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CHAPTER EIGHT CONCLUSIONS AND RECOMMENDATIONS

Introduction

8.1 WSP Development and Transportation was commissioned to undertake a review of the implementation of aspects of SPP17 Planning for Transport and its daughter documents (dealing with Planning for Transport and the approach to Transport Assessment of new development) by the Scottish Government (formerly the Scottish Executive) in March 2007. This report details the findings of that research, including the conclusions from the extensive consultation exercise undertaken with stakeholders. SPP17 is essentially a land use planning policy, but initiates the linkage between land use policy and transport policy.

8.2 SPP17's principal message is to promote the integration of land use and transport. Indeed, 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".

8.3 There are a number of sub-objectives and policy statements contained within SPP17 to strengthen integration between land use and transport planning. These include:

• Integration of land use, economic development, environmental issues and transport planning:
• Introduction of parking standards:
• Advocation of Travel Plans to support/enable adoption of maximum parking standards;
• Revised Transport Assessment ( TA) Methodology:
• TAs should focus on delivering an 'appropriate non-car mode share';
• Transport Appraisal and modelling outcomes to be used to inform decision making;
• New development should be accessible by public transport accessing a range of destinations, with Development Plans providing clear guidance on requirements; and
• Support for public transport contributions as part of planning agreements.

8.4 The brief set for this commission set four broad areas of investigation:

• Establishment of an on-going monitoring framework for SPP17;
• Understanding the extent to which planning authorities have adopted SPP17 principles in the development plan process;
• Understanding the extent to which planning authorities have adopted SPP17 principles in the development management process; and
• Understanding the extent to which developers comply with planning conditions intended to implement SPP17, and the extent to which planning authorities monitor and enforce such conditions.

Approach

8.5 A consultation led approach was taken to this commission in order to draw out key stakeholders' views on the key issues affecting implementation of SPP17. In order to draw out meaningful and useable conclusions the methodology aimed to provide a logical progression from inception to conclusions and recommendations. The approach incorporated the following stages:

• Initial scoping of issues across different stakeholder groups;
• Surveying actual practice in Scotland through a document review;
• Initial scoping workshops held with key stakeholder groups at an early stage in the project;
• A questionnaire survey of relevant stakeholders to establish current attitudes towards SPP17 and opinions as to progress on its implementation;
• Analysing this information and drawing conclusions;
• A second stakeholder workshop timed later in the research in order to discuss progress and potential recommendations;
• Setting out clear objectives to address any deficiencies in implementation;
• Developing mechanisms for delivering against these objectives; and
• Appraising these potential mechanisms against the objectives to produce final recommendations.

8.6 The range of consultation techniques set out above reflected the range of bodies and diverse nature of their interest in SPP17 that needed to be covered.

Outcomes

8.7 The work outlined above provided valuable insight into the range of stakeholder groups' opinions and experiences of SPP17, identifying the key issues associated with implementation of the policies and the strengths and weaknesses, scope for improvement and theme-specific concerns.

8.8 The research and consultation also highlighted some commonalities and differences between the different stakeholder groups as to their perceptions of SPP17. In particular it is noted that:

• Overall most stakeholders - whether from the private or public sectors, or representing local or National government - were positive about the document itself. It is generally perceived to tackle some vital issues in an appropriate manner; however
• The general consensus was less positive regarding implementation. Key barriers to joined-up working within authorities are seen to hold back progress: both by those that work in the authorities and by other stakeholders. This is particularly the case in terms of poor links between the strategic and the local levels, and a lack of links between land use planning and transportation planning staff.

8.9 Frustrations regarding funding, delivery, appropriateness and (where relevant) enforcement of schemes were a recurring theme. For example, there was a widespread view that the assumption against development on trunk roads was misguided, with many questioning whether such locations were less sustainable.

8.10 With regard to modelling and appraisal, the developers said that there was very little evidence that this guided development plans, whilst the local authority strategic planners group suggested that there was so much appraisal work undertaken that it was causing 'paralysis by analysis' in relation to implementation.

8.11 Overall, it is considered that the level of integration between new policy documents (that is those issued since the publication of SPP17) and the principles of SPP17 is very good, though specific references to SPP17 are still in the minority. It recognised however that is not necessary to specifically reference SPP17 in order to espouse its general principles, though those documents that are most closely integrated with the aims of SPP17 do generally give a direct reference to it.

8.12 It was noted that regional and national level policies generally show higher levels of integration with SPP17 than local policies and that land use planning documents generally showed greater synergy with SPP17 than transport plans.

8.13 The lack of consideration of transport issues in the detailed local planning brief considered is a concern, if this is reflected more widely. The limited focus on sustainable access issues at the early stage in the development planning process is a concern, particularly as it is likely (and certainly the intention) that such a brief should set the tone for the subsequent development of the site.

8.14 We received a good response to the questionnaire survey from local authorities, but a much poorer level of response from the 'others' category. Notwithstanding this disparity, a number of key findings support the conclusions emerging from the workshops and document review:

• The results indicated a good level of understanding of the key messages of SPP17 by all groups involved in the implementation of SPP17. Further analysis of this question indicates that there is a slightly better understanding of the key messages of SPP17 when the transport and planning functions are within the same department in a local authority.
• There is a lower level of confidence in implementing the key messages of SPP17 though 80% of other organisations and 50% of local authority officers responding indicated that they are confident or very confident.
• The results indicate that all groups consider SPP17 to be influential in the integration of planning and transport policy with over half of the responses being that its influence was significant or major.
• The questionnaire results indicated that those responding do not appear to have a great deal of confidence in the ability of existing National and Local Authority structures to implement SPP17.
• All of those polled believe that the officers possess some of the skills necessary to implement SPP17 and 70% believe that the way of working within the authority does not make best use of the skills they possess.
• A significant number of skill gaps were identified by both groups of respondents.
• The majority of responses indicate that Transport Assessments are the common approach to appraisal and the method used to inform individual development control decisions. More extensive appraisal and modelling techniques such as STAG and micro simulation appear to be used less frequently to inform decisions.

8.15 As the above bullet points suggest, there is a significant level of support for SPP17 and the principles that it promotes, however there are issues with its implementation, for example the following issues were identified as presenting significant problems in implementing SPP17 (in descending order of significance):

• Lack of control of public transport;
• Lack of integrated working between authorities;
• Conflicts with the local political agenda;
• Lack of integrated working within authorities;
• Lack of funding;
• Conflicts with National economic objectives;
• Conflicts with local economic objectives;
• Conflicts with the National political agenda; and
• Lack of resources.

Conclusions & Recommendations

8.16 It is considered that the research, consultation and analysis undertaken as part of this commission demonstrate clear support for the principles and policies within SPP17 and its daughter documents. The clear message emerging from this study is that SPP17 is a concise and well written policy document with a very strong and clear message - that the transport implications of land-use decisions need to be fully considered at both macro and micro levels within the development planning and management processes and that the policies within the documents have made a positive impact since their launch in 2005.

8.17 Overall those providing input to this research commission - from the Steering Group and project team to stakeholders consulted - agreed that these are critical issues of integration that have been left unaddressed for too long. There is a general feeling, however, that there has been limited success evident to date in terms of implementation.

8.18 This is broadly to be expected given the limited time since the initial publication of SPP17 and the lead time in bringing development plans and developments forward. There are though clear conclusions to be drawn in relation to this research.

8.19 The research presented in this report demonstrates that the principles and policies within SPP17 are being reflected in updated and revised policy and guidance documents and that there is a reasonable level of awareness of the key objectives of the policies. SPP17 is clearly influencing the development plan process and this influence should continue to be promoted to support integration of land-use and transport planning.

8.20 The importance of this message has, it was felt by many stakeholders, been further re-enforced by the growing profile of climate change and other environmental concerns and also the increasing awareness of the health agenda. These are policy areas that are closely aligned with the principles of SPP17 and provide an opportunity for additional promotion of the principles within SPP17

Recommendation - Local authority organisations, Regional Transport Partnerships, Transport Scotland and the Scottish Government continue to promote the principles of SPP17 through profile raising and highlighting the links and synergies between the land-use/transport and health, environmental and social policy agendas.

8.21 A key aspect highlighted within our research has been that structures within local government do not efficiently support the implementation of SPP17. This appears to be due to limited communication between levels of government or between divisions within the same organisations, whether these are land-use:transport divisions or policy development:development management divisions.

8.22 The questionnaire responses suggest that communication - and SPP17 implementation - is more efficient where land-use and transportation professionals are structured within the same teams (though there are various models of this). One major element of this is efficient use of resources and skills within organisations and there was a clear feeling that structures at present do not make most efficient use of the staff and skills available.

Recommendation - Organisations involved in the implementation of SPP17 (Regional Transport Partnerships and local authority organisations) review their structures with a view to putting in place a structure that fully supports implementation of the policies and principles within SPP17, whilst making efficient use of staff skills and resources.

8.23 It is noted that the Scottish Government and Transport Scotland have already established the Planning and Transport Integration Group ( PTIG) to address this issue, which was recognised outwith this research.

8.24 The outcome of the consultation exercises shows a clear feeling that there are some of the skills required to deliver and support the implementation of SPP17 across the transport and planning sectors, however there is a need to share best practice, promote consistency of appraisal, provide additional guidance on interpretation and application of the policy and to promote an integrated view of land-use planning and transportation.

8.25 This is highlighted by the pockets of good practice that were identified and are reported above, and also by issues such as the lack of understanding of the role and application of parking standards, the variable application of accessibility analysis and the need for further research into specific areas.

Recommendation - Scottish Society of Directors of Planning and Society of Chief Officers of Transportation in Scotland form a working party to consider issues associated with implementation of SPP17. In particular to identify and disseminate good practice and to identify areas requiring further research.

8.26 Such a working group would be well placed to also advise on issues related to integrating land-use and transportation planning and to draw on the emerging experience of bodies such as the Regional Transport Partnerships. Where appropriate, input could also be sought from umbrella organisations representing developer groups, e.g. Homes for Scotland and the British Council of Shopping Centres.

8.27 There is a clear need for additional guidance and training on the interpretation, appraisal and promotion of the policies within SPP17. There was a feeling within those stakeholders providing input to this research that there are different levels of training required for those involved in promoting SPP17, e.g. politicians, officers, consultants operators and interest groups.

Recommendation - Delivery organisations such as local authorities, Transport Scotland and the Scottish Government coordinate and facilitate (possibly through groups such as the Scottish Society of Directors of Planning, the Society of Chief Officers of Transportation in Scotland and the Planning and Transport Integration Group) appropriate training and the development of additional guidance in relation to the following key areas to promote awareness of and good practice at all levels to support the implementation of SPP17:

• Guide to roles and responsibilities - both authorities and developers;
• Guidance on the appropriate level of appraisal and modelling of transportation proposals at the various stages of the development process;
• Enable best use of available techniques, tools and measures in furthering integration between transport and land use planning;
• Clear and consistent approach to the application of parking standards, which nevertheless recognises differences in city, large town, small town and rural areas;
• Further guidance on the principles, basis and approach to agreeing developer contributions;
• Guidance on the mechanisms for developing, providing and supporting rail and bus infrastructure and services; and
• Guidance on accessibility analysis.

8.28 Linked to the above, this research suggests that there is a need to provide information more widely on the applicability and availability of specific tools ( e.g. processes such as STAG and models such as the Transport Model for Scotland, various regional/area based transport models and existing accessibility models). Those stakeholders involved in this research felt that there is a lack of clarity across the transport and planning sectors regarding their application, coverage, strengths and weaknesses and availability.

Recommendation - Transport Scotland facilitate - through the STAG refresh and Transport Model for Scotland User Group - the collection and dissemination of appropriate information and guidance related to the key tools available to support transport analysis and the implementation of SPP17, including capturing the experience and knowledge of other relevant parties.

8.29 It should be noted that Transport Scotland is already undertaking a 'refresh' exercise for STAG (that will cover appropriateness and proportionality of use amongst other aspects) and has an on-going commission to enhance, develop and raise awareness of the Transport Model for Scotland. This last commission, in particular established user group, may provide an appropriate platform from which to address this recommendation.

8.30 The general consensus emerging from the consultation was that much of the current local road layout design guidance does not fully reflect current thinking or good practice. There is a need therefore to develop a more innovative "toolkit" for design of new developments in line with the principles of PAN76 New Residential Streets. This would support more sustainable transport movements and promote implementation of SPP17 by demonstrating a commitment to a more sustainably focussed mode hierarchy, taking on board current good practice in terms of design and infrastructure provision. The adoption of the new Manual for Streets for England and Wales is seen as a possible model and a commission is now underway to take this forward.

Recommendation - Scottish Government and Transport Scotland take forward the adoption of the Manual for Streets in Scotland with local authorities being encouraged to adopt the emerging guidance.

8.31 There was much debate throughout this commission on the changes in policy and organisational structure since the publication of SPP17 in 2005. Whilst it does not affect the principles promoted through the document it is considered that an update of the document would be beneficial to reflect the change in the wider sustainability agenda and institutional set-up since its original publication.

Recommendation - Scottish Government and Transport Scotland consider a review of SPP17 to reflect the change in the wider sustainability agenda and institutional set-up since its original publication.

8.32 It is considered then that this research shows that there is a wide understanding and support for the principles promoted by SPP17 from across the local authority sector in Scotland. The principles espoused by SPP17 are being adopted in the development plan process and policies issued since 2005 and these principles appear to being fed into the development management process - though it is difficult to gauge this since the document is so recent and the process of bringing proposals forward to construction can be slow.

8.33 Given this, it is also difficult to gauge the extent to which developers comply with planning conditions intended to implement SPP17, and the extent to which planning authorities monitor and enforce such conditions. Whilst there is general support for the principles of SPP17, these principles may not be reflected in the delivery and monitoring of specific developments.

Recommendation - Planning Authorities ensure that appropriate mechanisms are in place to monitor delivery of measures agreed in support of the implementation of SPP17 as part of planning permissions, including Travel Plan conditions.

8.34 Clearly SPP17 is a recent policy document and it will be important to ensure that implementation of the policies and principles it contains continues as we move forward. It is considered that the above recommendations will support and improve the implementation, however it is critical that this can be demonstrated so that appropriate changes can be made as the policy and institutional positions change. A major part of this commission has been a questionnaire survey the results of which provide a benchmark of the current position and understanding of the implementation of SPP17. Repetition of that survey, for example, every two years would allow monitoring of implementation of SPP17 against a robust base.

Recommendation - Scottish Government repeats the questionnaire element of this commission on an on-going basis and at regular intervals to provide information on the trends associated with implementation of SPP17.

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