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Circular 9/1999 Indicative Forestry Strategies

INDICATIVE FORESTRY STRATEGIES

Introduction

1. This Circular replaces and updates SDD Circular 13/1990, in the light of the changes that have occurred since then in the circumstances of the forestry industry and in the context within which further woodland expansion should now be seen. It provides an overview of the purpose and coverage of Indicative Forestry Strategies (IFSs) in practice (paragraphs 2-11), and it explains the role of IFSs in relation to planning authorities' Structure Plans (paragraphs 12-15). The Circular provides advice for local authorities on the preparation and content of IFSs (paragraphs 16-21), explains the key issues and opportunities for woodland expansion (paragraphs 22-23), and describes a number of detailed aspects that need to be addressed (paragraph 24). Lastly, it offers revised definitions for the 'preferred', 'potential' and 'sensitive' land categories used in Circular 13/1990 (paragraphs 25-27), and emphasises the importance of maintaining the background data and monitoring the operation of IFSs (paragraphs 28-29).

Changing Circumstances and Context for Forestry

2. Circular 13/1990 introduced Indicative Forestry Strategies at a time of controversy over the large scale planting of commercial forests. IFSs were designed to reduce conflict by steering further planting to less sensitive areas. Circumstances have changed radically since then and IFSs can be adapted to play a positive role in guiding and influencing future planting and felling. This Circular reflects the multi-benefit nature and the positive roles which forestry can have in rural and peri-urban areas. It underlines the importance of having sustainable policies for forestry that embrace environmental, social and economic objectives; this is the core of the Government's approach.

3. The Government intend to produce shortly a paper designed to set out the issues to be covered in a future Scottish Forestry Strategy, for consideration by the Scottish Parliament. This will complement similar work undertaken recently in England, and should become an important point of reference in association with Indicative Forestry Strategies.

4. The Government are committed to sustainable forest management and "The UK Forestry Standard" sets out how this is being achieved in a UK context. In addition, the Government issued in August 1998 their report "Towards a Development Strategy for Rural Scotland" which emphasised the benefits of having an integrated approach while allowing for the diversity of rural Scotland. It also highlighted the advantages of partnership working, including community involvement. The revision of IFSs should be undertaken applying these principles.

5. Forestry is a significant economic activity throughout Scotland: currently it is estimated that forestry occupies around 1,250,000 ha, some 16.0% of the land surface. Wood production is worth more than £100 million annually to the Scottish economy before processing, and supports almost 11,000 full-time equivalent jobs in forestry, haulage and wood processing. Thus forestry plays an important role in rural development, a role which is likely to expand.

6. Within the last 10 years there has been a major expansion of wood processing in Scotland. Several new plants have opened, including a papermill at Irvine, and an oriented strand board factory near Inverness. There has been very significant investment in the sawmilling sector. The result is that Scotland now possesses several world class wood processing plants.

7. Following international commitments undertaken in Rio in 1992 and Helsinki in 1993, the UK responded in 1994 by publishing "Sustainable Forestry - The UK Programme". This was linked to several separate but related documents, notably the report "Biodiversity: The UK Action Plan" which set out practical measures for safeguarding and enhancing the environment. Forestry has a vital role to play in furthering biodiversity objectives because of the major contribution it makes in providing a wide variety of habitats. As a result, forestry features prominently, both directly and indirectly, in many Species and Habitat Action Plans and local Biodiversity Action Plans.

8. The Government want local authorities to have a role in influencing the future of forestry in their areas by articulating democratically expressed local views about this major land use. Consequently, the Circular gives a prominent role to planning authorities by having IFSs included in their Structure Plans. The principle of partnership is fundamental in view of the wide range of interests affected by forestry proposals.

Indicative Forestry Strategies in Practice

9. IFSs provide a focus for local authority responses to consultations on grant scheme proposals and inform those developing proposals for forestry of possible sensitivities when considering options for planting. These will remain main purposes in having an IFS. Almost all the former regional planning authorities in Scotland produced IFSs and included them in their Structure Plans, which remain valid until they are superseded by new plans prepared by the present planning authorities. This has been an impressive task in gathering, analysing and presenting information and policy. The intention is to build on this established framework.

10. Much has happened in recent years to change the extent, location and character of new woodlands as well as perceptions about forestry expansion. Following the withdrawal of income tax relief for forestry in 1988, the introduction of the Woodland Grant Scheme (WGS) and the Farm Woodland Premium Scheme (FWPS) has resulted in a more responsive and flexible range of grants targeted at achieving a broad spread of objectives. The results of this have included a marked increase in broad-leaved woodland cover - particularly of native species - and the targeting of well-designed productive forestry "down the hill".

11. It is expected that substantial areas of land will continue, in future years, to be planted with trees and, as existing plantations reach maturity, more felling and harvesting will occur. There remains considerable support for the view, which the Government share, that there is much in existing IFSs that can be adapted for use by the present local authorities. A vast amount of useful information has already been gathered and, with some revision and upgrading, it can be made to form the base for the preparation of an agreed policy framework for the future of forestry in these areas. There is however a fundamental difference in emphasis between what has appeared to date in IFSs and what is expected in the future. There is more scope now for presenting an attractive vision of how forestry can contribute to the environment and economy of an area, rather than concentrating on those parts which are sensitive or which might be under threat from future planting. Protection and safeguarding will always have their place, of course, but the emphasis should be more on how the benefits which forestry can bring, such as increasing biodiversity, enhancing landscape and providing more opportunities for outdoor recreation, could best be attained on the ground. In the longer term, these can be delivered through both planting of new woodlands and restructuring of existing ones.

Role of IFSs in Structure Plans

12. The Government believe that the element of democratic local accountability which IFSs provide is valuable and so also is the status they have been accorded by being included in Structure Plans for Government approval. This approval will mean that an IFS should be an important reference source across a range of forestry decisions including grant applications, targeting and priorities for special financial support, and environmental impact assessment.

13. Many of the present planning authorities differ significantly in geographical area from the former regions. Under the new arrangements, there are 32 planning authorities, in 17 Structure Plan areas. Some authorities will be preparing joint Structure Plans which will require their own form of working partnerships. The timely production of plans and decisions on planning applications are seen as essential in improving planning authorities' performance and fostering more development and employment. The content of future Structure Plans is expected to be more concise and to concentrate on key strategic issues. Plans will need to be prepared, submitted and approved more quickly. The preparation of an IFS has to be viewed in this wider context.

14. The principal elements of an IFS should be prepared with a view to inclusion in a Structure Plan. This will normally consist of a concise strategic policy statement, with reasoned justification, and an IFS diagram. The IFS diagram should be self-standing and ancillary to the key diagram of the Structure Plan. Ideally IFSs should form part of new or replacement Structure Plans but they can be prepared independently and submitted as a specific alteration to the plan. Approval by the Government is important. It gives the IFS the appropriate status and authority.

15. The depth of coverage and degree of sophistication in approach depends on the character of the area. A simplified treatment should be possible in most areas of an essentially urban nature. More detail will clearly be appropriate in predominantly rural areas, where forestry is a more significant feature. However, it is not anticipated that any IFS should be a bulky document. The principles which IFSs should concentrate on can be handled and presented succinctly. Careful wording of general policies should allow for effective application to many local circumstances.

Preparation and Content of an IFS

16. Once it is decided to prepare an IFS, it should be progressed as an integral part of the structure planning process, with a coherent set of policies in tune with and cross-referenced to other parts of the structure plan where appropriate. It should be able to convey and reflect local circumstances in an interesting and informative way, recognising that the issues raised by, and policies for, forestry will be different between urban or 'commuter' areas and the more open countryside in the 'intermediate' or 'remote' areas. (See National Planning Policy Guideline 15, Rural Development, for a description of types of rural areas.)

17. An IFS should draw on the Government's aims for forestry as set out in key documents such as the UK Forestry Standard, and state how these aims should be translated into local policies and objectives. It should provide a brief overview of the existing forestry resource in the area and give a commentary on the main current issues, and those likely to arise in future. The local authorities should then state what their preferred outcome would be as regards the future extent and character of woodland. This will include both new planting and the opportunities which will arise from restructuring of existing forests.

18. The primary interest of a planning authority in producing an IFS should be to influence the nature of future forestry activities in its area through a clear articulation of its own views on the range of economic, social and environmental benefits which forestry could help to deliver over the next ten years or so and of the factors which should be taken into consideration when future proposals are being considered. It may also present a vision of the longer term future for forestry in the area. The subject matter is complex and much of the factual background and expertise lie elsewhere, notably with the Forestry Commission, Scottish Natural Heritage (SNH), Scottish Office Agriculture, Environment and Fisheries Department (SOAEFD), Scottish Environment Protection Agency (SEPA), Historic Scotland, the Deer Commission for Scotland, the Crofters Commission and the Scottish Agricultural College. These organisations should be able to contribute significantly to the IFS through their technical knowledge, background information, and contacts within the forestry sector and elsewhere. Other non-statutory organisations will be able to contribute on particular interests including the timber industry, land-owning and farming representatives and the voluntary environmental sector,

19. As part of the Structure Plan, an IFS will be the planning authority's policy for forestry in its area. However, it is likely to carry more weight and influence if it represents, as far as possible, a widespread consensus amongst interested parties. This is why a partnership approach should be adopted and developed as far as possible. Ultimately, the role of the planning authority is to assess and synthesise inputs from all relevant interests, including representations from local people, farmers, landowners and interest groups. Then, on the basis of its own democratically set priorities, it has to decide what policies it wants to put forward in the IFS for consideration, approval and, if necessary, modification by the Government. Because of the partnership approach, it will be particularly important to register in the Report of Consultation the degree of accord reached amongst the partners.

20. The IFS process may also identify the need for detailed studies or consideration in some particular localities known to be especially sensitive, where there is widespread concern among local people, or where the issues are complex. One approach which is being explored currently in 2 pilot areas is the preparation of what are being termed Local Forestry Frameworks.

21. Small area studies of this type are proving to be resource-intensive for both the planning authorities and their partners. They should be embarked upon only if clearly necessary, and many local authorities will find they are not needed. Initial experience suggests that this approach may be helpful in resolving conflict and reaching consensus in areas where special difficulties are present or anticipated. Public consultation should be a key feature of Local Forestry Framework preparation.

Key I ssues and Opportunities for Woodland Expansion

22. Further planting and restructuring of existing forests should be seen as presenting opportunities for improving the environment and economy of many areas. Although the previous Circular advocated a positive approach, considerable emphasis was placed on mapping constraints on forestry development rather than opportunities. Given the sensitivities present in certain places it will still be appropriate to decide that little or no forestry expansion, or only very special types of planting, should take place there. In other places, IFSs will have a role to play in resolving competing land use demands. But the overall emphasis should be more on recognising possible benefits that further woodland planting can be expected to provide and in identifying where new woodlands might best be accommodated and what benefits they should deliver.

23. Among the themes which are likely to need to be considered in preparing an IFS, the following are the most important:

23.1 The contribution which further woodland expansion or restructuring of existing forests can make towards the creation of high -quality woodlands serving a variety of purposes: these will include timber production, development of rural communities, opportunities for recreation, landscape enhancement, habitat creation and the restoration of derelict or degraded land. It should often be possible to identify different areas which are preferred for different types of new planting.

23.2 Identification of priority areas where woodland expansion might be targeted: the IFS would explain why these areas are a priority and describe the benefits which could be obtained by encouraging increased planting there. This could be useful background in informing the range of future incentives that might be made available. In this context, IFSs are relevant to urban fringe areas and land lying between settlements.

23.3 The balance of forestry against other land uses across the area: this balance will reflect current tree cover and the presumption that most of the existing woodland areas will remain under trees. The current and expected demand for land for uses other than forestry will be a key factor. Difficult judgements about the desirability of trying to maintain rural communities and preserving or enhancing the employment structure of the area will be required. The likely future contribution of local forestry employment, both direct and indirect, will need to be assessed in relation to competing land uses. In some situations, the retention of key areas in agriculture will be essential to provide a stable local community and prevent depopulation. Natural heritage opportunities should be borne in mind and they will be a priority in some areas.

23.4 The limits of acceptable change in areas sensitive to further planting: this is part of the wider issue of balance between land uses, and is a recognition that, in some particular localities, the scale of afforestation may already have reached the limit of acceptability and that no further expansion should be contemplated.

23.5 The extent to which opportunities provided by felling might be used to restructure existing plantations: for the planning authority, the emphasis should be on providing a strategic view about the desired range of benefits.

Addressing Particular Detailed Aspects

24. The following paragraphs highlight some of the likely topics requiring more detailed attention in most IFSs. The subjects are considered briefly both in terms of opportunities and sensitivities. IFSs are important reference sources for many interests and the background material will remain relevant and useful for some years. Paragraph 14 above emphasised, however, that only part of an IFS should be included in a Structure Plan. Like other issues, it should be dealt with concisely and only address the strategic policy aspects. Useful supplementary material may be referred to but not for approval as part of the plan.

24.1 Land quality: this is an important factor in assessing opportunities for forestry expansion. Authoritative information on land capability for both forestry and agriculture is available from the Macaulay Land Use Research Institute (MLURI). (A table showing the forestry land class areas for the new local authorities is included at Annex A, and a map indicating their distribution throughout Scotland at Annex B. Larger scale maps are available from MLURI.) Area staff from the Forestry Commission and SOAEFD will be able to help planning authorities in integrating and applying this information in an IFS.

24.2 Use of agricultural land: in general, and where feasible and reasonable, the Government want to see more of a mosaic of rural land uses, with forestry playing a prominent but sensitive role. Indeed, the Farm Woodland Premium Scheme is designed specifically to encourage the development of new woodlands in a farming context. However, prime agricultural land is a scarce and valuable national asset and, apart from relatively small-scale woodland planting, including shelter belts and riparian planting, the general policy is to retain it in agricultural production. Even at the other end of the quality scale, there are some areas of good hill land which need to be retained for agricultural use. In these localities, it is also particularly important to avoid afforestation of better quality inbye land which may be essential for maintaining hill farming enterprises or for maintaining fragile local agricultural communities. Information about Specially Identified Hill Areas is shown on maps prepared by SOAEFD and available for viewing in SOAEFD Area Offices and Sub-Offices.

24.3 Natural heritage and countryside: paragraph 54 of the National Planning Policy Guideline on the Natural Heritage (NPPG 14) sets the policy context and, amongst other things, it refers to how IFSs should seek to safeguard and enhance landscape character and protect areas of natural heritage value. Planning authorities should work closely with SNH in preparing an IFS. The effects of land use changes on the natural heritage are of major interest to SNH. Its contribution will be of value on recreation and public access issues as well as landscape and biodiversity. There will be many areas where further woodland expansion will be of benefit for habitat creation or landscape enhancement. There will be other places, however, where the existing habitat or landscape should remain as it is and only specialised, restricted planting, if any, will be acceptable. Any forestry proposals which may affect Natura 2000 sites (Special Areas of Conservation and Special Protection Areas) must be assessed very carefully under procedures set out in SOAEFD Circular 6/1995 covering the Natural Habitats Regulations. The work SNH has undertaken across Scotland on Landscape Character Assessment should be of great value in preparing an IFS. In addition, both national and local Biodiversity Action Plans will be important as well as initiatives arising from implementation of Article 10 of the Habitats Directive for conservation of species and habitats of European importance in the wider countryside.

24.4 Land within or close to towns: consulting the organisations already mentioned should help planning authorities to formulate those aspects of an IFS which cover the improvement of urban or semi-urban environments, including policies for the enhancement of green belts, assistance for community woodlands and the restoration of degraded landscapes and derelict land. There may be circumstances, particularly in Central Scotland, where a number of planning authorities possibly could combine to agree the principles and priorities for IFSs in that area and then apply these to their individual structure plans. This is referred to in paragraph 54 of NPPG 14, with reference to the Central Scotland Forest. The Central Scotland Countryside Trust is playing a useful facilitating role in providing an overview for this extensive and administratively complex area, and considerable progress has been made in setting out a strategic vision.

24.5 Cultural heritage, archaeology and designed landscapes: these should also be considered in preparing an IFS. Information about known archaeological sites can be obtained from the National Monuments Record of Scotland and from local authority Sites and Monuments Records. Historic Scotland and the Local Authority Archaeology Service can offer advice on management and protection. These bodies maintain databases of settlements, cropmark archaeology, and designed landscapes. All of this material is or will be publicly available. Forestry operations should avoid damage to the archaeological interest (NPPG 5 and PAN 42 are relevant), but it is important to remember also that carefully sited and designed woodlands can assist the appreciation of monuments in their surrounding landscape.

24.6 Water catchment areas, river systems, lochs and water quality: much has already been done to increase the attention given to the effects of forestry expansion on water quality and quantity, and on fisheries and riverine biodiversity more generally. The Forestry Commission's environmental guidelines have played an important role in raising the profile of these issues and introducing good practices. Over the last 5 years, a form of river basin management has been developing in parts of Scotland, through partnership between organisations representing a range of interests including Water Authorities. Local authority planning departments have used IFSs as one of the mechanisms by which improvements in catchments can be promoted, recognising the significant beneficial effects, as well as possible adverse ones, which woodlands can have on water quality. SEPA will be a major partner in Scotland for planning authorities in preparing IFSs. As a means of addressing land use issues, River Basin Planning will become increasingly important if the proposed European Water Framework Directive is adopted. It may come into effect within three years.

24.7 Timber transportation and local infrastructure: where there are proposals to fell existing woodlands which involve extensive or prolonged programmes of extraction, then infrastructure issues can arise concerning the use of local roads and bridges. Where appropriate, consideration could usefully be given to the potential for using sea or rail transport, instead of the roads, for timber transportation. Where significant structure plan issues are involved, then an IFS should address them.

24.8 Restructuring of existing woodlands: it is Government policy that existing woodland areas remain as woodland, through re-establishment following felling. However, there currently exist considerable areas of plantations which fall short of the environmental standards now expected under the "The UK Forestry Standard". Accordingly, restructuring will form an essential part of the process of forest improvement. Although the scope for substantial short-term structural change can sometimes be limited, IFSs are able to present a long-term vision of the range of benefits forestry could deliver in these areas. In setting out this prospect, it is expected that the Forestry Commission will be a principal partner.

Land Categories

25. Circular 13/1990 recommended that land across the Structure Plan area should be divided into preferred, potential and sensitive categories, and this is still considered to be a valid approach in presenting and summarising an IFS. However, some adjustments have been made to definitions of the categories.

26. The nature of forestry expansion will vary significantly from place to place. For example, well designed productive forests may be appropriate in a range of circumstances but will generally be favoured in areas where some of the vegetation has already been modified by previous land management. The potential for new and native woodlands will be greatest in areas with existing woodland remnants or where ground vegetation is characteristic of woodland. The more sensitive the classification the more issues need to be addressed and there is a greater likelihood, depending on the scale of the proposal, that the Forestry Commission will ask for an Environmental Assessment. An appropriate assessment under the Habitats Regulations may be required for proposals likely to have a significant effect on Natura 2000 sites.

27. The allocation of land into categories will necessarily be a "coarse grain" process and, within any of the categories, it is possible that there will be smaller areas which, with more detailed examination and a larger scale map, could have been allocated to another category. Nevertheless, the following sub-division may be useful:

27.1 Preferred: land which offers the greatest scope to pursue a very wide range of forestry objectives where it should be possible to accommodate sensitivities in well designed proposals which fully meet the Forestry Commission's guidelines. The nature of forestry in any particular area should reflect the type of benefits that are sought there.

27.2 Potential: land where there is considerable potential to pursue a range of forestry objectives but where there is at least one significant sensitivity. The extent to which certain objectives can be pursued will depend on how well these can be accommodated within the proposals. The design of schemes in such areas requires particularly careful consideration.

27.3 Sensitive: these will tend to be areas where there is a combination of factors, including areas of exceptional natural and cultural heritage interest and areas with high structural value to the local agricultural economy. This will mean that there may be limited scope for forestry expansion unless it is of a scale and character which can be accommodated and would enhance the features of interest.

Monitoring

28. An important aspect of the IFS procedure, and in the identification of the different land categories, is the process of collecting, storing, retrieving and monitoring the background data. The existing IFSs are a major resource and much of the information collected for them will still be relevant to local authorities. In its Annual Report for Scotland, the Forestry Commission will provide information on forestry expansion at national and Conservancy level. More detailed information will be available to individual planning authorities to assist them in reviewing the effectiveness of their IFSs in operation.

29. IFSs are part of a dynamic process and will need to be capable of adjustment to changed circumstances and priorities as they arise. An extensive and up-to-date database is a key element both in formulating and reviewing an IFS and in commenting competently on planting and felling proposals as they arise.

Conclusion

30. The Government believe that IFSs have played an important part in ensuring that the right types of trees are planted in the right places. Further development of IFSs, along the lines recommended in this Circular, should help to ensure their continued usefulness for local authorities as part of the structure planning process. As well as comprising the framework for local authorities' own responses to consultations on forestry, IFSs should also be helpful in informing those developing woodland proposals about locations where woodland expansion is most likely to be acceptable, and about the preferred forms which such expansion might take. The Government expect that local authorities will now proceed with revision of their IFSs and, where appropriate, incorporate suitably modified strategic policy statements and IFS diagrams in their Structure Plans, in accordance with the guidance in this Circular.

Further Copies and Enquiries

31. Enquiries about the forestry/woodland content of this Circular should be addressed to Miss Sharon Reid, Scottish Office Agriculture, Environment and Fisheries Department, Land Use Division, Room 133, Pentland House, 47 Robb's Loan, Edinburgh EH14 1TY (Tel: 0131-244 6204). Enquiries about the planning content of the Circular should be addressed to Graeme Purves, Scottish Office Development Department, 2-H, Victoria Quay, Edinburgh EH6 6QQ (Tel: 0131-244-7533).

Further copies and a list of current planning circulars may be obtained from David Love, Scottish Office Development Department, Planning Division, 2-H, Victoria Quay, Edinburgh EH6 6QQ (Tel: 0131-244-7066).

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