Scottish Government

1. Non-technical summary

1.1 Strategic Environmental Assessment and the Plan area

1.1.1 Under the Environmental Assessment of Plans and Programmes (Scotland) Regulations 2004, a "Strategic Environmental Assessment" ( SEA) of the West Edinburgh Planning Framework 2006 ("the Plan") is required. The Regulations provide for a high level of protection of the environment and require the integration of environmental considerations into the preparation and adoption of plans and programmes in order to promote sustainable development.

1.1.2 The SEA process develops a framework of objectives against the potential effects on the environment. The effects are assessed and suggestions made for mitigation and enhancement. The SEA sets the context for project level assessments.

1.1.3 The Plan will serve as an input to the structure plan and local plans for the area and will be taken into account by the Scottish Ministers in their consideration of development plans. It will also be a material consideration in development control decisions.

1.1.4 This assessment focuses on three scenarios, including the policy approaches within the Plan, in terms of their effects on a set of strategic environmental objectives. The assessment has been used to inform an iterative process of developing the Plan. Mitigation or enhancement measures proposed for significant environment effects have been considered and where possible adopted by the Scottish Executive, as the plan-maker.

1.1.5 The area covered by the Plan broadly encompasses the Sighthill, South Gyle and Edinburgh Park employment areas, the Gyle Centre, and the A8 Corridor from Gogar to Newbridge including the Airport and land between the Airport and the A8 as well as land south of the A8 from the Royal Bank of Scotland development and the Ratho Station/Ratho area.

1.1.6 The Plan constitutes a review of the original West Edinburgh Planning Framework published in March 2003 (" WEPF 2003"). The area covered by the WEPF 2003 identifies the West Edinburgh area of national importance where a co-ordinated approach to land use planning is required. Since the publication of the WEPF 2003 a number of development initiatives have been progressed (see Table 1.1). The Plan now provides more detail about the location of additional investment planned for the area. As a result of greater certainty about the nature of airport expansion and planned transport infrastructure proposals, the Plan now provides more active support for airport growth and the development of selected sites for international business development. The Plan also now provides for transport infrastructure proposals approved by Parliament and other necessary transport enhancements.

Table 1.1 -Timeline of Policy Development directly affecting the West Edinburgh Area

1.1.7 The key policy objectives in the Plan are similar to those in the WEPF 2003, except for policy changes regarding the Green Belt and high quality international business development.

1.2 Scope of the SEA

1.2.1 The Scottish Executive commissioned MWH supported by Enfusion, SISTech and CAG Consultants to carry out the SEA and to prepare this Environmental Report.

1.2.2 The following items have been examined during the course of the assessment and are presented in the Environmental Report:

• Objectives of the Plan;
• Relationship of the Plan with other plans, programmes and environmental objectives;
• The environmental baseline and key environmental problems;
• SEA objectives;
• Reasonable alternatives;
• Assessment of the potential environmental effects of the Plan;
• The compatibility of the Plan policy approaches with the SEA objectives;
• Proposed mitigation and enhancement measures; and
• Monitoring programmes.

1.2.3 Although, in its vision for West Edinburgh, the Plan supports the sustainable growth of Edinburgh Airport in accordance with the UK Air Transport White Paper, assessment of the environmental effects of airport expansion is limited to those resulting from land use changes over which the Plan has influence. The safeguarding of land for airport expansion, together with the effects of increased air travel on carbon dioxide emissions, are issues beyond influence of the Plan and hence outside the scope of this SEA. BAA has since developed a Master Plan for Edinburgh Airport based on the conclusions of the White Paper but the Master Plan is not subject to SEA.

1.3 Review of relevant plans, programmes and strategies

1.3.1 The Plan is influenced by other relevant plans, programmes and strategies established at international, national, regional and local level.

1.3.2 At international level, EU directives and strategies establish requirements and guidance on issues such as biodiversity, birds, habitats, water, waste, and sustainable development. Many of these are supported by corresponding national level legislation, regulations and guidance, which are relevant to West Edinburgh. For example, the UK framework and Scotland's new Sustainable Development Strategy provide a strong framework for new and emerging strategies on climate change, transport, renewable energy, energy efficiency, green jobs and biodiversity.

1.3.3 There are also specific national level plans, programmes and strategies on other aspects such as transportation, energy, climate change, health, economic development, design, planning, and air quality. Scottish Planning Policies, National Planning Policy Guidelines and Planning Advice Notes provide guidelines and advice on aspects such as protecting and enhancing open spaces, promoting development at brown field sites and integrating transport and land use planning.

1.3.4 International and national plans, programmes and strategies provide the contextual framework for local Development Plans and strategies. Land use plans, such as the Edinburgh and Lothians Structure Plan and the Local Plans, contain a range of policies and guidance on appropriate land uses/development potential, economic competitiveness, improving transport and community services, whilst using resources efficiently and protecting habitats, built heritage and landscape. These are supported by specific national and local environmental programmes and strategies for enhancing aspects such as landscape quality, biodiversity, conservation areas, listed buildings, public health, water quality, flooding and air quality.

1.3.5 Sector-specific plans, programmes and strategies also affect various aspects of the environment. For example, the provisions within the UK Air Transport White Paper are central to the development of the Plan but these provisions, together with the Airport Master Plan developed in response to the White Paper, will also have significant effects on West Edinburgh's environment.

1.3.6 Key environmental objectives of these various plans, programmes and strategies have been considered in assessment of the Plan.

1.4 Environmental characteristics and problems

1.4.1 A review of the environmental data for the Plan area has revealed a number of environmental characteristics, problems and opportunities:

• There are no statutory designated sites relating to nature conservation. There are, however, several non-designated sites within the Plan area.
• The range of flora and fauna indigenous to the Plan area provides a rich and diverse ecosystem. However the inter-relationship between land uses and the ecosystem is fragile and, in certain instances, subject to a number of external stresses. Some important species and habitats within these sites are either already degraded or at risk of being so in the future. Alterations to the existing inter-relationships, through the realisation of development capability, have the potential to further degrade the fine balance of the existing ecosystem.
• The population of West Edinburgh has a higher life expectancy than the Scotland average. The area has also experienced a significant population increase in recent years. There is the potential for a reduction in the quality of life and wellbeing of residents due to increasing levels of construction and traffic. High housing prices threaten a balanced population structure.
• Increased levels of development may lead to the continued loss of prime quality agricultural land. Increasing volumes of construction waste going to landfill sites is in part due to a lack of agreed recycling targets for commercial as well as domestic waste.
• The River Almond and particularly the Gogar Burn are subject to continued deterioration in ecological status, the latter being adversely affected by piecemeal development within its lower catchment. There is also increased flood risk associated with flood plain development. A Sustainable Development Framework is now being prepared for the Gogar Burn. Future developments are also required to incorporate sustainable drainage systems.
• There are no severe air quality problems documented for the area although data is limited; there is some monitoring of nitrogen dioxide levels which can be significant. City of Edinburgh Council is taking steps to create a new Air Quality Management Area in Corstorphine, to the east of the Plan area. Local air quality is likely to improve over the lifetime of the Plan according to modelling. Emissions of greenhouse gases are set to increase as a result of forecast increases in air travel and levels of surface transport.
• West Edinburgh is severely congested, and the ratio of people using cars relative to other modes of transport (public transport, walking and cycling) is high.
• Within the Plan area there are a significant number of historical ancient monuments and listed buildings but these are subject to development pressure and deterioration. There is a lack of archaeological information pertaining to the area.
• West Edinburgh contains significant areas of green space; the topography to the north of the A8 is flat and featureless due to the land being a historic floodplain of the River Almond and subsequent airport development; the land to the south of the A8 has an undulating topography, is mainly agricultural in nature with pockets of mature/semi mature tree coverage. Overall, the area lacks an integrated approach to management of green and open space.

1.5 Likely future without the Plan

1.5.1 Without the Plan, the provisions in the WEPF 2003 would remain, particularly the protection of Green Belt land for long term economic development post 2020. Without the Plan no account could be taken to inform development plans of the strategic national interest in the new transport infrastructure or the need to relocate the Royal Highland Centre. Development would still proceed but the decision-making process would be impaired and development uncoordinated. As a result international, national, regional and local targets relating to the environment might not be effectively pursued.

1.6 SEA framework

1.6.1 A SEA framework has been devised from a baseline of environmental data, plan and programme review, consultation and workshops with key stakeholders to identify the issues for SEA and the Plan. This framework, including a set of strategic objectives, has been used for assessing the environmental effects of the proposals in the Plan and for their refinement. The objectives, which have been developed with cognisance of Scotland's Sustainable Development Strategy, cover areas such as biodiversity, human health, water environment, air quality, transport, climate change, built heritage and landscape. To provide sufficient focus for assessment, each objective has been broken down into a number of sub-objectives.

1.7 Development of alternatives

1.7.1 An important part of the SEA process is to consider meaningful alternative scenarios for assessment.

1.7.2 The policy in the Air Transport White Paper, the Parliamentary processes for EARL and the Tramline set the framework for consideration of alternatives for additional surface access, relocation of the Royal Highland Centre and other high quality developments within the area. The significant commitment to these proposals has undoubtedly limited opportunities for developing reasonable alternatives. Nevertheless, to inform development of the Plan and mitigation measures, three scenarios have been assessed:

• Scenario 1 - The WEPF 2003 updated;
• Scenario 2 - Economic enhancement subject to basic statutory environmental requirements; and
• Scenario 3 - Economic enhancement subject to best environmental practice.

1.7.3 Scenario 1 is based on the WEPF 2003 updated to take account of the BAA Master Plan, the new tramline, the expected approval of EARL and the requirement to relocate the Royal Highland Centre. This scenario has placed an emphasis on releasing Green Belt land for high quality international business developments as well as removing Green Belt status from the Airport, Royal Bank of Scotland site and new Royal Highland Centre.

1.7.4 Scenario 2 allows for local planning to consider early release of Green Belt land for more general and ad hoc business development. Whilst compliance with national standards would be required, there would be less emphasis on mitigating environmental impacts or environmental enhancement. Road infrastructure is likely to be implemented before public transport options could be pursued and more commercial growth of regional significance would occur at the expense of international business developments.

1.7.5 Scenario 3 focuses on restricting development in the short and medium term, deferring the release of Green Belt land and on ensuring a high degree of environmental sustainability, both for individual developments and the overall Plan area. Developments that maximise the use of public transport, restrict road traffic and include high levels of environmental enhancement are promoted.

1.7.6 The main report includes a full assessment of all three scenarios.

1.8 Assessment and associated mitigation proposals

1.8.1 Each of the scenarios has been assessed against the SEA objectives in terms of the nature, magnitude, timing, duration and reversibility of anticipated environmental effects. Assessment has been based on expert judgement supported by available evidence. A number of mitigation and enhancement measures have been proposed to help better progress the SEA objectives.

1.8.2 A summary of the potential environmental effects of Scenario 1, which forms the basis of the Plan, with opportunities for mitigation and enhancement is presented in Table 1.2. Whilst the Scottish Executive has considered these opportunities, they are not necessarily to be included in the Plan as proposed.

Table 1.2 Summary of potential effects of the Plan and opportunities arising from SEA

1.8.2 The assessment has been extended to consider the overall compatibility of the policy approaches within the Plan against the SEA objectives. A commitment to development with high design standards, integration of public and private transport modes, development within established sites and their integration with improved public transport, rigorous mitigation of environmental impacts and promotion of high design standards are policy approaches that are potentially compatible with the SEA objectives.

1.8.3 Facilitating the growth of Edinburgh Airport, the development of road links from the Airport to Gogar and Westbound A8 and development potential for international business are policy approaches that potentially conflict with the SEA objectives.

1.9 Cumulative effects

1.9.1 Many environmental problems can result from the accumulation of multiple, small and indirect effects rather than a few large obvious ones. Assessing the three scenarios against a set of SEA objectives and other relevant plans and programmes has helped to identify a number of cumulative effects, which have been documented in the assessment. The three main cumulative effects identified are: increased catchment-level flood risk associated with an uncoordinated approach to flood management by individual developments; adverse effects on human wellbeing resulting from the further loss of existing areas of tranquillity; and overall loss of landscape character and cultural heritage. There is also likely to be a cumulative effect on greenhouse gas emissions but the contribution from the Plan to increased emissions (resulting from the increased intensity of development) will be small in comparison to the very significant increases in greenhouse emissions expected from increased air travel, as predicted by the Air Transport White Paper. Effective mitigation of cumulative effects depends on a strategic approach to the range of mitigation measures proposed.

1.10 SEA monitoring

1.10.1 Monitoring of the significant environmental effects of the Plan must be carried out. Monitoring enables decision-makers to consider whether the Plan is achieving the desired environmental objectives, whether mitigation measures are performing as expected and whether there are any adverse effects requiring remedial action.

1.10.2 Indicators have been proposed for each of the SEA objectives. A method of measurement for each indicator has been identified together with recommendations for the frequency of monitoring and which organisation might be responsible for monitoring.

1.11 The difference the Strategic Environmental Assessment has made to the Plan

1.11.1 The Air Transport White Paper, the BAA Master Plan and the surface transport proposals constrain the influence of the Plan. However the mitigation and enhancement measures suggested do take into account the proposed developments. The Scottish Executive has considered the various mitigation measures proposed and, where it deemed appropriate, made amendments to the Plan. More specifically:

• The need to maintain and enhance biodiversity has helped confirm the policy intention for economic development to be campus style with master plans to maximise green corridors and habitats. Adoption of the principles within the Gogar Burn Sustainable Development Framework will also promote biodiversity.
• Economic development facilitated by the Plan will provide a range of job types and opportunities for skills training. The SEA process has helped confirm that more general economic development in West Edinburgh would likely to be at the expense of jobs in Core Development Areas.
• The Plan supports the proposed interventions of the Gogar Burn Partnership Group, which will contribute very significantly to the objective to conserve and enhance the river environment and manage flood risk. The Plan does not, at present, include any provision for ensuring a similar approach to the River Almond.
• The SEA has helped confirm the importance to human health and wellbeing, of requirements for high urban and rural design quality, management of air quality and effective public transport.
• The objectives to promote sustainable transport and limit air pollution have helped reinforce the policy approach linking the rail and tram infrastructure to new development and putting the focus on public transport whilst imposing constraints on car parking. The scenario purporting more general economic development in West Edinburgh would bring problems for transport systems. A direct link from the airport to the M8 motorway would have adverse environmental consequences but the Scottish Executive has indicated that it might not be pursued.
• Whilst there is no data concerning greenhouse gas emissions for West Edinburgh, the assessment of the effects on emissions has also helped reinforce the policy emphasis on public transport and reducing car use.
• By providing support to the Gogar Burn Partnership Group objectives, the Plan will help reduce the vulnerability of key sites to flooding resulting from climate change.
• Whilst the cultural heritage of West Edinburgh would be significantly adversely affected, the Plan does now exclude the Scheduled Ancient Monument at Gogar Mains from economic development and protects the setting of Grade A listed Gogar Castle.
• The SEA objective concerning high quality design has reinforced the policy to create in West Edinburgh a high quality design ethos.
• The protection and enhancement of the landscape will be promoted primarily through master plans with clear landscape objectives but the Plan recognises the importance of setting up implementation partnerships and agreements to ensure the high landscape quality of the area is maintained.

1.12 Limitations & Constraints

1.12.1 The process of carrying out a SEA for the West Edinburgh Planning Framework 2006 has raised the profile of significant environmental problems and of significant effects that the Plan may have on the environment of the area.

1.12.2 Nevertheless, a number of issues have limited the potential for the SEA to address the most significant environmental effects. These include: the hierarchy of plan making, particularly between the Air Transport White Paper, the BAA Master Plan and the WEPF; a lack of geographical focus to the Plan; the significant advancement of new public transport proposals; and the lack of mechanisms for promoting mitigation opportunities outwith the Plan area. In addition, the lack of data for some aspects has made it difficult to carry out evidence-based assessment.

1.13 How to Comment on the Report

1.13.1 The consultation period will run for a period of 12 weeks from 29 November 2006 to 21 February 2007. All consultation responses and enquires should be directed to:

Sandra Carey

Or e-mail to draftwepf2006@scotland.gsi.gov.uk

Details of the Plan, and links to other documents referred to in this report, can be found at www.scotland.gov.uk/planning

Following the consultation period, a final Environmental Report will be prepared and published. Beyond this, the SEA process will continue to inform further development of the Plan, its implementation and monitoring.