| No.165/2003
Research Findings |
Development Department Research Programme |
Evaluation of National Planning Policy Guideline 15 (NPPG15): Rural Development
Land Use Consultants
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Land Use Consultants was commissioned by the Scottish Executive to evaluate the effectiveness of National Planning Policy Guideline 15 Rural Development (NPPG15). NPPG15 sets out policy guidance for planning authorities in relation to the preparation of structure and local plan policies and development control functions in rural areas, and aims to promote a more positive and integrated approach to rural development. |
Main Findings
- There is broad support for the principle of a specific national planning policy guidance focusing on sustainable rural development. There is, however, widespread support for the definition of a more aspirational vision for the future of rural Scotland and, included within the successor to NPPG15, a description of how the planning system can contribute to such a vision. The revised guidance should define policy principles associated with such a vision and should describe the process by which planning authorities can translate these into strategic and local policies.
- The research identified practical difficulties in realising the objectives of sustainable rural development and in supplementing conservation with policies designed to secure environmental enhancement. The current protection of the best agricultural land was cited as an example, with some consultees suggesting that the need for such protection should be defined in response to a more local assessment of needs and opportunities.
- The research identified a number of areas where policy had emerged or evolved since the publication of NPPG15, highlighting the difficulty in maintaining a comprehensive and up to date summary of relevant policy. There was support for a more focused document focused on policy issues that are more specific to rural areas. It was recognised that there would need to be careful cross referencing to other policy documents. The research also concluded that there should be a clearer distinction between policy and guidance, with a more focused successor to NPPG15 being supported by one or more Planning Advice Notes.
- While there is support for the use of a 'rural typology' in developing policies tailored to local circumstances, there is less agreement for the basis for such a typology. There is a need for additional guidance on the process of identifying different typologies.
- The research found that there are many different interpretations of the term diversification and of planning authorities' roles in achieving it. Clarification and good practice guidance would assist all those involved in rural diversification projects.
- The study examined the role of land supply in facilitating rural development. It concluded that land supply is generally a less significant influence on rural development than development plan allocations and, most importantly, infrastructural constraints, particularly those relating to sewerage infrastructure. Finally, while partnership working between public sector and community organisations is becoming more common, examples of private sector involvement are less numerous.
Background
Publication of NPPG15 'Rural Development' in 1999 was set in the context of a number of notable factors. These included the economic and social problems facing rural areas, the growing recognition of the planning system's potential in promoting and facilitating integrated rural development and the emergence of community planning. NPPG15 marked a move towards a more proactive approach based on an integrated view of social, economic and environmental issues in rural areas, and the conservation and enhancement of the wider countryside.
Aims and Objectives
In 2002, the Scottish Executive commissioned research to evaluate the effectiveness of NPPG15 in achieving its objectives. The aims and objectives of the research were:
- To assess whether the guidance has had the required impact in promoting development and changing attitudes, notwithstanding the wider issues that have impacted on the countryside in the last few years;
- To assess the extent to which the guidance is effective and remains relevant and appropriate;
- To assess whether any change of substance or emphasis in the guidance is needed.
In addition to these broad objectives, the research focused on the following aspects of rural planning:
- the level of diversification;
- the adequacy of land supply;
- the use of the rural typology by planning authorities in preparing policies and development control work;
- the process of land assembly and, in particular the role of Compulsory Purchase Orders, and the extent of partnership working in achieving land assembly.
Methodology
The study methodology included the following elements:
- a targeted review of relevant literature;
- compilation of a 'checklist' of post-1999 legislation and policy;
- consultation seminars and thematic workshops involving users of NPPG 15;
- a review of a representative sample of development plans and development control decisions;
- discussions with forward planning, development control and other local authority staff;
- a plenary event to which all those previously consulted were invited to discuss key issues emerging from the research;
- analysis and reporting.
Key Findings
There is broad support for the principle of national planning policy guidance specifically for rural areas. While many consultees expressed such support, relatively few made frequent reference to the document, using more detailed, topic based elements of policy guidance instead. While cross-reference to other relevant policies is important, the successor to NPPG15 should not aim to provide a comprehensive digest of other elements of national policy that also apply in rural areas. NPPG15's successor should have a clearer focus on policies that are specific to rural areas.
There was a widespread concern that there is insufficient clarity about what the planning system should be aiming to achieve in rural areas. While this reflects a number of factors including the diversity of rural areas, the nature and depth of the problems affecting parts of the rural economy, and the shift towards a more integrated view of rural development, it highlights the need for an aspirational vision for the future of rural Scotland. The successor to NPPG15 could include a description of the planning system's contribution to that vision. Furthermore, the national vision would set the context for more detailed visions at strategic and local levels. Many considered that a clear vision would help guide policy making and development control decisions in rural areas.
NPPG15 currently includes both policy and guidance. The consensus view was that these two elements should be more clearly separated, with the successor to NPPG15 concentrating on policy and guidance and advice being included within one or more Planning Advice Notes. The research highlighted a number of areas where practitioners would welcome additional good practice guidance. A number of key examples are described in the following paragraphs:
NPPG15 aims to promote integrated sustainable rural development. The research highlighted the practical difficulties in assessing and balancing impacts and benefits of different kinds (social, economic, environmental) and at different levels (national, strategic, local). This is an area where additional advice would be welcomed.
NPPG15 recommends that planning authorities should aim to conserve and where appropriate enhance the countryside. The research found that, while there are examples of enhancement having been secured in relation to individual developments, the lack of clear development plan policies on enhancement means that the benefits are achieved on an
ad hoc basis. Additional advice on ways of securing enhancement through development plan policies and development control would be welcomed.
There is widespread support for the development of planning policies that reflect the particular circumstances that apply in different parts of a planning authority's territory. NPPG15 describes and suggests the use of a rural typology based on 'travel time' from major urban centres together with factors such as the settlement pattern, demographic structure and employment trends. This was considered to be insufficiently detailed in approach and, by some, to present an urban-based view of the countryside. There was support for an alternative or complementary approach based on the character, sensitivities and opportunities of local areas. Again, this is an area where additional advice would be welcomed.
NPPG15 aims to encourage higher levels of diversification in rural areas. The research identified many different interpretations of the term diversification and differing views of planning authorities' roles in achieving it. There is a need for clarification and elaboration of these terms and additional good practice advice on the role of the planning system in contributing to farm and rural diversification. The audience for such advice should include professional planners, land managers such as farmers, rural advisers and entrepreneurs.
The research found that land supply in rural areas usually has a less significant influence on development than development plan allocations and, most importantly, infrastructural constraints. The constraints associated with sewerage infrastructure were considered to be a key concern in rural areas.
Partnership working is increasingly important in rural planning. While partnerships between public sector and community organisations are more common, examples of private sector involvement are less numerous.
Recommendations
Key recommendations resulting from the evaluation of NPPG15 include:
- The successor to NPPG15 should include an aspirational vision for the role of planning in contributing to the future of rural Scotland. This vision should be backed by national planning policy principles and supported by advice on the process which planning authorities should follow to develop strategic and local policies. As a result, the document may have a different format or structure to other topic based national planning policy statements;
- The document should focus on those areas of policy that are unique to rural areas (eg farm diversification or the role of rural typologies). Rural issues should be fully reflected within other, topic based, policy statements (eg on retailing or housing);
- While the document should still be cross referenced to other policy documents that are relevant to rural planning, it should not aim to provide a digest of relevant policies;
- The distinction between policy and advice should become clearer. Advice should be contained in a number of related Planning Advice Notes, building upon, and sharing best practice in different parts of Scotland;
- The significance of the revised document should be reflected in its position within the SPP series and in a revised title. 'Planning for a Sustainable Rural Scotland' might be a suitable title;
- The use of rural typologies should continue to be promoted as a means of developing policies that reflect differing pressures and opportunities across rural Scotland. The current approach should be supplemented by advice on how to respond to more local issues;
- Sustainable rural development is recognised as a central objective of NPPG15. Additional advice is required on how to evaluate and balance social, economic and environmental impacts and benefits, particularly where they occur at different policy levels. The advice should highlight the importance of setting individual effects within the context of the broader objectives (or vision) for rural Scotland;
- Additional guidance is required to help planning authorities achieve the objective of securing enhancement of the countryside. This is particularly the case in terms of policy making;
- The successor to NPPG15 should provide clearer guidance on diversification, in particular drawing a sharper distinction between farm-based diversification and rural diversification more broadly. It should also cover the role of planning authorities in facilitating projects which meet the broader aims of sustainable rural development.
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