7. STAGE 4: ENVIRONMENTAL EFFECTS OF THE PROPOSED NATIONAL PLANNING FRAMEWORK
7.1 The Proposed National Planning Framework ( NPF) has now been finalised, taking into account the findings and consultee views that emerged during Stages 1 to 3 of the SEA process.
7.2 The changes between the Discussion Draft and the Proposed NPF were the focus of the final stage of the SEA. These changes were made in response to the views of consultees on the Discussion Draft NPF, including those expressed specifically in relation to the SEA. The SEA shadowed the redrafting process, and each key change was considered to establish whether its environmental effects would be positive or negative. The likely environmental implications of the changes were fed back into the drafting process.
Key findings
7.3 The Proposed NPF is a succinct document. Much of the background information, cross referencing and justification for the strategy provided in the Discussion Draft have been removed or summarised in the interests of clarity and brevity. Some parts of the NPF have been updated to reflect more recent policy developments. It is not considered that this process of streamlining and updating has substantially reduced the environmental benefits of the NPF, or resulted in any significant adverse environmental effects.
7.4 Many of the other changes are relatively detailed, potentially resulting in minor environmental effects. The following changes are expected to provide further positive, but largely minor, environmental effects:
- Reworking of the section on climate change, which considers its implications for transport, energy, waste, biodiversity and new technologies.
- Encouragement of city region spatial planning to achieve a shift to sustainable transport modes over the next 20 years (paragraph 54). Further references to cycling and walking opportunities are included later in the document.
- Inclusion of a statement that development plans should seek to achieve a net enhancement of landscape quality and biodiversity (paragraph 54).
- Note that cultural, social and recreational facilities have a crucial role to play in maintaining community identity and morale (paragraph 65).
- A new paragraph on air quality with priority given to addressing problems in AQMAs (paragraph 82).
- A new paragraph on strategic noise mapping and the preparation of noise action plans (paragraph 83).
- Additional text under the heading 'Vacant and Derelict Land,' (paragraphs 88 to 90) which explains the implications for environments and communities, updating progress on reclamation and emphasising the opportunities for improvement.
- Changes to 'Scotland's Landscapes' section to cover 'Landscape and Cultural Heritage,' with broader references to encapsulate the cultural heritage value of landscapes (paragraphs 96 to 99).
- New text at paragraph 110 confirming support for sustainable transport links to and from ports.
- New text at paragraph 120 supporting improvements to the West Coast Main Rail line to allow for increased freight movements by rail.
- Reworking of energy section to emphasise rationale for reducing greenhouse gas emissions, and the aspiration for Scotland to be a leading location for renewable energy technology and export (paragraphs 143 to 163).
- New guidance on biomass at paragraph 145 "Biomass plants should be sited where they can make best use of locally available resources and will not encourage inappropriate planting."
- Further text explaining that higher building standards and improved insulation can substantially reduce heating requirement, and reference to consultation on a Renewable Heat Action Plan (paragraph 161).
- New text (179-181) under 'Communications Technology' noting the importance of broadband access and continuing investment by the Scottish Government.
7.5 In addition, the SEA has examined some of the more substantial policy revisions that have been built into the Proposed NPF, to ensure that the potential for negative effects has been minimised as far as possible. The following key changes and effects have been considered in more detail:
- The Proposed Framework includes new references to major transport improvements, specifically referring to demand responsive transport, park and ride facilities, and reflecting the findings of the STPR. Whilst each of these developments could have mixed environmental effects, these have been explored and mitigated as far as possible within the STPR process, and will be considered further as they are taken forward in local implementation. The Stage 3 analysis of candidate National Developments has also made the potential environmental effects of many of the more major transport projects explicit.
- Under 'Energy,' new text has been added to emphasise the importance of some areas for offshore wind energy developments, and the north and west coasts for tidal power. The Proposed NPF explains the need for further consideration of environmental sensitivities in selecting sites for this type of development. This is expected to provide positive effects overall, with more specific issues arising from sector specific plans and proposals, as opposed to the NPF. Further environmental assessment will be undertaken at a more detailed stage in the planning process.
- Under Baseload Power Stations, a new paragraph (152) has been added to the Proposed Framework, explaining that the Scottish Government does not support new nuclear power stations, and favours timely decommissioning and environmental remediation of redundant facilities. It notes the role of planning and SEPA in delivering this. This approach, which simply summarises the Government's policy for this sector and highlights the role of planning in supporting the process, is not in itself expected to generate any significant effects.
- The 'Energy' section has also been revised to provide an updated reference to supplementary planning guidance on the location of wind farms and UK guidance on wind farm developments and radar (paragraph 149). Paragraph 156 also includes new text explaining that grid improvements should be targeted at areas which planning authorities identify as preferable for renewable energy development, and in paragraph 159 a commitment is made to a programme of landscape maintenance and enhancement to mitigate the effects of grid reinforcement. This additional text is expected to provide a clearer spatial approach to renewable energy development, which would generate environmental benefits into the long term.
- Under Waste Management, the Proposed Framework notes that development of necessary infrastructure is a Government priority. The Proposed Framework includes a new paragraph (166 ) explaining the central role of the planning system in timely delivery of new installations required to meet targets and noting that nationally important installations may be included in the third NPF. Again, no direct or significant environmental effects are expected from this approach.
- New text has been added under 'Flooding and Water Resource Management,' stating that flooding has implications for coastal defence and cultural heritage (paragraph 176). The Proposed NPF also now notes in paragraph 177 that flood management can be linked with greenspace and ecological networks. Overall, environmental benefits are expected from this approach.
7.6 The changes to the suite of National Developments formed a particular focus at this stage of the assessment. The Proposed Framework takes forward the 9 developments identified in the Discussion Draft. It also includes four additional National Developments and two further airport enhancements. The effects of these developments was assessed and consulted on at Stage 3 of the SEA, and the findings of the assessment and further consultee views on in light of this environmental information have been taken into account. In summary, the developments, and their predicted environmental effects, are as follows:
Additional National Development | Summary of Effects |
|---|
Improved rail connectivity in the West of Scotland | This project is not expected to result in any significant adverse environmental effects, but may have significant positive effects by providing sustainable infrastructure to serve long-term patterns of settlement development and encouraging use of sustainable transport options. This is likely to contribute to a reduction in CO 2 emissions in the long term, thereby helping to deliver climate change mitigation. Consultee views on the environmental effects of this development were positive, as a result of its potential to contribute to the aim of achieving a shift to use of more sustainable modes of transport. |
Additional airport enhancements (Aberdeen and Prestwick) added to Glasgow and Edinburgh airport enhancements | Whilst negative effects in terms of greenhouse gas emissions could be expected from any increase in passenger levels arising from these enhancements, it is noted that the contribution of the Proposed NPF to this is likely to be limited, as it focuses on improving surface access, particularly by public transport. Consultees from within the aviation industry also identified measures which have been developed to reduce emissions from the sector as far as possible. Positive effects on quality of life may arise from improved economic opportunities and connectivity, but some communities may also experience negative impacts as a result of nuisance effects such as noise. It is currently expected that local air quality issues should be manageable without generating significant adverse effects. Further environmental assessment and scheme-level mitigation will be required to avoid or reduce negative effects from the developments at the local level, focusing on issues including impacts on soil, water, cultural heritage and landscape. |
New port on Loch Ryan | No significant adverse environmental effects are currently expected from this development. Consultee views on the environmental effects of this development were generally positive, including support for the associated land based transport improvements as a result of their potentially positive environmental effects. Although shipping generates greenhouse gas emissions, the improved facilities should reduce the length of the crossing and may help to promote the route as a sustainable alternative to more polluting options, specifically short-haul flights. The sensitivity of the local area to the development on the basis of the condition and value of its biodiversity, water, cultural heritage and landscape will require further consideration and mitigation at the project level. |
New power station and transhipment hub at Hunterston | Significant concerns were raised by SEA consultees about possible emissions arising from the proposed power plant but evidence was also provided by consultees suggesting that the proposed CCS technology was more reliable than had originally been suggested. Whilst accepting that controls of emissions from this type of plant already exist, the health and atmospheric effects of the clean coal element of this development remain unclear given the lack of a detailed project specification at this stage. Further exploration and mitigation at the project level and the application of the appropriate consenting regimes will therefore be required. As noted by consultees, the development could have significant adverse effects on a nationally protected and regionally important biodiversity site. The project masterplan and its associated environmental assessment will therefore require to explore the scope for mitigating effects on habitats and bird species in detail. The likely need for additional electricity grid connections was noted by consultees. This will require further consideration and environmental assessment as appropriate. |
New non-nuclear baseload capacity at other existing power station sites | This National Development involves new baseload electricity generating capacity and associated infrastructure at a number of existing power station sites to be delivered over the long term as current facilities reach the end of their programmed operating lives. As with the proposals for Hunterston, several consultees expressed concerns about the potential effects of these developments, partly due to the lack of detail on their specification, and due to the unproven nature of the carbon capture and storage technology which would play a fundamental role in limiting emissions. Other consultees, however, provided additional information on existing controls of emissions from this type of plant which they felt would limit the potential for negative environmental effects. Whilst accepting that controls of emissions from this type of plant already exist, the health and atmospheric effects of the clean coal element of this development remain unclear given the lack of a detailed project specification at this stage. Whilst clean coal technology combined with carbon sequestration has the potential to provide a more sustainable option than the existing coal fired power stations, actual benefits will depend on further technological development and in particular the effective deployment of carbon sequestration measures. However, it should also be recognised that new baseload generating capacity in this form could contribute positively to the aim of diversifying energy supplies. As confirmed by consultees, there is potential for these developments to result in significant adverse effects on biodiversity, given their scale and likely construction and operational requirements, and their potential proximity to protected biodiversity sites. However, it is also acknowledged there is evidence of possible benefits through effective mitigation and compensatory measures, and that these examples could be used to inform project level planning, to minimise and mitigate any adverse effects. The developments may also have direct but more minor negative effects on water, soils, cultural heritage and landscape. Further environmental effects and issues, including waste generation and management were raised by consultees responding to Stage 3 of the SEA. Secondary effects may arise from the sourcing and transportation of coal and other minerals used in the operation of such facilities and arrangements for ash management. All of these effects will require further consideration at the project level. |
7.7 The Proposed NPF includes new text relating to the National Developments, stating that: "As projects of national importance, the Scottish Government will expect their design to be of a high quality. Given the Government's climate change targets, it will also be important to ensure that they are designed to minimise their carbon impact, with mitigation measures employed to counteract any negative impacts on emissions." Positive effects are envisaged from this addition.