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This research consists of 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). SPP17 is essentially a land use planning policy, but initiates the linkage between land use policy and transport policy. A consultation led approach was taken to this commission in order to draw out stakeholders' views on the key issues affecting implementation of SPP17. The work 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. This paper details the findings of that research, including the conclusions from the extensive consultation exercise undertaken with stakeholders.

Main Findings

• Overall most stakeholders - whether from the private or public sectors, or representing local or National government - were positive about SPP17 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.
• 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 in reality.
• With regard to modelling and appraisal, the developers said that there was very little evidence that this guided development plans, whilst local authority strategic planners suggested that there was so much appraisal work undertaken that it was causing 'paralysis by analysis' in relation to implementation.
• The questionnaire 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 indicated that there was a marginally better understanding of the key messages of SPP17 when the transport and planning functions are within the same department in a local authority.
• There was a lower level of confidence in implementing the key messages of SPP17 in comparison with understanding those messages though 80% of other organisations and 50% of local authority officers responding indicated that they are confident or very confident.
• The questionnaire 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 did not appear to have a great deal of confidence in the ability of existing National and Local Authority structures to implement SPP17.
• A significant number of skill gaps were identified by respondents.
• The majority of responses indicated that Transport Assessments are the common approach to appraisal and the method used to inform individual development management decisions. More extensive appraisal and modelling techniques such as STAG and micro simulation appear to be used less frequently to inform development management decisions.

Approach

A consultation led approach was taken to this commission in order to draw out 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 identification of issues through 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 deficiencies in implementation;
• Developing mechanisms for delivering against these objectives; and
• Appraising these potential mechanisms against the objectives to produce final recommendations.

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

As the main findings 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

It is considered that the research, consultation and analysis undertaken as part of this research 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.

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.

This is broadly to be expected given the limited time since the initial publication of SPP17 (August 2005) in relation to the lead time in bringing development plans and developments forward. There are, though, clear conclusions to be drawn in relation to this research.

The research 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.

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

Recommendations

The following recommendations emerged from this research: 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.

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.

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.

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.

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.

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.

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.

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.

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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The report, "Implementation of Aspects of SPP17 Planning for Transport", which is summarised in this research findings is a web only document and is available on the publications pages of the Scottish Government website at: http://www.scotland.gov.uk/Publications/Recent

This document (and other Research Findings and Reports) and information about social research in the Scottish Government may be viewed on the Internet at: http://www.scotland.gov.uk/socialresearch

The site carries up-to-date information about social and policy research commissioned and published on behalf of the Scottish Government. Subjects covered include transport, housing, social inclusion, rural affairs, children and young people, education, social work, community care, local government, civil justice, crime and criminal justice, regeneration, planning and women's issues. The site also allows access to information about the Scottish Household Survey.

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