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| The research was commissioned by The Scottish Office to review the effectiveness of National Planning Policy Guidelines (NPPGs). In particular, the study examined formulation and review, the presentation, layout and structure of the documents, and the means by which the guidance is disseminated. The research included a review of the extent to which they are being reflected in development plans and development control decisions. |
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| Main Findings |
| Overall, the results of the review are positive, with widespread support for the principle of national planning policy guidance in Scotland. Positive findings include: |
- NPPGs provide relatively clear statements of Scottish Office priorities and policies;
- national planning policy guidance results in more consistent plan policies and development control decisions;
- the guidance is generally up-to-date, internally consistent and relatively comprehensive;
- NPPGs provide a stable reference point for the planning system, giving the public and developers a greater degree of certainty;
- the use of a standard layout and structure means that those familiar with the series can quickly find the information or guidance they require; and
- the guidance is relatively unequivocal and policy is sufficiently clearly stated to minimise problems caused by selective quotation.
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| Areas of concern include: |
- the need for a 'vision' for the NPPG series or the planning system in Scotland more broadly;
- the opaque nature of the process of NPPG formulation and review and the partial nature of consultation on the scope and content of the guidelines;
- the process of dissemination, particularly to people other than practising planners;
- the range of ways in which NPPGs are used during plan preparation and uncertainty about the balance between national policies and local discretion;
- the importance of raising elected members' awareness of the role and content of NPPGs; and
- the relationship of the series to the policies and actions of other local and central government organisations.
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| Aims and Objectives |
| The aim of the research project was to review the success, or otherwise, of the NPPG series under three principal headings: |
- NPPG formulation (presentation, comprehensiveness, clarity, ease of use, reflection of underlying principles, consultation and review processes, and the interrelationship with other elements of policy and guidance);
- dissemination and influence of NPPGs (Are they easily understood? Have problems arisen in their application? Has their application resulted in an undefined hierarchy of policy? Who uses NPPGs? Can the process of dissemination be improved? How far and how quickly have NPPGs been reflected and integrated in plan policies? Is there differential use of NPPGs, and if so why?);
- impact and effect on the ground (Do NPPGs have the intended effect 'on the ground'? What effect have NPPGs had on the process of plan preparation and what difficulties have arisen? To what extent have NPPGs influenced individual planning decisions? How useful are NPPGs in the decision-making process? Do they result in greater consistency, both geographically and at appeal?).
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| Study Methodology |
| The research comprised a number of key tasks including: |
- a literature review;
- a questionnaire survey of policy planners and development control staff in all planning authorities in Scotland,
- detailed discussions and plan reviews for a sample of 15 planning authorities; and
- a series of seminars with other organisations involved in the planning process.
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| Findings |
| There is widespread support for the concept of National Planning Policy Guidelines in Scotland. Most structure, local and development control planners, together with representatives of government agencies, professional institutes, private sector organisations and the non-governmental sector, consider that NPPGs are an improvement over their forerunners (NPGs). Few favoured a system without this kind of national guidance. |
| NPPGs make the priorities and policies of the Scottish Office relatively clear, result in more consistent plan policies and development control decisions, and help create an atmosphere of certainty within which the public, private and voluntary sectors can operate. The most significant concerns of frequent users were the lack of effective cross-referencing and indexing and the consequent difficulty of navigating around the series. Others, including elected members, community groups and the general public were much less well acquainted with the guidance which is sometimes considered to be dense and technical. |
| Most consultees agreed that the NPPG series has matured and that most gaps in coverage are of a relatively minor nature. The most commonly cited areas where additional guidance was sought were sustainable development and Green Belts. |
| Although reflection of NPPG policies has sometimes been partial in older development plans, the research found that the most recent plans, at both strategic and local level, show a much higher level of take up. NPPGs have influenced the structure and the range and depth of issues covered in plans. As a result, development plans are becoming more consistent across the country. |
| There was some uncertainty about the distinction between policy and more general guidance and advice and about the balance between national policy and local discretion. It was considered to be easier to follow those parts of guidance which establish a process than those which seek to determine outcomes. However, some consultees called for greater certainty where it is logical for 'standards' to be established across the country as a whole. |
| There was widespread concern that the greater consistency in development plan policies is not always reflected in committee decisions. This may reflect low levels of awareness of NPPGs among members, and the weight they accord to local considerations. |
| While most minor planning applications are considered against the development plan framework, larger or controversial schemes are often also judged against NPPGs. Committee reports make most extensive reference to NPPGs where the approved or adopted plan framework is dated, or where NPPGs support the policy position of the planning authority. |
| Although NPPGs are intended to have an audience that extends beyond planning authorities, their effectiveness could be increased by extending their influence more explicitly to other parts of government and the private sector. |
| One of the greatest areas of concern was the process of NPPG preparation and review. The relatively opaque nature of this process, and the lack of discussion and feedback, means 'ownership' of the guidance among planning authorities is lower than it might otherwise be. |
| National planning guidance comprises a number of stand-alone documents which do not provide an overarching vision of what the series, or indeed the planning system, is trying to achieve. There was some support for a national land use plan. |
| There was also concern about the ability of national guidance to reflect the range of circumstances across Scotland and some interest in the potential for more geographically specific guidance. There was qualified support for separate documents which could draw together and amplify national guidance at a regional level, forming a bridge between NPPGs and structure plans. |
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| Key Recommendations |
| The existing NPPG series should continue to provide the national policy framework for plan preparation and development control. |
| A revised NPPG1 should provide an introduction to the NPPG series, guiding its use in plan-making and development control and clarifying the status of national guidance, particularly where it post-dates approved or adopted plans. |
| There should be a greater emphasis on publicity and the training of elected members in order to raise and maintain awareness of the role, status and content of NPPGs. |
| National planning policy guidance should embrace more explicitly the actions of other government departments and agencies. |
| Consideration should be given to the preparation of a national 'vision' for planning in Scotland. |
| The time taken to produce NPPGs should be shortened. |
| The processes of NPPG preparation and review should be made more open and participatory. |
| The role and status of NPPGs and the balance between national guidance and local discretion require to be clarified. |
| Where possible, policy should emphasise process and approach, rather than attempt to determine outcomes. |
| It should become standard practice for planning authorities to justify decisions in the context of local plan, structure plan and NPPG policies. |
| Consideration should be given to the preparation of locational policy guidance for a small number of distinct parts of Scotland. |
| Indexes should be prepared for each NPPG and for the series as a whole. |
| There should be fuller cross-referencing within the NPPG series, and with key policy documents outwith the series. |
| Plain English summaries should be prepared for each NPPG and for the series as a whole. |
| NPPGs should continue to be available free of charge. |
| The NPPG series should be subject to a period of consolidation and internal review. Preparation of planning guidance on sustainable development should, however, be considered. |
| There should be fuller and more consistent reference to the international policy context. |
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| "Review of National Planning Policy Guidelines", the research report summarised in this Research Findings, is available priced £5.00. Cheques should be made payable to The Stationery Office and addressed to: |
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The Stationery Office Bookshop, 71 Lothian Road, Edinburgh EH3 9AZ
Telephone: 0131 228 4181, or Fax: 0131 622 7017 The report can also be ordered online from:www.thestationeryoffice.co.uk |
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| This Research Findings may be photocopied, or further copies obtained from: |
The Scottish Office Central Research Unit
2J
Victoria Quay
Edinburgh
EH6 6QQ |
| Telephone: 0131-244 7560 |