Scottish Government

NPPG13 - COASTAL PLANNING

Introduction

1. The Discussion Paper, Scotland's Coasts, issued by the Scottish Office in March 1996, gave a commitment to update the 1974 and 1981 National Planning Guidelines on the Coast. This National Planning Policy Guideline (NPPG) takes account of recent and likely development pressures on the coast, new nature conservation designations, and the Government's commitment to sustainable development and other relevant Government policies. The NPPG:

• sets out how planning can contribute to achieving sustainable development and also maintaining and enhancing biodiversity on the coast
• highlights the need to distinguish between policies for the developed, undeveloped and isolated coast
• indicates how planning authorities should respond to the risk of erosion and flooding in the coastal zone
• outlines policy guidance for developments which may require a coastal location
• identifies the action to be taken by planning authorities in their development plans and in development control decisions.

This Guideline replaces the 1974 and 1981 versions.

2. Many development and other pressures on the coast fall outwith the limits of planning control but the guidance has been prepared on the basis of the existing statutory framework for planning. The NPPG does, however, set out the Government's view on how the planning system can contribute to coastal zone management.

The Coast

An Area of National Importance

3. Scotland's coast extends to over 10,000 km of which over 6,000 km is island coastline; moreover nowhere in Scotland is more than 65km from the coast. A significant proportion of Scotland's population live on or adjacent to the coast and thousands derive their livelihoods from marine or coastal activities; it is also a major focus for recreation. The quality of the coastline is also important for the image of Scotland at home and overseas. It contains many areas of special and, in some cases, unique ecological and landscape importance which are recognised nationally and internationally. In some areas it is the foundation of the local tourist, leisure and recreation industry with, for example, St Andrews a world focus for golf. The need to protect the current and future well-being of the coast cannot be overstated, nor can its cultural, even spiritual, significance be ignored. The Scottish coast is, therefore, of national and, in some parts, international significance.

Planning Policy Response

4. The need to provide a national framework for the planning of coastal areas was recognised in 1974 with the publication of the Coastal Planning Guidelines. These Guidelines sought to direct pressures for oil and gas developments away from the more sensitive sections of the coast. They identified preferred development zones where oil and gas related proposals were likely to be acceptable and preferred conservation zones where, for scenic, environmental or ecological reasons, development would generally be inappropriate. Some areas had neither preferred development nor conservation zone status.

5. In 1981 National Planning Guidelines were issued, dealing with a range of subjects. These Guidelines revealed how the preferred development and conservation zones shown in the 1974 Coastal Planning Guidelines could form a planning basis for identifying locations for most major developments including port, industrial, and power generation purposes. It was for structure and local plans to refine the distinction between the two types of zone, clarify the effect of, and exceptions to, the basic strategy, and adopt appropriate safeguarding measures.

6. The coast has generally not been viewed in structure and local plans as requiring discrete treatment, although a number recognise the need to handle the location of new development on the coast with care and sensitivity. However, as the discussion paper Scotland's Coasts notes, the planning system has generally been successful in discouraging sporadic development on the coast; along many stretches of the coast the pressure for development has been very limited, which is largely a reflection of sparse population, lack of external economic pressures, remoteness and severe climate. Where development has taken place, it has generally been away from fragile or sensitive landscapes and in areas capable of containing the impact.

7. The 1974 and 1981 Guidelines which deal with coastal planning require updating for a number of reasons:-

• increasing range and diversity of issues on the coast, such as the expansion of marine aquaculture and interest in coastal quarrying
• increased participation in leisure and recreation, particularly water sports
• need to deal with dereliction in some coastal areas following the decline of industries such as shipbuilding and coalmining and, as a result of demilitarisation
• introduction of new nature conservation legislation and designations
• recognition that, even in parts of developed lengths of coastline, some important nature conservation interests require to be taken into account in considering new development proposals
• concerns about sections of the coastline which are under regular or periodic threat from erosion or flooding
• specific concerns about the erosion of cultural heritage resources1
• greater public awareness of and involvement in environmental issues.

Although the scale of development pressure on most parts of Scotland's coast is not as great as on other parts of the United Kingdom, the need to have regard to cumulative impact of proposals in a fragile and, in some parts, unique environment makes it necessary to revise and update the existing national guidance and set out what is expected of planning authorities.

note 1 For the purposes of this NPPG cultural heritage includes scheduled monuments and other archaeological sites and landscapes, listed buildings, conservation areas and historic gardens and designed landscapes, as well as surviving archaeological remains both on land and below low water mark

Policy Context

Sustainable Development

8. In 1992 the United Kingdom committed itself to Agenda 21, an action programme to promote sustainable development, and signed the Biodiversity Convention at the UN Conference on Environment and Development in Rio de Janeiro. In 1994, Sustainable Development - The UK Strategy (Cm 2426) and Biodiversity - The UK Action Plan (Cm 2428) were published. The concept of sustainable development recognises that while economic growth is required to provide jobs and support improved standards of living, conserving and enhancing biodiversity and landscape quality is equally important.

Rural Development

9. A Rural White Paper People, Prosperity and Partnership (Cm 3041) was published in December 1995. The Government recognises the special needs of people who live and work in rural areas and is committed to sustaining them and the communities and environment in which they live.

Designated Areas

10. Since 1949 a framework of statutory measures has been developed to safeguard areas of high landscape value and nature conservation interest; many of these cover sections of the coast. In addition to national designations, European Community Directives on nature conservation, most notably through Special Areas of Conservation under the Habitats Directive, and Special Protection Areas under the Wild Birds Directive are being implemented. Previous Governments have also designated a number of Ramsar sites under the Ramsar Convention on Wetlands of International Importance. Scottish Office circulars 13/1991 and 6/1995 are particularly relevant sources of information and guidance. In addition a wide range of non-statutory landscape and nature conservation designations affect the coast. In December 1996 a Review of Natural Heritage Designations, on which views were invited, was published; this review is confined to terrestrial designations although National Scenic Areas have an important marine and coastal component. As well as natural heritage designations, on significant stretches of the coast there are important cultural heritage interests.

Planning For The Coast: General Approach

11. The coastal zone comprises three main elements: the land; the inter-tidal zone; and the sea. Statutory planning control does not extend to the entire coastal zone, although some development which occurs off-shore may impact on-shore, for example fish-farming. Conversely, on-shore development through, for example, discharge of pollutants into the sea may affect fish stocks and the subsequent livelihood of coastal communities. Planning authorities should recognise the inter-relationship between onshore and offshore activities.

12. For statutory planning purposes the limit of the coastal zone in the seaward direction is the Mean Low Water Mark of Ordinary Spring Tides2. The landward limit of the coast is more difficult to define but can be determined by the geographical effects of coastal processes and coastal-related human activity; it is therefore a zone of variable width. It may include areas affected by off-shore and near-shore natural processes, such as areas of potential erosion; enclosed tidal waters, for example estuaries and surrounding areas of land; and areas which are directly visible from the coast. In some places, for example where there are cliffs, the coastal zone may be relatively narrow. Elsewhere, particularly where there are sub-tidal areas of low-lying land and inter-tidal areas, it will be much wider and, for many islands, will consist of their entire area. It is for planning authorities, based on the particular characteristics of an area, to define the extent of the coastal zone in their area.

13. The interrelationships between human activities and these natural processes do not respect administrative boundaries, an example of this being the natural processes of erosion and deposition at work on the coast. These inter-relationships have already been recognised through the establishment of a number of Firths Fora and other local coastal fora where different interests have come together voluntarily to consider cross-sectoral issues; this type of approach is one which the Government wishes to encourage. Planning authorities should therefore consider whether there are additional areas where they need to work with other authorities and agencies to pursue a co-ordinated approach to issues arising on the coast. Such issues are likely to range more widely than land use planning.

14. There is a variety of coastal types in Scotland but, for planning purposes, the coast can be viewed as developed, undeveloped or isolated:

• The Developed Coast includes towns and cities as well as substantial free standing industrial and energy developments. It may also contains sites of significance for national and international nature conservation, important cultural heritage resources as well as valuable areas of open space and recreation such as golf courses.
• The Undeveloped Coast includes agricultural and forestry land, low intensity recreational uses and smaller settlements which depend on the coast for their livelihood. Extensive sections of the undeveloped coast are protected by national and international natural heritage designations and contain important cultural heritage resources.
• The Isolated Coast is distant from centres of population and lacks obvious signs of development or other human activity. Such areas, which are likely to be limited in number and extent, are also likely to be relatively inaccessible. Some parts of the isolated coast may be protected by national and international natural heritage designations and may contain important cultural heritage resources.

It is for planning authorities, in their structure and local plans, to identify which stretches of coast should be regarded as developed, undeveloped or isolated and set out the policies which should apply in these areas. In categorising the coast planning authorities should seek the views of SNH who can provide a perspective on the protection and enjoyment of the national and international interest in landscape and nature conservation but also of other key interests such as local enterprise companies, Scottish Environment Protection Agency, tourism bodies, representatives of the fishing industry, the local authority archaeological service, amenity groups and local communities. This categorisation is intended to serve as a planning policy framework for the coast and not as an additional statutory designation. Further elaboration of the criteria to be used in classifying the coast for planning purposes will be provided in due course.

15. The coast of Scotland is attractive and varied, but it is also a complex environment where many of the interactions between natural processes and human activities are not always well understood. To achieve sustainable development and maintain and enhance its biodiversity requires an approach based on the following principles:

• development for which a coastal location is not required should not normally be permitted on the coast
• development which requires a coastal location should generally be accommodated on the developed coast
• development for which a coastal location is required should preferably look to reuse available and suitable brownfield land
• conservation and, where appropriate, enhancement of the natural and cultural heritage should be promoted and opportunities for its enjoyment should be identified
• understanding the natural processes at work on the coast is a key input to planning policies and decisions
• where potential damage to the environment is both uncertain and significant, a precautionary approach is required
• the criteria required by the various bodies responsible for environmental protection should be met.

16. Where development on the coast is to be allowed, planning authorities should:-

• give careful consideration to the siting and seek high standards in the design of new development
• protect the special interests of sites of natural heritage significance particularly those identified by national or international designations
• safeguard cultural heritage resources
• protect existing public open space unless replacement provision can be provided as part of the development
• retain or, where possible, provide additional opportunities for public access to and along the coast.

The Developed Coast

17. The developed coast should be the focus for developments requiring a coastal location or which contribute to the economic regeneration or well-being of settlements whose livelihood is dependent on coastal or marine activities and features or which meet the social needs of these communities. Where development on the coast is justified opportunities for the development or reuse of vacant land and buildings should be considered in the first instance as this should:-

• avoid the use of greenfield sites
• reduce pressure on more sensitive stretches of the coast
• contribute to renewal and regeneration.

It is not, however, always possible to reuse vacant land: in some areas there will be little or no potential to recycle land, or the sites may be too small, or they are located close to developments which restrict the uses that can be accommodated in close proximity.

18. Where there are recognised opportunities for development on the coast these provide considerable scope for imaginative approaches to layout and design; but, with imagination, must come sensitivity to setting, character and sense of place. Indeed many coastal towns and villages display a distinctive character which should be maintained and enhanced. While the public sector can act as a catalyst for promoting waterfront opportunities, private sector investment is likely to be important in delivering these projects.

19. Where there are no, or only very limited, opportunities for the regeneration of waterfront areas, planning authorities should seek to accommodate new development on the landward side of settlements rather than permitting additional development on the coast although topographic, landscape, infrastructure and other considerations may limit the options. It is, however, particularly important to consider the effect of new development on the landscape setting of coastal towns.

20. Planning authorities should:-

• give priority to promoting the imaginative reuse of redundant land and buildings, particularly where there are opportunities to restore or enhance degraded coastal environments
• unless a coastal location is required, promote locations on the landward side of existing settlements before considering new development on the coastal strip
• avoid coalescence of development along the coast.

21. Even on the developed coast there will be areas where special care should be taken to assess the effects of development on the environment. This is particularly true in estuaries where there are sites which are nationally and internationally important for their natural and cultural heritage value and where it will be important to assess proposed developments not just in relation to their immediate surroundings but also their wider impact; in some areas previously developed land has become important for nature conservation. Potential risks from flooding, erosion or pollution should also be carefully assessed. In formulating structure and local plan policies and making development control decisions, planning authorities should:-

• take particular care to assess the impact of development, individually or cumulatively, on natural and cultural heritage interests and on open space
• consider the potential risks from flooding, erosion or pollution for the location of development.

The Undeveloped Coast

22. Over 3400km of Scotland's mainland coastline, which is 88% of the total length, can be regarded as undeveloped in the context of this NPPG. Along its length can, however, be found smaller towns and villages, including dispersed settlements which are characteristic of many parts of the Highlands and Islands. It is important that the development requirements of these communities, including for example the provision of affordable housing, community facilities and workshop space locally, are fully addressed. In addition, development opportunities, for example related to tourism, leisure and recreation, can make an important contribution to the economy of rural areas. Many of these developments which can assist in sustaining the long-term viability of coastal communities are likely to be on a modest scale. Ill considered development, however, can have a detrimental effect on ecology and scenery as well as on cultural heritage interests; a key objective for the planning system is to provide a framework for investment in development while protecting the undeveloped coast from unjustified and inappropriate development.

23. Proposals which, for technical and other reasons, require a coastal location include ports and harbours, some tourism, leisure and recreation projects, coastal exporting superquarries, some sewage treatment plants, the onshore elements of North Sea oil and gas developments and of fish farms, some energy schemes and specific defence establishments. Large development proposals are likely to present the greatest threat to the natural, cultural or scenic environment but the cumulative effect of smaller developments can be just as damaging. As relatively few types of development require a coastal location, the undeveloped coast should generally be considered for development only where:-

• the proposeal can be expected to yield social and economic benefits sufficient to outweigh any potentially detrimental impact on the coastal environment
• there are no feasible alternative sites within existing settlements or on other previously developed land
• In other cases robust reasoned justification will be required in support of development. Applications for major developments on the coast are likely to require an environmental statement (see paragraphs 33-35).

The Isolated Coast

24. The qualities of the isolated coast can be easily damaged but are difficult to recreate. Such areas which are likely to be limited in number and extent are becoming increasingly rare nationally and internationally and, as a result, their special characteristics need to be recognised and safeguarded. A presumption against development should apply in these areas. Planning authorities should, therefore, consider:-

• whether there are sections of the coast which should be regarded as isolated and where there should be a presumption against new development
• where there are such areas, policies to safeguard their character based on sound, reasoned justification should be set out in structure and local plans.

Risk from Erosion

25. The coast is subject to number of dynamic natural processes, including erosion of the coastline by the sea. This process normally occurs slowly but an increase in storm frequency in recent years has accelerated erosion on some parts of the coast. Due to its generally harder rock formations and indented coastline, Scotland has not experienced erosion to the same degree as in England but there have been problems in some areas, for example in parts of Fife and Angus. Local authorities have powers to undertake coastal protection works under the Coast Protection Act, 1949. Schemes approved by the Secretary of State attract Central Government Grant.

26. Erosion of the coastline essentially involves the movement of sediment from one area to another; this usually occurs within a defined area known as a coastal cell. The Scottish Office, in conjunction with Scottish Natural Heritage (SNH) and Historic Scotland are currently funding research into coastal cells and sub-cells. The Scottish Environment Protection Agency also has hydrographic data which may be helpful in determining the movement of sediment. These sources of information can be used in the preparation of Shoreline Management Plans (para 58 refers) which provide a framework for future decisions on the management of coastal defences within a sub-cell. Where sub-cells cross administrative boundaries, joint work with neighbouring local authorities will be involved.

27. In addressing the problem of coastal erosion, there are essentially three courses of action open to planning authorities :-

• allow continuation of natural processes
• defend the coastline
• managed retreat.

For the majority of the coast, especially where there is little or no development, the most appropriate course of action will be to let the natural processes of erosion continue.

28. Where property, amenity or recreational assets such as golf courses or important cultural heritage resources such as publicly promoted archaeological sites of international repute are under threat from erosion, defence of the coastline is an obvious option. However, coastal protection works can have a considerable effect on the environment, particularly where hard defences such as rock armour are used. Moreover, by preventing the natural cycle of erosion and deposition, protection works in one area may transfer the problem to other areas. It is therefore important that planning authorities fully understand the potential impact of coastal protection works on the environment and on the natural movement of material along the coast.

29. Coastal protection works are expensive and in some cases, where erosion is severe, it may be more appropriate to implement a retreat strategy, particularly in low-lying undeveloped areas of the coast. However, as yet, in Scotland erosion is generally not on such a scale as to warrant taking this course of action.

30. Where planning authorities are of the view that coastal protection works are necessary to protect existing development, further advice should be sought. In some cases specialist engineering or archaeological advice may be available within the local authority; geomorphologists in SNH may also be able to advise on the potential impact of coastal defence works on the natural heritage.

31. Against this background, planning authorities should:-

• identify in structure and local plans areas at risk from coastal erosion
• set out the policies which will be applied to the location of new development in areas at risk
• refuse planning permission for development in areas at risk from coastal erosion, particularly where expensive engineering works would be required to protect that investment.

An environmental assessment will require to be carried out for most coastal protection works.

Risk from Flooding

32. Coastal flooding may be caused by extreme tides, storm surges, exceptional waves during storms or a combination of these. It is a natural phenomenon which plays an important role in shaping the natural environment and cannot entirely be prevented. Global warming is predicted to increase the incidence of flooding due to rises in sea level and the increased frequency and severity of storms. These events may also increase the erosion of natural defences such as sand dunes and shingle ridges, potentially exposing the areas behind them to a greater risk of flooding. To ensure that flood risk is properly taken into account in the location of new development and that measures are taken to reduce the risk of flooding The Scottish Office published NPPG7, Planning and Flooding, in September 1995.

Environmental Assessment

33. In accordance with EC Directive 85/337, environmental assessment has been incorporated into the planning consent procedures for certain major projects. The Directive has been implemented in Scotland by The Environmental Assessment (Scotland) Regulations 1988 (as amended 1994) and further guidance can be found in SDD Circulars 13/88 and 26/1994. There is a mandatory requirement for applicants to submit an environmental statement for projects listed in Annex 1 of the Directive; these include ports, oil refineries, large power stations and integrated chemical installations which frequently require a coastal location. A broader range of activities such as reclamation of land from the sea, mineral extraction, wind generators, chemical plants, harbours, yacht marinas, holiday villages, waste water treatment plants and coastal protection works, are listed in Annex 2 of the EC Directive. For these Annex 2 projects environmental assessment will only be required where a project is judged likely to give rise to significant environmental effects by virtue of its nature, size or location. It is for the planning authority, in the first instance, to decide whether an environmental assessment will be required. The Circulars listed above contain indicative criteria to assist planning authorities in this task. Copies of all Environmental Statements must be submitted to the Secretary of State for information.

34. For other major proposals not covered by planning procedures, for example, certain power stations, large marine salmon farms, and dredging of marine aggregates, requirements for environmental assessment are implemented through the specific consent procedures.

35. The Environmental Assessment (EA) Amendment Directive (97/11/EC) will come into force in March 1999. In relation to coastal planning, the new Directive will require mandatory assessment of additional projects in Annex 1 including those relating to petroleum and natural gas extraction, associated pipeline and storage installations, and those relating to piers for loading and unloading connected to land outside ports. Relevant amendments to Annex II include intensive fish farming, mineral extraction by marine dredging, construction of intermodal transhipment facilities and marinas. There will also be changes to the procedures and the specified content of environmental statements.

Note 2 Argyll and Bute District Council v Secretary of State for Scotland 1977 SLT 33

Additional Guidelines For Development Which May Require A Coastal Location

Tourism

36. Tourism is important to the Scottish economy; it generated over £2 billion in 1995 and supports around 8% of all employment. The coast is a key attraction for tourists and policies should therefore be in place which protect and enhance the quality of the coast. If development is allowed in inappropriate locations on the coast or is of a poor standard it can reduce the quality of the visitor experience which, in turn, can have a detrimental effect on local economies.

37. Tourism, however, also provides opportunities for development on the coast. These should generally be directed to the developed coast, where there is significant potential to transform rundown waterfront areas. The needs of seaside towns whose fortunes have suffered through changes in the holiday market should also be addressed. This will involve assessing the range, type and quality of existing facilities and accommodation and considering the scope for change to meet new consumer preferences and standards; in Arbroath, for example, where tourism is worth around £7 million annually to the local economy, redevelopment of the seafront has seen an increase in visitor numbers to the West Links from 30,000 in 1990 to 100,000 in 1995.

38. Where tourism projects require a location on the coast, preference should be given to the reuse of existing land and buildings. Any new development must be sensitively located to ensure that important views along the coast and from the sea are not disrupted and new buildings and structures must be designed to a standard appropriate to the quality of the setting.

Sport and Recreation

39. NPPG 11 Sport, Physical Recreation and Open Space contains general information on planning for sport and recreation, including water-based activities. The coast provides important opportunities for sport and leisure which also helps support the tourism industry and sustain the economy of coastal communities. It is important that these opportunities are recognised and appropriate provision made in development plans. The growth, or in some cases the continuation of water-based leisure and recreation activities on the coast can, however, conflict with important landscape and nature conservation interests. While planning can control the location, design and some aspects of the operation of coastal recreation facilities, some issues require to be addressed through a partnership approach to coastal zone management.

40. The growth of marinas, and their associated facilities, has been a particular feature of the past 20 years and demand is expected to continue. New marina development should generally be located within existing urban areas, particularly if it can reuse former port/harbour/jetty facilities and surrounding land/buildings. Moreover providing facilities close to centres of population can, by reducing the demands for travel, contribute to the aims of sustainable development. Even on the developed coast it will be important to assess the effect of new or expanded marina development on the aquatic environment in general and on nature conservation and archaeological interests, in particular.

41. Planning authorities should recognise that, as a result of increasing car ownership, previously less accessible stretches of the coast have come under pressure for walking or bathing. These tend to be seasonal and are generally not accompanied by a demand for new buildings and other structures. However the pressures arising from the increased accessibility of the coast have to be managed in order to minimise the impact on the coastal environment; this can be achieved by sensitively located and designed car parks, litter bins, toilets, etc and by clearly identified and well signposted footpaths. It is also important to ensure that environmentally appropriate arrangements are in place to remove litter and other man-made debris on a regular basis.

42. Pedestrian access to the coast can be encouraged where there are no dangers to public safety. Public access should form a positive feature of schemes for new development and regeneration projects. Opportunities also exist to maintain and expand a network of coastal footpaths and rights of way which allows people to enjoy the coastal scenery and environment without damaging areas of natural or cultural heritage value; the Paths for All initiative should increase access opportunities along the coast. In areas of high density usage an active approach to managing pressures is required.

Mineral Extraction

43. Many of the issues raised by mineral extraction in the coastal zone are generally similar to those inland. Detailed guidance on minerals planning, and the specific issue of large coastal quarries, is set out in NPPG 4 which provides, in principle, for the development of up to 4 coastal exporting superquarries in Scotland. Supplementary advice on the environmental effects of mineral working is set out in PAN 50. This provides a framework within which planning authorities can prepare policies for all types of mineral development likely to arise in their area, taking into account coastal processes, natural heritage issues as well as possible implications for the transport of material by sea. The guidance in NPPG4 and PAN 50 continues to reflect the Secretary of State's policy on these matters and is not affected by the terms of this policy guidance.

44. Dunes and beaches also contain valuable sources of sand and gravel, the removal of which can adversely affect the stability of the shoreline and accelerate the rate of coastal erosion. Planning authorities should be vigilant in addressing the problem of small scale extraction of sand and gravel for local use since the cumulative effects can be substantial and irreversible. Mineral extraction will generally be inappropriate in dune areas valued for their natural or cultural heritage importance.

Energy Generation

45. The coast is a major attraction for energy generation. In the past this was predominantly for power stations but more recently has included renewable energy developments based on wind, wave and tidal sources.

46. Whilst power stations have traditionally needed water for cooling and sometimes the supply of fuel came by sea, some newer types of smaller power stations are less dependent on coastal locations. Any new power station of over 50 megawatts in capacity will require the Secretary of State's permission under the Electricity Act 1989 and, wherever it is proposed, will require to comply with stringent planning and environmental objectives. Further proposals for power station developments on the coast will need to balance the national interest for additional electricity generation with its potential environmental impact.

47. NPPG 6, Renewable Energy, sets out the framework for the siting and control of renewable energy projects. In planning for these developments, careful consideration needs to be given to potential impacts on the natural and cultural heritage interests. As the visibility of new development can be very pronounced on the coast, buildings and structures associated with the provision of renewable energy should be allowed on the undeveloped coast where they are primarily aimed at meeting local demand and, as far as is practicable, are sited in an unobtrusive location. On stretches of the isolated coast, provided a case has been made in structure plans, a prohibition against such buildings and structures could apply.

Marine Aquaculture

48. In the late 1980s, many parts of the west coast experienced new development pressures related to the expansion of finfish and shellfish farming. These developments brought significant economic and employment benefits to rural communities. Although planning permission is required for onshore facilities, planning authorities are only one of a number of consultees whose views are considered when decisions are taken by the Crown Estate Commissioners on applications for seabed leases for anchoring cages; the role of the Crown Estate in relation to marine fish farming is currently the subject of a review by The Scottish Office. The Crown Estate has, however, produced guidelines on the location of Marine Fish Farms which identify Very Sensitive Areas where particular care should be exercised in locating marine fish farms. SNH has also identified Marine Consultation Areas where there are important marine conservation interests.

49. In areas recognised for their landscape value planning authorities should ensure that new buildings are located and designed in a sensitive and unobtrusive manner. In commenting on applications for seabed leases planning authorities should acknowledge the potential benefits of marine aquaculture to the local economy while recognising that, on the isolated coast, new or expanded fish farms may be inappropriate. In other areas, particularly where the tourism industry is based on high quality scenery and an unspoilt environment, special attention should be paid to the number of fish farms, their location in relation to each other and the surrounding land mass as well as the design and colour of cages, buoys and other equipment. Structure and local plans can therefore provide a locational and policy framework within which the marine aquaculture industry, can develop in a sustainable manner. In formulating development plans the issues involved and the policy response should be discussed with representatives of the industry local communities, the Crown Estate and SNH. The comments of the planning authority on individual applications for sea bed leases should reflect the approved policy framework.

50. In areas where the potential for new or expanded fin and shell fish farms is recognised planning authorities should consider the preparation of non-statutory Framework Plans, which would guide the location of new off- and on-shore facilities; a number of these were prepared by the former Highland Regional Council. The involvement of the industry as well as local and environmental interests in the preparation of these framework plans is essential.

Land Claim

51. Extensive areas on the coast were reclaimed during the 1970s as a result of oil and gas developments and by land filling with pulverised fuel from power stations, for example at Valleyfield and Musselburgh; some of these areas, while not replacing the inter-tidal habitats, are now of conservation value for other reasons. In addition landfill has been carried out on the coast using domestic refuse and other waste; an extensive area to the east of Inverness was reclaimed using this method. Land reclamation on the coast does not appear to be a major issue at present but, because of the potentially serious adverse impact on the cultural heritage and on nature conservation, most notably on intertidal flats and saltmarsh habitats, it should only be permitted in exceptional circumstances.

Action Required

Structure Plans

52. A strategic planning policy context for the coast is required because the impact of development on natural and cultural heritage interests and effects of natural processes are not always confined to local areas nor are the impacts or effects always evident in the short term. This may result in:

• damage elsewhere to habitats, fisheries, cultural heritage or recreational resources
• alteration to the natural processes of erosion and deposition
• increased risks to existing development and coastal defences.

It is therefore important, particularly in estuaries, that planning authorities work together on coastal planning at the strategic level and take a long term view of the potential impact of natural processes on existing and future development as well as on the natural and cultural heritage. Planning Advice Note 37 Structure Planning (revised December 1996) stresses the importance of a partnership approach to structure plan preparation; in view of the range and nature of issues the importance of involving national and local agencies and organisations as well as local communities in drawing up policies for the coast cannot be overstated. This process should enable particular policies and proposals on the coast to be drawn up in the context of the wider planning objectives for an area.

53. Structure plans should:

• distinguish between the developed, undeveloped and isolated coast
• set out general policies for the protection of the coastal environment, including in particular Special Areas of Conservation and Special Protection Areas
• indicate priority locations for investment in enhancement and regeneration
• identify areas at risk from coastal erosion and flooding and set out their policy in relation to the location of new development in such areas
• suggest priority areas where a co-ordinated approach to coastal zone management should be pursued.

This should generally be done as part of and in the context of the normal process of structure plan preparation rather than by promoting a specific alteration dealing with the coast.

Local Plans

54. The strategic framework and policies of the structure plan should be translated into more detailed policies for the promotion and control of development and safeguarding the environment on the coast. These should:

• define in the proposals map the extent of the coastal zone and in particular the developed, undeveloped and isolated coast
• set out detailed policies for the protection of the environment on the coast
• identify priority sites for enhancement and regeneration and opportunities for restoring degraded coastal environments
• outline the criteria which will be applied with respect to the location and design of new development having regard to the risk from erosion and flooding, cultural and natural heritage interests
• incorporate policies developed in Local Agenda 21 or Local Biodiversity Action Plans to meet local biodiversity objectives.

Again the partnership approach to policy formulation is central to achieving relevant and effective local plans.

Non-Statutory Plans

Coastal Zone Management

55. The coast is not only a complex natural environment; it is also a complex policy area where a range of agencies with differing, but often overlapping, objectives, responsibilities and powers operate. The scope of land use planning is limited by statute and development plans cannot, therefore, deal with all the issues which arise on the coast; a range of organisations have to work together if an agreed overview of how the coast is to be used, managed and protected is to be reached. At the heart of this approach which the Government believes should be voluntary and indicative is partnership where groups, organisations, local authorities and individuals with an interest in the coast can work together to:-

• assemble information on the state of the coastal environment, undertaking research where necessary
• identify pressures or issues that have to be resolved
• adopt common or complementary objectives or policy aims
• agree a policy framework and management strategy
• keep the information base and the effectiveness of the policy and management arrangements under review.

In Scotland the various Firths Initiatives which SNH has helped establish around the Clyde, Forth, Solway and Moray Firths have taken a lead in this field; a draft Management Strategy and Action Plan for The Cromarty Firth has recently been produced. The Government support this approach to coastal planning and see an important role for similar local coastal fora away from the major Firths. The establishment of a Scottish Coastal Forum was announced in November 1996 to provide a context for the work of such local fora, as well as a national focus for Coastal issues. It is envisaged that the Forum will play a part in the preparation of future national guidance relating to the coast and the dissemination of good practice on coastal zone management.

56. The varying degrees of pressure on the coast and the need to make best use of staff resources means that fora are not appropriate for the entire length of the Scottish coastline; priority areas will need to be identified. The process of preparing structure and local plans will be helpful in identifying areas where a comprehensive approach to coastal issues, which goes wider than land use planning, is required. Through involvement with other groups and agencies with an interest in the coast it should be possible for planning authorities to identify these priority areas in their development plans.

Shoreline Management Plans

57. In recent years coastal erosion has become a significant issue in some parts of Scotland. Erosion in some areas will lead to deposition in others and the effect of coastal defence or protection on one stretch of coastline can have significant implications elsewhere. Where coastal erosion is identified as a problem, planning authorities should consider preparing, in association with adjoining authorities and with specialist advice from within their own organisation and other sources, non-statutory shoreline management plans. These plans should:-

• demonstrate an understanding of the processes of coastal erosion and deposition
• consider the implications of alternative means of dealing with coastal erosion
• outline a strategy for coastal defence
• identify the implications for development plan policies and development control decisions
• highlight opportunities for maintaining and enhancing the natural environment of the coast
• set out arrangements for monitoring the natural processes at work on the coast and the effect of the coastal defence strategy.

Marine Special Areas of Conservation

58. Special management arrangements may be put in place to protect marine Special Areas of Conservation (and, in due course, marine Special Protection Areas,). In June 1996 The Scottish Office Agriculture, Environment and Fisheries Department issued a booklet, "Scotland's Seas and the Habitats Directive", which described the interests for which marine sites are being proposed in Scotland and provided information to help people understand the implications of the Directive. Local management groups for individual sites will be established as necessary. There is no rigid framework for a management group but SNH will play a key role in identifying what is required to protect the particular interest of the site. Planning authorities could have a role to play, most notably where there is likely to be a close relationship between development requiring planning permission and possible effects on the marine environment.

Conclusion

59. This NPPG supersedes the 1974 and 1981 Guidelines on coastal planning. The importance of the coast is recognised and the guidelines provide a framework within which planning authorities can address the issues which arise in a complex and sensitive environment. Not all of these issues can, of course, be addressed through the planning system but the guidelines recognise that development plans can make an important contribution to achieving sustainable development and maintaining and enhancing biodiversity. Planning authorities should also be able to play a prominent role in coastal fora where the nature and scale of the issues require a more comprehensive approach than can be achieved through statutory planning procedures and mechanisms.

Selected Bibliography

Department of the Environment and Welsh Office (1992) Planning Policy Guidance: Coastal Planning (PPG 20), London, HMSO

Department of the Environment (1995) Policy Guidelines for the Coast, DOE CCG 218

Department of the Environment (1996) Coastal Zone Management: Towards Best Practice

Department of the Environment (NI) (1993) A Planning Strategy for Rural Northern Ireland, Belfast, HMSO

House of Commons Environment Committee (1992) Coastal Zone Protection and Planning, Vol 1, Session 1991-92. London, HMSO

Ministry of Agriculture Fisheries and Food (1994) Coastal Defence and the Environment, MAFF Publications PB 1192

Ministry of Agriculture, Fisheries and Food (1995) Shoreline Management Plans: A Guide for Coastal Defence Authorities

Scottish Office Agriculture, Environment and Fisheries Department (1996) Scotland's Coasts - A Discussion Paper, Edinburgh, HMSO

Scottish Office (1994) Review of Scottish Coastal Issues, Scottish Office Central Research Unit, Edinburgh