PLANNING ADVICE NOTE: PAN 73: RURAL DIVERSIFICATION
Addressing Issues of Accessibility, Infrastructure, Scale, Landscape and Design
Sabhal Mór Ostaig, Sleat
Accessibility
34. Developments that involve home-working, employment close to the place of residence, or that employ a small number of local people are unlikely to give rise to significant transport concerns. However, development in rural areas and particularly in the open countryside can lead to increased commuting from towns, increased deliveries and higher levels of freight traffic. Visitor traffic can rise significantly, particularly in the case of tourism related businesses and attractions. As well as giving rise to unsustainable traffic patterns, in some cases the rural road network will not be designed to accommodate the increased volume or weight of traffic generated by a new business.
35. Greater reliance on the car is often inevitable in rural areas but measures to encourage bus travel, cycling and walking should always be encouraged. New enterprises can benefit from transport schemes already operating in the area and additional demand stemming from diversification can mean an improved public transport service becomes viable. Connections to existing pedestrian and cycle networks may be relatively straightforward.
36. Transport Assessments, Green Travel Plans, and consultations with the road or trunk road authority will be of particular importance in determining whether a development is appropriate for its location. Where the travel consequences of a development are regarded as unacceptable it may be necessary for the business to be located in a village or town better served by public transport. In very remote locations, or in areas with a pattern of dispersed settlement, it should be recognised that relocation may not be feasible or as necessary.
37. Even where a development is acceptable in terms of traffic generation there may be a need for additional parking, improved access arrangements, and new lighting or signage. The local authority will normally employ their adopted maximum parking standards (although there are also national guidelines). Access improvements can include junction widening to improve sightlines, new surface treatments or re-surfacing, the provision of footpaths, stopping up of existing accesses, the creation of an entirely new access or even major road improvements. There can be significant, sometimes prohibitive, costs attached to these works and owners may also have responsibilities for future maintenance. In some instances a developer contribution or legal agreement may be required. It is therefore vital that any issues are highlighted as early as possible. Often there will be a number of solutions available and constructive dialogue between the applicant and road services or the trunk road authority should be encouraged. It is important that solutions are appropriate to the circumstances and that 'urban' solutions are not imposed in rural areas.
Cyclist, Luss
SPP17 sets out The Scottish Executive planning policies for transport and considers the implications for rural areas in detail.
The Scottish Executive publication 'Rural Community Transport - A guide to good practice' provides practical advice on setting up and running rural community transport schemes.
Further information on signage can be found in The Scottish Executive's Trunk Road and Motorway Tourist Signposting Policy. Local Authorities produce their own signage policies for local roads.
Case Study 8: Clachan and Loch Fyne Oysters
Loch Fyne Oysters Ltd first opened a shop at Clachan near Cairndow in 1987. From small beginnings in an old farm building the company has grown considerably in the last 15 years developing its production facilities and growing as a popular visitor attraction. It has even spawned a group of restaurants across the UK. At the Loch Fyne site, several phases of expansion were required to develop the smokehouse, restaurant, shop and offices which are now there. The Oyster Bar has also been joined by the Tree Shop, a retail outlet for local wood products, and 'Here We Are', a community resource providing information on the development, education and history of the area for the benefit of local people and visitors alike. This hub of activity has put the community of Cairndow on the map giving it a real identity and sense of place. It has also led to increased numbers of people working in and visiting the area.
Increasing visitor numbers began to give rise to road safety concerns as the number of traffic movements on to and off the A83 Trunk Road increased. When the Loch Fyne Oyster Bar added a conservatory to their restaurant in 1998 the Trunk Roads authority warned in advance that any further expansion would require a number of junction improvements, and when 'Here We Are' arrived in 2001 the old access to the site was stopped up and a new safer access formed.
Although the total population of Cairndow is only 165 around 200 people work in the area. Surprisingly, given its relatively isolated location, less than half of the workforce travels to work by car. A number of people walk and cycle to work and the regular bus service to Dunoon is also well used. In addition, the local shinty club allows its mini-bus to be used by workers coming to and from Inveraray, and in return the Loch Fyne Oyster Bar makes an annual donation to the club.
Infrastructure
38. The location of development in rural areas is driven to a significant degree by the availability of infrastructure whether in relation to transport, water and drainage, energy or telecommunications. Developers should be directed to development sites where infrastructure is already available or can be provided at a reasonable cost. A range of such sites should be identified in the Local Plan. Care must be taken to ensure that development does not create unreasonable demands on water and drainage mains systems and the use of sustainable drainage systems (SuDs) should be encouraged. Self-contained solutions are sometimes used to provide infrastructure in rural areas. Private water supplies and the use of septic tanks are commonplace; energy can be provided by a private generator or renewable energy source. In some instances shared solutions will be possible with a single facility benefiting a number of developments. The views of statutory undertakers will be fundamental in determining a site's infrastructure capacity.
39. Broadband availability can be an important consideration for businesses choosing to locate in rural areas. Connecting rural businesses to the latest broadband communications is a major priority for the Scottish Enterprise and Highlands & Islands networks and they will be able to provide information on broadband availability in your area (see: www.broadbandforscotland.co.uk/). Many rural and remote parts of Scotland currently do not have access to mainstream terrestrial broadband access, but the use of alternative technologies, such as wireless and satellite, can be used to overcome this difficulty.
PAN61: Planning and Sustainable Urban Drainage Systems provides further details on sustainable drainage.
PAN62: Radio Telecommunications provides further advice on planning, mobile phone masts and telecommunications equipment.
Case Study 9: Broadband in Aberfoyle
The Aberfoyle Broadband Community (ABC) project is a joint project involving both businesses and public agencies. The project will provide a wireless network which will connect businesses to two satellite dishes (one located in Aberfoyle, and the other three miles away in Kinlochard) and a wireless hotspot in Aberfoyle to provide visitors and business users with access to the internet and e-mail. The project is being funded from Lomond and Rural Stirling Leader+ programme with support from the Aberfoyle Traders' Association and Scottish Enterprise Forth Valley. ABC has been set up as a not-for-profit company that reinvests any surplus back into improving the service provided and into good works for the local community.
Case Study 10: SuDs at Steven's Croft
This 40ha site near Lockerbie was originally intended for a single chipboard manufacturing company. The production facility required a large site and good distribution links for supplies of timber and raw materials and for transportation of the finished product.
The Steven's croft site, located in a wedge between the M74 and the west coast mainline, was ideal as it allowed for the possibility of both road and rail freight. Instead of a single user, three timber-related companies now operate from the site employing over 300 people.
The companies complement each other with two of the companies producing wood products and the third recycling the by-products. This not only minimises waste but also ensures that maximum value is added to the timber. The presence of three users on the site and the synergies this creates also makes the site less vulnerable to changes in economic circumstances.
Because of the solvents used on the site proper drainage is essential. As a group the companies strictly control the amount of discharge from the site. A third of the water is held on site, and one of the sawmills is gravity drained to ensure there is no run-off and that the wastewater can be recycled. Sustainable drainage systems are employed to treat the run off-from the site with surface water passing through reed beds and three ponds before it is finally discharged into the River Annan.
Scale
40. Scale, whether in terms of physical size or level of activity, is one of the most important considerations when deciding whether a proposal is acceptable in a rural location. Small-scale businesses particularly those operating from home or using otherwise redundant buildings, or even with elements of new build, are more likely to be acceptable in rural areas. Larger businesses inappropriate to a rural location sometimes need to be directed to larger settlements and towns.
41. Assessing whether a new business is of a scale acceptable for its location is easier when the activity is new to the site. Making assessments of scale becomes more difficult when a business already operating from the site needs to expand. Businesses expand in different ways, a company branching out into new areas of activity or developing new methods or processes often requires new premises. An intensification of use can also require improved infrastructure. A change of use will nearly always require planning permission, but in some cases, activities ancillary to the main use may not require planning permission.
42. Where there are likely to be material changes to the scale of a business, either physically or in the intensification of its use, detailed assessment of the impacts will be required. Just because a business already operates from a site does not automatically mean it should expand unchecked and there will be circumstances when on-site expansion is inappropriate.
43. It is always worthwhile to reflect on the potential for future development and expansion. Raising the issue of future development with applicants helps to avoid surprises or disappointment. It is often possible to design possibilities for future expansion into a proposal.
Case Study 11: Williamson's Garden and Machinery Centre
In 1998, with help from the Scottish Executive's Rural Development Programme, Jim Williamson set up his own garden machinery business on the outskirts of Turriff. A steading once used for storing farm equipment, grain and fertilizer was converted to a shop selling mowers, hedge trimmers, and other garden equipment. To meet the increasing numbers of customers it soon became clear that additional facilities were needed. Foresight and preparation ensured that proposals to create a tearoom and later a soft play centre (Tons o' Fun) went through the planning process smoothly.
Mr Williamson approached Aberdeenshire Council with a clear set of proposals accompanied by a firm business plan supported by the bank. He had already established that his was the only facility of its type within 25 miles, drawing in visitors from Banff/Buchan, Huntly, Turriff, Keith and even Inverurie. The tea room and the play centre were likely to draw people from an even wider area.
An application to convert two further steadings was submitted, but conscious of the potential for a continued increase in visitor numbers, expansion areas were incorporated into the plans and ample parking and sewage capacity were also factored in. This meant that as business expanded there was no need to submit yet further applications. Williamson's now employs 20 people and was the winner of a National Farmer's Union Scotland Innovation Award in 2003. As well as farming 260 hectares of prime land, they have now hosted over 200 children's parties.
Landscape
44. Scotland's landscape is one of its most valuable assets. Many rural businesses are attracted to rural areas precisely because of the quality of the environment it offers, and it is therefore essential that this quality is maintained and enhanced. Inappropriately sited buildings, or buildings of an inappropriate scale, can have negative visual impacts and cause damage to their landscape settings. On the other hand, developments that are sensitive to their surroundings, of appropriate scale, well sited, and of quality design can enhance our landscapes. It should be remembered that the activities associated with developments can have just as much impact as the development themselves.
45. Whether a development can be accommodated in its landscape setting will depend greatly on the sensitivity of the particular landscape and its capacity to absorb new development. The design and layout of the development are important. Key considerations will be the surrounding topography, impact on conservation designations, views in and out of the site and the development's relationship to existing structures and features. Existing woodlands, new planting and boundary treatments can help buildings to sit better in their surroundings. New access tracks can raise significant landscape and heritage issues. Particular care should be taken to safeguard landscape quality in designated areas such as Areas of Great Landscape Value (AGLVs) and National Scenic Areas (NSAs), and sites included in the Inventory of Historic Gardens and Designed Landscapes. As statutory consultees, the views of SNH or Historic Scotland should be given particular regard in these areas.
46. Development plans should also contain policies that seek to protect and enhance landscape quality. Landscape Character Assessments and Historic Land-use Assessments (where they have been prepared) provide broad guidelines for understanding, maintaining, restoring and enhancing landscape quality. Applying these broad policies and design principles at a site level can be complex, requiring knowledge of design issues and principles and an understanding of environmental, historical, visual and architectural contexts. Detailed assessment or surveys are often required and in many cases it will be necessary to draw on specialists with the appropriate skills.
Case Study 12: Ardardan Estate Farm Shop, Cardross
The Montgomery family purchased the Ardardan Farm Estate complete with several derelict buildings and an overgrown historic walled garden. The farm sits on a prominent green belt site with views over the Clyde so when a farm shop and tearoom were proposed careful consideration had to be given to the landscape. To provide screening it was decided to locate the tearoom within the boundary of the walled garden and to maintain rural character an existing agricultural shed was used to house the farm shop. A section 75 agreement restricts the amount of retail floorspace and links the shop to the farm business to ensure the business continues to operate at a scale appropriate to its location. Providing public access to the countryside is one of the purposes of green belt, and the Ardardan Estate is popular with visitors from surrounding urban areas, including school parties and horticultural groups. To further improve access they are in the process of developing a number of woodland walks.
Design
47. The physical form, shape and size of buildings will be important considerations in assessing proposals. Good design can help to address issues of scale. Appropriate use of materials can also help developments sit better in the landscape and attention to detail can be just as significant. Using local materials and applying local built forms helps to reflect an area's character and identity. The preparation of a design statement will help applicants focus on the key design issues relating to their development.
48. Diversification creates opportunities to maintain and enhance traditional rural buildings, but meeting the needs of modern businesses can be challenging. Alterations are often required and in some cases extensions may be necessary. Sensitive conversions should retain the character of the building; new activities might even reflect former functions. In some cases redundant buildings in rural areas will lend themselves better to conversion for business uses than for housing. ' Rural Buildings of the Lothians' published by Historic Scotland, provides detailed guidance on conservation and conversion, much of which is applicable to the whole of Scotland. Achieving sensitive conversions demands an eye for detail and an appreciation of the historic environment. It will often be necessary to call on professional advice.
Case Study 13: New Business Units on the Atholl Estate
Tulliemet Property Development took a measured risk when they decided to develop three brownfield sites on the edges of Blair Atholl, Ballinluig and Dunkeld. Former industrial activities on the sites meant remediation was required before construction of 12 business units could proceed. The units themselves are of relatively simple construction but attention to detail has ensured a quality end result. Generous space standards have been applied to the flexible business spaces and care has been taken not to overdevelop the sites. Access roads and turning circles suitable for lorries were constructed and necessary power and drainage provided. Additional skip areas and wash facilities with dedicated soakaways were also incorporated into the designs. Careful attention to siting, the use of existing woodlands for screening and appropriate use of materials and finishes has helped the units to sit well in their settings making them attractive to both users and passers by.
The units have enjoyed almost 100% occupancy since opening and are home to an eclectic range of businesses ranging from a motorbike accessories firm, plumbers and car repair shop to medical suppliers, and even a showroom for Indonesian furniture. Most of the tenants are local companies that had previously operated from constrained or unsuitable sites. It was only with the creation of new premises in the area that they were able to consider expanding.
Further guidance on landscape issues and design are provided in NPPG14: Natural Heritage, PAN68: Design Statements, NPPG18: Planning and the Historic Environment. PAN 72 on Housing in the Countryside also establishes useful design principles for development in rural areas.
49. Traditional buildings can be an inspiration and catalyst for successful diversification, but the countryside is not a museum piece. Many rural landscapes have the capacity to absorb new development and accommodate considerable change in the coming years. But change needs to be guided to positive effect. Contemporary developments, providing they are properly planned, sited and designed can contribute to the quality of the landscape and still maintain a sense of place. Opportunities can be taken to interpret and adapt traditional shapes and sizes into new modern designs.
Case Study 14: The Birnam Institute - a Community Facility with Wide Appeal
The Birnam Institute has been in existence for more than 120 years, hosting events and providing a venue for local groups, but in 1999 it became clear that their facilities were in urgent need of repair and refurbishment. What has emerged is a first-class arts and leisure facility of bold design which provides a vibrant focus for the village and delivers a diverse range of services to the wider rural area and beyond. The new extended facility includes a large auditorium space, meeting rooms, flexible gallery spaces and a new café, and remains an important hub for local clubs and societies as well as a welcome place for visitors.
The building's contemporary design in the middle of a conservation area presented a number of challenges for Macmon Architects. Birnam's Victorian architecture is typical for the period with structures of mostly stone and slate construction. The architects were keen to respect these surroundings but also wanted to reflect the forested setting of Birnam and Dunkeld in their use of materials. The result is a building that incorporates stone and slate elements but which also makes extensive use of glass, steel and cedar cladding. The façade of the original institute building was retained and efforts were made to ensure that the extension was respectful in terms of height and scale.
The design was not without controversy but the final planning application was supported by both the National Trust for Scotland and the Architectural Heritage Society of Scotland. In 2003, the Institute won a Civic Trust Award. There is no doubt that the Institute has greatly enhanced the area and helped to ensure that Birnam-Dunkeld remains the attractive gateway to the Highlands it has been since Victorian times.
NPPG 18: Planning and the Historic Environment sets out government policy on conservation and our built heritage.