The Scottish Government

« Previous | Contents | Next »

Listen

CHAPTER ONE INTRODUCTION

Context

1.1 WSP Development and Transportation, in association with Andrew McCafferty Associates, was commissioned to undertake a review of the implementation of aspects of SPP17 Planning for Transport by the then Scottish Executive in March 2007. This report details the findings of the commission, including the conclusions from the extensive consultation exercise undertaken with stakeholders as well as a review of policy documents prepared since SPP17 was launched.

1.2 Good practice examples that have emerged during the commission are highlighted and conclusions and recommendations made on how the implementation of SPP17 could be further improved.

Introduction to SPP17

1.3 Scottish Planning Policy 17: Planning for Transport ( SPP17) was published by the Scottish Executive in August 2005. It was accompanied by a suite of documents providing technical advice and guidance to support the policies contained within SPP17:

• Planning Advice Note 75 Planning for Transport ( PAN75)
• Transport Assessment and Implementation: A Guide

1.4 These documents and also PAN 76 New Residential Streets were launched at 3 high profile seminars in Glasgow, Edinburgh and Aberdeen.

1.5 In order to undertake a review of the implementation of SPP17 in the period since its publication, it is first necessary to fully understand the context in which SPP17 was published, its intended function as a policy document, and the role of the supporting guidance documents with which it was released.

SPP17: Policy Context

1.6 SPP17 is essentially a land use planning policy, but initiates the linkage between land use policy and transport policy. Since its principal message is the integration of land use and transport, it is important to understand the local, regional and national context in both land use and transport policy terms.

Land Use Policy Context

1.7 At a national level, SPP17 itself is part of a series of national planning policy documents with a variety of themes which support the National Planning Framework for Scotland. This was first published in 2004 as a non-statutory planning policy document which identifies likely change to 2025 including key strategic infrastructure needs. The Framework is intended to help deliver developments of national importance. The second National Planning Framework will be considered by the Scottish Parliament and is scheduled for publication in 2008. This new Framework will be a statutory document and will cover the period up to 2030.

1.8 The Scottish Planning Policies ( SPPs) themselves support the National Planning Framework in setting out planning policy with regard to a wide range of specific issues. SPPs are gradually replacing National Planning Policy Guidelines ( NPPGs), and a number of NPPGs which have not yet been replaced by an SPP are still relevant.

1.9 The numbering system applied to SPPs is the same as that applied to NPPGs before them, and therefore when it was published SPP17 replaced NPPG 17. Publication of SPPs is ongoing, with the latest to be produced being SPP10 Planning for Waste Management, published in August 2007.

1.10 Scottish Planning Policies identify the key priorities for the planning system in Scotland. They provide statements of Scottish Government policy on nationally important land use and other planning matters, and are supported where appropriate by a local framework. SPP17 is the planning policy which relates the land use planning framework to the transport planning framework. In recognising the importance of integrated land use and transportation planning, it is aimed at ensuring an approach which is in line with wider sustainable development principles as outlined in the National Planning Framework and in SPP1: The Planning System, which underpins all Scottish planning policy. SPP1 supports the integration of land use and transport planning matters, in stating that:

"Sustainable transport considerations should not be an additional factor to be taken into account in preparing development plans or in making development control decisions; they should be an integral component. Local Transport Strategies and development plans must work to a common agenda." ( SPP1: The Planning System, paragraph 21)

1.11 As with many SPPs, SPP17 is supported by a number of guidance and advice documents aimed at aiding implementation of policy in practice. These documents provide advice on good practice and other relevant information to aid in implementation of SPP17.

1.12 At the local level, the implementation of the National Planning Framework is overseen by a network of development plans. The Development Plan structure is gradually moving from a two-tier system of an area-wide Structure Plan and a Local Plan to a single-tier system of Development Plans, as a result of the Planning etc (Scotland) Act 2006. For the city regions of Glasgow, Dundee, Aberdeen and Edinburgh, there will remain a two-tier system of strategic development plans and local development plans. For the rest of Scotland there will be coverage by single tier development plans.

1.13 In the meantime, as at mid-2007, the country is covered by a combination of structure and local plans. 17 Structure Plans cover the 32 Unitary Authorities which were created by local government re-organisation in 1996. Each of the 32 Councils then has its own Local Plans, and many have multiple plans covering various parts of their geographical area. Since local government re-organisation there has been a significant movement towards rationalisation of these plans, but progress is varied.

1.14 Overall, Scottish planning policy encourages sustainable development and seeks to promote regeneration, the use of previously developed land and to minimise greenfield development. Planning should support better access by foot, cycle and public transport as well as by car. Policies should aim to ensure that land use and transport are integrated and thereby reduce the number and length of journeys in both urban and rural areas. Allocation of land for development and selecting priority areas for regeneration should maximise the scope for access by foot, cycle and public transport. In this context, SPP17 represents the key link between land use and transportation policy.

1.15 The National Planning Framework for Scotland, and all SPPs, are available to down load from the Scottish Government website: www.scotland.gov.uk . Local, Structure and Development plans are generally available to download from the relevant local authority web sites.

Transport Policy Context

1.16 SPP17 is now complemented by the establishment of Scotland's National Transport Strategy ( NTS), published in December 2006. The NTS recognises the importance of SPP17 in integrating transport and land use planning, and supports its continued implementation. It states that in order to enhance the application of SPP17, it will:

• Encourage key stakeholders to work together;
• Monitor the effectiveness of SPP17 to ensure that it contributes to sustainable planning and transport outcomes; and
• Encourage local authorities to pursue sustainable transport commitments by private developers where they are not implemented in new developments.

1.17 At the regional level, Scotland now benefits from the establishment of statutory Regional Transport Partnerships ( RTPs), whose role it is to co-ordinate strategic transport planning. The partnerships have been responsible for preparing Regional Transport Strategies for each area of Scotland, each of which has been prepared with close reference to the relevant Structure Plans. All the Regional Transport Strategies have now been lodged with the Scottish Government.

1.18 At the local level, transport policy continues to be set by the Local Transport Strategies. These are prepared by individual local authorities, with reference to the relevant land use plans (Local Plans and Structure Plans) and neighbouring local authorities' Local Transport Strategies (most of the current LTS documents were prepared before the publication of the Regional Transport Strategies).

1.19 Scotland's National Transport Strategy is available online from the Scottish Government website at www.scotland.gov.uk/topics/transport/nts . Regional and Local Transport Strategies are all available online at the relevant RTP and local authority websites.

Key Themes of SPP17

1.20 The key focus of SPP17 is the integration of land use and transportation planning. As the first paragraph of the 'Summary' section of SPP17 states,

"Integration of land use and transport planning can play a positive role in supporting the Scottish Executive's transport delivery agenda."

1.21 Clearly, a great many sub-objectives and policy statements are contained within SPP17, intended as policy drivers for local and regional transport and land use planners. In this research we will focus on the principal drivers which SPP17 proposes in order to bring about greater integration between land use and transport planning. A summary is provided below:

• Integration of land use, economic development, environmental issues and transport planning:
  • New development located in accessible locations offering a range of means of transport;
  • Minimise impacts of development on existing transport networks;
  • Accessibility issues to be factored into the preparation of development plans, which should be prepared in the full knowledge of the existing transport network and any proposed or committed new transport projects;
  • Development proposals to support and build upon the capacity of the transport network; and
  • Reducing the need to travel.
• Introduction of parking standards:
  • Each local authority is expected to adopt a set of maximum parking standards for all common forms of new developments which must not be exceeded;
  • Some forms of development are subject to national parking maximum parking standards which are defined in SPP17. However, it is acceptable in these categories for local authorities to adopt more restrictive standards should this be appropriate;
  • Encouragement to adopt more stringent parking standards for locations with good levels of public transport access, and relaxation of standards in more rural areas with less good accessibility by sustainable modes;
  • For areas with strong development aspirations but which are car dependent, SPP17 advocates partnership working with developers to provide public transport solutions which enable maximum parking standards to be adopted;
  • Advocate Travel Plans to support/enable adoption of parking standards;
  • Residential development generally excluded from maximum parking standards except in areas of high accessibility by sustainable modes, where locally derived standards should be applied in conjunction with controlled parking zones;
  • Parking standards to be set at City Region level by Regional Transport Strategies and Structure Plans in the City regions, and by Local Transport Strategies outside the city regions;
  • Specific consideration of parking for disabled people, including published minimum standards; and
  • Cycle parking to be located more conveniently to building entrances than car parking. Authorities encouraged to set minimum standards based on local circumstances and informed by the indicative standards set out in 'Cycling by Design' (published by the Scottish Executive in 1999).
• Transport Assessment ( TA) Methodology:
  • TAs should focus on delivering an 'appropriate non-car mode share';
  • Councils to set mode share targets for different types of development in different areas;
  • TAs to be informed by Transport Assessment and Implementation: a Guide (published with SPP17).
• Transport Appraisal and modelling outcomes to be used to inform decision making:
  • Use of land use and transport modelling to identify issues and resolve them through iteration of land use and transport issues;
  • Adoption of Scottish Transport Appraisal Guidance ( STAG) appraisal for any applications requiring Scottish Executive funding or approval.
• Travel plans:
  • Travel plans to be specified through planning agreements to ensure implementation; and
  • Transport Assessment to include details of the Travel Plan at application stage.
• Public Transport:
  • New development should be accessible by public transport accessing a range of destinations, with Development Plans providing clear guidance on requirements;
  • Higher development densities at public transport nodes or on high frequency corridors;
  • Sites adjacent to stations as preferred location for development generating large numbers of trips;
  • Local authorities to consult with Network Rail etc regarding potential for re-opening lines or providing new stations to open up development opportunities; and
  • Support for public transport contributions as part of planning agreements.
• Other key mode-specific policies:
  • New developments should be accessible on foot: internal permeability and external connections;
  • Priority for pedestrians over other modes in areas where policy is to encourage access on foot (particularly town centres);
  • Cycling facilities to be enhanced by new development, both in terms of routes and other facilities, adding to a coherent network that focuses on access to employment centres, schools and other local facilities;
  • Assumption against new motorway or trunk road junctions; and
  • Introduction of a prioritised hierarchy of transport modes.

• Wider policy objectives:
  • Contribution to the attainment of greenhouse gas and local air quality commitments;
  • Maintain and enhance the built and natural environment;
  • Maintain and enhance the quality of urban life, particularly in urban centres;
  • Reinforce the rural economy;
  • Avoiding compromise of the safety and efficiency of the transport network by new developments; and
  • Reassessment of development proposals in unsustainable locations.

Supporting Documents

Planning Advice Note 75: Planning for Transport

1.22 PAN75 is the key advice and guidance document which accompanies SPP17. It stems from the recognition that the delivery of the then Scottish Executive Policy depends on action at the local level. It summarises its function thus:

"( PAN75) provides good practice guidance which planning authorities, developers and others should carry out in their policy development, proposal assessment and project delivery. The document aims to create greater awareness of how linkages between planning and transport can be managed. It highlights the roles of different bodies and professions in the process and points to other sources of information" ( PAN75: Planning for Transport, para 2)

1.23 The principal focus of PAN 75 is supporting SPP17 in achieving greater integration between land use and transport planning. The guidance given is divided in four sections as follows:

• Integrating Transport: this section sets out the policy context for both land use and transport planners, identifies key stakeholders and advises on the basics of integrating transport and land use issues through policy.
• Policy Development: this section considers in more detail how transport issues should be treated throughout the development planning process. The chapter includes guidance on a number of specific policy areas, including accessibility, parking standards and design.
• Development Management: this section deals with the detail of implementation of policy in practice, focussing on how policy should be applied in development planning decisions. The section includes advice on good practice with regard to a number of mechanisms of achieving successful outcomes from planning decisions, in particular: Transport Assessments, Travel Plans, Planning Agreements and Environmental Assessments.
• Projects and Proposals: this section provides specific advice on measures aimed at supporting SPP17 policy, mainly mode-specific measures aimed at walking, cycling and public transport.

1.24 In addition to its main content, PAN75 includes 6 annexes providing sources of information and advice on a number of specific policy interventions aimed at realising the vision of SPP17.

Transport Assessment and Implementation: A Guide

1.25 This document stems from SPP17's focus on the links between the development planning and transport planning processes. It recognises the importance of a co-ordinated and consistent approach to understanding the transport impacts of developments and represents a good practice guide in that context. It summarises its function thus:

"This document seeks to provide a better practice guide to help identify and deal with the likely impacts (of development proposals). It sets out requirements according to the scale of the development being proposed; from a minimal change requiring a simple transport statement or explanation of transport issues through to a major complex development where detailed technical analyses will be required"
(Transport Assessment and Implementation: a Guide, paragraph 2)

1.26 The document is aimed at guiding planning applicants through the process of Transport Assessment of a development, and understanding and (where necessary) mitigating any associated transport impacts. The document also gives advice on the delivery stages, including implementation and monitoring.

Conclusion

1.27 The key message promoted by SPP17 and its supporting documents is the link between land use and transport planning. This needs to be the case at all stages of the development planning process, from site selection and allocation, through to monitoring and evaluation of development travel patterns after construction.

1.28 SPP17 should enable local authority plans and planners to steer the transport and development agendas at the local level on a more integrated basis.

« Previous | Contents | Next »