Chapter 4: Selecting the Location of Scotland's First Coastal and Marine National Park
4.1 Principles of selection
As detailed in the consultation paper, and as part of a wider remit for long-term environmental stewardship, the National Park (Scotland) Act 2000 specifies that the role of Scottish National Parks are to deliver better management of areas of outstanding natural and cultural heritage, and sets out the principal aims as:
- to conserve and enhance the natural and cultural heritage of the area;
- to promote the sustainable use of the natural resources of the area;
- to promote understanding and enjoyment (including enjoyment in the form of recreation) of the special qualities of the area by the public; and
- to promote sustainable social and economic development of the communities of the area.
Figure 4.1. What criteria should be used to select an area? Percentage of respondents showing a degree of agreement for potential criteria for selecting the location of a Coastal and Marine National Park. Note: where respondents indicated support for more than one criterion, all these are represented above.
The largest proportion of respondents agreed in principle with selecting the site for a Coastal and Marine National Park on the basis of a combination of natural and cultural heritage (46%). The next most important criteria were natural heritage (43%), local identity (37%) and the potential to make a significant contribution to the economic development of local communities (36%; see Figure 4.1). In overall terms both individual respondents and respondent organisations considered that the location of Scotland's first Coastal and Marine National Park should principally be selected on the basis of either:
- natural and cultural heritage criteria; and
- the potential to make a significant contribution to the local economy.
Individuals placed more weight on conservation concerns; organisations on those of social concerns and the economy (see Figure 4.2).
In broad terms, respondent individuals and conservation groups emphasised the importance of heritage criteria; local authorities, community councils, businesses and recreation organisations largely declined to comment; and organisations in general and groups representing agriculture interests in particular stressed the importance of selection by potential for economic benefit (see Figures 4.3 and E.2). There was general agreement on the importance of particular selection criteria between respondents from different locations, although respondents from the Moray Firth candidate region accorded relatively more importance to selection on the basis of natural heritage, those from the Orkney Islands to the distinctive character of the region; with those from the areas in and around the South Uist and Barra, Shetland, and Ardnamurchan, Small Isles and South Skye candidate regions being less likely to offer comments on these issues.
4.2 Further analysis of potential criteria
Respondents generally advocated that the criteria for selection of Scotland's first Coastal and Marine National Park should flow from the principal aims set out in the previous section and the drivers described in Section 3.1, echoing their views regarding potential benefits. Therefore, the consensus selection criteria may be summarised as, in order of importance:
- conservation needs, as reflected by, but not identical to, natural and cultural heritage;
- potential for local community benefit; and
- simplicity of implementation.
For conservation needs, respondents broadly agreed with the principle drivers described in section 3.1, noting that:
- objective indicators of biodiversity and the impact of use of the environment should serve both to identify areas in need of conservation, and to inform the appropriate policies with which to conserve them; and
landscape value, should be considered as being distinct from, or at least a separate component, of the natural heritage of an area.
Figure 4.2. What criteria should be used for selecting an area? Relative degree of agreement for potential criteria for selecting the location of a Coastal and Marine National Park, by (A) individuals; (B) organisations. Note: weighted according to respondents' preferences.
Figure 4.3 What criteria should be used to select an area? Distribution of relative degree of agreement for how the location of a Coastal and Marine National Park should be chosen, by selection criteria, and by interest group. Note: weighted according to respondents' preferences.
In addition, several respondents, notably from the Shetland (including Fair Isle) and the Solway candidate regions, put forward evidence supporting their region's suitability for designation.
For potential local community benefit, the views of respondents mirrored those described in section 3.3.2 and suggested that the location of a Coastal and Marine National Park should be selected on those terms. For potential to derive regulatory and community benefits respectively, respondents noted that:
- the Park should be of sufficient size and complexity to benefit from the partnership working and simplification of regulatory structures a Park might bring; and
- impact of designation on local culture and industry should be taken into account, particularly regarding dependence of local industry on marine resources.
In addition to the criteria proposed in the consultation paper, 27 responses specifically emphasised the importance of objective quantitative measures, such as Regulatory and Economic Impact Assessments, in defining the suitability of a candidate region. 48 of those who responded proposed local support as an additional selection criterion, of whom 10 proposed a local mandate for designation.
Finally, and separately from issues identified in Chapter 3, several respondents emphasised the importance of existing structures in enabling a Park Authority to direct resources to the best benefit of the environment and the community. Particular mention was made of the benefit to any Park Authority of the presence of:
- existing local partnership initiatives, including a strong community planning partnership and a Coastal Forum type entity;
- local expertise, and experience of managing marine development as is the case for Shetland Council;
- suitable regulatory bodies, including for managing cross-border issues; and
- potential to develop the physical infrastructure required by a Coastal and Marine National Park, including for transport and the development of gateway centres.
4.3 Location
On the basis of the criteria proposed by their response to the previous section, consultees were then invited to identify the most suitable region to designate a Coastal and Marine National Park. As outlined in the consultation paper and in the previous sections, local support and engagement will be central in determining the practical success of any Coastal and Marine National Park.
Figure 4.4. Preferred location for Scotland's first Coastal and Marine National Park? Percentage of respondents showing a degree of support for designation of each candidate region. Note: where respondents indicated support for more than one location, all these are represented above.
The largest proportion of respondents indicated support for designating the Argyll Islands and Coast and the Ardnamurchan, Small Isles and South Skye Coast candidate regions, either in combination (21%) or in isolation (19% and 12%), and the proposed Solway and Orkney regions (both 9%; see Figure 4.4). This shows a convergence of opinion, given an expectation value of less than 8% for random selection between the 10 candidate areas and three other categories. Taking into account the priority accorded each region, employing the techniques set out in Section 3.2, the pattern of views of individual respondents (see Figure 4.5) were consistent with overall responses (see Figure 4.4). Responses from organisations also considered the combination candidate region the most appropriate for designation, this was closely followed by support for the Solway, Argyll Islands and Coast and Shetland candidate regions (see Figure 4.5). These findings show divergence between the weighted opinion of individuals and organisations, particularly regarding support for the Orkney and the Ardnamurchan, Small Isles and South Skye Coast candidate regions, and hence the need to distinguish between the views of these two distinct respondent classes.
Differentiating these views by respondent location shows general support for local designation. Support was greatest in the Orkney, Solway, South Uist and Barra and Shetland candidate regions (see Figures 4.6 and E.3). The exception to this is the overwhelming support of those residents located in or near the Firth of Clyde candidate region, including Glasgow, for designation of the Argyll Islands and coast or combination candidate region. This is also the consensus view of those respondents either located outwith candidate region boundaries or with a national or international remit.
Distinguishing opinion by organisation type highlights general support for the recommendations of the consultation paper amongst conservation, tourism, cultural heritage and recreation groups. Fishing and agriculture interests, local authorities, community councils and other businesses showed greater reservation for support.
4.4 Alternative proposals, boundary issues and evidence
Where substantive responses were given, the majority of respondents justified their selection in terms of the general principles flowing from their responses to the previous sections. To that end, several respondents recommended extending the boundaries of candidate regions to include:
- all of Scotland's coastline; and
- specific coastal communities and designated areas.
Respondents recognised that, in delimiting the boundaries for a Coastal and Marine National Park, no simple rule can be adopted for all cases. However, it was noted that the criteria by which these boundaries are to be defined should first take account of the principal criteria of conservation and sustainable development outlined in Sections 4.1 and 4.2.
The number of respondents that offered a clear position regarding the specific issue of Park boundaries was low, perhaps reflecting the more technical nature of this issue, its absence from the short questionnaire and the scope for further consultation on this issue. Of these, 59% expressed support for setting the seaward limit at 12nm, and 52% recommended the inclusion of nearby coastal communities within the landward boundary (see Figures 4.7 and 4.8).
This is consistent with the views of those who advocated that the added value of designation, particularly in terms of simplifying regulation and driving sustainable development, emerges most strongly when the Park Authority boundaries incorporate the coastal communities themselves.
Figure 4.5. Preferred location for Scotland's first Coastal and Marine National Park. Relative degree of agreement for where a Coastal and Marine National Park should be sited, by candidate region, for: (A) individuals; (B) organisations. Note: weighted according to respondents' preferences. As amended 6 March 2007.
Figure 4.6. Local support for each potential location for a Coastal and Marine National Park. Weighted distribution of relative degree of agreement for each candidate area by respondent location. Note: weighted according to respondents' preferences.
Respondents considered that Park boundaries should also take account of the:
- administrative complexity resulting from the presence of local and port authorities, balanced by consideration of the need for a minimum area to best derive the benefits of designation;
- use of the area under consideration, including existing designations and the economic dependence of the local community;
- potentially conflicting cross-boundary and hinterland issues; and
- results of similar experiences of drawing boundaries for both terrestrial National Parks and those in the marine environment located abroad, noting the mobile nature of marine habitats.
Subordinate to the above, respondents then expressed a preference that boundaries be fine-tuned along natural limits, taking into account the direct influence of the marine environment.
Several respondents also considered that:
- the Marine Bill offers an opportunity to improve the law surrounding marine boundaries, with which the Coastal and Marine National Park would have to fit; and
- implementation of Integrated Coastal Zone Management in Europe is at odds with drawing a tide-line boundary.
Figure 4.7. Where should the landward boundaries of a Coastal and Marine National Park lie? Percentage opinion of the 51 respondents who gave specific comments on the extent of a possible landward boundary, by land-based features to be included.
Figure 4.8. Where should the seaward boundaries of a Coastal and Marine National Park lie? Percentage opinion of the 42 respondents who gave specific comments on the extent of a possible seaward boundary, in nautical miles (nm).