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UnfinishedBusinessA National Parks Strategy for Scotland
Scottish Campaign for National Parks Association for the Protection of Rural Scotland
This report was written by John Mayhew for the Scottish Campaign for National Parks (SCNP) and the Association for the Protection of Rural Scotland (APRS).
SCNP promotes the protection, enhancement and enjoyment of National Parks, potential National Parks and other nationally outstanding areas worthy of special protection. SCNP is a registered Scottish charity, No SC031008. APRS promotes the care of all of Scotland’s rural landscapes. APRS is a registered Scottish charity, No SC016139.
SCNP and APRS gratefully acknowledge the funding for the preparation and publication of this report provided by:
Awards for All
Cruden Foundation
De Freitas Charitable Trust
Dr Hannah Stirling’s Loch Lomond Charitable Trust
Marsh Christian Trust
N Smith Charitable Settlement
Russell Trust
Scottish Mountaineering Trust
Save Your Regional Park
Stakis Trust
Contents1 IntroductionandSummary 01
2 TheLongStruggle 03
3 BenefitsofNationalParks 15
4 ScopeforImprovement 21
5 ProposedNationalParks 25
6 ImplementationandDelivery 33
7 ConclusionsandCalltoAction 37
Figures
Figure 1 04NationalParksrecommendedbyRamsayCommittee1945
Figure 2 08NationalParksrecommendedbyCCS1990
Figure 3 10NationalParksestablished2002–2003
Figure 4 12CoastalandMarineNationalParksrecommendedbyScottishExecutive2006
Figure 5 28NationalParksrecommendedbySCNPandAPRS2013
Appendices
Appendix 1 39NationalParksPolicyinScotland–aBriefHistory
Appendix 2 46References
Appendix 3 46Glossary
SCNP / APRS
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Introduction
1.1 Scotland’slandscapesrankamongstthebestintheworld,includingwildmountains,pristineriversandlochs,ancientforests,stunningcoastlineandislands,allrichinwildlifeandhistory.Withlandscapesofsuchqualityitwouldbereasonabletoexpecttoseethemrecognised,celebratedandprotectedaccordingtointernationalbestpractice.However,outof3,500NationalParksintheworld,Scotlandhasonlytwo.
National Parks
1.2 ‘NationalPark’istheleadinginternationally-recogniseddesignationforplacesofthehighestnationalimportancefornaturalorculturalheritage,includinglandscape,wildlifeandrecreation.Whiletheterm‘NationalPark’mayhavevariousmeaningsindifferentcountries,NationalParkstatusisrecognisedacrosstheworldasthehighestaccoladewhichcanbegiventoaplacewithinitsnationalcontext.Thereareover3,500NationalParksworldwide,includingsuchwell-knownplacesasJotunheimeninNorway,KilimanjaroinTanzania,theGalapagosinEcuador,CradleMountaininTasmania,theKarakoraminPakistanandYosemiteintheUSA.SomesuchNationalParksaretrulywildareas,althoughacrossmuchofEuropemostarewhollyorpartlylived-in,workinglandscapes.Scots-bornnaturalist,explorerandwriterJohnMuirinspiredthecreationoftheworld’sfirstNationalParksin19th-centuryUSAandisknownasthe‘FatherofNationalParks’;thecentenaryofMuir’sdeathfallsin2014.Therearecurrently15NationalParksintheUK,includingforexampleSnowdoniainWalesandtheLakeDistrictinEngland.In2012theNorthernIrelandEnvironmentMinisterannouncedthathewasrecommendingNationalParkslegislationandthathehopedtoseetwoNationalParkscreatedinNorthernIreland.
Section1IntroductionandSummary
National Parks in Scotland
1.3 ScotlandhasbeenrelativelyslowtorealisethepotentialofNationalParkdesignation.Expertreportsin1945,1974and1990recommendedtheestablishmentofatleastfourorfiveNationalParksinScotland.Extensiveresearchanddebatein2005–2007establishedaclearcaseforoneormoreCoastalandMarineNationalParks.Afterover50yearsofdeliberation,theNationalParks(Scotland)Actwaseventuallypassedin2000,butsincethenonlytwoNationalParkshavebeendesignated:LochLomond&TheTrossachsNationalParkin2002;andCairngormsNationalParkin2003.SCNPandAPRSconsidertherearefurtherareasofoutstandingimportanceforlandscapeandrecreationinScotlandworthyofNationalParkdesignation,andthatthiswouldbestbedoneinthecontextofanoverallagreednationalstrategy.
Summary
1.4 Thisreportarguesthat:
• NationalParksbringawiderangeof environmental,socialandeconomic benefits
• Thereissubstantialnationalpublic supportforNationalParks,andlocal supportfordesignatingfurtherNational ParksinsomepartsofScotland
• Thereremainsastrongcasefor designatingmoreNationalParksin Scotland
• Thereisscopeforimprovementinthe ScottishGovernment’soperationofthe twoexistingNationalParksandany futureones
• TheScottishGovernmentshould thereforeprepareandimplementa strategytodesignatemoreNational ParksinScotland,includingatleastone CoastalandMarineNationalPark
• Thisstrategyshouldbefullyintegrated withtheNationalPlanningFramework, thesustainableLandUseStrategyand theNationalMarinePlan.
“ “2.1 Thissectiongivesabriefsummaryofthe
historicaldevelopmentofpolicyon NationalParksinScotlandoverthelast
65years,asthecontextfortheproposedstrategy.AmoredetailedversionisgivenatAppendix1.AlloftheprincipalreportsreferredtoareavailableontheAPRSwebsitewww.ruralscotland.btck.co.uk
The Addison Report 1931
2.2 In1929severalcountrysideorganisations,includingthenewly-formedAssociationforthePreservationofRuralScotland,pressedtheGovernmenttolookintotheneedforNationalParksinBritain.TheresultantNationalParkCommittee,chairedbyDrChristopherAddison,examinedproposalsforthesafeguardingofareasofexceptionalnationalinterestandnaturesanctuariesfortheprotectionoffloraandfauna.Its1931Report of the National Park CommitteeconsideredtheCairngormsasapossibleNationalPark,buttheGovernmentofthedaytooknostepstoimplementanypartoftheReport.
The Ramsay Report 1945
2.3 DuringtheSecondWorldWar,theDepartmentofHealthforScotlandestablishedaScottishNationalParksSurveyCommittee,chairedbySirDouglasRamsayandincludingeminentnaturalistFrankFraserDarling,toadviseuponareassuitableforNationalParksandtosuperviseasurveyofpotentialareas.
2.4 TheCommitteereportedin1945,basingitsrecommendationsonthedefinitionofaNationalParkas:
an extensive tract of country of outstanding natural beauty, preferably also of scientific, cultural or historic interest, owned or controlled by the Nation, accessible to all as a matter of right under suitable regulations, and administered by or on behalf of the Nation to the end that its distinctive values may be preserved unimpaired for the enjoyment and recreation of this and future generations
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2.5 TheCommitteelaiddownsevenselectioncriteria:
a) Outstandingscenicbeauty
b) Accessibility
c) Preservability
d) Recreationalfacilities
e) Educational,culturalandsocial interests
f) Floraandfauna
g) Accommodation.2.6 Itwasnotedthatthesecriteriarequired
beautytobeweighedagainstaccessibilitytosomeextent.TheRamsayReportstressedthatdesignationofanareaasaNationalParkdidnotprecludethemaintenanceorextensionofeconomiclanduses.Indeed,itnotedthattheareasmostsuitablefordesignationonaccountoftheirnaturalbeautygenerallyhadlowlevelsofeconomicdevelopmentandsowereinneedofadditionalsourcesofincome.Thephrase“extensivetract”introducedtheideaofsizeasacriterion;NationalParksweretobelargeenoughfor“theNation”toenjoyandimportantenoughtojustifytheinterventionoftheState.TherecommendedareasthereforeexcludedsmallerandmoreaccessiblerangessuchasthePentlands,OchilsandSidlaws.
Section2TheLongStruggle
Orkney
1
2
3
4
5
Glen Affric –Glen Cannich –Strath Farrar
Loch Torridon –Loch Maree –Loch Broom
Ben Nevis –Glen Coe –Black Mount
Loch Lomond –Trossachs
The Cairngorms
Dundee
Aberdeen
Inverness
EdinburghGlasgow
Dumfries
Stornoway
Shetland
Figure 1
NationalParksrecommendedbyRamsayCommittee1945
MapreproducedbypermissionofOrdnanceSurvey,licencenumber100053751.*ForlayoutpurposestheShetlandIslandsarenotshowninthecorrectgeographicalposition.
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2.7 TheCommitteerecommendedthefollowingfiveareas,intheordergiven,assuitableforNationalParks:
1. LochLomond–Trossachs
2. GlenAffric–GlenCannich– StrathFarrar
3. BenNevis–GlenCoe–BlackMount
4. TheCairngorms
5. LochTorridon–LochMaree– LochBroom.
2.8 TheCommitteealsosuggestedthatthefollowingfurtherareas,againintheorderstated,mightbeplacedonareservelistforlaterconsideration:
6. Moidart–Morar–Knoydart
7. GlenLyon–BenLawers–Schiehallion
8. StMary’sLoch.
2.9 TheCommitteealsoproposedtheMerrick–GlenTroolinGallowayasaNationalForestPark,whilstconsideringiteminentlysuitableforaNationalPark.
2.10 TheCommitteeassumedthatthelandinanyNationalParkssubsequentlydesignatedwouldbepurchasedbythestateandwouldremainthereafterinpermanentpublicownership.ThereportarguedthatthesuccessofNationalParksandthetourismindustrydependedonthepreservationofnaturalbeauty.Itwashopedthatthesebenefitswouldbeweighedalongwiththosefromthelarge-scalehydro-electricschemesthenbeingproposed.
The 1950s and 1960s
2.11 In1951theSecretaryofStateforScotlanddecidednottoproceedwithRamsay’srecommendations.Thereasonsforthiswerecomplex,butcomprisedatleastfivestrands.First,influentiallandownersopposedpublicacquisitionoftheirestatesandtheintroductionofadditionalcontrolsovertheirabilitytomanagetheirproperty.Second,thehydro-electricandforestryindustriesfearedthattheCommittee’srecommendationswereliabletosteriliselargetractsofScotland
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fromfuturedevelopment.Third,therewasnosignificantpressurefromrecreationalinterestsformoreformalarrangementsforaccesstothecountryside,giventheeffectivefreedomofresponsibleaccesswhichexistedinScotlandandrelativelylowvisitorpressure.Fourth,itwasconsidereddifficulttosingleoutspecificareasforNationalParkstatus,giventhehighlandscapequalityofmuchofScotland.Finally,therewasoppositionfromlocalauthoritiestothepotentialtransferofsomeoftheirpowers.However,togosomewaytowardssafeguardingthemostimportantareas,five‘NationalParkDirectionAreas’(NPDAs)wereestablished,inwhichcertaincategoriesofdevelopmentproposalscouldbe‘calledin’fordeterminationatanationallevel.Meanwhile,tenNationalParkswereestablishedinEnglandandWalesduringthe1950s,includinginNorthumberlandabuttingtheScottishborder.
2.12 In1962acommissionbytheNationalTrustforScotland(NTS)ledauthorandmountaineerBillMurraytoidentify21‘regionsofoutstandingbeauty’inhisreportHighland Landscape,includingvariationsonRamsay’srecommendedareas.The Countryside in 1970conferencesheldduringthe1960shighlightedtheneedforspecificpowerstopromotelandscapeprotectionandcountrysiderecreation.ThisledtotheCountryside(Scotland)Act1967andtheestablishmentoftheCountrysideCommissionforScotland(CCS)in1968astheagencyresponsiblefortheenjoymentofthecountrysideandtheconservationofitsnaturalbeautyandamenity.
2.13 Variousmethodsoflandscapeprotectionandrecreationprovisiondidemergeoverthisperiod.TheForestryCommissionestablishedfiveNationalForestParksinScotland,NTSacquiredextensivetractsofmountainouscountry,andlocalauthoritiesdesignatedmanyAreasofGreatLandscapeValue,fourGreenBeltsandfourCountryParks.However,theseeffortslackedbothadequatenationalco-ordinationandacomprehensiveframeworkforconservationmanagement.
A Park System for Scotland 1974
2.14 In1974CCSpublishedA Park System for Scotland,itsfirstcomprehensiveadviceonitswholeapproachtoitsobjectives.Thisarguedforpositiveactiontodeveloptheexistingarrangementsforbothlandscapeconservationandrecreationaldevelopment,withinamoresystematicframework.
2.15 Thereportidentifiedtheneedforacomprehensivesystemcombininglandscapeconservationwithprovisionforthewholespectrumofoutdoorrecreation.Thiswouldextendfromintensiveorganisedactivitiesinsmallareasneartownsorcitiestoextensiveinformalrecreationoverlarger,moreremoteareas.Thereportproposedsuchasystemunderfourcategories:
• Urban Parks–notwithindesignated countrysidebutincludedtomakeclear
theneedtoprovideforthewhole spectrumofoutdoorrecreation.
• Country Parks–relativelysmallareas neartotowns,intendedtoprovide recreation,enjoymentandeducation
andtoeasepressureonmore vulnerableareas;fourhadalreadybeen designated.
• Regional Parks–larger,morediversein characterandservinglargercatchment areas;probablymanagedbythenew RegionalCouncils.
• Special Parks–tosatisfynational levelsofdemandforrecreation;likelyto beincountrysideofconsiderable naturalbeautyandamenitysuchas
theCairngorms,GlenNevis/ GlenCoeandLochLomond/Trossachs
(ietheRamsayareas).Management wouldbebyspecialparkauthorities, withdelegatedplanningfunctions.
2.16 ThereportdemonstratedreluctancebyCCStochallengetheinterestsoflocalauthoritiesorlandowners;itpreferredco-operationtodramaticchange.ItduckedtheissueofwhetherScotlandshouldhaveNationalParks,statingonlythatthis“willnodoubtcontinuetobedebated”.
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However,itisclearfromthedescriptionoftheproposedSpecialParksthattheywouldhaveeffectivelybeenNationalParksinallbutname.The1974CCSreportalsoarguedthattherewereareasbeyondthoseproposedasSpecialParkswhichcontainlandscapesofunsurpassedattractivenesswhichmustalsobeconservedaspartofournationalheritage.
The Sandford Principle
2.17 ItbecamewidelyrecognisedinEnglandandWalesafterthefirsttwodecadesofexperienceofmanagingNationalParksthattherecouldonoccasionbetensionsbetweentheirvariousobjectives.The1974SandfordCommitteeReviewofNationalParkPoliciesinEnglandandWalesthereforerecommendedthatNationalParkslegislationshouldbeamendedtomakeclearthattheenjoymentofNationalParksbythepublic‘shallbeinsuchamannerandbysuchmeansaswillleavetheirnaturalbeautyunimpairedfortheenjoymentofthisandfuturegenerations’.Thishasbecomeknownasthe‘SandfordPrinciple’.Theconceptwasendorsedasgovernmentpolicyandhassinceappearedinlegislation,whichnowalsorecognisesthatculturalaswellasnaturalheritagemustbeembracedbythePrinciple.
Scotland’s Scenic Heritage 1978
2.18 CCSthencarriedoutareviewwhichledin1978tothepublicationofScotland’s Scenic Heritage.Thislisted,mappedanddescribed40areasofthefinestexamplesofcertaintypesoflandscapeforwhichScotlandismostrenowned,againincludingallfiveRamsayareas.In1982theseweredesignatedasNationalScenicAreas(NSAs)andtheNPDAswerewithdrawn.LocalauthoritieswererequiredtoconsultCCSoncertainclassesofdevelopmentwithinNSAs;wherealocalauthorityproposedtoissueplanningpermissionagainstCCSadvicethefinaldecisionwouldbemadebytheSecretaryofStateforScotland.
The Mountain Areas of Scotland 1990
2.19 The1974proposalsforRegionalParkswerefinallyenactedin1981andfourRegionalParkswereestablishedduring1986-90,buttheproposalsforSpecialParksweresetaside.However,theissueofwhetherScotlandshouldhaveNationalParksdidnotgoaway,andin1989theScottishMinisterforHomeAffairsandtheEnvironmentinvitedCCSto“studymanagementarrangementsforpopularmountainareassuchastheCairngorms,takingintoconsiderationthecaseforarrangementsonnationalparklinesinScotland”.
2.20 Afterseveralmonthsofresearch,consultationandinternaldebateCCSpublisheditsreportThe Mountain Areas of Scotland – Conservation and Managementin1990.ThisreportsetoutthevaluesattributedtoScotland’smountainsinthecontextofchanginglandusepractices.Ithighlightedaslowprocessofattritionoflandscapequality,thelackofanintegratedapproachtorurallandmanagement,inadequateincentivesforlandmanagers,poormanagementofrecreationandtourismandthesteadylossofwildlandquality.Itmadeanumberofgeneralrecommendationsforalluplandareas,includingindicativeregionallandusestrategies,promotionofhigherdesignstandards,increasedprotectionforwildlandandbetterintegrationoflandmanagementgrants.
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Orkney
Dundee
Aberdeen
Inverness
EdinburghGlasgow
Dumfries
Stornoway
Shetland
Wester Ross
Ben Nevis/Glen Coe/Black Mount
Loch Lomondand The Trossachs
The Cairngorms
Figure 2
NationalParksrecommendedbyCCS1990
MapreproducedbypermissionofOrdnanceSurvey,licencenumber100053751.*ForlayoutpurposestheShetlandIslandsarenotshowninthecorrectgeographicalposition.
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“
2.21 Italsoidentifiedfourimportantmountainareaswhichurgentlyrequiredspecialmanagementarrangementstoprotecttheirhighheritagevalue:
1. TheCairngorms
2. LochLomondandtheTrossachs
3. BenNevis/GlenCoe/BlackMount
4. WesterRoss.
2.22 ItarguedthattheseareasshouldbecalledNationalParks,bemanagedbyindependentplanningboards(exceptforWesterRoss),havelandmanagementfunctionsandhavelocalcommunityinterestsrepresentedontheirboards.
Protecting Scotland’s Finest Landscapes1997
2.23 DespitetheseclearrecommendationsfromCCS,theGovernmentonceagaindidnotproceedwiththedesignationofNationalParks.ItdidhoweverestablishtwoWorkingParties,whichstudiedpotentialmanagementarrangementsfortheCairngormsandforLochLomondandtheTrossachsinmoredetailandpublishedfurtherlengthyreports.
2.24 Duringthe1990sScotland’snon-governmentalorganisations(NGOs)grewincreasinglydissatisfiedwithitslandscapeprotectionsystems.Thisculminatedinthe1997ScottishWildlifeandCountrysideLink(SWCL)discussionpaper Protecting Scotland’s Finest Landscapes,a‘callforactiononNationalParksinScotland’supportedby24NGOs.ThispaperanalysedtheproblemscausedbyaninadequateprotectedareassystemandthehistoryofdamagingconflictsinsomeofScotland’sfinestlandscapes,andcalledupontheGovernmenttoestablishanetworkofNationalParks.
2.25 In1997anewGovernmentmoresympathetictoNationalParkswaselected.ShortlyaftertheSWCLpaperwaspublished,EnvironmentMinisterLordSewelannouncedthenewGovernment’ssupportforNationalParksinScotland.ThiswastobeamatterfortheproposedScottishParliamentifScotlandvotedfordevolution,whichitdulydidinthe1997referendum.
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“
National Parks (Scotland) Act 2000
2.26 TheNationalParks(Scotland)Act2000wasoneofthefirstpassedbythenewly
re-establishedScottishParliamentfollowingdevolutionin1999.Section1establishesthefourNationalParkaims:
a) toconserveandenhancethenatural andculturalheritageofthearea,
b) topromotesustainableuseofthe naturalresourcesofthearea,
c) topromoteunderstandingand enjoyment(includingenjoymentinthe
formofrecreation)ofthespecial qualitiesoftheareabythepublic,and
d) topromotesustainableeconomic andsocialdevelopmentofthearea’s communities.
2.27 Crucially,Section9(6)oftheActsetsoutawiderversionoftheSandfordPrinciple(see2.17above):
In exercising its functions a National Park authority must act with a view to accomplishing the purpose set out in subsection (1); but if, in relation to any matter, it appears to the authority that there is a conflict between the National Park aim set out in section 1(a) and other National Park aims, the authority must give greater weight to the aim set out in section 1(a)
2.28 Section2setsouttheconditionsforanareatobedesignatedasaNationalPark:
a) thattheareaisofoutstandingnational importancebecauseofitsnatural heritageorthecombinationofitsnatural andculturalheritage,
b) thattheareahasadistinctivecharacter andacoherentidentity,and
c) thatdesignatingtheareaasaNational Parkwouldmeetthespecialneedsof theareaandwouldbethebestmeans ofensuringthattheNationalParkaims arecollectivelyachievedinrelationto theareainaco-ordinatedway.
Orkney
Dundee
Aberdeen
Inverness
EdinburghGlasgow
Dumfries
Stornoway
Shetland
Loch Lomond andThe Trossachs
Cairngorms
Figure 3
NationalParksestablished2002–2003
MapreproducedbypermissionofOrdnanceSurvey,licencenumber100053751.*ForlayoutpurposestheShetlandIslandsarenotshowninthecorrectgeographicalposition.
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““
2.33 SNHstatedthatScotlandhasaworld-classcoastalandmarineresource.IthadfoundsupportfortheprincipleofaCMNPfromsomeareasandinterestgroups,whileothersexpressedconcernsandreservations.SNHfeltthatthedesignationofaCMNPcould:
• Enhancethecareofanareaofhigh naturalandculturalheritagevalue;
• Increaseenjoymentandunderstanding;
• Deliverlocalsocialandeconomic benefits;
• Provideforgreaterinvolvementoflocal peopleindecision-making;and
• Promoteinnovation,goodpractice andintegratedapproachesto
sustainabledevelopment.
2.34 Thisapproachwouldbeunderpinnedbythebetterplanningandmanagementoftheareaandtheactivitiesthattakeplacewithinit.SNHrecommendedthattheNationalParkAuthorityforaCMNPshouldinitiallyfocusonplanningandpracticalwork,usingbasicpowersandfunctionsandmodestexpenditure.
2.35 Alonglistofpotentialareaswasidentified,basedonheritagevaluesandthecoherenceofdefinedareas.MostwereintheNorthandWest,includingmanyoftheislandgroups.Aprocessofshort-listingidentifiedthefollowingasthefivestrongestcandidates:
• TheSolwayFirth;
• ArgyllIslandsandCoast;
• Ardnamurchan,SmallIsles,andSouth Skyecoast;
• NorthSkyeCoastandWesterRoss;and
• NorthUist,SoundofHarris,Harrisand SouthLewis.
2.36 Itwasagreedthatfurtherworkwouldberequiredtorefinetheseareasandtoconsiderindetailtheirseawardandterrestrialextent.
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1/“Aprotectedareawheretheinteractionofpeopleandnatureovertimehasproducedanareaofdistinctcharacterwithsignificantecological,biological,culturalandscenicvalue:andwheresafeguardingtheintegrityofthisinteractionisvitaltoprotectingandsustainingtheareaanditsassociatednatureconservationandothervalues”/www.iucn.org
2.29 TheActalsosetsouttheprocesstobefollowedtodesignateNationalParksinScotlandandthepurposesandfunctionsofNationalParkAuthorities,includingtherequirementtoprepareaNationalParkPlan.
2.30 AfterlengthyconsultationanddesignationprocessestheLochLomond&TheTrossachsNationalParkwasdesignatedin2002andtheCairngormsNationalParkin2003.In2008theboundaryoftheCairngormsNationalParkwasextendedtoincludepartsofHighlandPerthshire,inaccordancewiththeoriginalrecommendationsbyScottishNaturalHeritage(SNH).
2.31 Scotland’sNationalParks(likeitsNSAs)benefitfromthesignificantinternationalaccoladeofbeingclassifiedasCategoryV–ProtectedLandscape/Seascapes1bytheInternationalUnionforConservationofNature(IUCN),theUnitedNationsagencyresponsibleforprotectedareasacrosstheglobe.Thisrequiresthatsuchareasbemanagedtomeettheinternationalobjectivesprescribedforthem,theprimaryonebeing:
To protect and sustain important landscapes/seascapes and the associated nature conservation and other values created by interactions with humans through traditional management practices
Coastal and Marine National Parks 2005-2007
2.32 The2000Actcanapplytoareasofseaaswellasofland.InJune2005theScottishExecutiveaskedSNHtoprovideadviceonCoastalandMarineNationalParks(CMNPs).InMarch2006SNHsubmitteditsadvice,presentingitsfindingsonhowaCMNPmightoperateandonpossibleareasthatmightbedesignated.
Lochaber and South Skye
The Argyll Islandsand Coast
Orkney
Dundee
Aberdeen
Inverness
EdinburghGlasgow
Dumfries
Stornoway
Shetland
Figure 4
CoastalandMarineNationalParksrecommendedbyScottishExecutive2006
MapreproducedbypermissionofOrdnanceSurvey,licencenumber100053751.*ForlayoutpurposestheShetlandIslandsarenotshowninthecorrectgeographicalposition.
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National Parks Review 2009
2.40 In2009theScottishGovernmentcarriedoutareviewofthetwoexistingNationalParks.However,theremitoftheReviewwasrelativelynarrowlydrawn,focusinglargelyontheroleandcompositionofthetwoNationalParkBoards.Also,Stage2oftheReviewwasdropped,denyingtheopportunitytodiscusssomeofthemorefundamentallyimportantquestionsfacingtheNationalParksbeyondtherelativelynarrowrangeofadministrativeissuescoveredunderStage1.TheReviewproposedtheestablishmentofaministerially-chairedNationalStrategyGroup,butthishasnotsofarbeenimplemented.
SNP Manifesto 2011
2.41 TheSNPManifestoissuedbeforethe2011ScottishParliamentelectionsincludedacommitmentto“workwithcommunitiestoexplorethecreationofnewNationalParks”,butasofJanuary2013theSNPScottishGovernmenthasnotyettakenanyactiontofulfilthiscommitment.
Conclusion
2.42 AtnopointhasiteverbeendecidedthatthenumberofNationalParksinScotlandshouldremainattwo.Threeprincipalreports–in1945,1974and1990–haveconsistentlyarguedthatScotlandhasmanylandscapesofaqualitymeritingNationalParkstatus,andseveralwherethepressuresuponthemrequirethespecialmanagementregimeassociatedwithaNationalPark.TheworkonCoastalandMarineNationalParksduring2005-2007madeastrongcaseforatleastonemoresuchareatobedesignated.ThefactthatonlytwoNationalParkshavesofarbeenestablisheddoesnotreflectaconsideredassessmentthatonlytwoarejustified.Asthefollowingsectionswillshow,asweenteraneraofeverfasterandmoreunpredictablechange,theargumentsforincreasingthisnumbergroweverstronger.SCNPandAPRShaveconcludedthatthisissuerepresentsUnfinished Business.
2.37 Laterin2006theScottishExecutiveissuedaconsultationonitsproposalsforScotland’sfirstCMNP,basedontheSNHadviceandstressingthepotentialbenefitsandaddedvaluethataCMNPcouldbringtoScotland.ItpresentedadetailedsummaryofthesignificanceofandopportunitiespresentedbyeachofthelonglistoftenareasidentifiedbySNH.MinistersagreedwithSNH’sshortlistofthefivestrongestcandidateareas.Withinthisshortlisttwoareas,ArgyllIslandsandCoastandArdnamurchan,SmallIslesandtheSouthSkyeCoast(oracombinationofthesetwoareas)wereidentifiedaspossiblestrongestall-roundcandidates.
2.38 Thenextstepsweretohavebeentodecidethepreferredlocation,todevelopproposalsonfunctionsandpowersandtopublishaformal‘proposal’underthe2000Act.However,thisdidnottakeplacebeforetheelectionsinMay2007,andtheincomingSNPGovernmentsetasidetheproposalstofocusonbroadermarinepolicyissues.ThisultimatelyledtotheMarine(Scotland)Act2010,whichmakesnoreferencetoCMNPs.
Isle of Harris Report 2008
2.39 Duringtheearly2000sagroupofpeopleonHarrisbecameconvincedthatNationalParkstatuswouldbenefittheirisland,particularlyinreinforcingitsfragileeconomy,andin2008theycommissionedthe Isle of Harris National Park Feasibility Study. ThismadeaconvincingcasethatHarrismetthethreeconditionssetoutinthe2000Act,andsetoutthesubstantialandsustainablebenefitsthatNationalParkstatuswouldbring.ItarguedaclearpreferenceforaNationalParkastheidealmechanismtohelpfocusandencouragefutureheritagemanagementandcommunitydevelopmentinHarris.However,theideaofaHarrisNationalParkhassofarfailedtowinsupportfromlocalauthorityComhairlenanEileanSiar2ortheScottishGovernment.
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2/WesternIslesCouncil/
3.1 ThissectionsetsoutwhatSCNPandAPRSconsidertobetheprincipalprovenenvironmental,socialandeconomicbenefitsofNationalParkstatus.OurhopeisthatthiswillhelptoconvincemorepeopleinotherareasofScotlandthatNationalParkstatusisworthconsideringfortheirarea.
Summary of Benefits
3.2 NationalParksprovideaclearfocusonaparticularplace,mechanismstostimulateandco-ordinatepositiveactiontowardsitsconservationmanagementandadditionalresourcestoreflectitsimportancetothenation.NationalParksusuallybenefitfromanagreedplandesignedtosafeguardthearea’sspecialqualitiesforfuturegenerationswhilstmanagingcompetingpressuressuchastourism,transport,energy,agriculture,forestryandfishinginintegratedandpositiveways.GovernmentsnormallyprovideadditionalnationalfundingtohelpsustaincommunitiesinandaroundNationalParks,encouragingjobswhichsupportandlookafterthesespecialplacesandtheirwaysoflife.NationalParksoftenbringmorevisitorstoremoteareas,benefittourism,farmingandfishinginterestsandgeneratenewcommercialandmarketingopportunities.
Environmental Benefits
Conservation Management3.3 DesignationofanareaasaNationalPark
generatesafocusonactiveconservationmanagement,thatisonidentifyingitsspecialqualitiesandpromotingactionswhichprotectorenhancethosequalities.ScottishNationalParkAuthorities(NPAs)regularlydemonstrateleadershipbyfocusingonmanagementchallengespreviouslyperceivedeitherastoodifficulttodealwithortooperipheraltotheprioritiesoflocalauthoritiesorotherpublicbodies.Forexample,theCairngormsNPAhasledtheestablishmentoftheCairngormsOutdoorAccessTrust,whichhassecuredsubstantialresourcestotacklethealreadyextensivemountainpatherosionacrosstheCairngormsmassif,andisseekingtoimprovedeermanagementarrangementsacrosstheNationalPark.
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TheLochLomond&TheTrossachsNPAhastackledlong-standingconcernsaboutanti-socialbehaviouronEastLochLomondsideandpowerboatingonLochLomond.
Ecosystem Services3.4 Wealldependupontheservicesprovided
byecosystemsandtheircomponents:water,soil,nutrientsandorganisms.These‘ecosystemservices’aretheprocessesbywhichtheenvironmentproducesresourcesusedbypeople,suchascleanairandwater,food,wildlifehabitats,floodmanagementandtheprotectionofcarbon,nitrogen,nutrientandwatercycles.Theyalsoincludetheculturalbenefitspeopleobtainfromecosystemsincludingspiritualenrichment,reflection,recreationandaestheticexperiences.NationalParksprovidenationallyimportantecosystemservicesandhavegreatpotentialtomaximisethiscontribution,forexamplebylinkinguphabitatstoprovidecorridorsofconservationvalue.
Ranger Services3.5 TheprincipalmeansbywhichNational
Parkshelpvisitors,adviseownersandmanagelandarebyprovidingcountrysiderangerservicesorco-ordinatingexistingrangerservices.NationalParkdesignationshouldresultinmoreeffectiveco-ordinationbetweenanyexistingpublicandprivaterangerservicesaswellasinvestmentinadditionalprovision.
Section3BenefitsofNationalParks
Landscape and Biodiversity Projects3.6 NationalParkstatuscangenerate
additionalresourcestocarryoutpriorityprojectsagreedintheNationalParkPlan,drawingincharitable,ruraldevelopmentandlotteryfunding.Thiscanbeco-ordinatedtoinvestinprioritylandscapeorbiodiversityprojects,forexamplecurrentCairngormsNationalParkprojectstoconservebarnowls,redsquirrelsandwildcats.SuchresourceshelpmakethefundsprovidedbytheNPAitselfandotherpublic-sectorsourcesgofurther.TheForestryCommissionhasinvestedheavilybyallocatingincreasedresourcestowardsmanagingforestlandscapesinbothScottishNationalParks;forexamplesubstantialnewsumshavebeensecuredfortheambitiousGreatTrossachsForestproject.
Testbeds3.7 NationalParksareregularlyusedto
pilotenvironmentalschemeswhicharethenadoptedmorewidely.Forexample,EnvironmentallySensitiveAreasbeganintheBroadsNationalParkinEngland;otherinitiativeswhichstartedlifeinNationalParksincludeintegratedruraldevelopmentand‘one-stopshops’foradvicetolocalbusinessesandresidents.Infuture,societywillneedtofindmoreenvironmentallysustainablemethodsoflivingandworking.NPAs,helpedbyacademicinstitutions,cancreatenewapproachestosustainabledevelopmentwhichcanthenbeappliednationally.Thiscouldincludeadaptingtoclimatechangeoraddressingthechallengesof‘peakoil’.Forexample,theLochLomond&TheTrossachsNPAispromotingtheintroductionofwaterbusesonLochLomondasasustainabletransportinitiative.
Social Benefits
Health and Well-being3.8 NationalParksprovidenationallyimportant
socialbenefitsbypromotingawidevarietyoftypesofoutdoorexercise,whichcanhelptocombatheartdiseaseandobesityandimprovementalhealth.LargenaturalareassuchasthoseinNationalParksalso
bringindirectbenefitstohumanhealth,forexamplebyabsorbingparticulatepollutantswhichcontributetolungdiseaseandbyreducingtheriskofflooding,whichregularlycausessignificantdistressandinconvenience.Theyalsoprovidesignificantopportunitiesforspiritualrefreshment,whichmanypeoplegainfromwildplaces,andforescapefromeverydaypressurestoenjoyquietness,peaceandfreshair.BothScottishNPAshaveinvestedsignificantlyinoutdoorrecreationinitiatives,forexampletheThreeLochsWaylinkingLochLomond,theGareLochandLochLong,theSpeysideWayNewtonmoreextensionandvillagepathnetworkssuchasthatpromotedbyExploreAbernethy.
Advice and Skills Training3.9 NationalParkscanprovidea‘one-stop
shop’forlocalpeopleandbusinesses,givingtailoredinformationonarangeofsubjectsincludingbusinesssupportandtraining,forexampleadviceonLEADERorScotlandRuralDevelopmentProgrammefunding.IntheCairngormsNationalPark2000peoplefrom200businesseshavebenefitedfromaskillstrainingprogrammeforland-basedbusinesses,includingcoursesonblackgrousemanagement,cateringforthelessablevisitor,drystanedyking,heathermanagement,theScottishOutdoorAccessCodeandwatermarginmanagement.TheLochLomond&TheTrossachsNationalParkCommunityFuturesProgrammehasledto18communitiesformingcommunitydevelopmenttruststotacklelocalissues.
Affordable Housing3.10 Thisiscurrentlyseenasthebiggestsingle
issuebythecommunitieslivinginbothScottishNationalParks.NationalParkselsewhereintheUKhavedemonstratedcommitmentandleadershipintriallinginnovativeapproachestosecuringaffordablehousingforlocalpeople,ofteninco-operationwithhousingassociationsanddeployinglegally-bindingoccupancyconditions.However,itistoosoontotellwhetherScotland’sNationalParkswillbeabletoaddressthischallengesuccessfully.
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Co-ordination3.11 NationalParkscanprovidethenecessary
leadershiptoensurethatallpublic,privateandvoluntarybodiespullinthesamedirectiontodeliverintegratedmanagementacrossthewholearea.TheprincipalmeansofachievingthisisthroughsupportforasingleagreedNationalParkPlan,whichsetsouthowthemainissuesidentifiedfortheareashouldbestbetackled.NPAscanalsoactaspositiveintermediariesbetweenlocalresidentsandexistinglocalserviceproviders.
Education and Interpretation3.12 ThetwoScottishNationalParkshave
workedjointlyonanexternally-fundededucationalresourceprojecttoembedNationalParksintothenewnationalCurriculumforExcellence.TheJohnMuirAwardisanenvironmentalawardschemefocusedonwildplaceswhichencouragesawarenessandresponsibilityforthenaturalenvironment,inaspiritoffun,adventureandexploration.JohnMuirAwardshavebeengainedby4,200peopleintheCairngormsNationalPark.SignificantimprovementstointerpretationhavebeencarriedoutbybothScottishNPAs,includingsigning,orientationfacilitiesandpublications.TheForestryCommissionhasrefurbisheditsDavidMarshallLodgevisitorcentreintheTrossachsanditsGlenmoreForestParkVisitorCentreintheCairngormsandhasupgradedpathandbikenetworksinbothNationalParks.
Permanence3.13 DesignationasaNationalParkisaclear
signaloflong-termnationalcommitmenttoitsconservation.Temporarypartnershiparrangementsmaycomeandgo,andarevulnerabletofundingconstraintsandpoliticalchange,butitisveryrareforagovernmenttoabolishaNationalPark.AlthoughsomelocalpeopleopposedthedesignationofNationalParksinScotland,thereissomeevidencethatlocalsupportincreasedovertheirfirsttenyears.Forexample,manyMSPsmadepositiveandsupportivecontributionstothetwodebatesonScotland’sNationalParksintheScottishParliamentinMarch2008andNovember
2009,andduringthe2008-2009NationalParksReviewseverallocalcommunitiesfromareasnearexistingNationalParksmadecasesforboundaryextensionstoincludetheirareas.
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Economic Benefits
Support for Traditional Land Uses3.14 SomeNationalParkshavealongtrack
recordinsupportingtraditionalformsoffarmingandwoodlandmanagement,inordertosustainthelandscapeandbiodiversitybenefitsgeneratedbythoselanduses.NationalParkstatuscanhelpsupportjobsintheland-basedsector,includingcrofters,rangers,stalkers,farmersandforesters,andcanbringbothdirectandindirectbenefitstothoseemployedinbusinessessuchasaccommodation,foodprocessingandbuilding.NationalParkauthoritiescanhelppeopletoaccesscomplexpublicfundingschemes,includingmakingcollectivegrantapplications.
Multiple Benefits3.15 NationalParkscandevisemechanisms
whichaddvaluetothenaturalandculturalheritagewithoutdetrimenttotheaimsoftheNationalPark.ForexampletheHoheTauernNationalParkinAustriahasestablishedacompetitionfortraditionalAlpinedairyfarmerstoprovideNationalPark-brandeddairyproducts.Thishasprovidedaseriesofbenefitstothearea:supportforararebreedindigenoustotheregion;maintenanceofAlpinepasturesintrinsictothequalityoftheproduce;maintenanceoftraditionalbuildingsandstackyards;andthedevelopmentoffarm-basedtourismbusinessopportunities.
Accolade3.16 NationalParkstatusbringsinternational-
levelrecognitionofthequalityofthearea,generatingpromotionalbenefitsintermsofmarketingandbrandingoflocalproduceandservices.Forexample,morethan200businessesintheCairngormsareusingspecialNationalParkbrandingmaterialsandtheNPAhassupportedtheCairngormsFarmersMarketandtheCreativeCairngormsartists’andcraftworkers’association.BothScottishNationalParkshavebeenawardedtheEuropeanCharterforSustainableTourism,and50businessesintheLochLomond&theTrossachsNationalParkhaveachievedGreenTourismBusinessSchemeaccreditation.NPAs
canactaschampionsoftheirlocalareasbyadvocatingthemaintenanceofdiverseruraleconomies,andcanprovideaccesstointernationalexpertise.
Employment and Investment3.17 NPAsemployadditionalstaffdirectly,and
alsostimulateindirectemploymentthroughthe‘multipliereffect’ofsourcinggoodsandservicesfrombusinessesbasedinandaroundtheNationalPark.NationalParkstatuscanattractmorevisitors,increaseaveragespendpervisitorandlengthenthevisitorseason,therebyincreasingtourism-relatedemploymentandsustainingsmall-scaletourismbusinesses.NationalParkstendtoattractgreaterlevelsofinwardinvestment,particularlyfortourism,outdoorrecreationprovidersandleisuredevelopments.
Spin-Off Effects3.18 Studies3oftheeconomicimpactof
NationalParksintheUKandoverseasdemonstratethatNationalParksgenerateemployment,incomeandbusinessdevelopmentintheirhinterlandsaswellaswithintheirboundaries.ThisisduetoNationalParkstatusraisingawarenessofthewiderregioninwhichitislocated,tovisitorspassingthroughneighbouringareasenroutetoorfromtheNationalParkandtoNPAssourcinggoodsandservicesfromthesurroundingarea.StudieshavealsoshownthatNationalParkstendtohavehighereconomicactivityratesandlowerunemploymentthancomparableareasnearby.
Voluntary Donations Schemes3.19 ANationalParkprovidesthesortof
easilyrecognisableunitandmanagementauthoritywhichcanencouragepeopletocontributevoluntarilytothearea’supkeep.Forexample,visitorstoNationalParkshaveshownwillingnesstocontributetoconservationprojectsthroughvoluntarydonationschemessuchastheOUR ParkschemerunbyFriendsofLochLomond&TheTrossachsortheNurture LakelandinitiativeintheLakeDistrictNationalPark.
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3/Forexample:ProsperityandProtection(CouncilforNationalParks,2006);EconomicContributionofNationalParks(CampaignforNationalParks,2010);ValuingtheNationalPark(LochLomond&TheTrossachsNationalParkAuthority,2011)/
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GlenAffric–notyetaNationalPark
““
4.4 ItisimportanttonotethatSection9(6)onlyappliestotheNPA,nottootherexecutiveagenciesorpublicbodies4,yetthepoliciesandactivitiesofallofthesecanhavesignificantimpactsonthebeautyofthenaturalandculturalheritageinNationalParks.ThishasgeneratedtensiononoccasionbetweenagenciesorpublicbodiesseekingtopromoteresourceuseoreconomicorsocialdevelopmentandNPAsseekingtopromotetheSandfordPrinciple.
4.5 WethereforerecommendthatScottishMinistersshoulddirectNPAstogivegreaterweighttotheSandfordPrinciple,andshouldissueclearpolicydirectionthattheprimacyofthefirstNationalParkaimappliestoallexecutiveagenciesandpublicbodiesoperatingwithinNationalParks.
Sustainable Development
4.6 TwooftheNationalParkAimsestablishedinSection1oftheNationalParks(Scotland)Act2000(the2000Act)includetheword‘sustainable’:
(b)topromotesustainableuseofthe naturalresourcesofthearea,
(d)topromotesustainableeconomic andsocialdevelopmentofthearea’s communities.
Section4ScopeforImprovement
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4/including,forexample,localCouncils,theForestryCommission,HighlandsandIslandsEnterprise,HistoricScotland,MarineScotland,theScottishEnvironmentalProtectionAgency,ScottishNaturalHeritage,TransportScotlandorVisitScotland/
4.1 TheprincipalaimofthisStrategyistoprotectandenhanceScotland’svaluedlandscapesbyencouragingtheScottishGovernmenttodesignatemoreNationalParks.However,inaddition,adecade’sexperienceofthefirsttwoNationalParksindicatesthatthereisscopetoimproveandstrengthentheiroperationandthatthecasefordesignatingmoreNationalParkswillbestrongeriftheseissuesareaddressed.Thissectionsetsouttheprincipalissuesconcerned,alongwithrecommendationsforaddressingthem.ThedesignationofadditionalNationalParksshouldnothoweverbedelayeduntilimprovementsaremadetotheexistingones.
The Sandford Principle
4.2 Section9(6)ofthe2000ActsetsoutawiderversionoftheSandfordPrinciple(see2.17above):
In exercising its functions a National Park authority must act with a view to accomplishing the purpose set out in subsection (1); but if, in relation to any matter, it appears to the authority that there is a conflict between the National Park aim set out in section 1(a) and other National Park aims, the authority must give greater weight to the aim set out in section 1(a)
4.3 Theaimsetoutinsection1(a)istoconserveandenhancethenaturalandculturalheritageofthearea.Section9(6)thereforemeansthatifthereisaconflictbetweenthisaimandtheotherthreerelatingtoresourceuse,understandingandenjoymentandeconomicandsocialdevelopment,theNationalParkAuthority(NPA)mustgivegreaterweighttotheconservationaim.BothNPAshavebeencriticisedfornotdoingso,particularlyinrelationtodevelopmentmanagementdecisionstakenunderthetownandcountryplanningsystem,forexampletheproposedlarge-scalehousingdevelopmentatAnCamasMòrintheCairngormsNationalParkandtheproposedgoldmineatCononishintheLochLomond&TheTrossachsNationalPark.
4.7 Theword‘sustainable’isnotdefinedintheActandregulardebatehassincetakenplaceoveritsmeaninginthecontextofScotland’sNationalParks.However,Scottish Planning Policy(2010)makesclearthattheScottishGovernmentsupportsthefiveguidingprinciplesofsustainabledevelopmentagreedinternationally:
• livingwithinenvironmentallimits
• ensuringastrong,healthyandjust society
• achievingasustainableeconomy
• usingsoundscienceresponsibly
• promotinggoodgovernance.
4.8 Thefundamentalprincipleofsustainabledevelopmentisthatitintegrateseconomic,socialandenvironmentalobjectives.Forapolicy,strategy,planoractivitytobesustainable,itmustrespectallfiveprinciples;livingwithinenvironmentallimitsandachievingastrong,healthyandjustsocietyrequireasustainableeconomy,soundscienceandgoodgovernance.TheseprinciplesclearlyapplyparticularlystronglyinNationalParksduetothewordingoftheNationalParkAimsquotedabove.
4.9 WethereforerecommendthatScottishMinistersshouldgiveclearpolicydirectionthatindealingwithNationalParksallexecutiveagenciesandpublicbodiesshouldpayparticularattentiontopromotingthefiveguidingprinciplesofsustainabledevelopment.
Land Use Planning
4.10 NPAsneedeffectivemechanismstoinfluencelanduseplanninginordertosuccessfullypromotetheNationalParkAims.Thisappliesbothtothoseactivitiescontrolledbythetownandcountryplanningsystemandtothosewhicharenot.
4.11 ThestatutorytownandcountryplanningsystemisoneoftheprincipaltoolsatthedisposalofbothNPAstopromoteNationalParkaims.However,twodifferentplanningsystemsareinoperationinthe
twoNationalParks.TheLochLomond&TheTrossachsNPAhasfulldevelopmentplanning,developmentmanagementandenforcementpowers.IntheCairngorms,however,asplitsystemoperatesinwhichdevelopmentmanagementpowersremainwiththefiveconstituentlocalplanningauthorities,whilsttheNPAhasdevelopmentplanningand‘call-in’powersoversomedevelopmentmanagementdecisions;enforcementpowersareshared.Thisset-uphasprovedconfusingtoallinvolved,includinglocalresidents,developersandpublicbodies,andhasdemonstratednocompensatingadvantages.
4.12 MuchlanduseactivitywithpotentialtoaffectthelandscapeoftheNationalParksfallsoutwiththestatutoryplanningsystem,includingmanagementforagriculture,forestry,deerandrecreation.BothNPAsthereforeneedeffectivemechanismstoinfluencelanduseoutwiththeplanningsystem.FundingfromtheScotlandRuralDevelopmentProgramme(SRDP)isparticularlyinfluential,asitbringsapproximately£1,600mperannumintoruralScotland,over100timesthesizeofthebudgetsofbothNPAscombined.TheotherkeyissueisthatforthefirsttimeScotlandnowhasanintegratedandsustainableLand Use Strategy,publishedin2010,withthepotentialtohaveapositiveinfluencebothontheobjectivesoftheSRDPandonpatternsoflandmanagementintheNationalParks.
4.13 WethereforerecommendthatScottishMinistersusetheirpowerstotransferdevelopmentplanningpowerstotheCairngormsNPA,andputinplaceeffectivemechanismstoensurethatallSRDPfundingcontributestowardsNationalParkaims.Thiscouldbeachieved,forexample,byrequiringlocallandusestrategiestobepreparedforeachNationalPark,whichwouldintegratetheobjectivesoftheNationalParkPlanandthenationalLand Use Strategy.
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Relationships
4.14 BothNPAshaveunderstandablyputmucheffortintheirfirstdecadeintoengagementwiththoseresidentintheNationalParks,seekingtobuildthecrucialsupportoflocalcommunitiesfortheconceptoftheNationalParkingeneralandtheactivitiesoftheNPAinparticular.However,theseareNationalParksinwhichmanyotherindividualsandgroupshavelegitimatestakes,inparticularthe‘communitiesofinterest’representedbythenationalnon-governmentorganisations(NGOs)whichpromotelandscapeprotection,recreationalaccessandbiodiversityconservation.In2011severaloftheleadingNGOsestablishedaNationalParksTaskForcethroughthemechanismofScottishEnvironmentLINK.ThisaimstohighlightthestrategicissuesinvolvedwithNationalParksinScotlandandtoprovideaclearstructurewithwhichbothNPAscanengage.ItheldaconstructivefirstmeetingwiththeCNPAinNovember2011andfurthermeetingswithbothNPAsareinprospect.
4.15 WethereforerecommendthatbothexistingandfutureNPAsshouldestablishformalmechanismstoengagewithcommunitiesofinterest,includingthoserepresentedbythenationalNGOmovement,aswellaswithlocalcommunitiesofplace.
National Park Plans
4.16 Section11ofthe2000ActgivesNationalParkPlans(NPPs)akeyroleinachievingtheNationalParkaimsinaco-ordinatedway.NPPsmustsetouttheNPA’spolicyformanagingtheNationalParkandco-ordinatingthefunctionsoftheNPAandofotherpublicbodiesinrelationtotheNationalPark.However,althoughtheNPPisaplanforthewholeNationalPark,notjustfortheNPA,publicbodiesareonlygiventhefairlyweakdutyto“haveregardto”theNPP.ThereissomeconfusionovertherespectiverolesofNPPspreparedunderthe2000ActandLocalDevelopmentPlanspreparedunderthePlanningActs.
4.17 WethereforerecommendthatMinistersshouldissueclearpolicydirectionthatallpublicbodiesareexpectedtobecloselyinvolvedinthepreparationoftheNPPandtoplaytheirpartindeliveringitsaims.MechanismsshouldbeintroducedbywhichallrelevantpublicbodiesformallycommittoendorsingandfollowingtheNPP,includingfundingactionsidentifiedinit.TheScottishGovernment’srecentundertakingtochairannualmeetingsoftherelevantpublicbodiestocementtheircommitmenttoimplementthemeasuresinNPPsthatfallwithintheirremitsisapositivestepinthisdirection.
Role of National Park Authority
4.18 ThetwoexistingNPAshaveadopteddifferentstylesofmanagement,partlyduetohistoricaldifferencesintheirdevelopmentandpartlythroughdeliberatechoice.TheCairngormsNPApresentsitselfasprincipallyanenablingbodywhichfocusesonco-ordinatingtheactivitiesofotheragencies.Forexample,therangerservicesintheNationalParkremainrunbyamixtureofvoluntary,publicandprivatebodies,andtheNPAdeliberatelyavoidedtheopportunityofdirectinvolvementinmanagingakeyareaoflandattheheartoftheNationalParkwhenthefutureoftheCairngormEstate,currentlyownedbyHighlandsandIslandsEnterprise,wasreviewedrecently.OntheotherhandtheLochLomond&TheTrossachsNPAtakesamorehands-onapproach,includingdirectmanagementofitsownin-houserangerservice.SuchdirectmanagementcanenhancetheNPA’scredibilityandrespectbydemonstratingexperienceandbestpracticeinconservationmanagementandbydirectlydeliveringobjectivesappropriatetoInternationalUnionforConservationofNature(IUCN)ProtectedLandscape/Seascapestatus.
4.19 WethereforerecommendthatexistingandfutureNPAsshouldpreferablyundertakedirectconservationmanagementofphysicalassetsasexemplars,andinparticularin-housemanagementofarangerserviceasthepublicfaceoftheNPA.
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Current Context
5.1 ThecurrentpolicycontextforthemanagementofScotland’stwoexistingNationalParksandthedesignationofanynewonesisprovidedbyfourkeynationaldocuments:Scotland’s Landscape Charter, theNational Planning Framework 2, Scottish Planning PolicyandtheLand Use Strategy.
5.2 Scotland’s Landscape Charter(2010)demonstrateshowtheprinciplesoftheEuropeanLandscapeConvention(ELC)canbestbeappliedinScotland.TheELC,signedbytheUKGovernmentin2006,promotesthebetterprotection,managementandplanningofalllandscapesacrossEurope.TheCharterfocusesattentionontheactionseveryonecantaketoensureScotland’slandscapesarepassedontofuturegenerationsinthebestpossiblehealth.DevelopedbyScottishNaturalHeritagewiththeScottishLandscapeForum,theCharterinvitescommunities,landmanagers,developers,localauthorities,publicbodiesandnon-governmentalorganisationstosupportitsvisionandcommitthemselvestotheactionitproposes.
5.3 TheNational Planning Framework 2(2009)statesthat“Scotland’stwonationalparksarealreadydemonstratinghowenvironmentalqualitycanbeusedtosupporteconomicandsocialdevelopment”andthat“Scotland’sNationalParksprotectsomeofourmostpreciousnaturalheritageandmakeanimportantcontributiontoourtourismandleisureeconomy.Theyareimportantdriversofinnovationinsustainableruraldevelopmentandlandmanagement.”
5.4 Scottish Planning Policy(2010)(SPP)firstlyrestatesthefourNationalParkaims,thenclearlysetsouttheSandfordPrincipleandthestatusoftheNationalParkPlanasfollows:“Incircumstanceswhereconflictbetweentheobjectivesarisesandcannotberesolved,the2000Actrequiresthattheconservationofthenaturalandculturalheritageshouldtakeprecedence.The
managementstrategyforeachparkissetoutintheNationalParkPlan.DevelopmentplanswithinparkareasshouldbeconsistentwiththeNationalParkPlan.”
5.5 Scotland’sfirstLand Use Strategy(2011)statesthat“OurtwoNationalParksareofoutstandingnationalimportancebecauseoftheirnaturalandculturalheritage.Theywereestablishedtopromoteallthreepillarsofsustainabledevelopment–economy,environmentandcommunity.”ItgivestheNationalParkAuthorities(NPAs)aroleinimplementingtheStrategy:“throughNationalParkPlans(implementingcurrentPlansanddevelopingfutureones),NationalParkAuthoritiesinacollectiveandco-ordinatedapproachwithotherrelevantpublicbodiescanapplyandputintopracticethePrinciplesandObjectives(oftheLand Use Strategy),makingchoicesaboutlanduseandprioritiesacrosstheParkareas.”
5.6 TheSNPmanifestoissuedbeforethe2011ScottishParliamentelectionsincludedacommitmentto“workwithcommunitiestoexplorethecreationofnewNationalParks”,althoughtheincomingSNPGovernmenthasnotyet(January2013)takenanyactiontowardsthisend.OneofourpurposesinproducingthisdocumentisthereforetohelptheScottishGovernmenttohonouritsmanifestocommitment.
Section5ProposedNationalParks
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Selection Criteria
5.7 ThefollowingcriteriahavebeenusedtodeterminearecommendedlistofareasinScotlandwhichweconsidertobesuitableforNationalParkdesignation:
• Outstandingnationalsignificancefor naturalbeauty,biodiversity,cultural heritageorlandscape
• Distinctiveandcoherentcharacter
• Landmanagementpatternswhich demonstrateharmoniousinteraction
betweenpeopleandnature
• Opportunitiesforappropriatesmall- scalequietpublicenjoyment,consistent withconservation
• Suitabilityforintegratedmanagement.
5.8 ThesearebasedontheconditionssetoutinSection2ofthe2000Act,somewhatexpandedinlightofsubsequentexperience.The‘harmoniousinteraction’criterionisdrawnfromInternationalUnionforConservationofNature(IUCN)ProtectedArea(see2.31above)ManagementCategoryV(ProtectedLandscape/Seascape),whichisdefinedas“aprotectedareawheretheinteractionofpeopleandnatureovertimehasproducedanarea…withsignificantecological,biological,culturalandscenicvalue”,ieratherthana“strictnaturereserve”or“wildernessarea”.
Proposed National Parks
5.9 ByapplyingthecriteriasetoutabovetopotentialNationalParkareas,werecommendNationalParkstatusforatleastthefollowingsevenareas.TheirapproximatelocationsareshownonFigure5,andbriefdescriptionsaregivenbelow.TheseareasincludealloftheterrestrialareasproposedbytheRamsayCommitteein1945andbytheCountrysideCommissionforScotlandin1974and1990,andtwoofthecoastalandmarineareasproposedbytheScottishExecutivein2007.Theyalsoincludeoneareawherelocalcommunitysupportisparticularlystrong,andtwoareasrepresentativeofthelandscapesofsouthernScotland.
5.10 Ben Nevis/Glen Coe/Black Mount Thisareaincludestheimpressivemassif
ofBenNevis,thehighestmountainintheBritishIsles,aswellasalpineGlenNevis,dramaticGlenCoe,theexpansiveMoorofRannochandfjord-likesealochsLochLevenandLochEtive.Itisverypopularforhillwalkingandwintermountaineering,andcontainstwodownhillskiingandmountainbikingresortsatGlencoeandNevisRange.TheNationalTrustforScotland(NTS)ownsasubstantialareaatGlencoeandtheJohnMuirTrustownsBenNevisaboveapproximately650m.ItwasrecommendedforNationalParkstatusorequivalentinthe1945,1974and1990reports,andismostlyinLochaberwhichcurrentlybrandsitselfastheOutdoorCapitaloftheUK.Ithasbeensubjecttoseveralintegratedmanagementinitiatives,mostrecentlythroughtheNevisPartnership.MuchoftheareaisalreadydesignatedasaNationalScenicArea(NSA).
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Galloway–notyetaNationalPark
Shetland
Orkney
Dundee
Aberdeen
Inverness
EdinburghGlasgow
Dumfries
Stornoway
Coastal and Marine National Park Ben Nevis –
Glen Coe –Black Mount
Glen Affric
Wester RossHarris
Galloway
Cheviots
Figure 5
NationalParksrecommendedbySCNPandAPRS2013
MapreproducedbypermissionofOrdnanceSurvey,licencenumber100053751.*ForlayoutpurposestheShetlandIslandsarenotshowninthecorrectgeographicalposition.
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volcanicterracesandcliffs,exceptionalmarinewildlifeandstronghistoricalassociations.TherearefiveNSAsinthisarea:TheSmallIsles;Morar,MoidartandArdnamurchan;LochnaKeal;Scarba,LungaandtheGarvellachs;andJura.
5.13 Galloway AnyNationalParkinGallowaywould
preferablybringtogethertheNationalForestParkandthethreeNSAs,andcouldalsoincorporateanadditionalmarinecomponentintheSolwayFirth.ThethreeNSAsfeaturearichvarietyofdynamiccoastalscenery,includingextensiveestuariesandmudflatsandseveraldistinctiveislands,withviewssouthtotheCumbrianfells.Thereisagradualtransitionfromthecoastlinethroughawell-woodedfarminglandscapewithmanytraditionalfeaturesincludingfields,dykesandhedgestotheuplandhills.TheNationalForestParkincludestheMerrick,thehighestmountaininsouthernScotland,andhasmorerecentlyacquiredreputationsformountainbikingtrailsandforthequalityofstargazingallowedbyitsdarkskies.ThisdiversitymakesGallowayanoutstandingexampleofthetypeoffinelandscapesScotlandhastoofferbeyonditsclassicandbest-knownHighlandscenery.PartsofthisareaoverlapwiththeGallowayandSouthernAyrshireBiospherereserveandwiththeGallowayDarkSkyPark.
5.14 Glen Affric ThiswasrecommendedforNationalPark
statusintheRamsayreportandremainsoneofthemostbeautifulglensinScotland.ThejourneyalongitfromeasttowestgivestheexperienceofagradualtransitionfromdenseandenclosedScotspineforestpastprominentlochstoexposedandwildopenmoorland.Itformspartofahistoriceast-westroutefromcoasttocoast.SubstantialpartsofthelowerglenareownedbytheForestryCommission,andtheNTSpropertyofWestAffricincludesitsupperwesternreaches.GlenAffricisalreadydesignatedasaNSA.
5.11 Cheviots (Northumberland National Park extension) TheScotland/Englandborderruns
alongtheridgeoftheCheviotHills,sothesouthernflanksoftheCheviotHillsinEnglandareincludedintheNorthumberlandNationalPark,yetthenorthernflanksinScotlandhaveonlylimitedprotectionthroughAreaofGreatLandscapeValue(AGLV)designation.However,thelandscapequalityofthenorthernsideisasgreatas,ifnotgreaterthan,thattothesouth,sotherewouldbeagreatdealofsenseinextendingtheNorthumberlandNationalParkintoScotland.Thiswouldbethefirstcross-borderNationalParkintheBritishIsles,althoughthiswouldnotbeparticularlyunusual,asthereareseveralexamplesofcross-borderNationalParkselsewhereintheworld.TheCheviotHillsfeatureextensivegrassymoorlandswithfrequentrockyoutcrops.Thelargelytreelessvalleyswhichcutintotheuplandsoftenallowopenviewstolayeredridgesofhills,givingvisualdepthtoviewsintoandwithinthearea.Strongcontrastsprevailbetweentheremote,wildsummitsandthequieter,lessdramaticvalleys.
5.12 Coastal and Marine National Park TheworkcarriedoutbyScottishNatural
Heritage(SNH)andtheScottishExecutivein2005-2007madeaconvincingcaseforthedesignationofatleastoneCoastalandMarineNationalPark(CMNP).SNHshortlistedfivestrongpossiblecandidateareas;fromthesetheScottishExecutiveidentifiedeitherArgyllIslandsandCoastorArdnamurchan,SmallIslesandtheSouthSkyeCoastaspossiblestrongestall-roundcandidates;itfurthersuggestedthatacombinationofthesetwoareasmightalsobeastrongcandidate.WethereforeproposeaCMNPbasedaroundMull,CollandTiree,extendingnorthwardspastArdnamurchantotheSmallIslesandsouthwardstoColonsayandpossiblyIslayandJura.Thisareacontainsbothoutstandingcoastalsceneryanddistinctiveandcontrastingislandgroups,rangingfromthefertileandsettledtothewildandremote.Therearedramaticcoastlinesof
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5.15 Harris Thefeasibilitystudycompletedin2008
madeastrongcasefortheIsleofHarristobecomeaNationalPark,andthisproposalhastheclearsupportofthelocalcommunity,conclusivelyprovenbyareferendum.However,the2008studywasexplicitlyconfinedtotheterrestrialenvironment,whereasmuchofthelandscapequalityofHarrisdependsupontheinterplaybetweenseaandland.WethereforeconsiderthatanyNationalParkbasedonHarrisshouldhaveacoastalandmarineelement.Harrisexhibitsarichvarietyofexceptionalscenery,rangingfromawildandrockymountainousinteriortoextensivecoastalmachair,dunesandexpansivebeaches.Italsofeaturesagreatdiversityofseascapes,includingdramaticisland-studdedsounds,andhasastrongfeelingofbeingontheveryedgeofEurope.HarrisispartofthelargerSouthLewis,Harris&NorthUistNSA.
5.16 Wester Ross ThisisScotland’slargestNSA,ranging
fromLittleLochBroominthenorththroughthewildlandofFisherfieldandLetterewetoLochMaree,TorridonandtheApplecrosspeninsula.Itisrenownedforitsscenicsplendour,withspectacularandmagnificentrockymountainsthebackdroptodistinctivecoastalcroftingsettlements.Thisisalandscapeofmanylayers,withlargesweepsofopen,expansivemoorlandandpocketsofnativewoodlandaswellasthegreattractsofremotewildland.Waterisabundant,bothinfreshwaterlochsandthevariedcoastline,withviewsouttoSkyeandtheWesternIsles.WesterRosswasrecommendedforNationalParkstatusorequivalentintheinthe1945,1974and1990reports.
Order of Designation
5.17 Weconsiderthatapragmaticapproachshouldbetakentotheorderinwhichtheaboveareasaredesignated,recognisingthattherewillinevitablybewidevariationsintherateatwhichlocalsupportgrowsanddetailedproposalsaredeveloped.Theproceduretowardsdesignationcouldhoweverfollowthemechanismsemployedinpreviousinstances.Onetriedandtestedprocesshasbeentoestablishaworkinggrouptostudyaparticularlocationindetailandtorecommendthebestsolutionsforthatarea.ThiswastheprocessfollowedbothfortheCairngorms(Common Sense and Sustainability, 1992)andforLochLomondandtheTrossachs(The Management of Loch Lomond and the Trossachs, 1993).Anothermechanismistoemployexperiencedconsultantstocarryoutsuchastudy(eg Isle of Harris National Park Feasibility Study, 2008).Prioritymightbegiventoareaswherelocalsupportisstrongestorwherethreatstothesignificanceoftheareaaregreatest.
Boundaries
5.18 ThisreportfocusesontheprincipleofestablishingmoreNationalParks,anddoesnotthereforeproposespecificboundaries.Theestablishmentofpreciseboundariesforanyprotectedareaisacomplexanddetailedtaskrequiringbothlocalknowledgeandnationalexpertiseincludingfrom,forexample,CommunityCouncilsandSNH.Thistaskshouldbeundertakenatalaterstageoncetheprincipleofdesignationhasbeenestablished,accordingtoaconsistentsetofagreedcriteriaandinthecontextofaclearunderstandingofthegeographicaldistributionofthespecialqualitiesforwhichtheNationalParkisdesignated.LandscapeCharacterAssessmentwillbeakeytooltobeusedtoestablishthemostappropriateboundaries.ThefeasibilityofestablishingbufferzonestoprotectthesettingofanynewNationalParksshouldbeconsideredaspartofthisexercise.
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5.22 Thecoverageofnon-statutoryAGLVsorequivalentlocallandscapedesignationsispatchyandvaried;theyhavebeendesignatedovertheyearsbylocalauthoritiesaccordingtovaryingsetsofcriteria.SPPencourageslocalauthoritiestodesignateLocalLandscapeAreas(LLAs)throughtheplanningsystemto:
• safeguardandenhancethecharacter andqualityoflandscapeswhichare importantorparticularlyvaluedlocally orregionally,or
• promoteunderstandingandawareness ofthedistinctivecharacterandspecial qualitiesoflocallandscapes,or
• safeguardandpromoteimportant settingsforoutdoorrecreationand
tourismlocally.
5.23 However,theprocessofreviewingAGLVsandreplacingthemwithLLAs,selectedaccordingtoagreedanddefensiblecriteria,isproceedingslowlyandhasnotbeentreatedasaprioritybysomelocalauthorities.Also,eventhisprocesswillnotnecessarilycoverallthelandscapesworthyofprotection.Thisprocessneedstobecompleted,sothattheCountrysideCommissionforScotland’svisionfrom40yearsago,ofanintegratedandco-ordinatedsystemoflandscapeprotection,canfinallyberealised.
5.24 ThethreeRegionalParksand36CountryParksalsohaveimportantrolestoplayinlandscapemanagement,inadditiontotheirprimaryroleofprovidingfacilitiesforinformaloutdoorrecreationneartotownsandcities.TheremightthereforebeacaseforcreatingmoreRegionalParksinsuitablelocations.
Governance
5.19 Theprovisionsofthe2000ActallowflexibilityinthegovernancearrangementsforScottishNationalParks,whichcantosomeextentbetailoredtosuitindividualcircumstances.ThefirsttwoNationalParkscoverpartsofthreeandfivelocalauthorityareasrespectively,andthereforeeachofthoseauthoritiesnominatesanumberofmemberstotheNPA.However,mostoftheareasproposedabovewouldfallwithinasinglelocalauthorityarea;itmightthereforebeappropriatetovarythecompositionoftheNPA,forexampletoincluderepresentativesofarangeofothernationalandlocalinterests.
5.20 Therewouldprobablybethreeexceptionstothis:
• theproposedcoastalandmarine NationalParkwouldprobablycover partsofHighlandaswellasofArgyll &Bute;itwouldhavearelativelylow
residentpopulationwithinitsboundary, soitmightbeappropriateforeg recreational,conservationor
commercialintereststoberepresented ontheNPA
• theproposedBenNevis/GlenCoe/Black MountNationalParkwouldfallmostly withinHighland,butwouldprobably extendpartlyintoArgyll&Bute
• theproposedGallowayNationalPark mightwellextendintoEastandSouth Ayrshire,asdoestherecently-approved Biospherereserve.
Other Protected Areas
5.21 ThedesignationofuptosevenmoreNationalParksinScotland,howeverwelcome,wouldnotadequatelyaddressalloftheissuesrelatedtoprotectedlandscapesinScotland.Manyofthe40NSAswouldremainoutwithNationalParks,andthesewouldbenefitfromthesortofproactivemanagementpioneeredinrecentyearsinDumfriesandGalloway.Attheveryleasteachshouldhaveanagreedmanagementstrategywhichsetsoutthelong-termprotectionandmanagementofitsspecialqualitiesforthebenefitofthenation,localresidents,visitorsandfuturegenerations.
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Leadership
6.1 Scotland’sNationalParksneedstrongpoliticalleadershiptofulfiltheirpotential.TheymakeanimportantcontributiontonationalprideinScotland,astheycovercherishedlandscapesofgreatbeautyandhistoricalresonancewhicharefamousacrosstheworld.
6.2 TheNationalParks(Scotland)Act2000issignificantasoneofthefirsttobepassedbytheScottishParliament.ManyMSPsmadepositiveandsupportivecontributionstothetwodebatesonScotland’sNationalParksintheScottishParliamentinMarch2008andNovember2009.However,greaterpoliticalcommitmenttowardsstrengtheningandexpandingthefamilyofNationalParksinScotlandisrequired.ThethenEnvironmentMinistergaveanassurancein2008thattherewouldbea“strategicandfundamental”reviewofNationalParks,butthereviewwhichresultedwaspartialandincomplete.ThefirstpartofthereviewonlyaddressedsomeminorchangesinthegovernancearrangementsforthetwoNationalParkAuthorities(NPAs);Ministersdroppedthesecondpart,whichshouldhavetackledsomeofthemorestrategicissuesoutlinedinthisreport.
6.3 In2009theScottishGovernmentannouncedthatitwouldestablishaministerially-chairedNationalParksStrategyGroup,buthasnotdoneso.SuchaGroupcouldusefullybeestablishedwitharemitto:
• assesstheperformanceoftheNPAs, theoutcomesoftheirworkandthe
valueformoneytheyprovide
• developcriteriatointernational standardsandageographicalstrategy fordesignatingfurtherNationalParks
• adviseonanyfuturebidsforNational Parkstatus
• commissionresearchontopicsrelevant toprotectedareamanagementand
sustainabledevelopment
• encourageexchangeofgoodpractice betweenthetwoexistingNational
Parks,anyfutureonesandinternational bestpractice
• reviewtherolesofexecutiveagencies andpublicbodies5relativetoNational Parks
• produceanannualreporttotheScottish Parliament.
6.4 ThecurrentScottishGovernment’s2011Manifestomadeacommitmentto“workwithcommunitiestoexplorethecreationofnewNationalParks”,butithasnotyettakenanyactiontowardsfulfillingthis.Fourinterconnectedissuesareinvolved:
• Thereisnoforwardstrategyfor Scotland’sNationalParks
• Thereisnosingleagencyorpublicbody chargedwiththestrategicthinking andleadershiprequiredtomaximisethe opportunitiespresentedbyNational
Parksandtoresolveproblemsina consistentandconstructiveway;the roleoftheNationalParksTeamwithin
theScottishGovernmentislimitedto co-ordinatingandmanagingtheexisting system
• ScottishNaturalHeritageislimitedto routineengagementwiththeNPAsover
management,policy,andplanning issues;itsrelationshipswiththeNPAs
varylittlefromthosewhichithaswith localCouncils
• TheNPAshavenotbeenempoweredto actsignificantlydifferentlyfromother localplanningauthorities.
Section6ImplementationandDelivery
5/including,forexample,localCouncils,theForestryCommission,HighlandsandIslandsEnterprise,HistoricScotland,MarineScotland,theScottishEnvironmentalProtectionAgency,ScottishNaturalHeritage,TransportScotlandorVisitScotland/
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A National Parks Service for Scotland
6.5 ThisreportthereforerecommendsthatconsiderationbegiventotheestablishmentofanoverallNationalParksService,whichcouldsupporttheworkoftheexistingandanynewNationalParksandofotherprotectedlandscapessuchasNationalScenicAreasandRegionalParks.ANationalParksServicecouldprovideindependentadvice,offercentralexpertiseandpromoteintegrationofthemanagementofallprotectedlandscapesinScotland.Itcouldultimatelycontributetowardsareductioninthenumberofpublicbodies,itcouldbringpotentialcostsavings,anditscreationwouldbeinlinewithcurrentmovestowardscentralnationalbodiesinothersectorsofpubliclifesuchasthefireserviceorthepoliceforce.
6.6 ThetwoNPAshavesufferedfromconstantunderfunding,preventingthemfromfulfillingtheirfullpotentialasexemplarsofsustainabledevelopment.InrecentyearsthetwoNPAshavereceivedScottishGovernmentfundingintheorderof£14mperannum,whichrepresentsremarkablygoodvalueformoneygiventherangeofbenefitstheyprovide,asoutlinedinSection3above.Atpresentlevelsofexpendituretheplannedspendingonthe2014CommonwealthGameswouldfundbothexistingNPAsfor50years.TheNPAsalsoneedtobeabletoretainanyincomegeneratedlocallythroughforexampleplanningfees,retailsales,parkingorlaunchingcharges,withoutanycorrespondingreductioninScottishGovernmentgrant.
6.7 WethereforerecommendthattheScottishGovernmentdemonstratesthenecessaryleadershipbydeliveringonitsmanifestocommitmenttoexplorethecreationofnewNationalParksandonitspromisetosetupaMinisterialStrategyGrouponNationalParks.ThatGroupshouldincludenationalrepresentationofrelevantcommunitiesofinterest,andshouldbegivenclearresponsibilityforstrategicthinking.TheScottishGovernmentshouldalsoconsidersettingupanoverallNationalParksServiceandshouldgraduallyincreasethelevelsoffundingavailabletoexistingandfutureNationalParks.
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LochLomondandTheTrossachsNationalPark
Conclusions
7.1 Scotlandhassomeofthefinestlandscapesontheplanet,manytheequalofNationalParksacrosstheworld.However,only8%ofScotlandiscoveredbyNationalParkssofar,comparedto,forexample,20%ofWalesor12%ofIceland.Scotland’sfirsttwoNationalParkshaveachievedagreatdealintheirfirstdecadeandrepresentremarkablevalueformoney.Theyinspireprideandpassionamongstlocalpeopleandvisitors,andtheyprovidemanyvaluablebenefitstolocalresidents,visitorsandScotlandasawhole.
7.2 Nowisthetimetospreadthesebenefitsstillwider,throughanationalstrategytoaddmorepartsofScotlandtotheworldwidefamilyofNationalParks.Thiswouldbringadditionalresourcestoplaceswhichdeserveit,strengthenScotland’sinternationalstandingforenvironmentalprotectionandsupportourcrucialtourismindustry.
7.3 Someofthesebenefitscanbedeliveredinotherwaysandbyotherbodies.However,weconsiderthatdesignatingaspecialareaasaNationalParkisthebestwayto:
• generateahighprofile
• supportitsactivemanagementaswell asitsprotection
• encourageintegratedplanningand managementbyallpublicbodies,and
• investadditionalnationalresourcesin helpingbothresidentsandvisitorsto enjoythelandscapewhilstconservingit forfuturegenerations.
.
Call to Action
7.4 SCNPandAPRScallupontheScottishGovernmentto:
• EstablishtheMinisterially-chaired NationalParksStrategyGrouppromised bythe2009Review
• Prepareanationalstrategyforfuture NationalParksinScotland,including CoastalandMarineNationalParks
• Setintraintheimprovementsproposed inthisreportintermsoflegislation, structures,functionsandpowers
• Recogniseandtakefulladvantageof thebenefitsofNationalParkstatus.
7.5 ItwouldbeafittingtributetothememoryofJohnMuir,the‘FatherofNationalParks’,iftheScottishGovernmentweretoannouncethecreationofScotland’snextNationalParkin2014,theyearofHomecomingandthecentenaryofMuir’sdeath.
Section7ConclusionsandCalltoAction
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01 / GlenAffric
02 / ArrocharAlps,LochLomond
03 / LochAchtriochtan,GlenCoe
04 / LochMareeIslands,WesterRoss
05 / Mull
06 / GlenNevis
07 / CairngormsPlateau
08 / GlenQuoich,Cairngorms
09 / Rum
10 / LochMoidart
11 / SliochreflectedinLochMaree,WesterRoss
12 / BuachailleEtiveMór,GlenCoe
13 / Liathach,WesterRoss
14 / TheCheviotsinwinter
15 / LochLomond
16 / IsleofArran
17 / Rum
18 / Torridon,WesterRoss
19 / LochLomond
20 / Staffa
21 / GlenAffric
22 / SliochandLochMaree,WesterRoss
23 / TheCheviots
24 / BuachailleEtiveMór,GlenCoe
25 / LookingWestfromSgurra’BhealaichDheirg,WestAffric
16 17 1918 20
06 07 0908 10
11 12 1413 15
21 22 2423 25
01 02 0403 05
1. ThisAppendixaimstogiveabriefsummaryofthehistoricaldevelopmentofpolicyonNationalParksinScotlandoverthelast65yearsorso,asthecontextfortheproposedstrategy.Thisdoesnotclaimtobeacomprehensivereviewofwhathasbeenalengthyandcomplexstory.AlloftheprincipalreportsreferredtoareavailableformoredetailedstudyontheAPRSwebsite.
A National Park for Scotland 1904
2. EffortstoprotectandenablepublicaccesstoScotland’sfinestlandscapesbeganinthe19thcentury;forexamplein1884JamesBryce,MPforAberdeen,unsuccessfullypromotedlegislationforaccesstothemountains.However,thefirstspecificproposalthatScotlandshouldhaveNationalParkscameina1904essaybyCharlesStewartofAppin,A National Park for Scotland, inwhichhearguedforprotectedstatusforalargetractofthewesternHighlandsandthestrictpreservationofthenaturalfaunawithinitsboundaries.Stewartwasparticularlyconcernedtopreservewildanimalsoftheopenmoorlandandhillsidewhichhefeltmightbethreatenedbythehugeareasofstate-backedplantationforestrybeingdiscussedatthetime.
The Addison Report 1931
3. In1929severalcountrysideorganisations,includingthenewly-formedAssociationforthePreservationofRuralScotland(APRS–nowtheAssociationfortheProtectionofRuralScotland),pressedtheGovernmenttolookintotheneedforNationalParksinBritain.TheresultantNationalParkCommittee,chairedbyDrChristopherAddison,examinedproposalsforthesafeguardingofareasofexceptionalnationalinterestandnaturesanctuariesfortheprotectionoffloraandfauna.Its1931 Report of the National Park Committee consideredtheCairngormsasapossibleNationalPark,buttheGovernmentofthedaytooknostepstoimplementanypartoftheReport.Inresponsetothislackofactionandinanefforttokeepalivepublicinterestandsupport,thevoluntarybodiesformedaStandingCommitteeonNationalParksin1934.
The Ramsay Report 1945
4. In1942APRSestablishedtheScottishCouncilforNationalParks(SCNP–nowtheScottishCampaignforNationalParks),whichonbehalfofabout30interestedbodiespressedtheSecretaryofStateforScotlandforanassessmentofpotentialNationalParkareas.DuringtheSecondWorldWar,aspartofthegreatwaveofenthusiasmforpost-warreconstructionwhichalsogavebirthtothewelfarestateandtheplanningsystem,theDepartmentofHealthforScotland(DHS)establishedaScottishNationalParksSurveyCommittee,chairedbySirDouglasRamsayandincludingeminentnaturalistFrankFraserDarling.TheCommittee’sremitwastoadviseuponareaswhichmightbesuitableforNationalParksandtosuperviseasurveyofpotentialareasbyDHSofficials.TheCommitteeinvitedsuggestionsastosuitableareasfrominterestedorganisations,includingbothSCNPandAPRS,anditsreportnotedthatnoneofthereplieswereadversetoestablishingNationalParksinScotland.
5. TheCommitteereportedin1945,basingitsrecommendationsonthedefinitionofaNationalParkas:
“an extensive tract of country of outstanding natural beauty, preferably also of scientific, cultural or historic interest, owned or controlled by the Nation, accessible to all as a matter of right under suitable regulations, and administered by or on behalf of the Nation to the end that its distinctive values may be preserved unimpaired for the enjoyment and recreation of this and future generations”
6. Rathermorepoetically,CommitteememberPeterThomsendescribedaNationalParkas:
“a place where intelligent forethought has thrown a protecting arm around some still untouched remnant of the beauty of the world, leaving it to exercise its elevating and refining influence on all who come into contact with it”
7. TheCommitteelaiddownsevenselectioncriteria:
a) Outstandingscenicbeauty–includingmountain,glen,woodlandandwater
b) Accessibility–bothtotheareaandwithinit,toincludeatleastoneareanearthelargestindustrial centresandwithcompletefreedomofaccessexceptforcultivatedland,“vermineradication”anddeer control
c) Preservability–ieareas“freefromdisfigurement”,includingthelandscapeoutwiththeboundarybut visiblefromwithinit,iebufferzones
d) Recreationalfacilities–includingwintersports
e) Educational,culturalandsocialinterests–includingscenery,geology,naturalhistory,architecture, history,craftsandcustoms,song,literatureandpoetry
f) Floraandfauna–opportunitiesforsurvivalofspecies
g) Accommodation–inornearthearea,includingcampsites.
Appendix1National Parks Policy in Scotland – A Brief History
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8. Itwasnotedthatthesecriteriarequiredbeautytobeweighedagainstaccessibilitytosomeextent.Itwasassumedthatmostaccesswouldbebyrailorcoastalsteamerratherthanbyprivatevehicle.ThereportstressedthatdesignationofanareaasaNationalParkdidnotprecludethemaintenanceorextensionofeconomiclanduses,providedthatthisiscompatiblewithitsprimaryobjectivesandthatagricultureandforestryarecontrolledbytheNationalParkauthority.ItarguedthatNationalParkstatusshouldpreserverurallifeinthecommunitiesconcerned,thatincreasedfarmproducewouldbenecessarytomeettheneedsofmorevisitorsandthatfishfarmingmightincreaseeconomicresourcesandattractionsforvisitors.
9. Thereportarguedthat“judiciousafforestation”,includingavarietyofhardwoods,wascompatiblewithNationalParkstatusaslongasprovisionwasmadeforpathsandviewpoints.ItnotedthatseveralNationalForestParks(NFPs)werealreadyprojectedorestablishedbytheForestryCommission,suggestingthattheseshouldbeconsideredasadditionaltoratherthananalternativetoNationalParks.ItarguedthatthedesignationofNationalParkswouldnotconcentratetouristswithinthem,butratherwouldaddtothegeneralattractivenessofScotlandasatouristdestinationandincreasevisitornumbersthroughoutthecountry.Itwasnotedthattheareasmostsuitablefordesignationonaccountoftheirnaturalbeautygenerallyhadlowlevelsofeconomicdevelopmentandsowereinneedofadditionalsourcesofincome.
10. Thephrase“extensivetract”introducedtheideaofsizeasacriterion;NationalParksshouldbelargeenoughfor“theNation”toenjoyandimportantenoughtojustifytheinterventionoftheState,therebydistinguishingthemfromforexamplegreenbelts,municipalparksandplayingfields.TherecommendedareasthereforeexcludedsmallerandmoreaccessiblerangessuchasthePentlands,OchilsandSidlaws.
11. TheCommitteerecommendedthefollowingfiveareas,intheordergiven,assuitableforNationalParks:
1. LochLomond–Trossachs
2. GlenAffric–GlenCannich–StrathFarrar
3. BenNevis–GlenCoe–BlackMount
4. TheCairngorms
5. LochTorridon–LochMaree–LochBroom.
12. Itisnotablethatareas2and5comewithinafewmilesofeachotheratGlenCarron.TheCommitteealsosuggestedthatthefollowingfurtherareas,againintheorderstated,mightbeplacedonareservelistforlaterconsideration:
6. Moidart–Morar–Knoydart
7. GlenLyon–BenLawers–Schiehallion
8. StMary’sLoch.
13. Fieldsurveysweremadeofnineareasandsummaryreports,includinggeology,landscape,recreationalopportunitiesandhistorywerepresentedforalloftheseexceptforTheMerrick–GlenTroolinGallowaywhich,althoughconsideredeminentlysuitableforaNationalPark,wasinsteadproposedasaNFP.
14. TheextentoftheproposedNationalParksvariedfrom140to610squaremiles(sqm)andcomparisonsweregiventodemonstratethatthiswasnotexcessive,including:
• ThelargestUSandCanadianNationalParksareupto4,000sqm
• FjordlandinNewZealandis3,500sqm
• TheEnglishLakeDistrictis800sqm.
15. ThelandareaofScotlandisapproximately30,000sqm,sotheCommitteeconsidereditreasonabletodedicatesayatenthofthistoenjoymentandrecreation;alleightrecommendedandreserveareasonlytotalled2,600sqm.
16. TheCommitteeassumedthatthelandinanyNationalParkssubsequentlydesignatedwouldbepurchasedbythestateandwouldremainthereafterinpermanentpublicownership.ThereportarguedthatthesuccessofNationalParksandthetourismindustrydependsonthepreservationofnaturalbeauty,soitwashopedthatthesebenefitswouldbeweighedalongwiththosefromthelarge-scalehydro-electricschemesthenbeingproposed.TheCommitteepreferredsmall-scaleenergyschemeswhichwouldsupplylightandpowertotheirimmediateneighbourhoodandruralindustries,sothattheclaimsofamenityandproductiveusemightbereconciled.ThehopewasexpressedthattheuglinessofindustrialdevelopmentnearFortWilliam,whichdisfiguredthegrandeurofthelandscape,couldsomehowbescreened.
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The 1950s and 1960s
17. In1951thethenSecretaryofStateforScotlanddecidednottoproceedwithRamsay’srecommendations,anditwouldbemorethan50yearsuntilNationalParkswereestablishedinScotland.Thereasonsforthiswerecomplex,butcomprisedatleastfivestrands.First,influentiallandowners,includingseveralMembersoftheHouseofLords,opposedpublicacquisitionoftheirestatesandtheintroductionofadditionalcontrolsovertheirabilitytomanagetheirpropertyastheywished.Second,thehydro-electricandforestryindustriesfearedthattheCommittee’srecommendationswereliabletosteriliselargetractsofScotlandfromfuturedevelopment.Third,therewasnosignificantpressurefromrecreationalinterestsformoreformalarrangementsforaccesstothecountryside,giventheeffectivefreedomofresponsibleaccesswhichhadlongexistedinScotlandandthelesserpressurefromvisitornumberscomparedwith,forexample,theLakeDistrictorPeakDistrict.Fourth,itwasconsidereddifficulttosingleoutspecificareasforNationalParkstatus,giventhehighlandscapequalityofmuchofScotland.Finally,therewasoppositionfromlocalauthoritiestothepotentialtransferofsomeoftheirpowers.
18. However,togosomewaytowardssafeguardingthemostimportantareasfive‘NationalParkDirectionAreas’(NPDAs)wereestablishedoverthe‘Ramsay’areas,withamechanismbywhichcertaincategoriesofdevelopmentproposalscouldbe‘calledin’fordeterminationatanationallevel;theseremainedinforceuntil1982.Meanwhile,tenNationalParkswereestablishedinEnglandandWalesduringthe1950s.
19. In1962acommissionbytheNationalTrustforScotland(NTS)ledauthorandmountaineerBillMurraytoidentify21‘regionsofoutstandingbeauty’inhisreportHighland Landscape.TheseincludedvariationsonRamsay’sfiverecommendedareasandontwoofthethreereserveareas;Murray’ssurveywasconfinedtotheHighlands,excludinglowlandandislandareas.The Countryside in 1970conferencesheldduringthe1960sdrewattentiontotheanomalybetweenScotlandandtherestofBritainovertheprovisionofNationalParks,andhighlightedtheneedforspecificpowerstopromotelandscapeprotectionandcountrysiderecreation.ThisledtotheCountryside(Scotland)Act1967andtheestablishmentoftheCountrysideCommissionforScotland(CCS)in1968astheagencyresponsiblefortheenjoymentofthecountrysideandtheconservationofitsnaturalbeautyandamenity.
20. Variousmethodsoflandscapeprotectionandrecreationprovisiondidemergeoverthisperiod.TheForestryCommissionestablishedfiveNFPsinScotland,NTSacquiredextensivetractsofmountainouscountryandlocalauthoritiesdesignatedmanyAreasofGreatLandscapeValue,fourGreenBeltsandfourCountryParks.However,theseeffortslackedadequateco-ordinationandacomprehensivemanagementorconservationframework.
A Park System for Scotland 1974
21. CCSofferedadvicetotheSecretaryofStateforScotlandonmanyrelevantmattersinitsearlyyears,butin1974itpublisheditsfirstcomprehensiveadviceonitswholeapproachtoitsobjectives,A Park System for Scotland. ThisproceededfromthepremisethatalthoughNationalNatureReserveswereontheUnitedNationslistofNationalParksandequivalentreserves,noequivalentexistedfordesignationandconservationmanagementoflandscapesofgreatbeauty.Itarguedthatpositiveactionwasdesirabletodeveloptheexistingarrangementsforbothlandscapeconservationandrecreationdevelopment,withinamoresystematicframework.
22. Thereportidentifiedtheneedforacomprehensivesystemcombininglandscapeconservationwithprovisionforthewholespectrumofoutdoorrecreation.Thiswouldextendfromintensiveorganisedactivitiesinsmallareasneartownsorcitiestoextensiveinformalrecreationoverlargermoreremoteareas;itwasnotedthattheonlylargeareasremotefromroadsintheUKareinScotland,bringingspecialresponsibilitytocherishthisimportantattribute.Thereportproposedsuchasystemunderfourcategories:
Urban Parks–notwithindesignatedcountrysidebutincludedtomakecleartheneedtoprovideforthewholespectrumofoutdoorrecreation.
Country Parks–relativelysmallareas(normally<400ha)neartotowns,intendedtoproviderecreation,enjoymentandeducationandtoeasepressureonmorevulnerableareas;fourhadalreadybeendesignatedunderthe1967Act.
Regional Parks –larger,morediverseincharacterandservinggreatercatchmentareas;probablymanagedbythenewRegionalCouncilswith75%CCSgrant.
Special Parks–tosatisfynationallevelsofdemandforrecreation;likelytobeincountrysideofconsiderablenaturalbeautyandamenityandthereforetobenationalassetsrequiringparticularcareandattention.ThesecouldbeconsideredinplacessuchastheCairngorms,GlenNevis/GlenCoeandLochLomond/Trossachs(ietheRamsayareas);astheywouldprobablybeinareaswithlowpopulationdensities,ahighergrantratethanthestandard75%wouldbejustified.Managementwouldbebyspecialparkauthorities,largelyappointedbylocalauthoritiesbutwithathirdofthememberstobeappointedindependentlybytheSecretaryofStatewithrecreationandnatureconservationknowledge.SpecialParkswouldrequiredelegatedplanningfunctionsandwouldbedesignatedasAreasofSpecialPlanningControl(ASPCs)underthe1967Act.Managementagreementscouldbeconcludedwithlandownersaimedatchannellingthepublicintolesssensitiveareasinsteadofafree-for-allbetweenvisitorsandlocalinterests.
unfinished business / 41
23. ThereportdemonstratesclearreluctancebyCCStochallengetheinterestsoflocalauthoritiesorlandowners;itarguedthatthelegalandorganisationalchangerequiredtointroducearrangementsforlandscapeanalogoustothosealreadyinplacefornatureconservationwouldadverselyaffectlocalgovernmentinterests,particularlythroughlossofplanningpowers.CCShadnowishtopreventchangetothe‘traditional’landusesofagriculture,forestryorsportortothe‘traditional’freedomofownerstousetheirlandastheywish;itpreferredco-operationtodramaticchange.ItduckedtheissueofwhetherScotlandshouldhaveNationalParks,statingonlythatthis“willnodoubtcontinuetobedebated”;howeveritisclearfromthedescriptionoftheproposedSpecialParksthattheywouldeffectivelyhavebeenNationalParksinallbutname.The1974CCSreportalsoarguedthattherewereareasbeyondthoseproposedasspecialparkswhichcontainlandscapesofunsurpassedattractivenesswhichmustbeconservedaspartofournationalheritage.TheseshouldbeidentifiedinstructureplansasworthyofspecialprotectiontogetherwithpoliciestoachievethisandshouldbedesignatedasASPCsunderthe1967Act.
The Sandford Principle
24. ItbecamewidelyrecognisedinEnglandandWalesafterthefirsttwodecadesofexperienceofmanagingNationalParksthattherecouldonoccasionbetensionsbetweentheirvariousobjectives.The1974SandfordCommitteeReviewofNationalParkPoliciesinEnglandandWalesthereforerecommendedthatNationalParkslegislationshouldbeamendedtomakeclearthattheenjoymentofNationalParksbythepublic‘shallbeinsuchamannerandbysuchmeansaswillleavetheirnaturalbeautyunimpairedfortheenjoymentofthisandfuturegenerations’.Thishasbecomeknownasthe‘SandfordPrinciple’.Theconceptwasendorsedasgovernmentpolicyandhassinceappearedinlegislation,whichnowalsorecognisesthatculturalaswellasnaturalheritagemustbeembracedbythePrinciple.
Scotland’s Scenic Heritage 1978
25. CCSthencarriedoutareviewwhichledin1978tothepublicationofScotland’s Scenic Heritage. Thislisted,mappedanddescribed40areasofthefinestexamplesofcertaintypesoflandscapeforwhichScotlandismostrenowned,againincludingallfiveRamsayareas.In1982theseweredesignatedasNationalScenicAreas(NSAs)andtheNPDAswerewithdrawn.LocalauthoritieswererequiredtoconsultCCSoncertainclassesofdevelopmentwithinNSAs;wherealocalauthorityproposedtoissueplanningpermissionagainstCCSadvicethefinaldecisionwouldbemadebytheSecretaryofStateforScotland.
The Mountain Areas of Scotland 1990
26. LegislationenablingthecreationofRegionalParksalongthelinesofthe1974proposalswasfinallypassedin1981,andfourRegionalParkswereestablishedattheLomondHills(1986),PentlandHills(1986),LochLomond(1988)andClydeMuirshiel(1990).However,theproposalsforSpecialParksweresetaside,buttheissueofwhetherScotlandshouldhaveNationalParksdidnotgoaway.In1989theScottishMinisterforHomeAffairsandtheEnvironmentinvitedCCSto“studymanagementarrangementsforpopularmountainareassuchastheCairngorms,takingintoconsiderationthecaseforarrangementsonnationalparklinesinScotland”.
27. Afterseveralmonthsofresearch,consultationandinternaldebateCCSpublisheditsreportThe Mountain Areas of Scotland – Conservation and Management in1990.ThisreportsetoutthevaluesattributedtoScotland’smountainsinthecontextofchanginglandusepractices.Ithighlightedaslowprocessofattritionoflandscapequality,thelackofanintegratedapproachtorurallandmanagement,inadequateincentivesforlandmanagers,poormanagementofrecreationandtourismandthesteadylossofwildlandquality.Itmadeanumberofgeneralrecommendationsforalluplandareas,includingindicativeregionallandusestrategies,promotionofhigherdesignstandards,increasedprotectionforwildlandandbetterintegrationoflandmanagementgrants.
28. Italsoidentifiedfourimportantmountainareaswhichurgentlyrequiredspecialmanagementarrangementstoprotecttheirhighheritagevalue:
1. TheCairngorms
2. LochLomondandtheTrossachs
3. BenNevis/GlenCoe/BlackMount
4. WesterRoss.
29. ItarguedthattheseareasshouldbecalledNationalParks,bemanagedbyindependentplanningboards(exceptforWesterRoss),havelandmanagementfunctionsandhavelocalcommunityinterestsrepresentedontheirboards.
unfinished business / 42
Protecting Scotland’s Finest Landscapes 1997
30. DespitetheseclearrecommendationsfromCCStheGovernmentonceagaindidnotproceedwiththedesignationofNationalParks,althoughitdidestablishtwoWorkingPartieswhichstudiedpotentialmanagementarrangementsfortheCairngormsandforLochLomondandtheTrossachsinmoredetailandpublisheddetailedreportsforeacharea:Common Sense and Sustainability: A Partnership for the Cairngorms(CairngormsWorkingParty,1992)andThe Management of Loch Lomond and the Trossachs (LochLomondandtheTrossachsWorkingParty,1993).
31. Duringthe1990s,increasingdissatisfactionwithlandscapeprotectioningeneralandtheabsenceofNationalParksinparticulargrewwithinScotland’snetworkofnon-governmentalorganisations(NGOs),co-ordinatedthroughScottishWildlifeandCountrysideLink(SWCL).ThisculminatedinSWCL’s1997discussionpaperProtecting Scotland’s Finest Landscapes,a‘callforactiononNationalParksinScotland’supportedby24NGOs.Thispaperanalysedtheproblemscausedbyaninadequateprotectedareassystem,thelackofintegratedpowersandresourcesandahistoryofwastefulanddamagingconflictsinsomeofScotland’sfinestlandscapes.SWCLcalledupontheGovernmenttoestablishanetworkofNationalParksdesignedtomeetScotland’sspecificneeds,tocoverbothterrestrialandmarineareas,todeliversignificantsocialandeconomicbenefitstolocalcommunitiesandtomeetinternationalcriteriaasdefinedbytheInternationalUnionforConservationofNature(IUCN).
32. In1997anewGovernmentwaselectedwithacommitmenttoScottishdevolutionandamoresympatheticattitudetowardsNationalParks.ShortlyaftertheSWCLpaperwaspublished,therecently-appointedEnvironmentMinisterLordSewelfinallyannouncedthenewGovernment’sintentiontoestablishNationalParksinScotland.ThiswastobeamatterfortheproposedScottishParliamentifScotlandvotedfordevolution,whichitdulydidinthe1997referendum.
National Parks (Scotland) Act 2000
33. TheNationalParks(Scotland)Act2000wasoneofthefirstpassedbythenewlyre-establishedScottishParliamentfollowingdevolutionin1999.Section1establishesthefourNationalParkaims:
a) to conserve and enhance the natural and cultural heritage of the area,
b) to promote sustainable use of the natural resources of the area,
c) to promote understanding and enjoyment (including enjoyment in the form of recreation) of the special qualities of the area by the public, and
d) to promote sustainable economic and social development of the area’s communities.
34. Crucially,Section9(6)oftheActsetsoutawiderversionoftheSandfordPrinciple(see24above):
In exercising its functions a National Park authority must act with a view to accomplishing the purpose set out in subsection (1); but if, in relation to any matter, it appears to the authority that there is a conflict between the National Park aim set out in section 1(a) and other National Park aims, the authority must give greater weight to the aim set out in section 1(a)
35. Section2setsouttheconditionstobesatisfiedforanareatobedesignatedasaNationalPark:
a) that the area is of outstanding national importance because of its natural heritage or the combination of its natural and cultural heritage,
b) that the area has a distinctive character and a coherent identity, and
c) that designating the area as a National Park would meet the special needs of the area and would be the best means of ensuring that the National Park aims are collectively achieved in relation to the area in a
co-ordinated way.
36. TheActalsosetsouttheprocesstobefollowedtodesignateNationalParksinScotlandandthepurposesandfunctionsofNationalParkAuthorities,includingtherequirementtoprepareaNationalParkPlan.
37. AfterlengthyconsultationanddesignationprocessestheLochLomond&TheTrossachsNationalParkwasdesignatedin2002andtheCairngormsNationalParkin2003.In2008theboundaryoftheCairngormsNationalParkwasextendedtoincludepartsofHighlandPerthshire.
38. Scotland’sNationalParks(likeitsNSAs)benefitfromthesignificantinternationalaccoladeofbeingclassifiedasCategoryV–ProtectedLandscape/Seascapes5byIUCN,theUnitedNationsagencyresponsibleforprotectedareasacrosstheglobe.Thisrequiresthatsuchareasbemanagedtomeettheinternationalobjectivesprescribedforthem,theprimaryonebeing:
To protect and sustain important landscapes/seascapes and the associated nature conservation and other values created by interactions with humans through traditional management practices
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5/“Aprotectedareawheretheinteractionofpeopleandnatureovertimehasproducedanareaofdistinctcharacterwithsignificantecological,biological,culturalandscenicvalue:andwheresafeguardingtheintegrityofthisinteractionisvitaltoprotectingandsustainingtheareaanditsassociatednatureconservationandothervalues”/www.iucn.org
Coastal and Marine National Parks 2005-2007
39. The2000Actmakesclearthatitsprovisionscanapply,withmodificationsifnecessary,toareasofsea;indeedtheLochLomond&TheTrossachsNationalParkalreadycoversalimitedareaoftheintertidalzoneinLochLong.
40. InJune2005theScottishExecutive’sEnvironmentMinisteraskedScottishNaturalHeritage(SNH)toprovideadviceoncoastalandmarineNationalParks.InMarch2006SNHsubmitteditsadvice,reportingonworkithadundertakentofulfilthisrequestandpresentingitsfindingsonhowacoastalandmarineNationalPark(CMNP)mightoperateandonpossibleareasthatmightbedesignated.
41. SNHstatedclearlythatScotlandhasaworld-classcoastalandmarineresource.IthadfoundsupportfortheprincipleofaCMNPfromsomeareasandinterestgroups,whileothersexpressedconcernsandreservations.Asoneofarangeofmeasures,SNHfeltthatthedesignationofaCMNPcould:
• Enhancethecareofanareaofhighnaturalandculturalheritagevalue;
• IncreasetheenjoymentandunderstandingoftheseassetsbypeoplefromacrossScotlandand elsewhere;
• Deliverlocalsocialandeconomicbenefitssuchasmoreandhigherqualityjobs,diversifiedandrobust businessesandstrongercommunities;
• Provideforgreaterinvolvementoflocalpeopleindecision-making;and
• Promoteinnovation,goodpracticeandmoreintegratedapproachestosustainabledevelopment applicablethroughoutScotland.
42. Thisapproachwouldbeunderpinnedbythebetterplanningandmanagementoftheareaandtheactivitiesthattakeplacewithinit.Inparticular,aCMNPwouldneedtoprovideamodelofhowfisheriescanbemanagedbettertoensurethatbothbiodiversityandlocallivelihoodscouldbesustained.
43. SNHrecommendedthattheNationalParkAuthority(NPA)foraCMNPshouldinitiallyfocusonplanningandpracticalwork,usingbasicpowersandfunctionsandmodestexpenditure.FollowingthepreparationofaParkPlan,furtherconsiderationcouldbegiventoanyregulatorypowersthattheNPAmayneed,sothattheconceptofaCMNPcouldgrowincrementally,havingbuiltconsensusandgoodwill.
44. Alonglistofpotentialareaswasidentified,basedonheritagevaluesandthecoherenceofdefinedareas.MostwereintheNorthandWest,includingmanyoftheislandgroups.Aprocessofshort-listingidentifiedthefollowingasthefivestrongestcandidates:
• TheSolwayFirth;
• ArgyllIslandsandCoast;
• Ardnamurchan,SmallIsles,andSouthSkyecoast;
• NorthSkyeCoastandWesterRoss;and
• NorthUist,SoundofHarris,HarrisandSouthLewis.
45. SNHadvisedthatfurtherworkwouldberequiredtorefinetheseareasandtoconsiderindetailtheirseawardandterrestrialextent.Theassessmentworkalsohighlightedanumberofotherplaceswhichcouldbenefitfromenhancedconservationandresourcemanagementeffort,butforwhichtheNationalParkmechanismwaslessappropriate.Forsmallareas,furtherconsiderationcouldbegiventoanewformoflocally-ledmanagementinitiativeormarinereserve.
46. SNHmadeconsiderableefforttoseekviews;itestablishedanationalstakeholdergroupandwrotetoover300stakeholders,receivingover100responses.Keythemestoemergefromstakeholderswere:
• TherewassupportfortheprincipleofaCMNP,withspecificexpressionsofinterestfromArgyllandBute Council,DumfriesandGallowayCouncilandthecommunityonFairIsle;
• Someoppositionwasexpressed,notablyfromfishinggroups.DespitethepositiveroleofNationalParks inpromotingsustainabledevelopmenttherewerefearsthataCMNPwouldimposefurtherbureaucracy, removelocaldecision-makingandrestrictfuturedevelopment;
• Intheabsenceofspecificproposalsorpractice,stakeholdersalsoqueriedtheaddedvalueofaCMNP andwhatitwoulddeliverthatcouldnotberealisedthroughothermechanisms.
unfinished business / 44
47. Laterin2006theScottishExecutiveissuedaconsultationonitsproposalsforScotland’sfirstCMNP,basedontheSNHadvice.ThisstressedthepotentialbenefitsandaddedvaluethataCMNPcouldbringtoScotland,citingnumerouspositiveexamplesofcoastalandmarineNationalParks,biospherereservesandsanctuariesfromaroundtheworld.ItpresentedadetailedsummaryofthesignificanceofeachofthelonglistoftenareasidentifiedbySNHandoftheopportunitiespresentedbyeach.MinistersagreedwithSNH’sshortlistofthefivestrongestcandidateareas.Withinthisshortlisttwoareasinparticular,ArgyllIslandsandCoastandArdnamurchan,SmallIslesandtheSouthSkyeCoastwereidentifiedaspossiblestrongestall-roundcandidates.Itwasalsosuggestedthatacombinationofthesetwoareas(forexampletakinginMull,Coll,Tiree,theSoundofMull,Ardnamurchan,theSmallIslesandtheSouthSkyeCoast)mightalsobeastrongcandidate.
48. Theconsultationdocumentpresentedvariousoptionsforthefunctions,powersandgovernancearrangementsforaCMNPAuthority,coveringarangeofapproachesincludingplanner,enabler,managerandregulator.Itpresentedvariousoptionsregardingplanning,conservation,recreationmanagement,zoningandrelationshipswithfisheriesandaquaculture.Thenextstepsweretohavebeentodecidethepreferredlocation,todevelopproposalsonfunctionsandpowersandtopublishaformal‘proposal’underthe2000Act.However,thisdidnottakeplacebeforetheelectionsinMay2007,andtheincomingSNPGovernmentsetasidetheproposalstofocusonbroadermarinepolicyissues.ThisultimatelyledtotheMarine(Scotland)Act2010,whichmakesnoreferencetoCMNPs.
Isle of Harris Report 2008
49. Duringtheearly2000sagroupofpeopleonHarrisbecameconvincedthatNationalParkstatuswouldbenefittheirisland,particularlyinreinforcingitsfragileeconomy,andin2008theycommissionedtheIsle of Harris National Park Feasibility Study. ThismadeaconvincingcasethatHarrismetthethreeconditionssetoutinthe2000Act,andsetoutthesubstantialandsustainablebenefitsthatNationalParkstatuswouldbring.ItarguedaclearpreferenceforaNationalParkastheidealmechanismtohelpfocusandencouragefutureheritagemanagementandcommunitydevelopmentinHarris.However,theideaofaHarrisNationalParkhassofarfailedtowinsupportfromlocalauthorityComhairlenanEileanSiar6ortheScottishGovernment.
National Parks Review 2009
50. In2009theScottishGovernmentcarriedoutareviewofthetwoexistingNationalParks.However,theremitoftheReviewwasrelativelynarrowlydrawn,focusinglargelyontheroleandcompositionofthetwoNationalParkBoards.Also,Stage2oftheReviewwasdropped,denyingtheopportunitytodiscusssomeofthemorefundamentallyimportantquestionsfacingtheNationalParksbeyondtherelativelynarrowrangeofadministrativeissuescoveredunderStage1.TheReviewproposedtheestablishmentofaministerially-chairedNationalStrategyGroup,butthishasnotsofarbeenimplemented.
SNP Manifesto 2011
51. TheSNPmanifestoissuedbeforethe2011ScottishParliamentelectionsincludedacommitmentto“workwithcommunitiestoexplorethecreationofnewNationalParks”,butasofJanuary2013theSNPScottishGovernmenthasnotyettakenanyactiontofulfilthiscommitment.
unfinished business / 45
6/WesternIslesCouncil/
Appendix 2References
A National Park for ScotlandCharlesStewartofAppin,1904
Report of the National Park CommitteeAddisonCommittee,1931National Parks – A Scottish SurveyRamsayCommittee,1945
National Parks and the Conservation of Nature in ScotlandRamsayCommittee,1947
Highland LandscapeWHMurray,1962
A Park System for ScotlandCountrysideCommissionforScotland,1974
Scotland’s Scenic HeritageCountrysideCommissionforScotland,1978
The Mountain Areas of ScotlandCountrysideCommissionforScotland,1990
Common Sense and Sustainability: A Partnership for the CairngormsCairngormsWorkingParty,1992
The Management of Loch Lomond and the TrossachsLochLomondandtheTrossachsWorkingParty,1993
Protecting Scotland’s Finest LandscapesScottishWildlifeandCountrysideLink,1997
European Landscape ConventionCouncilofEurope,2000
National Parks (Scotland) ActScottishParliament,2000
Loch LomondsideJohnMitchell,2001
National Parks – Towards a Strategy for ScotlandScottishCouncilforNationalParks,2004
Advice on Coastal and Marine National ParksScottishNaturalHeritage,2006
Scotland’s First Coastal and Marine National ParkScottishExecutive,2006
Prosperity and ProtectionCouncilforNationalParks,2006
Isle of Harris National Park Feasibility StudyBrydenetal,2008
National Planning Framework 2ScottishGovernment,2009
Economic Contribution of National ParksCampaignforNationalParks,2010
Scotland’s Landscape CharterScottishNaturalHeritage,2010
Scottish Planning PolicyScottishGovernment,2010
The Special Qualities of the National Scenic AreasScottishNaturalHeritage,2010
Land Use StrategyScottishGovernment,2011
Scottish National Party Manifesto 2011ScottishNationalParty,2011
Valuing the National ParkLochLomond&TheTrossachsNationalParkAuthority,2011
Putting Nature on the Map – Identifying Protected Areas in the UKIUCNNationalCommitteefortheUnitedKingdom,2012
Appendix 3Glossary
AGLV AreaofGreatLandscapeValue
APRS TheAssociationfortheProtectionofRuralScotland
ASPC AreaofSpecialPlanningControl
CCS CountrysideCommissionforScotland(former)
CMNP CoastalandMarineNationalPark
CNPA CairngormsNationalParkAuthority
DHS DepartmentofHealthforScotland(former)
ELC EuropeanLandscapeConvention
IUCN InternationalUnionforConservationofNature
LEADER LiaisonEntreActionsdeDéveloppementdel’Économie Rurale (LinksBetweentheRuralEconomyandDevelopment Actions)
LLA LocalLandscapeArea
LL&TNPA LochLomond&TheTrossachsNationalParkAuthority
MP MemberofParliament
MSP MemberoftheScottishParliament
NFP NationalForestPark
NGO Non-GovernmentOrganisation
NPA NationalParkAuthority
NPDA NationalParkDirectionArea(former)
NPP NationalParkPlan
NTS TheNationalTrustforScotland
NSA NationalScenicArea
SCNP ScottishCampaignforNationalParks
SLA SpecialLandscapeArea
SNH ScottishNaturalHeritage
SNP ScottishNationalParty
SRDP ScotlandRuralDevelopmentProgramme
SWCL ScottishWildlifeandCountrysideLink(former)
unfinished business / 46
Cover photo: Buachaille Etive Mór, Glen Coe.
Photography: images in this publication are courtesy ofScottish Natural HeritageDavid Robertson, Jim Maxwell – the National Trust for ScotlandJanis Clarke – Stone CircleAllan Devlin – South West Images ScotlandMatthew Ladds
Design: Stone Circle / [email protected]
This publication is available as a pdf on the SCNP and APRS websites.www.scnp.org.ukwww.ruralscotland.btck.co.uk
March 2013