EXECUTIVE SUMMARY
WSP Development and Transportation was commissioned to undertake a review of the implementation of aspects of SPP17 Planning for Transport and its daughter documents by the Scottish Government in March 2007. This report details the findings of that research, including the conclusions from the consultation exercise undertaken with stakeholders.
SPP17's principal message is to promote the integration of land use and transport. There are a number of sub-objectives and policy statements contained within SPP17 to strengthen integration between land use and transport planning. The brief set for this commission set four broad areas of investigation, including establishment of an on-going monitoring framework for SPP17, understanding the extent to which planning authorities have adopted SPP17 principles in the development plan and the development management processes and understanding the extent to which developers comply with planning conditions intended to implement SPP17 (and the extent to which planning authorities monitor and enforce such conditions).
A consultation led approach was taken to this commission in order to draw out key stakeholders' views on the key issues affecting implementation of SPP17. The research highlighted many areas of agreement as well as some differences between the various stakeholder groups as to their perceptions of SPP17. In particular it was noted that:
- Overall, most stakeholders were positive about the document itself. It is generally perceived to tackle some vital issues in an appropriate manner; however
- The general consensus was less positive regarding successful implementation.
It is considered that the research, consultation and analysis undertaken as part of this commission demonstrate clear support for the principles and policies within SPP17. The importance of this message has, it was felt by many stakeholders, been further re-enforced by the growing profile of climate change and other environmental concerns and also the increasing awareness of the health agenda.
Recommendation - Local authority organisations, Regional Transport Partnerships, Transport Scotland and the Scottish Government continue to promote the principles of SPP17 through profile raising and highlighting the links and synergies between the land-use/transport and health, environmental and social policy agendas.
One aspect highlighted within the research has been that structures within government do not efficiently support the implementation of SPP17 due to limited communication between levels of government or between divisions within the same organisations.
Recommendation - Organisations involved in the implementation of SPP17 (Regional Transport Partnerships and local authority organisations) review their structures with a view to putting in place a structure that fully supports implementation of the policies and principles within SPP17, whilst making efficient use of staff skills and resources.
The outcome of the consultation exercises shows a clear feeling that there are many of the skills required to deliver and support the implementation of SPP17 across the transport and planning sectors, however, there is a need to share best practice, promote consistency of appraisal and to promote an integrated view of land-use planning and transportation.
Recommendation - Scottish Society of Directors of Planning and Society of Chief Officers of Transportation in Scotland form a working party to consider issues associated with implementation of SPP17. In particular to identify and disseminate good practice and to identify areas requiring further research.
Such a working group would be well placed to also advise on issues related to integrating land-use and transportation planning and to draw on the emerging experience of bodies such as the Regional Transport Partnerships. Where appropriate, input could also be sought from umbrella organisations representing developer groups, e.g. Homes for Scotland and the British Council of Shopping Centres.
There is a clear need for additional guidance and training on the interpretation, appraisal and promotion of the policies within SPP17. There was a feeling within those stakeholders providing input to this research that there are different levels of training required for those involved in promoting SPP17, e.g. politicians, officers, consultants operators and interest groups.
Recommendation - Delivery organisations such as local authorities, Transport Scotland and the Scottish Government coordinate and facilitate (possibly through groups such as the Scottish Society of Directors of Planning, the Society of Chief Officers of Transportation in Scotland and the Planning and Transport Integration Group) appropriate training and the development of additional guidance in relation to the following key areas to promote awareness of and good practice at all levels to support the implementation of SPP17:
- Guide to roles and responsibilities - both authorities and developers;
- Guidance on the appropriate level of appraisal and modelling of transportation proposals at the various stages of the development process;
- Enable best use of available techniques, tools and measures in furthering integration between transport and land use planning;
- Clear and consistent approach to the application of parking standards, which nevertheless recognises differences in city, large town, small town and rural areas;
- Further guidance on the principles, basis and approach to agreeing developer contributions;
- Guidance on the mechanisms for developing, providing and supporting rail and bus infrastructure and services; and
- Guidance on accessibility analysis.
Linked to the above, this research suggests that there is a need to provide information more widely on the applicability and availability of specific tools ( e.g. processes such as STAG and models such as the Transport Model for Scotland, various regional/area based transport models and existing accessibility models).
Recommendation -Transport Scotland facilitate - through the STAG refresh and Transport Model for Scotland User Group - the collection and dissemination of appropriate information and guidance related to the key tools available to support transport analysis and the implementation of SPP17, including capturing the experience and knowledge of other relevant parties.
The general consensus emerging from the consultation was that much of the current local road layout design guidance does not fully reflect current thinking or good practice. There is a need therefore to develop a more innovative "toolkit" for design of new developments in line with the principles of PAN76 New Residential Streets. This would support more sustainable transport movements and promote implementation of SPP17 by demonstrating a commitment to a more sustainably focussed mode hierarchy, taking on board current good practice in terms of design and infrastructure provision. The adoption of the new Manual for Streets for England and Wales is seen as a possible model and a commission is now underway to take this forward.
Recommendation - Scottish Government and Transport Scotland take forward the adoption of the Manual for Streets in Scotland with local authorities being encouraged to adopt the emerging guidance.
There was much debate throughout this commission on the changes in policy and organisational structure since the publication of SPP17 in 2005. Whilst it does not affect the principles promoted through the document it is considered that an update of the document would be beneficial.
Recommendation - Scottish Government and Transport Scotland consider a review of SPP17 to reflect the change in the wider sustainability agenda and institutional set-up since its original publication.
Given the difficulties in gauging the extent to which developers comply with planning conditions intended to implement SPP17, and the extent to which planning authorities monitor and enforce such conditions - there is a need to ensure monitoring of conditions and obligations is undertaken.
Recommendation - Planning Authorities ensure that appropriate mechanisms are in place to monitor delivery of measures agreed in support of the implementation of SPP17 as part of planning permissions, including Travel Plan conditions.
A major part of this commission has been a questionnaire survey, the results of which provide a benchmark of the current position and understanding of the implementation of SPP17. Repetition of that survey, for example, every two years would allow monitoring of implementation of SPP17 against a robust base.
Recommendation - Scottish Government repeats the questionnaire element of this commission on an on-going basis and at regular intervals to provide information on the trends associated with implementation of SPP17.