The Scottish Government

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Ironside Farrar Ltd, Edinburgh.
ISBN 0 7559 2605 6

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Introduction

1. Scottish Ministers are committed to a review of planning guidance to establish a practical minimum standard or set of standards for open space provision in new development. The study into Minimum Standards for Open Space will inform the forthcoming review of National Planning Policy Guideline 11: Sport, Physical Recreation and Open Space ( NPPG11).

2. The absence of a nationally recognised and widely applied set of standards for open space has been debated for many years but no national standard has ever been established. The purpose of this study was to research recent policy, consult with relevant organisations and review options for the preparation of detailed guidelines for local authorities, developers, communities and others on minimum standards of provision of open space in new development, especially residential development. The methodology for the study was based on a staged approach, involving the following stages:

• UK and European policy literature review;
• a review of best practice;
• local authority & stakeholder questionnaire and interview consultations;
• current open space standards review;
• a two staged workshop consultation;
• development of a proposed open space standards framework;

Review

3. The review of open space standards applied in Scotland and the UK and elsewhere concluded that:

• the range and availability of research into open space standards is limited;
• the National Playing Fields Association 6 Acre Standard is widely used but with very little consistency;
• there is no recognised qualitative standard for open space;
• there is no common approach to the setting of standards;
• quantitative open space standards are commonly used but vary enormously across local authorities.

Consultation

4. The study involved extensive consultation with a wide range of organisations with specialist knowledge and applied expertise in open space across Scotland and the UK. The five main themes that emerged from the interview and telephone consultation are as follows:

• some consultees prefer local authority set standards, whilst others consider that national standards would provide a useful baseline;
• a strategic view to setting and enforcing standards by local authorities is required, creating a better balance between the role of local authorities in planning open spaces and the provision of open spaces by housing developers;
• quality, not just quantity is an essential consideration;
• long term maintenance, in terms of both management and funding, is key to the provision of high quality open spaces;
• there is concern about the availability of funding, both for initial open space provision and long term maintenance.

Workshops

5. The two-staged workshop involved delegates representing a range of organisations from the private and public sector. The workshops concluded that quantitative, qualitative and accessibility standards are all useful in advancing local open space provision. There was a consensus that the best approach to developing national minimum standards would involve building on the current advisory guidelines in Planning Advice Note ( PAN) 65. It was also felt that local authorities should set open space standards in accordance with a strengthened policy framework defined by the Scottish Executive.

Recommendations

6. The focus of the research was to set minimum open space standards through an open space standards policy framework. The research makes the following recommendations:

• minimum open space standards should be advanced through the publication of a new Scottish Planning Policy ( SPP) and future revision and updating of PAN 65;
• the new SPP should set a national vision for open space and establish national standards for new residential and commercial development. It should also place a requirement on local authorities to prepare open space strategies and to provide, manage and conserve open space assets within the context of these strategies. In addition, it should extend the presumption against the disposal and redevelopment of publicly owned open space;
• local authorities should prepare open space strategies and define locally relevant open space standards for both new and existing developments, in accordance with the national framework and in consultation with local communities;
• further guidance should be prepared on the setting of qualitative open space standards, planning gain mechanisms, action plans and environmental management;
• an open space challenge fund is proposed to drive forward delivery and improvements in open space planning. The introduction of a sequential approach would also allow flexibility in the delivery of open space in new developments.

A New Minimum Open Space Standard

8. The proposed national minimum open space standard would apply to new developments and is intended to provide a strengthened framework from which local authorities can develop their own standards. The minimum standard addresses only the quantity of open space provision and quality and accessibility standards must be addressed at the more appropriate local level. The following table sets out the national minimum open space standard for new development:

* Note: Indicative thresholds have been outlined for information only. The information illustrates a potential model that will require wider consultation. Areas refer to gross floor areas (gfa).

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