The Scottish Government

NPPG12 - SKIING DEVELOPMENTS

Introduction

1. Downhill skiing has developed as an important and popular sport and recreational activity in Scotland. It is also important both for the tourist industry and the rural economy. The expansion of the sport has caused some difficulties principally because the areas with most potential for skiing are in many cases valued for their natural heritage. The purpose of this guideline, which replaces the National Planning Guideline published in 1984, is therefore to provide the context for the further development of skiing in Scotland in a manner which fully acknowledges the quality of Scotland's natural environment and our obligations to conserve it for future generations.

2. The planning system has an important role through National Planning Policy Guidelines (NPPGs) and development plans in providing a framework within which decisions on skiing developments can be taken. This NPPG indicates the considerations which planning authorities should take into account when preparing development plan policies and when determining planning applications. It also defines the factors which the Secretary of State will have in mind when considering policies in development plans, and when considering applications for planning permission which come before him on call-in or appeal. These factors will also be of relevance to the ski and chairlift companies in considering their future investment options.

3. This NPPG does not address cross country skiing, which is not dependent on supporting infrastructure and development, and is therefore not subject to planning control, nor does it encompass ski mountaineering or use of artificial slopes. Issues relevant to other sports and recreational activities are covered in NPPG 11 ` Sport, Physical Recreation and Open Space`.

Policy Context

4. It is the Government`s policy to promote the development of sport and recreation in the widest sense, and to extend the opportunities for all sectors of the community to participate in a range of sports and physical recreation activities. The Scottish Sports Council has a key role in leading the development of sport and physical recreation in Scotland, with the aim of increasing participation and improving standards of performance. Skiing, which is one of the sports recognised by the Scottish Sports Council, has become a major sporting and recreational activity in Scotland.

5. Skiing developments are located on high ground in remote rural areas. Government policies for rural areas are based not only on sound stewardship of the natural and built heritage but also on the importance of creating the conditions for a healthy and growing rural economy. The Government is commited to sustaining vibrant local communities in rural and remote areas. It also recognises the importance of enterprise, quality in the built and natural environment, and in enabling better services to be delivered which affect rural life.

6. Skiing has an important role in bringing employment and other economic benefits to rural areas and, in so doing, provides a valuable contribution to the rural economy. These benefits are closely linked to the role skiing plays in supporting tourism in Scotland in general, and in extending the tourist season in particular. Tourism in Scotland should be developed in a manner which does not detract from the overall quality of Scotland's environment. In working towards sustainable development, the economic benefits of leisure developments must therefore have full regard to the conservation of the environment.

7. Satisfying the demand for recreation in the countryside and the economic development it brings, while preserving the benefits of a healthy and attractive environment, presents a major challenge. Further skiing developments therefore should be pursued with full regard to wider environmental considerations. In the 1984 Guideline, some areas with good potential for skiing - e.g. Beinn a'Bhuird, Braeriach, Ben Lawers - were excluded from consideration because of their high natural heritage importance. This policy remains unchanged. Given the sensitivity of the upland areas in Scotland, in terms of fragile soil cover and vegetation, as well as the international and national commitments to nature conservation, the Government recognises that future ski related developments must be reconciled with care for the environment in order to achieve sustainable development. Part of the overall approach includes the application of the precautionary principle. This is defined as taking action now to avoid possible environmental damage when the scientific evidence is inconclusive yet the potential damage could be great. Therefore, in the light of the precautionary principle this Guideline does not provide specifically for the development of the secondary areas, previously identified in the 1984 Guideline. However proposals outwith the area guidelines in this NPPG are not ruled out but would need to be considered in accordance with the general approach of the NPPG.

Background - Skiing In Scotland

8. Downhill skiing facilities have been developed relatively recently in Scotland by comparison with other European countries. While skiing increased in popularity during the 1920s and 30s, it was largely pursued by enthusiasts without the benefit of ski lifts. The establishment of ski centres at Glencoe (1960), Cairngorm (1960), Glenshee (1962), the Lecht (1977) and more recently Aonach Mor (1989) has provided the foundation for the present popularity of the sport in Scotland.

9. The ski centres are the outcome of a long process of initiatives and investment over the past 40 years by volunteers, individuals, government agencies, local authorities and the ski companies themselves. With over 70 chairlifts and tows now available, the 5 Scottish ski centres provide skiing for over 20,000 people in any one day, of which up to 6,500 can be accommodated at both Cairngorm and Glenshee, 4,500-5,000 at Aonach Mor, 2,500-3,000 at the Lecht, and 1,500 at Glencoe.

10. While there is evidence that the demand for downhill skiing may have peaked in some parts of Europe and North America, no such trend is as yet apparent in Scotland. Until 1984 demand grew by about 10% a year; in the following three seasons the number of skier days rose by a further 50% to 644,000. Although the number of skier days has varied greatly in subsequent winters in the light of snow conditions, when good skiing conditions occur, skier day numbers remain high. The vagaries of the weather, reflected in the number of skier days in the table below, make it difficult to make confident predictions of future demand.

Table: SKIER DAYS AT SCOTTISH SKI CENTRES

11. The demand for Scottish skiing comes principally from short-stay skiers such as day or weekend visitors although demand is more evenly spread through the week than in the past. The recent development at Aonach Mor, with its close proximity to the facilities of Fort William, together with recent improvements at other centres, has boosted the longer-stay and mid-week markets.

12. Skiing, in common with participation in other sport and recreation, has a valuable social and economic role. Although difficult to quantify, social benefits include healthy exercise, physical well-being, enjoyment and exhilaration. It provides a sporting activity available to all age groups, including families. This is reflected in the age profile of participants, not only in downhill skiing but also in Nordic skiing and snowboarding which have grown in popularity. The further development of existing ski centres has an important role in attracting new participants to the sport, and in encouraging increased participation by existing skiers. It is estimated that 15% of Scottish skiers do not ski regularly in Scotland. Providing for an increase in the demand for skiing could therefore extend the benefits amongst a larger number of participants. It will also ease congestion at peak periods and in turn contribute to safety on the slopes.

13. Recent snow cover studies indicate that the potential for establishing new ski areas exists in physical terms. However there are a number of difficulties associated with their development. These relate singly or in combination to poor accessibility, high infrastructure costs and to the vulnerability of the natural environment as well as obligations to safeguard it where it contains or displays special characteristics. In particular the UK Government along with other EU Member States has, through the European Community Directive on the Conservation of Wild Birds (Birds Directive) and the Directive on the Conservation of Natural Habitats and Wild Flora and Fauna (Habitats Directive), entered into obligations for the conservation of specified wildlife, birds and habitats. The national and international importance of the vegetation and habitats is reflected in a range of existing and proposed designations intended to secure their protection against development which could have a significant adverse effect. At a global level the possibility of climatic changes arising from greenhouse gases in the atmosphere is a wider environmental consideration to be borne in mind in the future development of skiing areas in Scotland.

14. In addition, the infrastructure and uplift facilities associated with skiing can have a strong visual impact on an open and undeveloped landscape. However, the total area of land used for skiing needs to be kept in perspective. It is unlikely to require more than a tiny proportion of the total upland area of Scotland. At present it is estimated to take up around less than 0.5 per cent of the area above 2000 feet.

15. These guidelines seek to reconcile these various competing policy objectives in a way which allows for development in a sustainable manner.

Guidelines For Skiing Developments

General Policy

16. In principle the planning system should provide for the growth of skiing in locations where it is not likely to lead to significant adverse effects. However, given the uncertainty over the effects of climate change and our increasing obligations under European legislation, the broad approach of these guidelines is to exercise caution in providing new opportunities for the expansion of skiing at new locations. Unlike the previous guideline, this National Planning Policy Guideline no longer maintains the distinction between primary and secondary areas. While the development of completely new areas which satisfy strict environmental tests and standards is not ruled out, the main priority and thrust of the guideline is to provide for the consolidation and improvement in the range and the quality of facilities at existing ski centres. This has the advantage of using mostly existing infrastructure; it exploits the existing close relationship to support facilities in nearby settlements; and because the principle of development is already well established, benefits from the visual and other impacts being, in the main, already known. Accordingly the priority is:-

• to provide for the further growth of skiing at existing centres through consolidating existing development and improving the range and quality of skiing; but also through some limited expansion at some of the centres, subject to any qualifying comments in the area guidelines; and
• to steer the expansion of ski development to areas which, with the application of appropriate policies, planning conditions and management arrangements, minimises conflict and makes development more acceptable. Likewise, associated off slope developments, such as hotels, should be steered to nearby villages and towns.

Development of Existing Centres

17. In providing for growth and expansion at existing ski centres, the location and detailed siting of further development will be dependent on a number of factors:-

• the duration of snow cover on suitable slopes, using snow fencing where appropriate;
• the nature conservation and landscape characteristics of the particular area;
• use by other interests, such as hillwalkers, mountaineers;
• capital and running costs;
• relationship to the way an area has already developed, including any access or safety considerations such as evacuation of slopes in extreme weather conditions;
• range and type of skiing provided.

18. Improvements to and intensification of the use of existing ski uplift facilities may in some circumstances have a contribution to make in meeting further growth in skiing, provided safety standards are not compromised and the environmental effects on, for example, vegetation or ground cover are environmentally sustainable. Intensification should only be contemplated where skier safety is not compromised. The renewal of on-slope facilities, such as catering, should also be provided for where they contribute both to improved quality of service and improved quality of the overall ski development.

19. Ideally a skiing centre should cater for skiers of all standards, from beginners to experts. In assessing proposals for extensions to current operations, or exceptionally for a new centre, the ability to satisfy the full range of requirements, or to complement existing facilities, will be a positive attribute. In general the concentration of skiing activity on a single, well-contained site will be preferable. However, there may be a case for a new development offering a more limited range of skiing if this makes good deficiencies at a nearby skiing centre. The views of the Scottish Sports Council on this matter and other ski proposals will be helpful. Local authorities are advised to consult the Scottish Sports Council on planning application proposals and on preparation of development plans.

Development of New Centres

20. While these guidelines favour a policy of consolidation at existing centres, they do not preclude the development of new sites. A study of snow cover - Terrain with Persistent Snow Cover For Downhill Skiing in Scotland - commissioned by a consortium of Government agencies, led by Scottish Natural Heritage, provides a possible starting point to the identification of areas or sites with potential, but a much wider range of factors will require to be taken into account, should any proposals come forward. These will include access, infrastructure requirements, scale of related services as well as environmental considerations. Any proposals for a new site should be assessed against the policy and general criteria set out in this NPPG.

Fostering the Rural Economy

21. As part of the wider commitment to rural areas referred to in paragraph 5, there is a need to maintain and wherever possible improve job opportunities. The establishment and growth of ski centres in Scotland has already brought significant employment and other economic benefits to the rural areas. It is estimated that skiing in Scotland in a good season can generate expenditure of over £20 million. Of this about one third is "on-slope" expenditure, with the remainder expended "off-slope" on accommodation, meals, petrol, clothing and gifts. It is estimated that over 1000 jobs, including part time and seasonal employment, are supported by the expenditure on skiing.

22. Off-slope expenditure has provided a strong stimulus to the provision of services in nearby towns and villages. A particularly valuable aspect of the industry is its winter focus which has proved beneficial in extending the tourist season in places such as Aviemore and Strathspey, Braemar, Blairgowrie, Tomintoul and Glenlivet, Strathdon, Glencoe and Fort William, making for greater continuity of employment and improved use of existing facilities. There are in addition spin off effects for training and in turn the quality of services provided. Skiing assists in enhancing their role as year round tourist destinations.

23. Local benefits can in part be influenced by the quality of skiing on offer. Research undertaken by the former Tayside Regional Council states that the extension of skiing facilities at Glenshee has led to an increase in both the numbers of skiers and the number of longer stay visitors in the Blairgowrie area, resulting in higher levels of visitor expenditure.

24. Further skiing developments therefore have the potential to increase visitor expenditure and bring economic benefits including new job opportunities to nearby communities. To maximise these benefits, skiing developments require a range of supporting off-slope facilities. In most cases they are unlikely to form part of a skiing development proposal itself but will usually be most beneficial where the basic infrastructure is in large measure already in place. The proximity to communities with a good range of social and commercial facilities is therefore a definite advantage and one that is likely to grow as visitors' expectations rise. New developments should be of a quality to match their fine natural surroundings. Accordingly, planning policies should:-

• provide for well designed associated off-slope tourist and recreational developments in nearby settlements and communities.

Conservation of Natural Heritage

25. Whilst seeking to promote opportunities for sport and recreation, care must be taken to protect and enhance the environment. Development plans and development control should, while taking account of the demand for and nature of skiing, also consider the ability of the land to sustain skiing in the longer term. The development of downhill skiing need not be incompatible with the protection of the natural heritage interest. Much will depend on the nature of the particular interest and its sensitivity to disturbance. Given the fragility of the environment and vegetation cover in the remote mountain areas where skiing takes place, particular care needs to be taken in respect of development layout and design, installation of infrastructure and in devising effective means for managing and controlling the overall development. Scottish Natural Heritage will provide, when necessary, advice on measures to protect the natural heritage.

26. In areas where nature conservation and landscape have international or national status, protection is achieved through a number of designations which seek to sustain the character and diversity of Scotland's countryside. Individual designations provide protection for different purposes. National Scenic Area is the national designation for natural beauty while Site of Special Scientific Interest (SSSI) is the national designation for nature conservation. SSSI`s are used as the basis for a number of other nature conservation designations, including many of the international designations discussed below. Proposals for skiing development will have differing potential effects depending on the purpose and status of the natural heritage designation.

International Designations

27. The European Community Birds and Habitats Directives place an obligation on Member States to designate Special Protection Areas (SPAs) and Special Areas of Conservation (SACs) to protect important, rare or endangered species or habitats. The international importance of Scotland's mountains has resulted in a number of areas being proposed for designation as SPAs or SACs and several of these are in or near the principal skiing areas. These will form part of the network of protected areas across the European Union known collectively as Natura 2000. Scottish Natural Heritage has provided advice on the most suitable areas and wide consultation is undertaken before sites are classified or designated. SPA classification and SAC classification or designation do not impose a general prohibition on development in or affecting these sites, but great care must be exercised in making planning decisions. Accordingly, development proposals must be thoroughly examined for the potential impact on the conservation interest.

28. Having taken advice from Scottish Natural Heritage, it is considered that some expansion or improvement of skiing developments at the existing skiing centres need not be incompatible with maintaining the integrity of the relevant Natura 2000 sites. Detailed guidance on the steps required in the consideration of development proposals affecting Natura 2000 sites is contained in Scottish Office Environment Department Circular No. 6/1995. In summary, if a proposal has a potentially negative effect on the interests for which a Natura 2000 site has been designated then an appropriate assessment is required. If this assessment indicates that a development proposal would have a significant adverse effect in relation to the conservation objectives of the Natura 2000 site, permission should only be granted if there are no alternative solutions and there are imperative reasons of overriding public interest. Accordingly:-

• any proposals for ski development which are likely to have a significant impact in relation to the conservation objectives for which a Natura 2000 site has been designated must therefore be considered in accordance with the terms of the European Directives.

National Designations

29. Within other areas of landscape and nature conservation interest, designated as being of national importance, Government policy seeks to protect the environmental assets represented by the designation, wherever possible. The Government believes that particular care should be taken in assessing proposals located near or affecting natural heritage designations of national importance.

30. Environmental designations of national importance include National Scenic Areas (NSAs), National Nature Reserves (NNRs), Sites of Special Scientific Interest (SSSIs) not classed as SPAs or SACs, and prospective Natural Heritage Areas (NHAs). Accordingly within these areas:

• ski developments should only be permitted where:-
• it can be demonstrated that the proposal will not be incompatible with the purpose of the designated area; or
• with careful planning and control, the overall integrity of the designated area in terms of both its purpose and scale is largely unaffected, and can continue to meet its overall conservation objective; or
• exceptionally, any significant adverse effects on the environmental qualities for which the site has been designated are outweighed by the scale of the social, recreational and economic benefits that could arise.

Visual Impact

31. The Scottish climate is such that all downhill skiing developments are likely to be located above the tree line. This makes them conspicuous in the landscape, although their impact diminishes with distance. In order to minimise visual impact the design and siting of structures required to support downhill skiing need to be carefully considered. This applies not only to structures on the slopes themselves, such as tows and snow fences, but also to supporting infrastructure at lower levels, such as access roads, car parks and lift stations. Sensitive siting and high standards of design are desirable everywhere but will be of particular importance in nationally designated areas such as NSAs. Accordingly:-

• The visual impact of skiing infrastructure should be minimised. The construction of uplift facilities and snow fences in visually prominent locations, such as along ridge lines, should be avoided wherever possible. High standards of design are important.

32. In addition, given the sensitivity and importance of nature conservation interests and the scenic qualities of the areas in which skiing developments are located, proposals and planning conditions should provide for the eventual dismantling and removal of ski tows and equipment, and the restoration of disturbed ground, if skiing ceases.

Relationship to Other Developments and Interests

33. Downhill skiing is not the only recreational use of the high mountain areas, although it is more reliant on specialised infrastructure than most others, such as cross country skiing, ski mountaineering, climbing, hill-walking, bird watching and sightseeing. Even in areas which are particularly suitable for skiing, other interests should not be ignored and plans for skiing developments should recognise and accommodate them as far as possible. A diversity of recreational uses can benefit nearby communities and protect them against over-reliance on a single source of revenue.

Safety on Ski Slopes

34. Overcrowding of the ski slopes increases the risk of accidents. Consideration should be given to defining the carrying capacity of the ski area, and ski companies and planning authorities alike should take such steps to manage the area in order to prevent overcrowding. Where it is commercially feasible and environmentally acceptable, appropriate measures may involve extending the overall ski area, and increasing the number of ski tows and runs. Where this is not practicable it may be necessary to restrict the numbers on the slopes. Various techniques for achieving this objective are available to the operators. Improved information and better slope management will have an important part to play. But one instrument open to the planning authority is to ensure that the capacity of the car park in terms of visitor numbers takes into account the capacity of the slopes. To be fully effective this may need to be backed up by restrictions on roadside parking. A further option may be the use of advance traffic information systems to divert would-be skiers away from centres that are already full.

35. Safety on the slopes is an issue that the ski companies should address in their development and management plans, paying regard, for example, to the access requirements of the rescue services. The Scottish National Ski Council has published a Ski Safety Manual and the Association of Scottish Ski Areas has issued a Safety Policy document, both of which provide relevant guidance. Further advice on measures that can be taken to minimise accidents can be obtained from the Scottish Sports Council and the police.

Non Skiing Use

36. Some of the facilities provided to support downhill skiing, such as chair lifts and gondolas, can also be used to provide access to the high tops outwith the ski season. Sometimes, use of this kind will make an important contribution to the overall financial viability of the enterprise as well as benefiting the economy of the surrounding area through increased tourism. With appropriate safeguards, especially in terms of monitoring and management, it may be perfectly acceptable. It is vital to recognise, however, that in terms of environmental impact, such use may be at least as significant, if not greater, in terms of wear and tear of vegetation, as that caused by skiing. Disturbance to wildlife and the erosion of fragile habitats are just two of the problems that can arise. Possible ancillary attractions, such as plastic toboggan runs and grass skiing, could be equally inappropriate to the special character of particular mountain areas.

37. To avoid conflicts arising from non skiing use, developers should indicate when they first submit their planning applications the extent of any non skiing operations envisaged. Where such use is proposed, the possible environmental impacts should be analysed separately from those arising from skiing use and developers should set out the steps that they intend taking to eliminate or mitigate them.

38. The appropriateness of non skiing use will vary in the light of local circumstances. In some cases, such use will not be acceptable; in others, it may have to be constrained in some way, for example through the imposition and enforcement of conditions. There can be no presumption that non skiing use of uplift facilities will be acceptable, nor that other facilities, which are contrary to planning policy, will always be approved because they capitalise upon the skiing infrastructure and thus improve the viability of the operation. The developer and the planning authority should, rather, consider whether there are alternative, less damaging options for complementary development, either on or off the site, for example, below the tree line. The public's continued acceptance of skiing developments in environmentally sensitive locations may well be susceptible to the quality of environment and its continued protection from inappropriate development. Accordingly:-

• the presence of an existing ski development should not carry with it an automatic presumption in favour of non skiing use of uplift facilities, unless such use can be accommodated and managed without significant environmental damage. It will be subject to similar tests and evaluation to those applying to skiing development.

Environmental Assessment

39. The structures associated with downhill skiing currently fall within Schedule 2 of the Environmental Assessment (Scotland) Regulations 1988 which implement EC Directive No 85/337 on environmental assessment. The planning authority accordingly has to decide whether a formal environmental statement is required. The key test is whether the development in question is likely to have significant effects on the environment by reason of its nature, size or location. Detailed guidance on the requirements of the 1988 Regulations is given in SDD Circular No 13/1988. A new EA Directive (97/11/EC), to be implemented by 14 March,1999, introduces a new `Tourism and Leisure` category into Annex II of the original Directive. This new category includes ` ski-runs, ski-lifts and cable cars and associated developments` which will result in a wider range of skiing - related developments being subject to EA requirements.

40. Environmental assessment is a valuable tool in appraising the acceptability of particular development proposals. It can provide the information needed to adapt a scheme successfully to its setting, so that permission can be granted where it would otherwise have had to be refused. Schedule 3 of the 1988 Regulations specifies the information which must be contained in an environmental statement, together with further optional information which may be included.

41. Where the proposal is for the development of a completely new site or a major extension to an existing one, a single comprehensive environmental assessment, prepared at the outset, is likely to be the best and most efficient way of gathering the necessary data. If at all possible, it should be sufficiently detailed and robust to provide a basis for assessing any proposals for consolidating development (e.g. additional tows) that may come forward at a later date, thus avoiding the need to commission further major studies. However, it will be for the planning authority to determine whether or not a further assessment is required in accordance with the 1988 Regulations.

42. In other circumstances, the scope of the environmental information required in support of each new development proposal will have to be judged by the planning authority in discussion with the developer. Small scale developments within the existing ski area may not require a formal environmental assessment. A concise statement of the expected environmental impacts and of any measures proposed to mitigate them may suffice. If, however, the additions to the development are significant in terms of their likely effects on the environment of the area, then full environmental assessment is likely to be required.

Monitoring and Management

43. The fragility of the environment in terms of thin soil cover, severe climate with high winds and low temperatures and a short growing season raises issues unique to skiing development. The impacts of skiing activities should therefore be monitored carefully and a management regime should be established to ensure a high standard of stewardship.

44. Scottish ski centres began on a small scale developed by skiers for skiers and at the early stages relied heavily on voluntary help. Planning and design were not always given the priority they required. Some construction was insensitive to the impact on the vegetation; visitor pressure was not managed effectively and there was an absence of a long term development strategy. This approach resulted in conflict and opposition in many cases to each extension and the incremental growth of each centre.

45. A more positive and professional approach to planning and management has in recent years been adopted and schemes for the regular monitoring by outside consultants of vegetation damage and other changes have been introduced by the ski companies. Consultation between the ski companies and other relevant organisations such as Scottish Natural Heritage is now an important element of monitoring and management. Both forward planning and day-to-day management are now on a firmer and more professional footing, and this approach should be integral to the further expansion of ski facilities at both established ski centres and any new centres. Accordingly:-

• the regular monitoring of environmental impacts should be regarded as a key element in the ski companies' activities and comprehensive management regimes should be established to ensure that any damage is kept to a minimum and remedial action takes place where this is needed. Planning conditions, or where appropriate, planning agreements should make provision for monitoring and ensure that a satisfactory regime is in place in relation to new centres or the expansion of existing centres. This principle should also apply to non skiing use.

46. This approach sets a pattern which should be followed in the future. The key to it is the adoption by developers of ski area development and management plans to guide their future operations. Their ski area development plan should accompany the initial planning application and set out the company's longer term intentions, thus providing the basis for assessing both the proposal itself and the possible need for related public sector investment. It should describe in broad terms the management regime proposed for the site. The detailed management plan should elaborate on these initial proposals for managing the site and set out the arrangements for monitoring the effectiveness of the management regime in safeguarding environmental quality. One key component will be provisions for identifying vegetation damaged by a season's skiing and for applying the remedial measures needed to reinstate it. The design quality of new and replacement developments will be an added consideration.

Area Guidelines

47. The previous Guideline published in 1984 identified primary and secondary areas for skiing development. The former had already seen some development, whilst at the latter it remained only a prospect, subject to a detailed assessment of physical conditions, environmental constraints and costs, and viability. Since the Guideline was drawn up, Aonach Mor, which was listed as a secondary area, has become established as one of the five Scottish ski areas, together with Cairngorm, Glenshee, Glencoe and the Lecht. As these guidelines focus primarily on the consolidation of existing centres, secondary areas are no longer identified. Any proposals that come forward for sites outwith the established ski areas should therefore be assessed against the policy guidance elsewhere in this NPPG.

48. Natura 2000 considerations apply to Cairngorm, Glenshee and Aonach Mor. Therefore the requirement to consider the implications as set out in paragraph 28 should be applied. The more general policy elements of this Guideline apply to all existing ski areas. In addition there are area specific issues discussed below.

Cairngorm

49. Cairngorm is established as one of the principal Scottish skiing centres, providing at least 200,000 skier days in a good season, about one third of the Scottish total. It caters to a significant degree for longer stay holidays as well as day visitors. The area leased to the skiing company covers 844 hectares, all within the Cairngorm National Scenic Area. There are 25 different ski runs served by 4 chairlifts and 13 tows, providing uplift for a total of 5-6,000 skiers. Aviemore and other communities in Badenoch and Strathspey are popular tourist destinations, and due partly to skiing, the area has a longer tourist season than most other parts of the Highlands. The Government is satisfied that downhill skiing is an appropriate land use in the Cairngorms provided it is managed in a manner which is compatible with wider environmental considerations. The Cairngorms Partnership is in the process of preparing a Management Strategy for the whole of the Cairngorms. Accordingly, in addition to the general policy considerations set out earlier in this Guideline, future skiing development should be determined by reference to the following policy guidelines:-

• the primary aim within the established skiing areas of Coire Cas and Coire na Ciste should be to maintain and, where appropriate, improve the range and quality of skiing. This could include the relocation of existing lifts and tows and the establishment of new uplift facilities and snow fencing, all having full regard to environmental factors. The siting and design of new facilities should reflect the nature conservation and landscape character of the area .
• limited expansion, or extensions, of ski development in Coire Laogh Mor and Marquis Well are in principle consistent with this guideline subject to meeting detailed conservation and environmental requirements .
• for nature conservation, scenic and safety reasons, development which extends skiing into the mountain core is not likely to be appropriate.
• in view of the national and international importance of the natural heritage interests in the Northern Corries to the west of the Fiacall Ridge of Coire Cas, the establishment of mechanised uplift facilities and the erection of additional snow fencing are not likely to be appropriate.

50. Such further developments at Cairngorm are likely to increase its capacity only modestly, to about 7,000 skiers.

Glenshee

51. Glenshee is a major skiing centre catering mainly for day and short stay visitors. Current slope capacity is estimated to be in excess of 6,000 skiers, serviced by 23 tows and 2 chairlifts for 38 runs within an area of 790 hectares which extends to both sides of the A93. The extension of skiing into the Glas Maol area has improved significantly the range and quality of skiing available, thus enhancing the attractiveness of the area for long stay visitors and increasing the economic benefit for nearby communities. Blairgowrie, Glenshee, Braemar and Deeside are popular tourist destinations which have been able to extend their tourist season partly due to skiing.

52 . The most recent expansion at Glas Maol lies within Sites of Special Scientific Interest, although monitoring has indicated that the existing skiing development has had no significant adverse effect on the nature conservation interests of the area. The Government has consulted, through Scottish Natural Heritage, on proposals to classify or designate land in and near the skiing areas as Natura 2000 sites. Any proposals for skiing development which are likely to have a significant impact on these areas must be considered in accordance with the European Directives and the associated Regulations. Accordingly, in addition to the general policy considerations set out earlier in this Guideline the following policy guideline will apply:

• the primary aim at Glenshee should be to maintain and enhance the overall range and quality of skiing through renewal or relocation of existing lifts and tows , but also, where appropriate, through the addition of new facilities both within and adjacent to the existing ski area.
• further development must take full account of the natural heritage interests in the area and meet detailed conservation and environmental requirements.
• new and relocated ski tows, together with the associated ski runs, should be sensitive to the importance of the nature conservation interest in the area and the most fragile areas should be safeguarded by routing skiers away from them.

53. It is anticipated that further developments could possibly increase slope capacity to about 8-9000 skiers.

Aonach Mor (Nevis Range)

54. Following a detailed evaluation and rigorous assessment of development proposals, a major new ski centre opened in 1989/90 at Aonach Mor, near Fort William. Access to the area is by gondola; the slopes themselves were served by 8 tows and 2 chairlifts providing slope capacity of about 3,000 skiers in the first 2 phases. A third phase became operational in winter 1995/96 increasing capacity to about 4,500-5,000 skiers. The development has been secured through both private and public sector investment; the public sector has also funded an improved access road. In addition to meeting demand for skiing, the major factor in the decision to provide this level of public support was the potential economic, employment and tourist benefits to the Fort William area. A possible further phase to the development (Phase IV ) has been suggested.

55. The site of the development lies partly within the Ben Nevis SSSI, which is significant both for its vegetation and geology. It also lies within the Ben Nevis and Glencoe National Scenic Area. At the time it was approved, the then Nature Conservancy Council and the Countryside Commission for Scotland were satisfied that the detailed proposals for the construction and management of the ski facilities adequately safeguarded environmental interests. A large part of the SSSI is currently under consideration for designation as a Natura 2000 site.

56. Development beyond the initial and recent phases at Aonach Mor would carry with it a number of advantages:-

• it would build on current investment where the feasibility of development is now proven;
• it would improve the mix and variety of skiing available;
• it would contribute further to satisfying the increased demand for skiing, increasing the total capacity in the longer term to about 8-9000 skiers;
• it would help to minimise the overall impact of further skiing development by concentrating development at an existing centre;
• it would further enhance the benefits to the local economy, which has the capacity to absorb a substantially larger number of visitors.

Accordingly, in addition to the general policy considerations set out earlier in this Guideline, the following policy guidelines should apply at Aonach Mor:

• while there is a presumption in favour of further skiing and an improvement to existing facilities within the existing ski area any development proposal there will require careful consideration.
• any proposed extension of skiing beyond the existing ski area would be subject to an assessment against environmental criteria set out elsewhere in the NPPG .

57. Further development of ski facilities may require a second gondola from the car park or an alternative environmentally acceptable means of access.

Lecht

58. There has been steady growth and expansion at the Lecht since its initial development in 1977 arising from its location adjacent to the A939 Cockbridge-Tomintoul road and its ability to cater for the growth in the beginners and intermediate stages of skiing, supplementing skiing at Glenshee and Cairngorm. There are now 10 tows of which 3 have been constructed since 1984. A recent tow has been financed in part by the Scottish Sports Council and as well as catering for the general public, it is intended to facilitate ski racing training. The capacity of the slopes is estimated at about 2,500 skiers and cover an area of 210 hectares.

59. There is only limited scope for expansion within the existing ski area, and further development may only be possible in parts of the adjoining Ladder Hills SSSI (4,378hectares) if it can be demonstrated that such development would not adversely affect important examples of moss and lichen rich heather.

60. Subject to further detailed examination, possible scope for expansion may lie to the west of the present area, but there remains a need to reconcile skiing with the nature conservation interest within the area and to minimise potential damage to those interests.

61. There should be no further ski developments in the leased area to the east of the A939. Accordingly in addition to the general policy considerations set out earlier in this Guideline,

• there should be a presumption in favour of continued growth and expansion of ski facilities at the Lecht, both within the existing area and an area to the west, having regard to the considerations outlined in paragraph 30.

62. Further developments could increase slope capacity to about 3,500-4,000 skiers.

Glencoe

63. Glencoe provides additional skiing capacity, primarily for the day market. There has been recent investment including replacement of the access chairlift. There are two chairlifts and five tows serving 15 main runs, with a capacity for 1500 skiers. Plans for further development would cater for the longer stay market and increase uplift capacity. While there are no nature conservation issues of national importance in relation to development, its location within the Ben Nevis and Glencoe National Scenic Area raises important landscape considerations. Topographical features as well as safety factors limit the scope for significant expansion. Accordingly, in addition to the general policy considerations set out earlier in this Guideline,

• there should be a presumption in favour of limited expansion avoiding skyline development, as well as improvements to the existing facilities and support services on the ski slopes.

Other Areas

64. The previous guidelines identified other areas as offering potential for skiing. Some were categorised as secondary areas and included Drumochter, Ben Wyvis and A'Chailleach where at that time there was a general presumption in favour of development subject to constraints identified in the guidelines. While planning permissions for ski developments have been given, with the exception of Aonach Mor, there has been no development on the ground. There are no extant unimplemented planning permissions although an application has been made at Ben Wyvis.

65. As explained in paragraph 47 above, the earlier category of secondary skiing areas including the presumption in favour of development has been abandoned. Therefore, all proposals for skiing development outwith the five established centres at Cairngorm, Glenshee, Aonach Mor, the Lecht and Glencoe should be considered against the general criteria specified in this guideline.

Action Required

66. Development plans, particularly for the structure plan areas of Highland, Aberdeen and Aberdeenshire, Moray, and Perthshire and Kinross should provide the planning context for additional skiing developments, consistent with these Guidelines. They should:

• include policies which provide for the further development of existing ski centres, in accord with the Area Guidelines;
• set out the criteria against which new ski developments will be considered;
• provide for associated off-slope development in nearby settlements.

67. Where planning authorities consider that the policies and proposals for skiing developments need detailed application to specific sites, local plans should be reviewed. Where appropriate, local plans should:

• reflect the policies of the Guideline and structure plan in order to provide a framework for development control;
• indicate the sites to be developed or improved, having regard to visual and other likely environmental impacts;
• provide for the monitoring and management of slopes in order to minimise damage to thin soil cover and fragile habitats.

Conclusion

68. The Guideline seeks to ensure that the future expansion and further development of skiing can be achieved in a sustainable manner. In doing so, additional skiing developments will extend the recreational benefits while at the same time providing invaluable support to the rural economy.

69. Full regard has, however, been given to environmental considerations, including those consistent with European obligations. By concentrating further development in established ski areas, the potential damage to Scotland`s natural heritage is contained. More particularly, careful consideration has been given to those areas of importance for their habitats and wildlife, including sites of international importance. Accordingly, the framework of the Guideline provides for developments over at least the next 5 years and the policy principles should remain applicable for considerably longer.

Notes

70. This Guideline supersedes the National Planning Guideline: Skiing Developments published in 1984.

71. Enquiries about the content of this Guideline should be addressed to Neil Fleming (0131 244 7532), Room 2-H81, Victoria Quay, Edinburgh EH6 6QQ. Further copies can be obtained from Anne Williams (0131 244 7538).

References

1. Review of the Potential Effects of Climate Change in the United Kingdom, United Kingdom Climate Change Impacts Review Group 1996, HMSO. 0-11-753290-8

2. Terrain with Persistent Snow Cover for Downhill Skiing in Scotland 1992. Unpublished report. Available on request from Scottish Natural Heritage.

3. Circular 6/1995 Nature Conservation : Implementation in Scotland of EC Directives on the Conservation of Natural Habitats and of Wild Flora and Fauna and the Conservation of Wild Birds The Habitats and Birds Directives - Scottish Office Environment Department.

4. Circular 13/1988 - Environmental Assessment: Implementation of the EC Directive Scottish Development Department.