Skip to main content
European Commission logo
Covenant of Mayors - Europe
  • News article
  • 22 January 2025

Integrating Energy and Climate Action Plans into Spatial Planning: Lessons from Karlovac, Croatia

Cities often struggle to implement and enforce their ambitious climate plans. For this, spatial plans can offer a solution. Karlovac, a city in Croatia, is a compelling example of how spatial planning can be reimagined to support climate goals.

Karlovac Croatia
Action Plans
Mitigation
Adaptation

Local and regional governments often stand at the forefront of climate action, but they frequently lack the enforcement tools necessary to implement meaningful change. Although they may develop sustainable energy and climate action plans, they often don’t have the legal capacity to enforce such plans, with construction laws and standards typically set at the national level. Without binding tools or sufficient incentives, local authorities are left to rely on voluntary initiatives, which are rarely enough to meet the scale of the challenge.

The case for integrated planning

Spatial planning, traditionally focused on land use and infrastructure placement, provides a unique opportunity to bridge this gap. By embedding climate and energy considerations into spatial plans, cities can enforce critical adaptation and mitigation measures.

To help their cities implement their climate and energy plans, Covenant supporter in Croatia, North-West Croatian Regional Energy and Climate Agency (REGEA), have supported cities in integrating their climate and spatial plans.

Unlike voluntary climate strategies, spatial plans carry legal weight. This makes them an ideal vehicle for implementing actions like green infrastructure mandates, renewable energy requirements, and water management systems. Integrating these goals into spatial planning not only aligns urban development with climate objectives but also ensures that policies are practical, enforceable, and grounded in local contexts.

Find out how REGEA is helping municipalities’ heat decarbonisation efforts with this approach.

The example of Karlovac

The Croatian city Karlovac has embraced this integrated approach by revising its spatial plans to address climate challenges head-on. Faced with extreme weather events, flooding, and other climate hazards, the city’s new plan focuses on sustainability, resilience, and energy transition.

One of the plan’s standout features is its prohibition on fossil fuel use for heating within a designated redevelopment zone. Instead, new buildings are required to connect to the city’s district heating system or rely on renewable energy sources. This regulation not only aligns with national Nearly Zero Energy Building (NZEB) standards but exceeds them, setting a new benchmark for urban energy systems in Croatia.

Karlovac’s plan also prioritises green infrastructure, mandating the preservation of natural areas and the inclusion of sustainable urban features such as green roofs, rainwater retention systems, and permeable surfaces. These measures address immediate climate risks, such as urban flooding, while fostering long-term ecological health.

Find out more about Karlovac’s use of spatial plans is helping advance its adaptation strategies.

Key Learnings

The principles demonstrated by Karlovac’s spatial plan highlight the potential for other cities and regions to adopt similar approaches. Key takeaways for other cities wishing to apply the same approach include:  

Spatial plans can be powerful tools for enforcing energy and climate measures, turning ambitious goals into actionable mandates. By embedding these measures into binding frameworks, cities can ensure policies are implemented effectively.

Collaboration between governance levels and sectors is essential for aligning priorities and resources, creating cohesive and impactful strategies.

Finally, local context must guide adaptation efforts. Tailoring solutions to the unique vulnerabilities and opportunities of each area ensures strategies are both practical and effective.

Resources  

The LIFE project IN-PLAN aims to assist local and regional authorities in the integration of these plans into spatial planning through the development of a capacity-building programme and the IN-PLAN Practice, a guidebook on how to further integrate climate mitigation and adaptation aspects into spatial planning processes.

This comprehensive guide for municipalities and regions emphasises cross-sector collaboration, stakeholder engagement, and participatory governance to ensure cohesive planning and effective implementation. The guidebook outlines tools, software, and practical methods for research, communication, and decision-making, helping local governments develop and monitor ambitious spatial plans aligned with climate neutrality targets.

Download the Practice here.  

Additionally, IN-PLAN developed an interactive infographic is a tool for policymakers and planners. By mapping intersections between sectoral plans, it highlights synergies, potential conflicts, and opportunities for harmonisation. This visual guide allows users to explore interconnections across sectors like energy, mobility, and climate at local and regional scales.  

Download the Infographic here. 

Details

Publication date
22 January 2025