Limburg Provincial Spatial Planning and Environment Vision 2026: Summary


All provinces are legally obliged to draft a spatial planning and environment vision (POVI). The present POVI is an update of the 2021 POVI.

Under the current environment and planning act, the Province is legally obliged to publish the POVI Digital System for the Dutch Environment and Planning Act (DSO).

The DSO offers the possibility of reading the text as a book. But a reader can also select and retrieve all the information related to a specific theme, region, task, etc. In addition, it is possible to see on the map which rules, ambitions, challenges, etc. apply to a specific location on the map. The text will then clearly show what applies at this specific location. The links to the map are easy to find in the text as they are coloured blue. Blue text without icons links to additional information on the topic in another section in the vision or to an external website. The blue icons in the text link to a map link, a definition (i) or an external location (file or website). They become visible when hovering over them with the mouse. The POVI can be found at:

It is important to note that the Dutch national government created the DSO so that all the maps of public authorities can be found in one system. For this reason, it is possible to zoom in down to plot level. This is despite the fact that provincial policy focuses primarily on the supra-municipal level and on specific themes. As a result, it may happen that a boundary runs across your plot of land. You may be taken aback by this. After all, what does such a colour mean? But it is also handy, as it enables you to see exactly which themes apply to your plot. Then, if you want to do something on your plot in the future, you will know exactly which themes you might need to consider. When initiatives are assessed, the actual situation on the ground is taken into account. During 2026, the Environment and Planning Decree will also be amended based on what is in the final POVI. If provincial rules apply to a particular theme, they will appear in the Environment and Planning Decree.

Introduction

The world and Limburg are changing. Global factors such as climate change, technological innovations and geopolitical tensions are also affecting our province. In Limburg, space is becoming scarcer. The availability of sufficient water can also no longer be taken for granted. Grid congestion is increasing, air, water and soil quality are under pressure, and the region's population is ageing faster than elsewhere in the country. This calls for clear choices to be made. We are responding to these developments with the update of our Provincial Spatial Planning and Environment Vision (POVI). This vision provides long-term direction for the living environment. It is in line with the Environment and Planning Act and provides tools for fellow public authorities, civil society organisations, businesses, residents and partners, so that they can work together to ensure that Limburg remains liveable, attractive and future-proof.

1. Limburg's main challenges and ambitions

Four overarching ambitions have been formulated:

  1. Strong cities and villages with a good business climate:
    Ensuring sufficient housing of the right quality. Making optimum use of space in existing towns and villages, improving quality of life and strengthening economic innovative strength.
  2. Balance between functions in rural areas:
    Balancing the interests of agriculture, nature, water, the landscape and the leisure economy, through area-based zoning, among other methods.
  3. Future-proof mobility and energy systems:
    Sustainable energy supply and smart mobility solutions.
  4. Healthy soil and a robust water system:
    Restoring soil quality and ensuring that our water system can cope with periods of drought as well as periods of high water discharge.

How will we achieve our ambitions?

We address the challenges comprehensively, seeking clear guidance and cooperation. We work according to four guiding principles – the Limburg principles:

Principle 1 – Healthy and safe living environment:

Prioritising health, safety and well-being of humans, animals and plants. The living environment must help prevent, for example, air pollution, noise pollution, heat stress and safety risks, both physical and social.

Principle 2 – Identity and characteristics of areas:

Policy choices are in tune with unique landscapes, cultures and area characteristics. Developments should strengthen regional identity.

Principle 3 – Careful use of scarce space and resources (above and below ground):

We need to make the best possible use of our space, networks (traffic and energy) and resources. Multifunctional use of space is encouraged.

Principle 4 – Strengthen urban as well as rural areas:

We cherish the variety in urban and rural areas. We want to keep cities and villages compact and concentrate urban functions in existing built-up areas as much as possible.

2. General zoning

In addition to main tasks and ambitions, a general zoning plan consisting of seven zones, gives direction to the desired territorial development of Limburg:

  • Limburg Ecological Network
  • Primary agricultural area (highly productive agricultural area)
  • Green-Blue Agricultural Zone (agriculture with focus on water and nature-related challenges)
  • Convergence area (agriculture with focus on urban/rural challenges)
  • Urban area
  • Rural population centres
  • Job sites (including industrial and business parks and urban service areas (for offices and retail)

We work in an area-specific way and put a strong emphasis on cooperation with fellow public authorities and social partners. The Province is taking the lead in working with others to make the choices that are necessary for Limburg. We have an extensive set of tools at our disposal, which we deploy for matters of importance for the Province. Where necessary and/or appropriate, we deploy legal instruments (especially the Environmental and Planning Decree).

3. Regional emphases

The four design studies prepared for the three regions of Limburg were key elements for drawing up the POVI 2026.

North Limburg

North Limburg focuses on strengthening green-blue structures such as the Maasduinen (dunes) and the Peelvenen (raised bog landscape). The region wants to make its economic strength in agrifood and logistics more sustainable. There will be room for nature development and raised bog restoration, combined with innovative agricultural models. The Meuse, as a blue 'spine' running through the region, offers opportunities for water management, nature and recreation.

Central Limburg

Central Limburg focuses on systemic restoration of water and soil. Weert and Roermond act as central cities for housing construction and economic development. The stream valleys will be given more space to collect water and the Meuse zone will be used for water safety, nature development and sustainable industry. There will be special attention to challenges related to ageing and quality of life in smaller villages.

South Limburg

South Limburg is developing as an international knowledge region. Chemelot, the Brightlands campuses and the Einstein Telescope are drivers of economic growth. At the same time, the focus is on protecting the unique 'Five-Star landscape', including the Heuvelland hill country, biodiversity restoration and climate adaptation. Panorama South Limburg, the South Limburg Agenda and the NOVEX development perspective together form a key guideline for integrated area development.

NOVEX development perspectives

For both the Peel region and South Limburg, we are working together with the regions, the water boards and the national government to elaborate the development prospects that have been drawn up. These development prospects were important elements of the present POVI.

4. Themes

Spatial quality and landscape

For good environmental quality, spatial and landscape quality are essential. Limburg is a green province with a great diversity of landscapes and scenic features and qualities. These landscape values and diversity are fragile. Given the increasing scale, complexity and interdependence of spatial challenges, and our role and significance within them, we are calling for greater, systematic attention to be paid to spatial quality and the use of design. Not only to build on existing qualities and values, but also to introduce new ones.

New initiatives should therefore contribute to the recognisability of landscapes such as the Maasvallei, the Heuvelland hill country and the Peel. Area passports describe area-specific characteristics. Design principles provide inspiration for municipalities and initiators.

There will be a stronger focus by the Province on preserving and strengthening the core landscape qualities of the South Limburg National Landscape and the Green-Blue Agricultural Zone. Spatial quality requires cooperation between government, developers and residents.

Nature

In Limburg, the natural world is under pressure from nitrogen deposition, fragmentation, and climate change, among other factors. Maintaining and restoring the qualities in the Limburg Ecological Network – and the Natura 2000 areas within it – requires good water, soil, and air quality. We are committed to the required completion of the Limburg Ecological Network and nature conservation and restoration. Ecological links improve migration opportunities for flora and fauna. In the Green-Blue Agricultural Zone, we are promoting a form of agriculture that takes into account the challenges there regarding nature, landscape and water. To this end, we have made the tasks in this zone more specific by distinguishing different map layers. Transitional areas around sensitive Natura 2000 nature areas have been designated, with provisional boundaries and without the need for justification. The boundaries and instruments will be determined at a later stage through area-based processes.

Water

Water has a more prominent role in Limburg's spatial planning than in the past. Climate change increases the likelihood of both flooding and drought. To cope with the changing climate, we must not only work on improving the water system, but also focus on the spatial planning of our province. The right spatial planning decisions we make now will help us prevent future water problems.

Drought is a growing problem for nature and agriculture, but our groundwater and drinking water may also come under pressure over time due to increasing dry spells. We want to reduce the effects of drought in Limburg as much as possible by developing resilient water systems that can cope with periods of drought, but also with excess water, and by using the available water sustainably.

To anticipate drinking water needs in a timely fashion, we are taking on two search areas for drinking water supplies. We are also considering whether we need to enlarge existing groundwater protection areas to secure long-term drinking water supplies.

Excess water flowing from streams and down from the hills in the sloping areas of Limburg could lead to increased flooding and even water safety issues in the future. We are introducing water safety zones within the regional water system to provide the best possible protection for residents of towns and villages.

The quality of our surface and groundwater is still not good. We are committed to improving water quality and bringing us closer to achieving the objectives of the Water Framework Directive.

There are several water-related challenges in rural areas. Within the Green-Blue Agricultural Zone, we outline the challenges relating to water, as well as nature and the landscape, that need to be taken into account. Stream valleys, wet lowlands, slopes, dry valleys and Natura2000 catchment areas, together with the transition areas surrounding vulnerable Natura2000 sites and the ecological corridor zones, form part of the Green-Blue Agricultural Zone.

Ensuring sufficient and clean water and preventing flooding and improving water safety is something we do together with many partners. Cooperation with water boards, municipalities and farmers is essential.

Soil and subsoil

Soil and subsoil are indispensable in achieving societal objectives. To make the most of the opportunities offered by the soil and subsoil, new territorial development projects take a coordinated approach to the topsoil and subsoil right from the planning stage. Among other things, we are committed to ensuring healthy soil, which forms the basis for agriculture, nature and climate adaptation.

A new challenge in the field of soil protection is posed by what are known as Substances of Very High Concern (e.g. PFAS). As an intermediate body, we will continue to act as an active intermediary between central government, the local authority and other provincial partners.

With regard to the extraction of primary construction materials, the benefits and necessity of such extraction are always weighed against societal challenges, the desired territorial development and the intended circular transition.

With regard to former coal mining, our ambition is to work with our partners to prevent negative impacts and to act appropriately where they do occur. We also continue to use the licence under the Mining Act to ensure the safe use of underground limestone quarries.

Healthy and safe living environment

A healthy and safe living environment for people, animals and plants is one of Limburg's principles. We put this principle into practice by focusing on both 'traditional' environmental issues (such as air quality, noise and environmental safety) and on social and physical safety.

The modular policy is explained in relation to the environmental issues of air, noise, quiet areas, odour, waste, Substances of Very High Concern and landfill sites. In the area of physical and environmental safety, the focus is on, amongst other things, a risk-based approach, granting permits, monitoring and cooperation with safety regions form the basis of the physical safety policy.

In terms of the social domain, we strive for equal opportunities for a healthy, secure and liveable life. We do this partly through the area-based neighbourhood and village approach. From the integrated Liveability Approach, attention is paid to both social and physical quality of life and safety.

Energy

The energy transition requires space and well-considered choices. We encourage the generation of renewable energy in locations where it is feasible from a spatial planning perspective. And we aim to balance energy supply and demand as well as possible to avoid unnecessary or undesirable transport over possibly overloaded energy infrastructure (energy planning).

We support the development of energy hubs that cleverly combine generation, storage and consumption. Energy infrastructure is being strengthened to solve the problem of grid congestion. Limburg is connected to national energy infrastructure projects, such as the Delta Rhine Corridor (CO2), the Limburg Hydrogen Network and 380 kV high-voltage connections. We are also focusing on cross-border connections.

Search areas have been identified for wind power generation. For solar farms, the order of preference according to the scale known as the 'Limburg solar ladder' applies. In search areas for wind and solar, we are open to taking an active role. Besides achieving good environmental quality, local ownership of energy is an essential starting point.

Housing

We recognise that providing sufficient, suitable and affordable housing is a major challenge. Under the Limburg Housing Deal, we have reached agreements with central government and municipalities to add nearly 30,000 homes by 2030, primarily in the social housing, mid-range rental and affordable owner-occupied sectors. For the longer term, up to 2040, we aim for large-scale housing development around the six intercity stations through the Limburg Central programme.

Supply and demand should be well matched with a balanced distribution of tasks. For this purpose, regional cooperation and coordination are essential. We play a coordinating and steering role with regard to social housing in Limburg through, amongst other things, the provincial Social Housing Programme and the Limburg Environment and Planning Decree. This includes a focus on the vulnerable position of migrant workers.

Housing development in Limburg should primarily take place within urban areas or rural cores. We will include clear conditions for any expansion beyond these areas in the Environment and Planning Decree.

Agriculture and horticulture

The agricultural sector has traditionally been an important part of Limburg's economy. Agriculture and horticulture, by which we mean arable farming, horticulture (including greenhouse horticulture), livestock farming, fruit growing and ornamental horticulture, among others, are, as the main users and managers of our rural area, very important for food production and the appearance and quality of our cultural landscape, but are also of crucial importance in agricultural areas with nature and water management challenges. In addition, agriculture and horticulture also play a key role in managing and developing an attractive environment in which to live, work and enjoy leisure activities. A continued role for agriculture and horticulture is therefore a provincial interest, including in its role as food producer, manager of the landscape and as a connecting force for the quality of life of the rural area.

The farmyard and agricultural land use bring together the many challenges faced in rural areas. The transition of rural areas is therefore largely a transition towards further sustainability of agriculture and horticulture. The challenge is to produce sustainable and healthy food now and in the future, combined with a focus on preserving or enhancing the living environment. This creates a great deal of dynamism within the sector. On the one hand, our ambition is to give agriculture and horticulture a full-fledged future perspective, in keeping with the area's capacity. In doing so, we actively encourage innovation, sustainability and new revenue models. On the other hand, we are committed to protecting agricultural areas from restrictions arising from the introduction of new sensitive functions.

Economy and work locations

Limburg is developing as a knowledge and innovation region. Priority areas are chemistry (Chemelot), agrifood (Greenport Venlo), logistics, manufacturing (all regions) and the Brightlands Campuses. With a view to the circular transition, port sites and sites where companies with substantial environmental space/usable space are permitted are important.

We invest in sustainable work locations, infrastructure and cooperation between educational institutions, the business community and public authorities. Strategic work locations are future-proofed, so that they are energy-positive, climate-adaptive and circular. New industrial and business parks face a planning challenge in the period to 2035. We will tackle that challenge as much as possible through intensive use of existing sites.

We designate industrial and business parks of provincial importance, which, based on their scale, potential for circularity and transhipment capabilities, are essential for the functioning of our province from a spatial and economic point of view.

Cross-border cooperation is being strengthened to boost economic growth and innovation. EU programmes and funds are actively used.

Leisure economy

The leisure economy is an important economic pillar in Limburg as a source of income and employment opportunities. In this POVI, facilities for the leisure economy are central. These include facilities for residential recreation such as bungalow parks, camping sites and hotels and facilities for daytime recreation such as amusement parks and golf courses.

Our aim is to establish a robust tourism and leisure infrastructure in Limburg, comprising thriving accommodation and day-trip providers, as well as a sufficient number of high-quality route networks. Supply and demand for leisure economy facilities must be balanced. A quantitative expansion of supply is possible only if it does not lead to displacement and vacancy. This applies to both residential and daytime recreation.

Business owners and municipalities must work together to ensure that the initiative is properly substantiated. This requires: a business development plan (BDP), a market analysis/supply-and-demand analysis, and a municipal vision for the tourism and leisure infrastructure. We allow only initiatives aimed at long-term commercial operation in the tourism and leisure sector.

In this POVI, we distinguish seven general zonings. The possibilities for establishing or expanding a business with residential and/or daytime recreation depend on the purposes of these zones.

It is advisable to scrap firm planning allocations for the leisure economy if there is no prospect of them being realised.

Our policy continues to prohibit the use of holiday accommodation for purposes other than holiday stays, such as residential use. Also, the function of a recreational residence may not be changed to residential.

Mobility

We are working to make Limburg accessible and easily reachable: 'Every resident of Limburg should be able to reach their destination within a reasonable time and at a reasonable cost'. Limburg is changing fast, just like the Netherlands and the rest of Europe. Mobility and accessibility play a major role in all these changes to keep our society liveable and dynamic. Residents of Limburg must be able to travel safely and affordably for work, family, leisure and enjoyment. The traveller should be the focus, not the system. It is also important that economic activities in Limburg are easily accessible and that goods can be transported smartly, safely and sustainably.

The province is legally responsible for good and safe provincial infrastructure and organises and subsidises regional public transport. Accessibility to amenities, including in rural areas and on the outskirts of towns and cities, is key to this.

As an intermediate body, we link local and national transport. We take into account Limburg's unique qualities and opportunities as a cross-border area with regard to neighbouring countries Germany and Belgium. Sustainable, smart and cross-border mobility is essential for Limburg's future, focusing on active mobility (walking and cycling), public transport, shared mobility and private cars.

Sustainable freight corridors by water, rail and road are being developed to future-proof the logistics sector and reduce congestion on the road network. Coordination between mobility policy and spatial planning is being improved.

Heritage and culture

Heritage and culture are important drivers of Limburg's identity and attractiveness. We are committed to preserving national and municipal heritage sites, archaeological assets and cultural-historical landscapes. In Limburg, we aim to provide a diverse range of cultural facilities, distributed evenly across the whole of Limburg, so that these facilities are accessible to everyone living in Limburg. We encourage the preservation and experience of intangible heritage, such as brass and wind bands, the militia and guild traditions, and carnival.

We encourage repurposing heritage properties for living, working or recreation, for example. This contributes to sustainable development and the preservation of listed characteristic villages and townscapes.

When it comes to new territorial developments, we want heritage to be approached not merely from the perspective of preservation, but for the historical structures and the narrative behind the heritage ensemble to also serve as a source of inspiration for interventions that are in keeping with the character of an area. In doing so, we want to encourage the use of heritage as a connecting force. Heritage offers opportunities to enhance the spatial and tourism-related quality of development and design projects. This requires the development and application of cultural-historical and archaeological knowledge in landscape design projects.

Closing remarks

This new Provincial Spatial Planning and Environment Vision for Limburg makes clear-cut choices. It is not possible to do everything everywhere. Limburg is opting for healthy growth, the protection of nature and the landscape, future-proof energy and mobility, prospects for agriculture, and boosting economic strength, while taking account of our cross-border character. Flexibility and cooperation with our partners, both inside and outside the Netherlands, are essential to achieve our ambitions.

With this new Provincial Spatial Planning and Environment Vision, Limburg is building a sustainable, vital and connected province.