The Scottish Government

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EXECUTIVE SUMMARY

1. Scottish Ministers are committed to a review of planning guidance to establish a practical minimum standard or set of standards for open space provision in new development, especially new residential development. This study, commissioned by the Scottish Executive, is intended to inform the forthcoming review of National Planning Policy Guideline 11: Sport, Physical Recreation and Open Space ( NPPG 11).

2. The absence of a nationally recognised and widely applied set of standards for open space has been debated for many years but no national standard has ever been established. The purpose of this study is to research recent policy, consult with relevant organisations and review options for the preparation of detailed guidelines for local authorities, developers, communities and others on minimum standards of provision of open space in new development, especially residential development. The methodology for the study was based on a staged approach, involving the following stages:

• UK and European policy literature review
• A review of best practice
• Local authority & stakeholder questionnaire and interview consultations
• Current open space standards review
• A two staged workshop consultation
• Development of a proposed open space standards framework

3. The review of open space standards applied in Scotland and the UK concluded the following:

• The range and availability of research into open space standards is fairly limited, with only parts of the Pan 65 typology covered by standards.
• The National Playing Fields Association 6 Acre Standard is widely used / interpreted for all types of open space, not just outdoor play space, however with very little consistency and explanation.
• There is no recognised qualitative standard for open space, only an award scheme (Green Flag Award for England and Wales).
• There is no common approach to the setting of standards, with some local authorities applying the NPFA 6 Acre standard to either new residential development or existing settlements.
• Quantitative open space standards are the most commonly used, varying enormously across local authorities and ranging from 1.6ha to 2.8ha per 1,000 population.

4. The study involved extensive consultation with a wide range of organisations with specialist knowledge and applied expertise in open space across Scotland and the UK. Consultation has allowed the study to draw upon the experience of stakeholders to develop a balanced understanding of the issues surrounding the setting of minimum open space standards and to explore relevant experience and review the practicalities of developing and applying standards. The five main themes that emerged from the interview and telephone consultation are as follows:

• There was no clear steer regarding the setting of national minimum open space standards, with some consultees preferring local authority set standards, whilst others considering that national standards would provide a useful baseline.
• A strategic view to setting and enforcing standards by local authorities is required, creating a better balance between the role of local authorities in planning open spaces and the provision of open spaces by housing developers.
• Quality or 'fitness for purpose' standards of open spaces are an essential consideration, not just the quantity of provision.
• Long term maintenance, in terms of both management and funding, is key to the provision of high quality open spaces as most failed open space is the result of lack of maintenance, even where the initial design was good.
• A major concern underlying the consultation process was the availability of funding, both for initial open space provision and long term maintenance.

5. The two-staged workshop process involved delegates representing a range of organisations from the private and public sector, with an involvement in the process of public open space delivery. Three types of standards (accessibility, quality and quantity) were discussed at the workshops. The following summarises the group discussion:

• Quantitative standards would be moderately to highly useful for advancing local open space provision and should be established through local authority audits and strategies.
• Accessibility standards, in terms of the use of distance thresholds from open spaces, would be highly useful for advancing local open space provision. Again, delegates concluded that the accessibility of open space should be established through local authority audits and strategies.
• Qualitative standards would be highly useful for improving local open space provision. Delegates recognised the difficulties in developing quality standards due to the diverse function and variety of open spaces and therefore, standards should take the form of guidance.

6. The broad consensus amongst the workshop consultees was that the best approach to developing national minimum standards is one that supports and builds upon the current advisory guidelines of PAN65. This approach would require each local authority in Scotland to set open space standards in accordance with a strengthened policy framework defined by the Scottish Executive, which would add further impetus and support to the provision of high quality open space.

7. It is recommended that Minimum Open Space Standards should be advanced through the publication of new Scottish Planning Policy ( SPP) and future revision and updating of PAN65. The setting of open space standards should be developed in conjunction with local authority developed open space strategies and action plans.

A new SPP should:

• set a national vision for open space in Scotland which seeks to raise aspiration, quality and the more inclusive participation of communities in open space planning;
• place a requirement on all local authorities in Scotland to prepare open space strategies and to provide, manage and conserve open space assets within the context of these strategies;
• set national new-build standards for new residential and commercial development where the scale of development exceeds defined thresholds
• extend the presumption against disposal and redevelopment of publicly owned open space by limiting any disposal unless fully compliant with the adopted Open Space Strategy;

Local Authority Open Space Strategies should:

• define locally relevant open space standards for both new and existing developments, in accordance with the national framework defined within the SPP and which meet or exceed the national minimum standard;
• be prepared in consultation with local communities, as part of the development plan and community plan process;

Further guidance is needed on:

• the setting of qualitative open space standards and the long term monitoring of open space provision and its condition; and
• the use and application of planning gain mechanisms to secure open space provision.
• detailed action plans and issues of environmental management. This should be progressed by Greenspace Scotland and other relevant organisations;

In addition, it is suggested that:

• delivery of open space in new development should be flexible and subject to a sequential test.
• an Open Spaces Challenge Fund could offer the Scottish Executive a powerful incentive to drive forward delivery and substantially advance and secure improvements to open space planning.

8. The proposed national minimum open space standard would apply to new developments and is intended to provide a strengthened framework from which local authorities can develop their own standards. The national minimum standard addresses only the quantity of open space provision and quality and accessibility standards must be addressed at the more appropriate local level. The following table sets out the national minimum open space standard for new development:

National Minimum Open Space Standards for New Development

* Note: Indicative thresholds have been outlined for information only. The information illustrates a potential model that will require wider consultation. Areas refer to gross floor areas (gfa).

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