, in this zone, special emphasis should be placed on these factors, and to developing environmental values as well as the basis for fishing activities.

During their planning, the municipalities shall define the boundaries for the shore zone, which can lie inside or outside the 100 meter belt. In principle, no building shall take place in this zone. If the event of building, it is particularly important to economize on land and to give priority to activities connected to the sea. Roughly, the guidelines involve making the following priorities:

The development of possibilities for open-air recreation by the public takes precedence over the building of private holiday homes.

Valuable cultural and natural environments take prece dence over open-air recreation and boat traffic with associated installations.

The most important localities for fishing take precedence over boat traffic with associated installations and facilities, and over installations related to holiday cabins.

The guidelines assume that the establishment of collective holiday installations etc. that are linked to the shore and the sea are adjusted in detail to local conditions, including the environmental values that are given priority in this zone. On the other hand, it is assumed that, as a general rule, the building of new holiday cabins, and extensions to existing ones, should not be permitted. It is pointed out that buildings/extensions to buildings smaller than 30 M2 may be built without obtaining a building permit, when they conform in other respects with the valid provisions in accordance with the planning, cf., for example, the ban on building nearer to the sea than 100 metres from the shoreline, pursuant to § 17-2 of the Planning and Building Act.

6.5 Guidelines for marine areas (NPG section 4.5)

In marine areas, the need for planning is relevant mainly for inner waters. Taking into consideration the factors that are emphasized in the National Policy Guidelines, exceptional care should be exercised before permitting large, permanent undertakings such as fish farms, dumping sites, removal of soil/rock from the sea bed etc. Such undertakings should in all cases be evaluated in the planning.

7 The authorities' responsibility for implementing the guidelines (NPG chapter 5)

7.1 The national authorities (NPG section 5.1)

As the ministry responsible for spatial and land-use planning, the Ministry of Environment is responsible for coordinating the implementation of the guidelines. As the body representing the national authorities with professional expertise in the area concerned, the county environmental agencies under the county governor will play an important role in providing information, and in participating and following up the planning at regional and local level.

The Ministry of Environment will prepare an overall programme for implementation of the guidelines. As part of this programme, it is the intention to systematically follow developments as regards use of land in the NPG-zone, to be able to evaluate the effect of the guidelines in practice.

7.2 The county municipalities (NPG section 5.2)

Various important premisses for the planning, connected for example to ecological conditions, amount of pressure for development and the situation of the environment in general, vary considerably along the OslofJord, making it necessary to interpret the guidelines in the light of regional conditions. For this reason, the county municipalities should adjust and further develop the guidelines in the course of county planning. Through their function, stipulated in the law, to advise on the planning, the county municipalities should, in cooperation with the municipalities in the county, arrive at a common interpretation of the guidelines, and should apply them in the same way in practice throughout the county.

7.3 The municipalities (NPG section 5.3)

As the planning authority, the municipalities have the main responsibility for developments as regards use of land in the coastal zone. The guidelines must be adapted to local conditions, but it is important to adopt a consistent attitude towards the pattern of development, and towards the protection of open areas and the shore zone.

In many municipalities the guidelines will imply that the objectives will have to be more clearly demonstrated through the contents of their plans, and their degree of detail. It is important not to violate the intentions of the municipal master plans.

In cases where it is necessary to make an individual decision, the municipality has a responsibility, pursuant to the Public Administration Act, to clarify the case as thoroughly as possible before a decision is taken, cf. § 17, first paragraph. Therefore, in individual cases concerning dispensation from a plan, where the decision will be of significance in relation to the intentions of the National Policy Guidelines, it will be important to obtain the opinion of the county municipality and the county governor before the case is decided. The guidelines do not, however, alter the municipalities' legal authority to grant dispensation from a plan, cf. § 7 of the Planning and Building Act.

8 Administrative and economic consequences

8.1 Administrative consequences

The guidelines serve to emphasize adopted political objectives, by indicating how the planning authorities and the public administration in general should make their evaluations in accordance with the Planning and Building Act and the sector legislation. The guidelines do not impose any new types of duties, nor any new rules for administrative procedures. Therefore no new link in the administrative system is required at any level.

8.2 Economic consequences

In principle, the guidelines can have economic consequences in three different areas:

- costs as a result of the pattern of development

- distributional effects and compensation

- need for resources in the administration

Costs as a result of the pattern of development.

The guidelines recommend a concentration of new building to existing urban settlements and therefore infrastructure. The costs of developing and operating infrastructure vary considerably, depending on local conditions and the pattern of land use. However, existing analyses show that, for many towns and urban settlements, a concentrated pattern of development implies a large potential saving in costs.

As far as the urban settlements in the NPG-zone are concerned, it is difficult to draw absolute conclusions in this connection. However, consideration of the conditions in the NPGzone as a whole indicate that "the principle of concentration" will probably be economically advantageous for the municipalities.

Distributional effects and compensation

The guidelines emphasize the increasing weight attached by the Government to environmental considerations, within a specifically defined geographical area. This can have distributional effects. For example, existing buildings can become more valuable than would have been the case if the present pattern of development had continued. However, as mentioned above, it is important to note that, to a large extent, the guidelines are consistent with the intentions of already approved local plans.

Compensation based on a reduction in the value of property, because building will not be permitted on a potential building area, is very unlikely. This is because a change in the detailed planning will not, as a general rule, lead to payment of compensation. Legal practice in connection with the Planning and Building Act shows that, in such cases, compensation is limited to possible expenses connected to planning.

The guidelines do not change the fundamental conditions for other economic development in the area, and do not place any new restrictions on the establishment of commercial undertakings.

Need of resources in the administration.

The guidelines are of particular relevance to the municipalities, as the relevant authorities pursuant to the Planning and Building Act and as administrative bodies in other respects.

As a general rule, the municipalities, in their municipal plans, have strictly limited building in the coastal zone. Therefore, to a large degree, the guidelines will serve to strengthen the intentions of the already approved municipal master plans, so that these intentions will be reflected in more detailed local development plans and in the practice regarding dispensation from the plans.

In the case of the county municipalities and the national bodies at central, regional and local level, it is assumed that the guidelines will imply some extra effort for 1-2 years, connected with participation in educational activities and development of better routines, especially in connection with matters of dispensation. It is expected that in the long term, as in the municipalities, a more orderly situation will be achieved, with fewer appeals and applications for dispensation, and fewer objections to the plans.