Land Use

Description and Application of Land Use

Planning

Planning Land use planning refers to the process by which a

society, through its institutions, decides where, within

Introduction its territory, different socioeconomic activities such as

agriculture, housing, industry, recreation, and com-
Land use planning is an essential tool for pollution merce should take place. This includes protecting
prevention and control. Land uses are categories that well-defined areas from development due to
refer to the different socioeconomic activities environmental, cultural, historical, or similar reasons,
occurring in a particular area, the human behavior and establishing provisions that control the nature of
patterns they create, and their effects on the development activities. These controls determine
environment. While these activities take place at the features such as plot areas, their land consumption or
local level, they can also contribute to global surface ratio, their intensity or floor-area ratio, their
processes, such as climate change. Therefore, by density or units of that activity (or people) per
appropriately defining land uses, establishing where hectare, the technical standards of the infrastructure
and how they occur, as well as effectively controlling and buildings that will serve them, and related
their performance and interrelation, governments can parking allowances. In relation to pollution
actively participate in preventing and controlling prevention, land use provisions should include,
pollution. where applicable, levels of gas emissions, light ra-
diation, noise, water, solid waste discharges, and on-
site or pre-disposal treatment of pollutants. All of
these provisions should be included in the
jurisdiction’s land use or zoning code. This code
 becomes the legal guide for landowners, developers,
This guidance note was prepared by Arturo Samper (Consultant).
Peer reviewers included Dan Hoornweg (Lead Urban Specialist,
citizens, and authorities. A good system of protected
FEUUR) and Ming Zhang (Lead Urban Economist, LCSUW).
Additional comments and contributions were provided by Alberto areas, together with strong land use provisions,
Ninio (Chief Counsel, LEGEN), Dan Biller (Lead Economist, SASSD),
Hua Wang (Senior Environmental Economist, DECEE), Maged should result in a less-polluted jurisdiction.
Hamed (Senior Environmental Specialist, MNSEN), Suiko Yoshijima
(Consultant, MNSEN), and Tijen Arin (Senior Environmental
Economist, ECSSD). Editorial assistance was provided by Stan Planning process. In open societies, the land use plan
Wanat (Consultant), Juliette Guantai (Program Assistant, ENV) and
James Cantrell (Communication Analyst, ENV). The task team and zoning code are prepared by planning
leaders for this product are Kulsum Ahmed (Lead Environment
Specialist, ENV) and Helena Naber (Environmental Economist, institutions (Mandelker and others 1990). The plan
ENV). The product was prepared under the guidance of the
following World Bank Group management: James Warren Evans /
and code are subject to the processes of public
Mary Barton-Dock (Directors, Environment Department, World consultation and participation defined by the juris-
Bank), Bilal Rahill (Senior Manager, IFC), and Frank Lysy / Ravi Vish
(Director, MIGA). diction’s laws. The plan and code are approved by

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that jurisdiction’s legislative branch, sanctioned by
the jurisdiction’s chief executive (such as a governor
or mayor,), and are subject to the constitutional tests
and rulings of the judiciary. The plan is implemented
through the permit-issuing process for land
subdivision (or development) and the construction-
permit process. Through these processes, landowners
yield a portion of their properties and pay de-
velopment fees that, together with land and real
estate taxes, constitute the main source of funding for
construction and maintenance of public works and
public spaces, as well as for services by the
jurisdiction. Ten good practices in land use planning
that can help attain positive environmental effects are
described below.
1) Define, make, and effectively protect “no-go”
areas in recognition of their high environmental,
historical, or cultural values, for their
biodiversity, or because they can help contain
unnecessary and costly urban expansion.
Protection of “no-go” areas should be combined
with measures that allow transfer of
development rights from these areas into ones
where development is acceptable. Furthermore,
protection of “no-go” areas should be supported
by fiscal measures that preserve lands in their
natural condition or preserve the profitability of
rural economic activities. Such environmental
protections will increase the likelihood of new
settlers establishing themselves in developed
areas that will likely have pollution-control
measures and other environmental protection
mechanisms in place.
2) Plan for industrial zones, by appropriately
defining their location, design, infrastructure,
regulation, and the buffers separating them from
residential and other activity zones. This should
be combined with fiscal and other incentives for
remediation and resettlement on contaminated
sites. In addition, pollution-control mechanisms
that exceed standards should be applied.
3) Establish, within urbanized areas, land uses,
densities, and intensity of development that
result in increased usage of public transit,
decreased usage of private vehicles, and reduced
consumption of energy at the household level.
This will diminish emissions, levels of air
pollution, and energy use, and increase the
effectiveness of existing pollution-control
mechanisms and practices.
4) Integrate the urban and rural realms into the
same framework for land-use planning. This
allows an integrated approach to the
conceptualization and management of growth
and land use, as opposed to a competitive ap-
proach in which urbanization is carried out at the
expense of rural settings.
5) Carefully establish and modify urban-rural
boundaries, closely linking them to available
capacity for providing water and wastewater
treatment, and to the area’s economic linkages
and commuting patterns. This helps increase the
overall density in urbanized areas, maximize the
use of installed infrastructure and transit
corridors, and reduce the costly extension of
infrastructure further into rural areas.
6) Define boundaries so they are perceived as
territories, like greenbelts. These can be of a size,
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 character, and use that can convey the idea of an restore the natural resources, and to developments
edge marking the transition from one setting to that are Comfortable and are produced in
the other, even if both are urbanized settings. Coordinated, as well as in Collaborative, ways (Pivo
7) Develop all types of urban agriculture within 1996).
greenbelts, boundary territories and inside
urbanized areas. Such agriculture would include Prerequisite Factors for Land Use Planning
green roofs, neighborhood and community
farms, or large farm operations, and A multidisciplinary land-use planning institution

implementing creative incentives to make them must incorporate strong community relations and a

economically feasible. complete set of instruments for negotiating land uses

8) Establish authorized levels of gas emissions, and developments for the benefit of the public. This

noise, air pollution, sun radiation, energy institution should be comprised of environmental,

consumption, solid and water waste discharges, physical, transportation and infrastructure, and

and similar measures for the different land uses socioeconomic development teams. Additionally, a

and constructions that will house them. Fining or community relations division should be in charge of

penalizing operations that exceed these general communications, of conducting public

requirements. meetings, and of ensuring a participation process that

9) Require on-site or pre-disposal treatment of takes full advantage of the tools available to society in

pollutants, and granting bonuses or incentives this area. A land-management division will be

for additional, positive contributions to the entrusted with managing the planning process as well

environment. as negotiating planning policies in the context of

10) Mandate the use of green building standards, sector area plans. A legal division will be entrusted

techniques and materials, like the ones with defining, applying, and proposing reforms of the

established by ASTM International (formerly the legal instruments necessary to create levers that will

American Society of Testing and Materials). change the market. Finally, a division that provides
geographic information, cadastre, and land-value

The most valuable mechanism for pollution assessment will ensure the accessibility, consistency,

prevention within the land use planning process is and quality of the legal and socioeconomic

the way in which a government applies the above information on the properties that make up the

mechanisms in an integrated manner. Several prin- jurisdiction.

ciples and objectives are now recognized as valid

means for controlling pollution and reducing the Additionally, a mechanism or institution must be

ecological footprint of urbanized areas. These have established to ensure concerted, collaborative, and

been named the six C's, and refer to the pursuit of cooperative decisions in the case of municipalities

territories that are Complete, Compact, Conserve and comprising a metropolitan or regional area. These

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decisions would center on regional land uses,
infrastructure, protection areas and other policies that
need to be addressed at a supra-municipal level. That
mechanism would also have the responsibility and
authority to ensure acceptance or adoption of those
policies at the local level.
There are two instances in which land use planning
should not be applied. One is for areas declared to be
of national interest and significance, which ought to
have very restrictive measures defined by national
authorities not associated with the land use and
development process. The other is for those areas
belonging to, and actively controlled by, aboriginal
peoples, who should be the rulers of the activities on
their territories and of how their land is used.
However, environmental impacts that take place
within these territories should continue to be
regulated by the state.
Advantages and Limitations of Land Use
Planning
Land-use regulation leads to reduced emissions from
transportation systems, less average commuting time,
cultural flowering in new public spaces, less crime,
and most importantly, a much greater capacity to be
informed about one’s city and a greater capacity to
broadly communicate the advantages of such
regulation. This, in turn, leads to a less corrupt
government, a very strong citizen-participation
system, a much greater flow of information, and a
much more intelligent use of it by citizens and
organizations (Condon and others 2009).
Furthermore, if the mechanisms and principles of
land use planning are applied correctly, they should
yield developed areas with densities sufficient to
support mass transit, and increase the number of
public transit trips while reducing their length.
Additional benefits include reduced emissions of
greenhouse gases and discharges of water and solid
waste, and increased greenery in urbanized areas,
thus increasing capacity to capture some of the
emissions. In the long run, this should slowly yield
patterns of human behavior that lead to better health
and fewer deaths from transportation accidents,
diabetes, lung cancer, and coronary disease. Numer-
ous studies have demonstrated the relations between
land use, transportation, and public health.
Land use planning can give rise to some complex
phenomena that can exacerbate the pollution levels
typically seen in developing countries. Often, large
informal settlements arise on the fringes of decaying
parts of urban or rural areas that are mainly
residential but often industrial. This gives rise to a
number of social issues as well as environmental
degradation. Traffic and congestion patterns,
frequently the result of a population commuting long
distances on unfinished or unregulated mass transit
systems, greatly affect air quality in urban space, and
thus quality of life. In addition, land use planning is
limited by governmental capacity. For instance, a
government may lack the ability to protect the
environment or to provide proper handling of
residues and byproducts. Finally, the aggressive
nature with which some governments promote their
economy by recruiting businesses and industries to
their jurisdiction without regard for negative
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environmental externalities can lead to larger
environmental problems.
Interaction with other Tools and Possible
Substitutes
Policy makers should define the land use plan and its
institutional setting in close relation to the tools
defined in the World Bank Guidance Note series on
tools for effective pollution management. The land
use plan should also be defined in relation to the
following tools pertaining to governments:
 Setting priorities, a process that consists of
determining and stating a national-level
framework for integrated land management,
as well as determining and stating the
national government’s perspectives
regarding key land uses and decisions.
 Environmental Assessment, to ensure that the
land use plan requires developers to conduct
these assessments and incorporate those
conclusions into their projects prior to
planning and construction approvals.
 Strategic Environmental Assessment, so the
land use plan is subject to this type of
assessment, and so the land use plan
incorporates all of that assessment’s policies
and measures.
 Industrial estates, to guarantee that the land
use plan incorporates the lands, procedures,
practices, and regulations associated with
the establishment and operation of industrial
estates.
 Environmental Regulation and Standards,
Monitoring, Inspection, Compliance and
Enforcement, in that the plan and zoning code
include all relevant standards.
 Market-based instruments and taxation policies,
to ensure that the planning authorities
incorporate and effectively apply the
numerous land management instruments
mentioned in this Guidance Note in order to
formalize policies and procedures, and bring
about a more equitable land market.
Practical Examples of Land Use Planning
and Lessons Learned
The Colombian municipality of Soacha, located south
of Bogotá, suffered from a disordered system of land
uses. In 2007 a group of development promoters
became convinced that, if used properly, traditional
land development resources such as easements would
be able to finance urbanization in Soacha with the
highest standards in public space, roads and
infrastructure, community services and, of course,
housing. Ciudad Verde emerged after a two-year
process of negotiation involving promoters and local
and national authorities that allowed assembly of 328
hectares and administration of the public funds
generated by the project. It will include a network of
roads, pedestrian paths, bicycle paths, environmental
protection areas, water bodies, and canals, consisting
of 55 hectares, or 16% of the area.
Concerning land use planning, Bogotá issued Law
388 in 1997, which mandated the fair distribution of
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the costs and benefits of development throughout the
areas where it was to take place. The law also granted
the category of public function to the entire
urbanization process. This included not only the
construction of utilities, infrastructure, or the
provision of social housing, but everything that
happens in the land-development process. Legislation
was subsequently passed to create a special
framework for the capital to manage its finances, land
administration, service delivery, and public works.
The government then implemented a massive citizen
education and culture program. Also included were
numerous tools for managing traffic, de-arming and
anti-violence programs, the multiplication and
extension of the bicycle paths, and the launching of
the Bus Rapid Transit (BRT) system. Next, they built a
remarkable system of public libraries and public
schools, and invested millions in restoring waterways
and corridors. These efforts combined to increase the
compact, complete, conserving, comfort, coordination
and collaborative characteristics of Bogotá (Condon
and others 2009).
In 1992, lecturers and students at the National
University in Manizales initiated a community
training program for the environmental management
of Olivares, a very poor community on the city’s
margin. However, the top-down nature of this first
approach limited its legitimacy among the local
population. Eventually, the project had to be
reformulated to give greater autonomy and
leadership to the community. Gradually, through a
constant dialogue between the municipality and the
local administrative board, some of the credibility
that the municipality had lost in the eyes of the
community was regained (Velasquez 1999).
To combat potential challenges to land use planning,
governments should continue following the example
of developed territories that apply principles and
good practices discussed in this Guidance Note.
Governments should continue to design land use
plans with bold provisions for mixture and density.
These plans should maximize the potential capacity of
existing road grids, the potential demand on existing
mass transit corridors, and bring different land uses
and the population’s different socioeconomic strata
together. This should increase accessibility to and
from work places, reduce stress on the road system
and average length of trips, and reduce pressures for
additional, rural land to be incorporated to the urban
setting.
Governments should work on addressing immediate
challenges. This approach is less related to creating a
plan and much more related to how a plan is
implemented. The emphasis should be on developing
effective mechanisms for adherence to the plan,
maintaining oversight, encouraging public
participation in the process, and ensuring that the
land use plan is an evolving policy that reflects the
community’s sentiments.
References and Resources on Land Use
Planning
Allen, A. 2003. “Environmental Planning and
Management of the Peri-Urban Interface:
Perspectives on an Emerging Field.”
Environment and Urbanization 15 (1): 135–48.
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Cogeneration Technologies, “Sustainable Velásquez, L. S. 1999. “The Local Environmental
Urbanization,” Action Plan for Olivares Commune in
http://www.cogeneration.net/sustainable_ Manizales, Colombia.” Environment and
urbanization.htm. Urbanization 11 (2): 41–50.
Condon, P. M., D. Cavens, and N. Miller. 2009. WBI (World Bank Institute). 2000. Planificar y
“Existing Tools to Asses GHG Emissions.” In administrar en función del medio ambiente.
Urban Planning Tools for Climate Change Washington, DC: World Bank.
Mitigation, 16–9. Cambridge, MA: Lincoln Wheeler, S. M. 2004. Planning for Sustainability.
Institute of Land Policy. Routledge.
Graham, H., and G. McGranahan. 2006. “Editorial: Wheeler, S. M., and T. Beatley, eds. 2004. The
Urban Ecologies.” Environment and Sustainable Urban Development Reader.
Urbanization 18 (1): 3–8. Routledge Urban Reader Series.
Kenworthy, J. R. 2006. “The Eco-City: Ten Key
Transport and Planning Dimensions for
Sustainable City Development.” Environment Additional Resources on Land Use Planning
and Urbanization 18 (1): 67–85.
Lincoln Institute of Land Policy. 2009. Urban Planning ASHRAE (American Society of Heating,
Tools for Climate Change Mitigation, by Refrigerating, and Air-Conditioning
Condon, P. M., D. Cavens, and N. Miller. Engineers), www.ashrae.org. International
Policy Focus Report. organization of 51,000 persons committed to
https://www.lincolninst.edu/pubs/dl/1573 advancing heating, ventilation, air
_890_Tools%20for%20Climate%20Change%2 conditioning, and refrigeration to serve
0final.pdf. humanity and promote a sustainable world
Mandelker, D. R., and R. A. Cunningham. 1990. through research, standards writing,
“Government Intervention in Land Use publishing, and continuing education.
Markets.” Chap. 1 In Planning and Control of ASTM (American Society for Testing and Materials)
Land Development: Cases and Materials, 3rd ed. International, ASTM International,
Charlottesville, VA: Michie. www.astm.org. One of the largest voluntary
Newman, P. 1996. “Reducing Automobile standards-development organizations in the
Dependence.” Environment and Urbanization world and a trusted source for technical
8 (1): 67–92. standards for materials, products, systems,
–––––. 2006. “The Environmental Impact of Cities.” and services.
Environment and Urbanization 18 (2): 275–95. ICC (International Code Council), “International
Pivo, G. 1996. “Toward Sustainable Urbanization on Green Construction Code,”
Main Street Cascadia.” Cities 13 (5): 339–54. www.iccsafe.org/cs/igcc. Initiative,
Roosa, S. A. 2008. Sustainable Development Handbook. launched in 2009, committed to developing a
Lilburn, GA: The Fairmont Press. model code focused on new and existing
Roseland, M. 2005. Toward Sustainable Communities: commercial buildings addressing green
Resources for Citizens and their Governments. building design.
Gabriola Island: New Society Publishers. NAHB (National Association of Home Builders),
Satterthwaite, D. 2009. “Getting Land for Housing: “Reshaping and Enriching our
What Strategies Work for Low-Income Communities,” www.nahb.com. Trade
Groups?” Environment and Urbanization 21 association whose mission is to enhance the
(2): 299–307. climate for housing and the building
USGBC (United States Green Building Council). 2007. industry, and to provide and expand
LEED (Leadership in Energy and opportunities for all consumers to have safe,
Environmental Design.) for neighborhood decent, and affordable housing.
development rating system. NFPA (National Fire Protection Association),
http://www.usgbc.org/ShowFile.aspx?Doc www.nfpa.org. International nonprofit
umentID=8880. organization whose mission is to reduce the
worldwide burden of fire and other hazards
on the quality of life by providing and

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 advocating consensus codes and standards,
research, training, and education.
USGBC (US Green Building Council),
www.usgbc.org. Organization that
developed the Leadership in Energy and
Environmental Design (LEED) Green
Building Rating System and provides a suite
of standards for the environmentally
sustainable design, construction, and
operation of buildings and neighborhoods.

This guidance note is part of World Bank Group publication: Getting to Green—A Sourcebook of Pollution Management
Policy Tools for Growth and Competitiveness, available online at www.worldbank.org

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