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CHAPTER FIVE: QUESTIONNAIRE AND INTERVIEW CONSULTATION PROCESS

Introduction

5.1 The study has involved extensive consultation with organisations with specialist knowledge and applied expertise in open space across Scotland and the UK ( see Chapter 2 Methodology). The purpose of the initial consultation and questionnaire surveys was twofold.

• Firstly, to establish through primary research the current status of open space planning within local authorities in Scotland and progress on Open space Strategies and views from other stakeholder groups on this process and the application of standards: and
• Secondly, to establish a broader understanding of the key issues concerning Open Space Minimum Standards and the perceived benefits and dis-benefits of national standards.

5.2 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 explore relevant experience and review the practicalities of developing and applying standards. The consultation process was designed to include a range of organisations, including national public bodies, public health policy makers, environment trusts, local authorities, organisations working with communities, housing associations and housing developers involved at all levels of the process to provide public open space. The consultation included the following:

• Scotland wide questionnaire survey and selected follow up interviews
• UK Interview and Telephone Consultations

5.3 The findings of the consultation informed the workshop process, providing the baseline information for the more in-depth consultation with the workshop delegates.

Consultation Methodology

Questionnaire Survey

5.4 Three questionnaires were produced, targeted at local authorities, Stakeholder Groups and Housing Associations / Housing Developers. Each questionnaire was 'tailored' to fit the recipient group's likely experience, responsibilities and scope of works. In total, over 170 questionnaires were sent to a range of organisations across Scotland with an involvement in open space provision, management or policy. A total of 82 questionnaires were returned, a 48% return rate.

• 24 Local Authority (out of the 32 Scottish local authorities) questionnaire returns
• 33 Stakeholder Group questionnaire returns
• 25 Housing Developer / Housing Association questionnaire returns

5.5 The following local authorities contributed to the study:

• Aberdeen City Council
• Aberdeenshire Council
• Angus Council
• Dundee City Council
• East Ayrshire Council
• East Dunbartonshire Council
• East Lothian Council
• East Renfrewshire Council
• City of Edinburgh Council
• Falkirk Council
• Glasgow City Council
• Highland Council
• Inverclyde Council
• Midlothian Council
• Moray Council
• North Ayrshire Council
• North Lanarkshire Council
• Perth & Kinross Council
• Renfrewshire Council
• Scottish Borders Council
• South Ayrshire Council
• Shetland Islands
• West Dunbartonshire Council
• West Lothian Council

5.6 The local authority questionnaire sought to establish:

• current progress of local authorities in the preparation of open space strategies and audits
• how the open space strategy process is organised and resourced
• use of open space standards for new housing developments
• use of open space standards for existing residential areas
• application of locally derived standards / use of other standards
• views on the setting of national standards
• strategic open space decision making processes
• examples of good practice / open space projects that have worked well

5.7 The following Stakeholder Groups contributed to the study:

• Aberdeen Countryside Project
• British Waterways
• Carts Greenspace
• Castlemilk Environment Trust
• Central Scotland Forest Trust
• Communities Scotland
• Edinburgh Green Belt Trust
• Federation of City Farms & Community Gardens
• Greenbelt Group
• Greenspace Scotland
• greenINverness
• Kelvin Clyde Greenspace
• NPFA Scotland
• NHS Scotland
• OPENspace
• Paths for All Partnership
• Health Department Scottish Executive
• Scottish Federation of Housing Associations
• Greenbelt Group Ltd
• Scottish Natural Heritage
• Scottish Wildlife Trust
• SNIFFER Group
• Solway Heritage
• Crichton Development Company
• South Lanarkshire Greenspace
• Sportscotland
• West Dunbartonshire Greenspace
• The Wise Group

5.8 The Stakeholder Group questionnaire sought to establish:

• the organisations involvement in open space projects
• views on the use of existing open space standards eg. National Playing Fields Association 6 Acre Standard
• application of current open space standards by local planning authorities
• views on the setting of national standards
• benefits / dis-benefits of setting national standards
• examples of good practice / open space projects that have worked well

5.9 The following Housing Developer / Housing Association contributed to the study:

• Angus Housing Association Limited
• Cube Housing Association
• Fyne Homes
• Grampian Housing Association
• Horizon Housing Association
• Kingdom Housing Association
• Langstane Housing Association
• North Glasgow Housing Association
• Ore Valley Housing Association
• Perthshire Housing Association Limited
• Port of Leith Housing Association
• Servite Housing Association Limited
• West Granton Housing Cooperative
• Applecross
• AWG Residential
• Barratt East Scotland
• Bett Homes
• Cala Homes
• Elphinstone Group
• George Wimpey
• Miller Homes East
• Ogilvie Homes
• Persimmon Homes
• Strathclyde Homes
• Walker Group Ltd

5.10 The Housing Developer / Housing Association questionnaire sought to establish:

• the organisations' provision of different types of open space
• use of open space standards for housing developments
• use of existing open space standards eg. National Playing Fields Association 6 Acre Standard
• application of current open space standards by local planning authorities
• views on the setting of national standards
• benefits / dis-benefits of setting national standards
• examples of good practice / open space projects that have worked well

UK Interview and Telephone Consultations

5.11 In parallel to the questionnaire consultation, interviews were conducted with representatives of a range of organisations across the UK with an involvement in open space provision, management or policy making.

5.12 The selection of organisations for interview was based on recommendations from members of the client group, the consultants own experience and the questionnaire responses. Organisations and individuals were selected on recommendation for having an interesting approach to open space standards, offered examples of good practice or could make a valuable contribution to the research study. A list of potential consultees was developed during the questionnaire survey and literature review process. Interviews were conducted either face to face or by telephone, depending on location, availability for interview and linked site visits.

5.13 This part of the study essentially served as a scoping study to follow-up particularly interesting local authority contacts made through the questionnaire survey, providing more detailed information on local authority structures and processes. The stakeholder group interviews varied in terms of the extent of useful information provided. For example, the interview with English Nature concentrated solely on the preparation of the ANGSt standard, whereas the Aberdeen Countryside Project officer concentrated mainly on community involvement in environmental projects.

5.14 The findings of the interviews have contributed to the best practice case studies, the open space standards review and have helped inform the workshop process.

5.15 The following local authorities were interviewed:

• Falkirk Council
• Aberdeen City Council
• Dundee City Council
• Highland Council
• East Dunbartonshire Council
• Stirling Council
• City of Edinburgh Council
• Angus Council
• Scottish Borders Council
• Greenwich Council
• Forest of Dean Council
• Sheffield City Council
• Middlesborough Council
• Enfield Council
• Rugby Council
• Bridgnorth Council

5.16 The following Stakeholder Groups and other organisations were interviewed:

• Central Scotland Forest Trust
• Sportscotland
• The Green Belt Group Ltd
• Aberdeen Countryside Project
• OPENspace, Heriot Watt University
• University of Greenwich
• Office of the Deputy Prime Minister
• CABE Space
• Peabody Trust
• National Playing Fields Association, Scotland
• Institute of Leisure and Amenity Management
• English Nature
• English Heritage
• Thames Gateway London Partnership
• Greater London Authority

5.17 The following Housing Developers were interviewed:

• Applecross Properties
• Belway Homes
• Elphinstone Group
• Walker Group

Questionnaire Consultation Findings

Local Authority Questionnaire Summary

5.18 The local authority questionnaire was targeted at a specific department or individual officer with an open space remit. This section summarises the outcomes and conclusions of the questionnaire survey to local authorities in Scotland.

Open Space Audit and Strategy Progress

5.19 Open space audits and strategies are a means of providing the baseline information and policy context for the assessment of the existing open space resource. Out of the 24 local authorities that completed the questionnaire, 9 have begun the process of undertaking an audit of open space, 10 have completed the audit and progressed to the strategy stage, 2 have completed the strategy and 3 have not begun the process. Table 13 below, illustrates the 24 local authority responses.

5.20 The majority of local authorities that responded to the questionnaire survey, are developing audits and strategies in the short term, likely to be complete in the next 1 to 2 years.

5.21 14 out of 24 local authorities are progressing the audit / strategy process in-house, with only 8 authorities using external consultants and 2 using other delivery methods. The survey established that open space planning and management is primarily a multi-departmental approach. Only 2 local authorities have a dedicated Greenspace Officer, which indicates that a variety of staff from different departments are involved in the process. Only 38% of local authorities that responded to the questionnaire have carried out specific community consultations as part of the open space strategy process.

Use of Open Space Standards for New and Existing Developments

5.22 Part of the questionnaire to local authorities aimed to establish the extent of the development of open space standards for new residential developments. 13 out of the 24 local authority respondents have set open space standards for new residential developments, 6 have not prepared standards and 5 are in the process of developing standards.

5.23 The questionnaire survey found that more local authorities have prepared standards for new residential development than existing residential areas. Only 7 out of the 24 local authority respondents have set open space standards for existing residential areas, 10 have not prepared standards and 7 are in the process of developing standards. The setting of standards for existing areas would appear to be linked to the development of open space audits and strategies, whereas a number of local authorities had prepared design guides and standards for new residential developments in advance of, and separate from, the development of the strategy process.

5.24 Only 2 out of the 24 local authority respondents have developed open space standards for other types of development, such as town centres and business parks.

5.25 Local authorities were asked how standards for new and existing open spaces were developed. The responses were varied, with no one standard approach applied consistently. Standards are developed in the following ways:

• Through a multi-departmental approach, with Planning and other interest groups as part of the Local Plan process;
• In response to internal resource pressures to maintain existing play areas;
• By using existing standards and adapting them;
• Using best practice research and internal knowledge and expertise;
• Based on National Playing Fields Association standard;
• Through the creation of a GIS model illustrating areas of accessible natural green space deficiency using 300m standard (English Nature);
• Based on an assessment of maintenance, affordability, current usage and biodiversity;
• Developed on the back of an open space strategy; and
• As a combination of National Playing Fields Association 6 Acre Standard and standards applied by other local authorities.

5.26 In many cases it appeared that open space standards have been set in response to internal departmental pressures and not in response to the open space strategy process. A range of issues and difficulties were encountered in setting these standards, including:

• Meeting staff costs to enforce open space standards;
• Establishing a flexible framework for the standards to operate;
• Persuading developers to contribute to on-site open space when they are under pressure to contribute towards other elements, infrastructure and roads;
• Lack of internal consultation with relevant council departments;
• Reluctance of some Council Officers to depart from the NPFA standard;
• Difficulty of gaining public acceptance of changing standards or methods;
• Determining criteria for assessing quality;
• Establishing maintenance arrangements for new residential developments;
• Adopting a single standard for a local authority area; and
• Developing a realistic and equitable basis for capital and revenue allocation by developers.

5.27 The results of the questionnaire established that 30% of respondents use the National Playing Fields 6 Acre Standard, 30% use a variation on the NPFA standard and the remaining 40% use a locally derived Local Plan standard.

5.28 The provision of open space in new developments is primarily established through a combination of Local Plan standards, negotiation with the developer and the use of planning briefs. The involvement of Local Members, key officer personnel, availability of funding and active community groups can also have a significant influence on provision of open space.

Views on the Setting of National Standards

5.29 17 out of the 24 local authority respondents thought that national open space standards would be useful to their work. We note that no detail of how such standards would be structured was provided in the questionnaire. The table below demonstrates that the respondents considered that national open space standards would be moderately to highly relevant to the work of local authorities.

5.30 National open space standards should cover parks, amenity open space, children's play areas and sports facilities, as illustrated in the table below.

5.31 Questionnaire respondents considered that national open space standards are very relevant for new housing developments, as table 19 demonstrates.

5.32 Questionnaire respondents considered that national open space standards will be moderately to very relevant to existing residential areas.

5.33 When considering what national standards should include, the questionnaire responses concluded that quality, accessibility (distance thresholds) and quantity are broadly of equal importance. The distances of open spaces to peoples homes (accessibility) is marginally more important, followed by quantity and then quality. The respondents also considered that management standards and quantities of facilities are also important considerations.

5.34 The benefits of setting open space standards is considered to be the ability of local authorities to improve their forward planning, provide clear strategic guidance, generate more funding opportunities, enable community led decision making and provide social equity solutions, in order of importance.

Common Themes

5.35 The issues that arose from the survey were explored in more depth through the workshop, however there are common themes that emerged, such as:

• The majority of local authorities who took part in the survey are preparing open space audits and strategies
• Often, the responsibility of progressing open space work lies with one dedicated officer or department
• Community consultation in the process has been limited
• Open space standards tend to have been set for new residential developments, rather than existing settlements
• The setting of standards for existing settlements would appear to be linked to the audit / strategy process, which would explain the delay
• Only 2 local authorities have set standards for other types of development, such as town centres and business parks
• There does not appear to be a common approach to the setting of standards
• Each local authority appeared to have experienced difficulties during the process, concerning organisational structures, individual personalities and existing policy
• The motivational factors for the setting of standards appears to be particular to each local authority, hence the reason for the range of difficulties experienced and resulting outputs
• The National Playing Fields Association standard continues to be used by local authorities, either in its correct form, or a variation
• There is a significant level of support for the setting of national standards, covering parks, amenity open space, children's play areas and sports facilities, by local authorities
• National standards are more relevant to new housing developments than existing settlements
• Quality, accessibility and quantity are of equal importance in terms of open space provision

Stakeholder Questionnaire Summary

5.36 The first section of the questionnaire was designed to establish what involvement the respondents had in open space projects. Involvement included the delivery of open space, working with communities, the management of open space projects, strategic policy review and development. Section 5.2.1 sets out the range of stakeholder groups that took part in the questionnaire survey.

5.37 Only 17% of the organisations consulted influence the design of new housing developments, 38% have no influence and 45% sometimes influence the process. Only 24% have an open space policy or guidelines. However, 52% of respondents have a dedicated member of staff that deals with open space issues.

Views on the Use of Open Space Standards for New and Existing Developments

5.38 The results of the questionnaire established that the National Playing Fields 6 Acre Standard is regarded to be of moderate to low relevance to the work of organisations questioned. This result may be influenced by the remit and involvement of the range of participating organisation in open space delivery.

5.39 When questioned about if the open space standards are applied consistently by local planning authorities, 57% commented that standards are not applied consistently and 43% commented that there is room for improvement. The following are some of the comments on the issue:

• The current local authority approach seems piecemeal and confusing;
• The quality of service varies across local authority areas;
• Many councils do not have the design skills or time to achieve good outcomes;
• There appears to be limited enforcement on developers who select the minimum possible standard;
• Responsibility for open space delivery is fragmented, with a lack of joined up thinking, virtually minimal community participation in projects;
• Local authorities too often see open space as an asset which they can dispose of;
• Application of standards appears to be very patchy; and
• There seems to be too many 'get-outs' for developers.

Views on the Setting of National Standards

5.40 The overall majority of respondents (93%) consider that national standards for open space would be useful. Interestingly, respondents considered that national open space standards would be moderately to very relevant to the work of stakeholder group, despite the fact that the setting and enforcing of standards falls within the remit of local authorities. National open space standards should cover parks, amenity open space, children's play areas and sports facilities.

5.41 Questionnaire respondents considered that national open space standards are very relevant for new housing developments, as table 23 demonstrates.

5.42 Questionnaire respondents considered that national open space standards will be moderately relevant to existing residential areas.

5.43 When considering what national standards should include, the questionnaire responses concluded that quality, accessibility (distance thresholds) and quantity are all of importance. However, quality standards were considered to be of most importance, followed by accessibility and then quantity. The respondents also considered that management standards and quantities of facilities are also important considerations.

Common Themes

5.44 The issues that arose from the survey were explored in more depth through the workshop, however there are common themes that emerged, such as:

• National Playing Fields Association standard ( NPFA) is considered to be of moderate to low relevance to the work of organisations questioned
• The stakeholder groups are highly critical of local authority application of open space standards, with much room for improvement
• 93% of respondents consider that national standards for open space would be useful and relevant to their work
• National standards are more relevant to new housing developments than existing settlements
• Quality standards were considered to be of most importance

Housing Developer / Housing Association Questionnaire Summary

5.45 The first section of the housing developer / housing association questionnaire was designed to establish what type of open spaces the respondents provided. The housing developers and Housing Associations that responded build urban, suburban, infill developments and peripheral urban fringe estates. Almost all of the developers questioned stated that their organisation does not have an open space policy or guidelines. All of the organisations questioned stated that their organisation does not have a dedicated staff member that deals with open space provision.

5.46 The table below demonstrates that developers primarily provide small incidental green spaces, children's play areas and path corridors.

Negotiation of Open Space Provision with Local Planning Authorities on New Sites

5.47 The questionnaire included a number of questions designed to explore the relationship between developers and local authorities. For a typical development, open space types and levels are decided by a combination of Planning Authority Negotiations (41%), local authority set standards (31%), site specific planning briefs (26%) and internal standards (2%). Respondents commented that the decision making process to establish open space provision can be a difficult process.

5.48 Post adoption maintenance of open spaces is typically undertaken by a combination of local authorities, the housing association / developer or a third party, but with an element of maintenance being undertaken by residents.

5.49 There was a general consensus that post adoption maintenance undertaken by local authorities varies in quality and success across local authority areas. Local authority maintenance costs are high compared to private sector costs. One consultee commented that it is difficult to get the local authority to adopt open spaces on completion.

Use of Open Space Standards for New and Existing Developments

5.50 The results of the questionnaire established that the National Playing Fields 6 Acre Standard are sometimes applied to new developments by developers, but in some cases are never applied. The questionnaire established that the National Playing Fields 6 Acre Standard is regarded to be of moderate to low relevance to the work of organisations questioned.

5.51 When questioned about whether the open space standards are applied consistently by local planning authorities, 55% commented that standards are not applied consistently, 20% commented that there is room for improvement and only 25% commenting that they are applied consistently. Planning department negotiations predominantly influences the decision making for open spaces in developments.

Views on the Setting of National Standards

5.52 38% of respondents considered that national standards for open space would be useful to their work, 42% that they would not be useful with 20% saying they did not know. 45% of respondents said that national open space standards are a good idea, 40% said no and 15% said that they did not know. When considering what national standards should include, the questionnaire responses concluded that quality standards were considered to be most important. National open space standards should cover parks, amenity open space, children's play areas and sports facilities.

5.53 Not withstanding the research brief, there was a discussion about the advantages and disadvantages of setting national standards. The following advantages and disadvantages of setting national minimum open space standards arose from the questionnaire responses from the stakeholder and housing developer questionnaires:

Common Themes

5.54 The issues that arose from the survey were explored in more depth through the workshop, however there are common themes that emerged, such as:

• Few of the housing developers / Housing Associations involved in the survey have an open space policy, guidelines or dedicated open space officer
• Developers provide more small incidental green spaces, children's play areas and path corridors than parks and sports facilities
• There is no standardised decision making approach for setting open space types and levels on new developments and it can often be a difficult process
• There was a general consensus that post adoption maintenance undertaken by local authorities varies in quality and success across local authority areas
• National Playing Fields Association standard is of moderate to low relevance to the work of organisations questioned
• 55% of respondents commented that open space standards are not applied consistently
• 45% of respondents said that national open space standards are a good idea
• Quality standards were considered to be of most importance

UK Interview and Telephone Consultation Summary Findings

5.55 Five main themes emerged from the interview and telephone consultation, which 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. However, it is recognised that there is currently a lack of consistency in applying standards. A common theme was the need for standards to be geographically appropriate, be achievable and have a level of flexibility and room for negotiation.
• A strategic view to setting and enforcing standards by local authorities is required, as there is currently more emphasis on planning briefs / design policies than open space strategies or standards. There is a need for a better balance between the role of local authorities in planning open spaces and the provision of open spaces by housing developers. Community involvement in the process is vital to ensure successful provision of sustainable open space.
• Quality or 'fitness for purpose' standards of open spaces is an essential consideration, not just quantity of provision. The assessment of quality is subjective, and therefore more difficult to achieve and enforce. Some consultees considered that there tends to be a trade off between quality and quantity in negotiations with developers and that most new housing developments fall below standards. In some cases, a loss of open space may be acceptable if higher quality was achieved and the result was more relevant open space.
• 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 if initial design was good. The use of factors to manage open space is a significantly cheaper option, but often fails as it is difficult to maintain funding in long term. Maintenance by local authorities varies widely across local authority areas.
• A major concern underlying the consultation process was the availability of funding, both for the initial open space provision and long term maintenance. Strategic linked thinking by local authorities, in terms of staff resources, budgets and joined-up departmental action would significantly improve the open space audit, strategy and enforcement process.

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