National Planning Framework 2 - The Discussion Draft
Thursday, January 24, 2008
by
Murray Shaw
The new planning legislation which is progressively being implemented gave an enhanced status to the National Planning Framework (“NPF”). Extensive consultation has taken place over the last few months on the National Planning Framework 2 ("NPF2") which will replace the first NPF which came out in April 2004. That was a document which received considerable acclaim and indeed awards for the way in which it addresses spatial planning. NPF2 therefore is an important document which will finally be adopted later on this year.
NPF2 is a substantial document running to some 90 pages (excluding appendices) and deals with a significant number of topics and issues. It is a useful summary of Scotland’s economy, Scotland’s place in the world and the issues (at least so far as relevant to planning) which face Scotland.
While NPF2 addresses a timeframe up until 2030, it very clearly reflects the views and policies of the current Scottish Government which of course is a minority one lead by the Scottish Nationalist Party. Topically, NPF2 makes clear that new nuclear power provision is not on the agenda as far as Scotland is concerned at the present time. However the “fight”, if there is to be one, may be over storage of nuclear waste rather than the construction of new power stations.
The introduction to NPF2 summarises what the document is about and what it is intended to achieve. As many commentators have noticed there appears to be increased importance, so far as the current Scottish Government, is concerned with economic growth in comparison to social issues. That is reflected in paragraph 78 where NPF2 simply states “the primary purpose of the Scottish Government is to increase sustainable economic growth”. NPF2 cross refers to the economic strategy published in November 2007 and identifies certain strategic objectives which are intended to provide a clear focus for delivery. These are:-
(a) Wealthier and fairer – to enable businesses and people to increase their wealth and more people to share fairly in that wealth.
(b) Greener – improve the natural unbuilt environment and sustainable use and enjoyment of it.
(c) Safer and stronger – help local communities to flourish becoming stronger, safer places to live offering improved opportunities and better quality of life.
(d) Smarter – expand opportunities to succeed from nurture through to lifelong learning ensuring higher and more widely shared achievements.
(e) Healthier – help people to sustain and improve their health especially in disadvantaged communities ensuring better local and faster access to health care.
The fact that certain projects will be identified as national projects in NPF2 has raised questions as to whether in addition to an enhanced status in planning terms, these projects will have an enhanced status in financial terms. That does appear to be the position. Paragraph 10 of NPF2 makes clear that it is more than simply a spatial development strategy for Scotland. The paragraph continues “the identification of national developments is an important signal of long term infrastructure priorities that will contribute to Scotland’s sustainable economic growth. While the Framework is not itself a spending document, it is closely linked to the Government’s Infrastructure Investment Plan and will inform the investment programmes of public agencies and infrastructure providers”.
This text is supported by the final section of NPF2 which sets out a programme of action for implementing the Framework identifying how, when and by which agencies, key elements will be taken forward. While the document in itself does not set out figures or commitments to expenditure it appears clear that the projects identified will have access to substantial funding.
NPF2 is in many ways an interesting document simply for the amount of information and statistics it contains. Apparently the Scottish coastline “accounts for 8% of the entire coastline of Europe”. It also observes in a comment that most Scots people will be all too accepting of that “Scotland is remarkably rich in water”! While this is identified as being a benefit (for example in the context of the distilling industry) there are issues which arise out of this. Paragraphs 87 and 88 which appear in a section entitled “Sustainable Development” identify that there have been significant increases in rainfall in particular in the North and West of Scotland with consequent climate problems.
NPF2 contains a considerable volume of information in relation to the economy and population. While there has been a population increase since the first NPF this appears largely to be largely due to in-migration and it is not anticipated that this trend will continue in the longer term. Interesting enough the area with the highest population growth is West Lothian, a Council area where there has been a conscious plan to provide for growth. The population in Scotland is however ageing rapidly with the central belt having particularly high death rates and low fertility rates.
Comment is made in relation to North Sea oil. Apparently the reserves of oil currently identified equate to as much as have been produced in the last 25 years. New technology has also identified as potentially allowing access to reserves in deeper and more difficult territory. Not surprisingly however there is a significant emphasis in NPF2 on renewable energy (and not just wind farms).
So far as the economy is concerned it is observed that while the economy has done not badly it is not doing as well as the rest of the UK and lags behind that of “the most successful small European countries”. At paragraph 142 reference is made to Scotland being surrounded by the “arch of prosperity” which apparently is made up of Ireland, Iceland and Norway, three of the wealthiest nations in the world. The aspiration is clearly to get Scotland into or least closer to that arch of prosperity.
NPF2 cross refers to other policy documents which have been produced by the Scottish Executive including those in relation to housing. Reference is made to the significant increases in house prices (72% higher in 2006 than in 2002) with new build rates only increasing 2% over the same period. Themes which appeared in the discussion document entitled “Firm Foundations” published in the latter part of 2007 are picked up.
Some of the information contained in the document may come as a surprise to many Scottish people. For example apparently the average Scottish commuting time of 20 minutes is “two thirds of the EU average”. For those of us who struggle to work in traffic jams that is not much by way of consolation!
As well as commenting on some of the more obvious and interesting topics (such as renewable energy) NPF2 (as its predecessor did) deals with some less attractive but just as important subjects including waste management where the aspiration set out is to achieve a zero waste position including the reduction of waste land fill as far as reasonably practicable.
Possibly the most important and significant part of NPF2 is the section on infrastructure where there is a recognition that achieving many of the objectives set out in the document require improved, enhanced or new infrastructure. Following on from the statement made on 13 September 2007 by John Swinney, NPF2 identifies the following developments as national developments:-
1. Replacement Forth Crossing.
2. Edinburgh Airport enhancement.
3. Glasgow Airport enhancement.
4. Grangemouth Freight Terminal.
5. Rosyth International Container Terminal.
6. Scappa Flow Container Transhipment Facility.
7. Grid reinforcement to support renewable energy.
8. Glasgow Strategic Drainage Scheme.
9. 2014 Commonwealth Games facilities.
Each of these is supported by detailed information in an Appendix to NPF2.
There is much in NPF2 and any summary of it, by definition, must be risk being superficial. Many of its proposals will be welcome by the development industry. There are clearly issues where NPF2 identifies significant problems but does not always make clear how the issues will be addressed. For example water and drainage is referred to and a comment is made that “lack of capacity in water and drainage infrastructure should no longer be a significant constraint or delay on development in Scotland”. Many developers would like that to the position but would not accept that it is the position now or likely to be the position in the foreseeable future.
Notwithstanding these sorts of issues the document is one which deserves close consideration. The section entitled “Making it Happen” provides information upon how matters will be taken forward. The Scottish Government specifically makes clear that it wants the consultation to involve views on deliverability not just in relation to the national developments identified but those other issues which have been identified as of significance (including water and drainage infrastructure).
This is a document that deserves close study and detailed discussion. It will of course be the subject of debate in the Parliament. It is only to be hoped that given the importance of this document and the width and breadth of issues dealt with that the time allowed in the Parliament for debate proves adequate.
For more information email Murray Shaw or call 0141 228 8000.
The information contained in this article is given for general information only and does not constitute legal advice on any specific matter.