Unfinished Business - WordPress.com€¦ · unfinished business / 01 Introduction 1.1 Scotland’s landscapes rank amongst the best in the world, including wild mountains, pristine

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

unfinished business / 01

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


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.


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


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”.


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.


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



“

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.


“

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



““

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.


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



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.


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.


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.


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.


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.


3/Forexample:ProsperityandProtection(CouncilforNationalParks,2006);EconomicContributionofNationalParks(CampaignforNationalParks,2010);ValuingtheNationalPark(LochLomond&TheTrossachsNationalParkAuthority,2011)/


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


4/including,forexample,localCouncils,theForestryCommission,HighlandsandIslandsEnterprise,HistoricScotland,MarineScotland,theScottishEnvironmentalProtectionAgency,ScottishNaturalHeritage,TransportScotlandorVisitScotland/

4.1 TheprincipalaimofthisStrategyistoprotectandenhanceScotland’svaluedlandscapesbyencouragingtheScottishGovernmenttodesignatemoreNationalParks.However,inaddition,adecade’sexperienceofthefirsttwoNationalParksindicatesthatthereisscopetoimproveandstrengthentheiroperationandthatthecasefordesignatingmoreNationalParkswillbestrongeriftheseissuesareaddressed.Thissectionsetsouttheprincipalissuesconcerned,alongwithrecommendationsforaddressingthem.ThedesignationofadditionalNationalParksshouldnothoweverbedelayeduntilimprovementsaremadetotheexistingones.


4.2 Section9(6)ofthe2000ActsetsoutawiderversionoftheSandfordPrinciple(see2.17above):


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.


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.


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


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).



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



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


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.


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.


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/


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.



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


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


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.


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.


23. ThereportdemonstratesclearreluctancebyCCStochallengetheinterestsoflocalauthoritiesorlandowners;itarguedthatthelegalandorganisationalchangerequiredtointroducearrangementsforlandscapeanalogoustothosealreadyinplacefornatureconservationwouldadverselyaffectlocalgovernmentinterests,particularlythroughlossofplanningpowers.CCShadnowishtopreventchangetothe‘traditional’landusesofagriculture,forestryorsportortothe‘traditional’freedomofownerstousetheirlandastheywish;itpreferredco-operationtodramaticchange.ItduckedtheissueofwhetherScotlandshouldhaveNationalParks,statingonlythatthis“willnodoubtcontinuetobedebated”;howeveritisclearfromthedescriptionoftheproposedSpecialParksthattheywouldeffectivelyhavebeenNationalParksinallbutname.The1974CCSreportalsoarguedthattherewereareasbeyondthoseproposedasspecialparkswhichcontainlandscapesofunsurpassedattractivenesswhichmustbeconservedaspartofournationalheritage.TheseshouldbeidentifiedinstructureplansasworthyofspecialprotectiontogetherwithpoliciestoachievethisandshouldbedesignatedasASPCsunderthe1967Act.


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.


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):


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


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.


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.


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)


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

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Unfinished Business - WordPress.com€¦ · unfinished business / 01 Introduction 1.1 Scotland’s landscapes rank amongst the best in the world, including wild mountains, pristine