Using Land-use Planning to Manage Transport Demand: A survey of Scottish experience

Recent concerns surrounding the growth of mobility and associated increases in journey length and number of motorised journeys for an increasingly diverse pattern of trips have placed demands on the planning system in terms of the need to consider the land use-transport interaction. This paper first provides a review of relevant national planning policy in Scotland in particular. It then goes on to report findings from a recent survey which highlights the attitudes held by Scottish planning professionals to managing transport demand through land-use planning. The paper outlines the trade-offs encountered in practice between competing policy objectives. In Scotland there is no planning guidance equivalent to Planning Policy Guidance Note 13, which applies to England and Wales, around which there has been much debate on its impact on development control decisions and planning strategy. Draft guidance for Scotland was produced in 1996 for consultation and again in 1998, but at the time of writing has yet to be finalised. The findings from this study are timely in that they enable an assessment of the extent to which the planning system is being used to manage transport demand. Recent local government reorganisation in Scotland has resulted in significant changes to ways in which strategic planning and development control policy are likely to proceed. The paper focuses on the extent to which local authority policy emphasises the need to reduce travel through planning.     

Local 'Barriers' to Environmentally Sustainable Transport Planning

Rapid changes are occurring in the rhetoric and practice of transport planning in the UK. Driven by ever increasing road congestion and growing awareness of the impact of road transport on the environment, a consensus is said to be emerging over the implementation of a new approach to UK transport planning centred on managing the demand for road travel rather than catering for it. This paper explores the depth and breadth of the penetration of this new consensus in relation to policy making in central government and in three local case-study areas. The paper charts the factors that have shifted transport policy direction and are contributing to and inhibiting the adoption of a new demand management approach. It concludes by stating that whilst definitive shifts in transport-planning rhetoric and practice have occurred in recent times, shifts toward demand management have been slow due in particular to local cultural and political difficulties. These persist in many localities and in similar policy areas and an awareness of these is useful in highlighting difficulties in the adoption of environmental sustainability agendas in other policy fields.     

Local 'Barriers' to Environmentally Sustainable Transport Planning

Rapid changes are occurring in the rhetoric and practice of transport planning in the UK. Driven by ever increasing road congestion and growing awareness of the impact of road transport on the environment, a consensus is said to be emerging over the implementation of a new approach to UK transport planning centred on managing the demand for road travel rather than catering for it. This paper explores the depth and breadth of the penetration of this new consensus in relation to policy making in central government and in three local case-study areas. The paper charts the factors that have shifted transport policy direction and are contributing to and inhibiting the adoption of a new demand management approach. It concludes by stating that whilst definitive shifts in transport-planning rhetoric and practice have occurred in recent times, shifts toward demand management have been slow due in particular to local cultural and political difficulties. These persist in many localities and in similar policy areas and an awareness of these is useful in highlighting difficulties in the adoption of environmental sustainability agendas in other policy fields.     

Environment and energy resources — A UK experience

Summary Exploitation of energy resources need not imply irreperable damage to our physical environment. Unfortunately lack of involvement at the policy planning stage hinders significant improvements despite the enthusiastic but fragmented endeavours of interested parties.Evaluation of alternative strategies must keep pace with prospecting and engineering to achieve real influence upon the ultimate location, scale and form of development.Fruitful examination of policy alternatives is hindered by the competition between energy industries in the UK perpetuated by the apparent lack of a national energy strategy.The fast increasing bulk of environmental guidelines and proposed European legislation will not of itself prevent the significant environmental impact of energy exploitation.There is as yet no legislation in the United Kingdom requiring a developer to submit an environmental impact assessment with a planning application. However, many recent project proposals have been accompanied by such, either voluntarily or at the request of the local planning authority. The quality of such submissions ranges from the superficial to substantial, but few demonstrate evidence of environmental influence on policy formulation, alternative site selection or development characteristics.Recent experience in the UK has achieved significant success in the early introduction of physical planning and environmental criteria during the exploration of Western Europe's largest recoverable deep coal reserves.Environmental influence was achieved through close collaboration between client and consultants. Early discussion with local authorities and other agencies established during coal field exploration provided the basis for ongoing consultation during the four-year study period. Publication of consultants' findings and submission of planning proposals culminated in a public inquiry providing opportunity for public involvement over 84 days of project examination.David Price is an Architect and Town Planner in private practice with extensive experience in urban and regional planning and environmental evaluation in the UK and abroad. He is also a member of Land Planning Group, a multi-disciplined design and planning consultancy.     

Land Use Development Planning and the Notion of Sustainable Development: Exploring Constraint and Facilitation within the English Planning System

This paper explores the English land use planning system's actual and potential abilities to both facilitate and constrain the advancement of sustainable development through the preparation of statutory development plans. The exploration is empirically based, focusing upon the conceptual and procedural issues most pertinent to the incorporation of sustainable development within this sector of public policy making. The findings reveal a lack of unified coherence in approach amongst local planning authorities as they struggle to translate the rhetoric of sustainable development into practice. One can detect, however, areas of difficulty and potential opportunity surfacing in the plan preparation process relating to issues of public participation, Local Agenda 21, environmental appraisal, data gathering, resources and guidance. There is also an indication that the institutional framework for incorporation lacks the facility to adopt a consistent position with regard to what one can consider as sustainability-orientated application principles.     

From Boom to Bust? An Assessment of the Impact of Sustainable Development Policies on Housing in the Republic of Ireland

In many countries, moves towards sustainable development have been driven by a range of international agreements and by EU directives. This paper assesses the impact of international policy in this area on Irish housing policy and practice. To a large extent, Irish housing development has consisted of suburban sprawl on greenfield sites, low-density housing and one-off housing in rural areas. There is strong dependence on the car and very limited public transport. These unsustainable housing trends was exacerbated in recent years when the demand for housing increased significantly. The main response to this demand has been a substantial rise in the construction of housing. The paper examines the conceptualization and operationalization of sustainable housing in Irish policy and reveals that international developments have had some impact on policy but a very limited effect in practice.     

Beyond the conventional: Meeting the challenges of landscape governance within the European Landscape Convention?

Academics and policy makers seeking to deconstruct landscape face major challenges conceptually, methodologically and institutionally. The meaning(s), identity(ies) and management of landscape are controversial and contested. The European Landscape Convention provides an opportunity for action and change set within new governance agendas addressing interdisciplinarity and spatial planning. This paper critically reviews the complex web of conceptual and methodological frameworks that characterise landscape planning and management and then focuses on emerging landscape governance in Scotland within a mixed method approach involving policy analyses, semi-structured interviews and best practice case studies. Using Dower's (2008) criteria from the Articles of the European Landscape Convention, the results show that whilst some progress has been made in landscape policy and practice, largely through the actions of key individuals and champions, there are significant institutional hurdles and resource limitations to overcome. The need to mainstream positive landscape outcomes requires a significant culture change where a one-size-fits-all approach does not work.     

Environmental space and barriers to local sustainability: Evidence from Edinburgh, Scotland

This paper steps into the minefield that is urban sustainability studies. It defends a rigorous definition of sustainable development called Environmental Space. This approach starts from the assumption that (1) there are limits to the biophysical capacity of the ecosystem and (2) that — within these limits — each individual has equal access rights to natural capital. On this basis, per capita sustainable consumption targets are calculated which can be (and are being) used as policy objectives. The paper explores how environmental space has influenced local sustainability politics in Edinburgh, Scotland. By doing so, it finds that environmental space targets are still far from being achieved. Reasons for this failure are investigated and Edinburgh's continued commitment to the material growth of her economy is identified as one key barrier. This point is illustrated through the investigation of recent policy decisions in Edinburgh which were justified as being necessary for growth, but which clearly contradict the aims of sustainable development.     

The brief as an instrument of policy

A review of the use of planning and design briefs by local authorities in the United Kingdom was carried out in 1982–83 to test whether the role of the brief as an instrument of local policy and as a promotional tool in the development process was being fully exploited. The paper provides a state of the art review, presents a summary of the findings and offers some comments on the results. It concludes that most authorities now use briefs as part of their normal planning procedures, but that there is potential which is not yet being exploited.     

Does planning deregulation threaten the environment? The effect of ‘permitted development’ on the natural heritage of Scotland

This paper reports research into the effect on the UK environment of the deregulation of land development controls. One form of deregulation is granting advance approval to specified classes of small-scale development because they are considered inconsequential. Previous research has indicated that such ‘permitted development’ may adversely affect the natural heritage. This study systematically investigated its impact on the natural heritage of Scotland. The study canvassed the opinions of agents best placed to comment: natural heritage authority field staff, local government planners and representatives of non-governmental organizations. The results revealed concern about permitted development as a whole, and about specified classes. Despite professed concerns about sustainable development, UK planning modernization has failed to grasp the opportunity for a radical and fundamental reform of the scope of UK planning control in the context of contemporary environmental issues. Accordingly, there remains an unresolved tension between the desire to remove unnecessary state regulation of land development and the protection of the natural heritage.     

Review of strategic planning guidance in Scotland

In Scotland, land use planning decisions have been aided by a series of National Planning Guidelines published over a period of nearly 20 years. The Guidelines represent a distinctive contribution to planning practice and have enabled the Scottish Office to inform local authorities of governmental policy on key land use issues. The Guidelines have been accompanied by Land Use Summary Sheets, providing assessments of specific land resources, and Circulars setting down ministerial policy. These instruments have attracted considerable interest outwith Scotland and their future development is also of wider significance. Current proposals seek to change these arrangements and, in particular, to replace the Guidelines with National Planning Policy Guidelines. The effects of the proposed changes are reviewed and discussed.     

Strategic planning harnessing urban policy mobilities: the gradual development of local sustainability fix

The aim of our article is to follow how global policy models affect local policy making. Each city has unique local challenges in promoting development, e.g. economic growth, but also needs to find a balance between these targets and demands for sustainable city solutions. In our empirical study, we follow how ideas of waterfront development – to attract new inhabitants and promote economic growth – and global demands of carbon control were used interactively in a strategic spatial planning process in the city of Tampere, Finland. During the six-year planning process, these two policy targets became interdependent, created a new policy-making domain, and led to a combinatorial development of sustainability elements arising from this domain. These findings demonstrate the serial use of global policy models in the creation of a local urban ‘sustainability fix’. To conclude, the intertwinement of diverse global policy models in a city planning process creates easily a recursive cycle that redefines urban sustainability within cities and intercity networks. This perspective makes local policy narratives and strategic planning highly important in urban sustainability research as promoting urban sustainability becomes an inherently ambivalent practice.     

Green gains? planning by agreement and nature conservation

Current planning policy places increased emphasis on the protection of the natural environment. The negotiation of planning agreements between local authorities and developers has emerged as one route through which the private sector has sought to compensate for the loss of environmental resources arising from development. We argue that the utilization of conservation gain mirrors the valuation procedures for public goods found within cost — benefit techniques, which may be inappropriate for the treatment of natural environmental systems. The paper examines the negotiation of these gains from the perspective of different actors in the land development process. Both quantitative and interview material from four local planning authorities are used. The paper concludes by considering the scope for a broader use of conservation gain.     

Improving road transport-related air quality in England through joint working between Environmental Health Officers and Transport Planners

In this paper the necessity for effective joint working arrangements between Environmental Health Officers and Transport Planners is demonstrated as a fundamental prerequisite for successful management of traffic-related air quality in English local government areas. Current approach to joint working and collaboration between the officers was examined based on the evidence from a three-year study which involved questionnaire surveys and case study interviews. The findings show that despite good administrative devolution and policy integration, the chance of improving specific local air quality situations through the Local Transport Planning process is dependent on other overriding factors which influence the capabilities of the authorities to integrate policies across departments and tiers of governments. Implicit in these findings is the need for a shared paradigm of continuous engagement by all the policy actors and stakeholders if proper integration and the possibility of tangible results in future policy development are to be achieved. The paper proposes a new framework through which such collaborations can be developed and within which solutions to the issues identified can be evaluated.     

From Spatial to Local: The Impact of the European Union on Local Authority Planning in the UK

In 1998 the Minister for the Regions, Regeneration and Planning issued a statement which argued that the European context for planning had been largely missing from the planning system in England. This paper explores the impact of European Union (EU) membership on the practice of local authority planning in the UK. The research was based on nine local planning authorities in England, Scotland and Wales. The results indicate that EU membership has exerted a direct and indirect influence on planning at the local level. A classification of EU influences on local planning activities is developed. The research also indicates that the scope and structure of the UK planning system are being influenced by EU membership. There is considerable emphasis on the role of planning as a tool for sustainable development, and the development of environmental quality standards, coupled with existing policies in the sphere of nature conservation, present a challenge to the traditional approach of the UK planning system of balancing all material considerations.     

Aspects of planning in Scotland: an introductory paper

This paper provides an outline of the development planning and development control systems which operate in Scotland, illustrating that while they share common principles and objectives with the equivalent systems in England and Wales there are a number of important differences both in law and more especially in practice to be appreciated. Future changes are outlined both in relation to the statutory planning system as well as in the broader fields of housing, economic development and the countryside.     

Sustainability appraisal in local land‐use planning: patterns of current performance

The UK government has identified the land‐use planning system, and development plans in particular, as potentially powerful instruments for integrating national sustainability objectives into strategic decision making at local levels. One method for achieving this is through the use of so‐called ‘sustainability appraisals’, which are an extension of the established system of environmental appraisal used by planners since the early 1990s. A national framework is outlined in Planning Policy Guidance Note 12. Local authorities are now expected to conduct an environmental appraisal of their development plans which covers sustainable development issues. However, little research has been conducted on the effectiveness of current guidance in meeting this aim. By evaluating the implementation of sustainability appraisals nationally, this paper suggests that while government advice to appraise is generally being applied, the actual use of key sustainability principles in practice is rather variable. It then discusses these findings in relation to the changing context of appraisals in the UK and other national planning systems.     

Environmental Reform,Ecological Modernization and the Policy Process in Hong Kong: An Exploratory Study of Stakeholder Perspectives

A number of social surveys on environmental issues have been conducted in Hong Kong over the past 20 years but none has investigated processes of environmental reform from a stakeholder perspective. This paper reports on the findings of a survey of 120 representatives of eight stakeholder groups conducted in 2003. This exploratory study had two main objectives. First, it investigated stakeholder views on environmental policy making in Hong Kong including policy objectives and priorities, the policy instruments employed, the discourse surrounding environmental policy making and sustainable development, and the effectiveness of local environmental institutions. Second, it explored the extent to which Hong Kong is undergoing environmental reform processes consistent with the principles of ecological modernization.

The results indicate that a conventional command-and-control model focusing on pollution control drives environmental policy making in Hong Kong. Government is seen as a relatively unresponsive, ‘controller’ regime relying heavily on laws and regulation to pursue its policy objectives. Support exists among stakeholders for the use of new environmental policy instruments (NEPIs), particularly those of an economic nature, but there is scepticism about the potential effectiveness of voluntary environmental agreements. Local environmental discourse is characterized by the counter-positioning of economic development and the environment. Most stakeholders share the view that the debate surrounding sustainable development has been poorly informed and that the concept is not well-understood. Stakeholder responses suggest that there is considerable divergence between the potential and actual effectiveness of important local environmental institutions. While there is empirical evidence indicating that some environmental initiatives have produced technical outcomes consistent with ecological modernization, our findings suggest these do not reflect a conscious change in the direction of environmental policy and that the social and institutional transformations that also underpin ecological modernization have yet to become embedded in Hong Kong.     

Land Use Planning and Environmental Capacity: Reassessing the Use of Regulatory Policy Tools to Achieve Sustainable Development

Just as it is now widely accepted that the planning system has a role to play in achieving sustainable development, so the concept of environmental capacity has achieved increasing prominence as a means of realizing that role. This paper considers the debate on the concept of environmental capacity, reviewing both the mainstream model and Jacobs' more nuanced social constructionist model. In doing so, it raises concerns about the appropriateness of regulatory policy tools and the implications for the distribution of environmental and other impacts. The discussion highlights the potential for using the planning system to promote change rather than resist it. In doing so, it suggests the need to consider a wider range of policy tools to achieve change at the local level and to clarify the dimensions of sustainable development that local planning can contribute to.