Local Landscape Planning Policy

A Best Practice Summary

for the South West Landscape Partnership and Natural England

by Land Use Consultants

September 2010

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 CONTENTS

Introduction.................................................................................................1
The planning framework............................................................................1
Types of landscape policies ........................................................................3
General development criteria................................................................................ 4
Natural and built environment .............................................................................. 6
Landscape-specific .................................................................................................... 7
Green infrastructure and open space ................................................................11
Development in the countryside ........................................................................16
Design quality ..........................................................................................................17
Conclusion .................................................................................................18

i
 INTRODUCTION
1.1 This note was prepared by Land Use Consultants on behalf of Natural
England and the South West Landscapes Partnership to provide best practice
examples of landscape policies in local Development Plan Documents
(DPDs).
1.2 A review of guidance on landscape character and planning policy, and of local
DPDs in England was undertaken to provide an overview of best practice
landscape policies. The review focused on local DPDs that have been
adopted subsequent to the scrutiny of the Planning Inspectorate, as a basis
for sound policy development. The Planning Inspectorate’s report has been
reviewed where it has commented on landscape policy within a plan.
1.3 A total of 34 plans were reviewed, drawn from the Planning Inspectorate’s
published list of sound DPDs1, and 18 policy examples from 13 plans are
included in this note.
1.4 This note is structured in the following sections:
• A summary of the planning framework, clarifying the requirements
and scope of local planning policies to protect and manage landscape.
• A discussion and examples of best practice landscape policies in local
DPDs.
1.5 An emphasis has been given throughout to positive planning that encourages
beneficial management of landscape, rather than aiming to restrict
development or preserve existing landscape, and to the need to protect and
manage all landscapes, not only those of exceptional quality.

THE PLANNING FRAMEWORK

1.6 Planning policy provides an important framework with which to protect and
manage change in landscapes. Local planning policy helps to deliver national
legislation and policy, while addressing local issues and objectives2. It is
important to understand the scope and limit of the planning system, in order
to understand how local planning policies may be best positioned to
contribute to landscape objectives.

European Landscape Convention

1.7 The European Landscape Convention (ELC) promotes the protection,
management and planning of European landscapes. The Convention
acknowledges that:

1
Development Plan Documents submitted for Examination, at 07 July 2010, Planning Inspectorate website.
http://www.planning-inspectorate.gov.uk/pins/appeals/local_dev/index.htm
2
Following a change of Government, regional planning strategies were revoked on 6 July 2010 and no
longer form part of a development plan. The data and research undertaken by regional bodies remains
valid as evidence base to inform the preparation of Local Development Frameworks. The emerging
Decentralisation and Localism Bill will establish the legislation by which regional planning strategies
will be abolished, and will introduce new ‘powers of competence’ for local government.

1
 the landscape is an important part of the quality of life for people everywhere: in
urban areas and in the countryside, in degraded areas as well as in areas of high
quality, in areas recognised as being of outstanding beauty as well as everyday
areas.
1.8 The ELC emphasises that landscape includes rural, urban, peri-urban and
seascapes. The Convention strongly supports identifying and assessing
landscape through field research, and recognises the value of all landscapes,
not just those designated for their outstanding beauty. It asserts that
landscape is ‘a policy area in its own right’, and provides an important
consensus for shaping landscape policy across Europe.3, 4

Planning Policy Statements

1.9 Planning Policy Statements (PPS) establish national policy on a range of
planning issues and (with relevance to landscape) variously address designated
and non-designated landscapes, development in the countryside, the natural
and built environment, and local character and distinctiveness.
1.10 Of particular relevance is a draft PPS on the Natural Environment5 which
establishes that local planning authorities should aim to ‘minimise harm to the
landscape, providing reasonable mitigation where possible and appropriate, having
regard to siting, operational and other relevant constraints’ (policy NE8.1), and
further states that the ‘conservation of the natural beauty’ of National Parks and
AONBs ‘should be given great weight in planning policies and decisions’ (policy
NE8.5).
1.11 The draft PPS further states that local planning authorities should:
• ‘set out policies for the conservation, restoration, enhancement and enjoyment
of the natural environment in their area which are consistent with national,
regional and local … landscape priorities, objectives and targets (including …
the statutory management plans of National Parks … and AONBs)’ (policy
NE3.1)
• ‘develop criteria-based policies to guide development on or affecting landscapes
outside nationally designated landscape areas that are particularly highly valued
locally, based on an assessment of landscape character, sensitivity and capacity’
(policy NE3.3(ii))
• ‘rigorously consider the justification for retaining existing local landscape
designations, and they should only be maintained or, exceptionally, extended
where it can be clearly shown that criteria-based planning policies cannot
provide the necessary protection’ (policy NE3.3(ii)).
1.12 PPS1: Delivering sustainable development6 states that ‘a high level of protection
should be given to most valued townscapes and landscapes’, with the ‘highest level
of protection’ given to national and international designations.

3
European Landscape Convention, Council of Europe website (accessed July 2010):
http://www.coe.int/t/dg4/cultureheritage/heritage/Landscape/default_en.asp
4
The ELC came into force in the UK on March 1st 2007.
5
Consultation paper on a new Planning Policy Statement: Planning for a Natural and Healthy Environment,
CLG (March 2010).
6
Planning Policy Statement 1: Delivering sustainable development (CLG, 2005).

2
1.13 PPS7: Sustainable development in rural areas promotes good quality
development that respects local distinctiveness and the intrinsic qualities of
the countryside, and the continued protection of the open countryside.
(However, relevant landscape policy in PPS7 will be largely superseded by the
draft PPS on the Natural Environment, described above.)

Local Development Framework

1.14 Local planning policies are set out in a Local Development Framework (LDF),
which delivers the spatial strategy for a local area and establishes the guidance
against which planning applications will be decided. The LDF is comprised of
Development Plan Documents (DPDs), which determine the scale,
nature, and spatial distribution of development, and are subject to an
independent examination by a Planning Inspector before adoption; and
supporting Supplementary Planning Documents (SPDs), which provide
greater detail on policies in a DPD and are not subject to examination,
enabling a degree of flexibility in their wording and scope.
1.15 PPS12 establishes that DPDs ‘should not repeat or reformulate’ national policy.7
That is, DPD policies must be consistent with, but not repeat, national policy.
If it is a local planning authority’s intention to rely on national policy in its
decision making, the national policy should not be reiterated in the local
plan8. Rather, local policies must guide the local development context only,
while adhering to national planning objectives.
1.16 The key plan in the LDF is the Core Strategy DPD, which coordinates the
delivery of local development and accompanying infrastructure, and makes
clear spatial choices about where development should go. The Core Strategy
must establish an overall vision for a local area, identify key issues to be
addressed, and set out where and how much future development is planned
for.

TYPES OF LANDSCAPE POLICIES

1.17 A summary review of adopted Core Strategies reveals several common types
of policies that address or affect landscape protection and management. The
following section provides guidelines for and examples of best practice policy
according to the following types of policies:
• General development criteria
• Natural and built environment
• Landscape-specific
• Green infrastructure and open space strategies
• Development in the countryside
• Design quality

7
Planning Policy Statement 12: Local spatial planning (CLG, 2008), paras.4.30, 5.2.
8
Planning Policy Statement 12: Local spatial planning (CLG, 2008), para.4.32.

3
1.18 These policy types are intended to help shape the understanding of how
protection and management of landscape is commonly expressed in local
planning policy, but do not necessarily represent a comprehensive
categorisation of local landscape policies. In many cases these types of
policies may overlap, or may not be represented – they are only intended to
help frame the review of best practice landscape policies.
1.19 Excerpts from DPDs have been included where these are considered to
provide a good example of a landscape policy. These are set out in grey text
boxes throughout this note, and include an introductory sentence detailing
why the policy is considered an example of best practice. (Note that all
emphasis (bold font) has been added.)

General development criteria

1.20 A criteria-based general development policy establishes criteria against which
all proposals for future development in the local area will be decided.
General development criteria provide a tool to ensure new development is
located appropriately and of a scale and design to benefit landscape character.

Mid Devon’s Core Strategy development criteria on local distinctiveness

highlight the link between landscape, biodiversity, design of built development,
and the historic environment.

Policy COR2: Local Distinctiveness

Development will sustain the distinctive quality, character and diversity of Mid Devon’s
environmental assets through:
a) high quality sustainable design which reinforces the character and legibility of Mid
Devon’s built environment and creates attractive places,
b) the efficient use and conservation of natural resources of land, water and energy,
c) the preservation and enhancement of the distinctive qualities of Mid Devon’s natural
landscape, supporting opportunities identified within landscape character areas. Within
the Blackdown Hills Area of Outstanding Natural Beauty or adjoining the Area of
Outstanding Natural Beauty or Exmoor and Dartmoor National Parks, the primary objective
will be to protect the special environmental qualities of that landscape and its setting,
d) the protection and enhancement of designated sites of national and local biodiversity
and geodiversity importance. Development will support opportunities for protecting and
enhancing species populations and the restoration, recreation, enhancement and linking of
habitats to contribute toward the delivery of Biodiversity Action Plan targets, and
e) the preservation and enhancement of Mid Devon’s cultural and historic
environment, and the protection of sites, buildings, areas and features of recognised
national and local importance.
Core Strategy 2026 (Mid Devon District Council, adopted July 2007).

4
The Borough of Poole’s Core Strategy sets out criteria for new housing
development, which include site design elements that contribute positively to
local character.

PCS 5 – Broad Locations for Residential Development

(Excerpt)
In all cases… The design of buildings should contribute positively to those attributes of a
particular street which distinguish it, including building materials, height, roof form,
fenestration, site coverage, car parking arrangements, spacing of buildings, retention of
front and rear gardens, tree cover and other vegetation.
Core Strategy (Borough of Poole, adopted February 2009).

The London Borough of Sutton’s Core Strategy establishes development

criteria for the Borough’s ‘suburban heartlands’, recognising the special
character of these areas and encouraging improvement in areas where
character has been degraded.

Core Policy PMP2 – Suburban Heartlands

The Council will maintain and seek to enhance the quality of the Borough’s environment by
ensuring that all new development within the residential heartlands respects the positive
features of Sutton’s suburban character, reinforcing local distinctiveness and a sense of
identity. Where the residential area is more mixed in character or currently presents a
lower quality environment, the Council may adopt a more flexible approach, requiring that
new development is of a high quality that creates its own distinctive character.
Core Planning Strategy (London Borough of Sutton, adopted December 2009).

5
 North Northamptonshire’s Joint Core Strategy policy on sustainable
development sets out criteria to guide all development proposals, and
advocates a holistic view of ‘environmental character’ which incorporates
current landscape, historic landscape, and biodiversity elements.
Policy 13: General Sustainable Development Principles
(Excerpt)
Development should:
h) Be of a high standard of design, architecture and landscaping, respect and enhance the
character of its surroundings and be in accordance with the Environmental Character of the
area;
i) Create a strong sense of place by strengthening the distinctive historic and cultural
qualities and townscape of the towns and villages through its design, landscaping and use of
public art;
o) Conserve and enhance the landscape character, historic landscape, designated built
environmental assets and their settings, and biodiversity of the environment making
reference to the Environmental Character Assessment and Green Infrastructure Strategy;
Core Spatial Strategy (North Northamptonshire Joint Planning Unit, adopted June 2008).

1.21 North Northamptonshire’s Environmental Character Assessment9

(mentioned in the example above) is comprised of three character
assessments: current landscape, historic landscape, and biodiversity. These
three strands of evidence are drawn together ‘to give an objective description of
the North Northamptonshire landscape’, and are ‘supported by a series of
strategies and guidelines to help direct future landscape change and landscape
management’. The Core Strategy asserts that this approach ‘recognises the
local distinctiveness of all areas’ and ‘negates the need for… local landscape
designations’.10

Natural and built environment

1.22 Local planning policies establishing the protection and enhancement of the
natural and/or built environment commonly recognise landscape as a valued
natural asset.

1.23 Such policies should recognise the importance of protecting and enhancing
the quality and character of all landscapes, and need not reiterate national
policy affording the highest protection to designated landscapes. Features
that contribute to local urban or rural landscape character (e.g. topography,
field patterns, hedgerows, stone walls) should also be recognised as needing
protection or management.

1.24 The examples below take a holistic approach to the management of the
natural environment, incorporating landscape as well as biodiversity, open
space, and heritage elements within a comprehensive policy.

9
Available online at: http://www.rnrpenvironmentalcharacter.org.uk/
10
Core Spatial Strategy (North Northamptonshire Joint Planning Unit, adopted June 2008), para.4.12.

6
Waveney District’s policy on the natural environment encompasses landscape
and the need to protect local character and distinctiveness. Note that the
policy refers to the setting of a designated landscape, further guidance on
which is discussed below.
Policy CS16: Natural Environment
The District Council will work with partners such as the Suffolk Wildlife Trust, Suffolk
Biodiversity Partnership, Suffolk Coast and Heaths Project, the Broads Authority and the
community to protect and enhance the natural and historic environment in the District.
Proposals for development are expected to retain and add to local distinctiveness, retain
tranquillity, avoid fragmentation of habitats and seek to enhance wildlife corridors and
networks.
In addition, proposals should conserve and contribute towards the enhancement of the
landscape character, biodiversity and geodiversity of the District, including those features
listed below:
• the visual setting of the Norfolk and Suffolk Broads
• the Historic Parks and Gardens of Somerleyton, Henham and Belle Vue Park in
Lowestoft, and their settings
• habitats and species in the Suffolk Biodiversity Action Plan
• sites and features in the emerging Suffolk Geodiversity Action Plan
• locally recognised sites of biodiversity and geodiversity importance, including County
Wildlife Sites, Local Nature Reserves and Regionally Important
Geological/Geomorphological sites
• wildlife and green corridors as identified in the biodiversity audits for Lowestoft, the
market towns and Kessingland.
Core Strategy (Waveney District Council, adopted January 2009).

Wycombe District’s policy on environment provides a comprehensive

approach to environmental assets, and recognises all landscapes and their
character and quality as important assets.
Policy CS 17: Environmental Assets

The Council will conserve and improve the environmental assets of the District by requiring:
1. The conservation and enhancement of the Chilterns Area of Outstanding Natural Beauty
and its setting.
2. The implementation of the objectives of national and local biodiversity action plans…
3. The protection of open spaces and action to address deficiency in open space.
4. The identification, retention and enhancement of green infrastructure assets, including
the development of green corridors and networks…
5. The conservation and enhancement of landscape character, with reference to national
and county-level landscape character assessments and, where appropriate, landscape
character defined in more detail at local level.
6. The preservation or enhancement of historic environments (and, where appropriate, their
settings) through the identification, protection and/or appropriate management of
[heritage assets]…
7. The conservation and enhancement of watercourses, water bodies and their settings for
their landscape character, biodiversity and recreational value – especially the River
Thames and its valley corridor and the District’s chalk streams.

7
 8. The prevention of inappropriate sub-division of agricultural land to avoid degradation of
land of amenity value.
Adopted Core Strategy (Wycombe District Council, adopted July 2008).

Landscape-specific
1.25 Landscape-specific planning policies may establish generic protection for all
landscapes, emphasise protection for designated landscapes, and/or focus on
landscape character and quality.
1.26 Two examples of landscape policies that provide a firm basis for protecting all
landscapes are set out below, followed by a discussion of designated
landscapes and their setting, the use of local landscape designations, and
historic landscape characterisation.

Breckland District’s Core Strategy recognises the intrinsic value of landscape

in its own right, and the role of landscape in shaping other natural and
cultural elements. The policy identifies sensitive character areas in which
development will be required to have particular regard to landscape
components, demonstrating a character-based rather than designation-based
approach to landscape management.
Policy CP 11: Protection and Enhancement of the Landscape
The landscape of the District will be protected for the sake of its own intrinsic beauty and
its benefit to the rural character and in the interests of biodiversity, geodiversity and historic
conservation. Development should have particular regard to maintaining the aesthetic and
biodiversity qualities of natural and man-made features within the landscape, including a
consideration of individual or groups of natural features such as trees, hedges and woodland
or rivers, streams or other topographical features.
The release of land in Breckland will have regard to the findings of the Council's Landscape
Character Assessment (LCA) and Settlement Fringe Landscape Assessment to ensure land is
released, where appropriate, in areas where the impact on the landscape is at a minimum.
Development should also be designed to be sympathetic to landscape character, and
informed by the LCA.
High protection will be given to the Brecks landscape, reflecting it's role as a regionally
significant green infrastructure asset. Proposals within the Brecks Landscape Character
Areas will not be permitted where these would result in harm to key visual features of the
landscape type, other valued components of the landscape, or where proposals would result
in a change in the landscape character.
High protection will also be given to the River Valleys and Chalk Rivers in Breckland as
identified in the Landscape Character Assessment, recognising their defining natural
features, rich biodiversity and the undeveloped character of their shallow valleys.
The Council expects all development within the District to be of the highest design quality in
terms of both architecture and landscape. It should have regard to good practice in urban
design and fully consider the context within which it sits. It should embrace opportunities to
enhance the character and appearance of an area and contribute to creating a sense of
local distinctiveness.
Core Strategy and Development Control Policies DPD (Breckland District Council, adopted 2009).

8
 Horsham District’s development control policy on landscape character
identifies the specific features that contribute to local character. Supporting
text references the District’s Landscape Character Assessment, and
emphasises that landscape character includes historic character, biodiversity,
soils, and tranquillity.
Policy DC2: Landscape Character
Development will be permitted where it protects and/or conserves and/or enhances the key
characteristics of the landscape character area in which it is located, including:
a) the development pattern of the area, its historical and ecological qualities, tranquillity and
sensitivity to change;
b) the pattern of woodlands, fields, hedgerows, trees, waterbodies and other features; and.
c) the topography of the area.
General Development Control Policies DPD (Horsham District Council, adopted December 2007).

Designated landscapes
1.27 The need to protect nationally designated landscapes – National Parks, Areas
of Outstanding National Beauty, and Heritage Coasts – is established in
national planning policy (PPS111 and the draft PPS on the Natural
Environment12). It requires local planning authorities to presume refusal of
major development proposals in designated landscapes, except in ‘exceptional
circumstances’ which must be ‘demonstrated to be in the public interest and
subject to the most rigorous examination’13.
1.28 Therefore, local planning policies should not reiterate general protection of
nationally designated landscapes, but instead should provide policy and
guidance relevant to local issues, reflective of the local context, to
complement rather than reiterate national policy. This should include
reference to the special qualities for which a landscape has been designated,
which are usually described in a relevant management plan.

11
Planning Policy Statement 1: Delivering sustainable development (CLG, 2005).
12
Consultation paper on a new Planning Policy Statement: Planning for a Natural and Healthy Environment
(CLG, March 2010).
13
Ibid, policy NE8.5.

9
 The Broads Authority’s Core Strategy emphasises the protection of ‘core
assets’ of the local landscape, and supporting text elaborates on the ‘key
physical, cultural and perceptual resources that make up the protected landscapes
of the Broads’ (para.5.17).
Policy CS 1
Development and changes in land use/management must ensure that all aspects of the
environmental and cultural assets of the Broads’ distinctive landscape are protected,
enhanced and restored. Proposals should ensure opportunities for positive impacts on the
following core assets have been addressed and adverse impacts avoided:
(i) The defining and distinctive qualities of the varied landscape character areas formed by
the built and natural environment;
(ii) Tranquillity and wildness as part of the Broads experience;
(iii) The value and integrity of nature conservation interest; and
(iv) The character, appearance and integrity of the historic and cultural environment.
Opportunities to mitigate the visual impact of currently intrusive features should be sought.
Core Strategy 2007 – 2021 (Broads Authority, adopted September 2007).

Setting
1.29 Setting constitutes not only the immediate surroundings of a site or building,
but also relates to the function or use of a place, how it was intended to fit
into the landscape or townscape, views to or from an area, or features that
are significant to the character of a landscape, site or building.14
1.30 The designation of a landscape establishes the intent to protect the special
qualities or features for which they are valued; therefore, it should not be
necessary, in principle, for policies to refer to the setting of designated
landscapes when seeking to protect them, as their protection is enshrined
through their designation.
1.31 However, it remains appropriate in local planning policy to establish the need
to protect those special qualities or feature of designation that are relevant
to the local context. A local policy should refer to the relevant management
plan, requiring development to respect the guidelines and objectives therein,
and could also draw on the LCA to provide guidance for protecting
qualities/features outside of a designated landscape.

Local landscape designations

1.32 The use of local landscape designations is discouraged in national planning
policy, and preference is given to the use of criteria-based policies to provide
the necessary protection.15 Nonetheless, there remain cases where the
continued use of local designations has been found sound through scrutiny by
the Planning Inspectorate.

14
As described in Scottish Planning Policy (Scottish Government, February 2010), para.112.
http://www.scotland.gov.uk/Publications/2010/02/03132605/8
15
Consultation paper on a new Planning Policy Statement: Planning for a Natural and Healthy Environment,
CLG (March 2010), policy NE3.3.

10
1.33 Where planning authorities continue their use, local landscape designations
should be informed by a landscape character assessment to provide a robust
evidence base, and should be complemented by policy on other, non-
designated landscapes. The policy should include guidance on distinctive but
undesignated landscapes or features, and ensure adequate policy support to
protect and enhance all landscapes.
1.34 Examples of the continued use of local landscape designations from two Core
Strategies are provided below.
The Borough of Sutton protects local Areas of Special Local Character
(ASLC), designated due to their townscape and landscape value and identified
through character appraisal16. The designation aims to preserve and enhance
the character and appearance of an ASLC in terms of density, layout, scale,
built form, materials and landscaping.17
The Examination of the Core Strategy was ‘satisfied’ that the policy would ‘be
applied appropriately and sensitively to redevelopment proposals that could impact
adversely on the character or appearance of those areas abutting District Centres’.18
Core Policy BP12: Good Urban Design and Heritage
(Excerpt)
The Council will seek to ensure that development:
• Respects the local context and distinctive local character;
• Creates a sense of welcome by promoting legible places through the development of
landmark buildings, public realm features, landscape and public art; …
The Council will designate and seek to preserve or enhance heritage areas in the Borough,
designated as Conservation Areas or Areas of Special Local Character (as shown on the
Proposals Map), and the statutory and local list of buildings.
Core Planning Strategy (London Borough of Sutton, adopted December 2009).

The Harrogate Core Strategy justifies the use of local landscape designations,
while supporting text references the use of a Landscape Character Assessment
to guide development control and ensure the ‘continued protection and
enhancement of the District’s landscape character’ (para.7.38).
POLICY EQ2: The Natural and Built Environment and Green Belt
(Excerpt)
Subject to the District’s need to plan for new greenfield development, the landscape character
of the whole District will be protected and where appropriate enhanced.
Where criteria based planning policies cannot provide the necessary protection, local
landscape designations will be identified:
• to protect the high quality of the landscape which is important to the setting of the towns of

16
Sutton Core Planning Strategy (2009), para.6.180.
17
Areas of Special Local Character, London Borough of Sutton website (accessed August 2010):
http://www.sutton.gov.uk/index.aspx?articleid=1858
18
Report on the examination into the London Borough of Sutton Core Planning Strategy DPD (Planning
Inspectorate, September 4th 2009).

11
 Harrogate, Knaresborough and Ripon;
• to protect those ‘green wedges’ in Harrogate town which are an important part of its
character and distinctiveness;
• to protect appropriate green space within the main built up areas.
Core Strategy (Harrogate Borough Council, adopted February 2009).

Historic Landscape Characterisation

1.35 Recognising that the historic environment is ‘key to our sense of place’19, an
understanding of the evolution of the landscape and existing heritage assets is
considered important component of landscape characterisation. Historic
Landscape Characterisation aims to identify and describe ‘an over-arching view
of the whole historic landscape’20, and provides an important contribution to the
evidence base informing the development of local landscape policies.
1.36 English Heritage is leading a national programme of Historic Landscape
Characterisation at a County-scale, summarising how the landscape has
changed over time and focusing on how the past landscape is perceived in the
present. The programme has completed approximately 80% of the country
to date, and aims to encompass the whole country. 21, 22
1.37 As the national programme and more detailed local studies become
embedded in the local evidence base, local landscape policies should reflect
their findings in the protection of heritage assets and the management of
landscape change. At present, however, such reference is typically limited to
Landscape Character Assessments and/or heritage audits.

Green infrastructure and open space

1.38 Local planning policy on green infrastructure (GI) provides a framework with
which Councils are able to promote a number of sustainable measures (e.g.
food growing, recreation, biodiversity, flood management) at a landscape
scale across their local area. Additionally, the importance of green
infrastructure in supporting the positive management of landscapes is widely
recognised.23
1.39 Natural England has published detailed guidance on green infrastructure
planning, which defines the concept, its functional value in planning for
substantial development, its link to character and placemaking, and advice on
how GI can be integrated into local spatial planning.24

19
Understanding Place: An Introduction (English Heritage, June 2010).
20
Boundless Horizons: Historic Landscape Characterisation (English Heritage, 2005).
21
Historic Landscape Characterisation, English Heritage website: http://www.english-
heritage.org.uk/professional/research/landscapes-and-areas/characterisation/historic-
landscape-character/
22
Understanding Place: An Introduction (English Heritage, June 2010).
23
For example, Green infrastructure: connected and multifunctional landscapes – Position statement
(Landscape Institute, 2009).
24
Green Infrastructure Guidance (Natural England, 2009). Available online at:
http://naturalengland.etraderstores.com/NaturalEnglandShop/NE176

12
1.40 As well as promoting a number of other functions and services, a policy on
GI should promote the protection and provision of GI assets that contribute
to urban and rural landscape character, identifying specific assets where
appropriate (e.g. field patterns, size/extent of private gardens). It should
require development to contribute to the provision of GI, whether through
small or more significant measures.

GI Strategies
1.41 A GI Strategy will describe local GI assets, provide an audit of existing GI
provision, and plan spatially for future GI provision, and may also provide
guidance on policy development or delivery funding mechanisms. The GI
Strategy provides the evidence base and foundation for a local planning policy
on GI, which should therefore refer to the relevant GI Strategy where one
has been (or will be) produced, and support development that contributes to
the objectives of the Strategy.
1.42 Where a GI Strategy will not be produced, it may be helpful for a local
planning policy on GI to provide more detailed guidance or development
criteria to provide an adequate framework for GI delivery. This could
include, for example, a requirement for all new development to demonstrate
a contribution to the GI network (e.g. green roofs, sustainable drainage,
allotments). Such guidance could alternatively be embedded within a design
policy or SPD.
1.43 The Landscape Institute recommends that GI Strategies reflect geographical
rather than political boundaries, encouraging the development of sub-regional
or joint GI strategies to broaden its scope beyond a single local authority25.
A local planning policy on GI, therefore, may need to reflect partnership
working between neighbouring authorities.

North Northamptonshire Core Spatial Strategy sets out the sub-region’s

expectation of a net gain in green infrastructure, including the protection of
local landscapes. The policy emphasises the multi-functionality of green
infrastructure, and promotes investment in enhancement and restoration.
Policy 5: Green Infrastructure
A net gain in green infrastructure will be sought through the protection and enhancement
of assets and the creation of new multi functional areas of green space that promote
recreation and tourism, public access, green education, biodiversity, water management,
the protection and enhancement of the local landscape and historic assets and mitigation
of climate change, along with green economic uses and sustainable land management. ….
Sub-Regional Green Infrastructure corridors will connect locations of natural and historic
heritage, green space, biodiversity or other environmental interest. They will be
safeguarded through:
a) Not permitting development that compromises their integrity and therefore that of the
overall green infrastructure framework;

25
As proposed by Landscape Institute in the Consultation paper on a new Planning Policy Statement:
Planning for a Natural and Healthy Environment - Questions and response form (Landscape Institute
response to CLG), pg.3.

13
b) Using developer contributions to facilitate improvements to their quality and robustness;
c) Investing in enhancement and restoration where the opportunities exist, and the
creation of new resources where necessary.
Development will contribute towards the establishment, enhancement or ongoing
management of a series of local corridors linking with the sub-regional corridors. Priorities
for investment will be those areas where net gains in the range of functions can be
improved, particularly those that improve access to the urban core and rural service
centres and remedy local deficiencies in open space provision and quality.
Core Spatial Strategy (North Northamptonshire Joint Planning Unit, adopted June 2008).

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 Breckland District’s Core Strategy requires all new development to
contribute to the provision of green infrastructure. It requires the design of
development proposals to respond to existing green infrastructure, and
promotes the provision of linkages between green infrastructure assets.
Policy CP 6: Green Infrastructure
Green infrastructure of local and strategic importance will be protected and
enhanced.
All new development will be expected to contribute towards the provision of
additional green infrastructure and the protection and enhancement of the district’s
existing green infrastructure. The Council will when allocating sites for development
in subsequent Development Plan Documents have full regard to the protection and
enhancement of the quantum and/or function of green infrastructure. The Council
will set out specific requirements within subsequent Area Action Plans and/or other
Development Plan Documents for the protection or enhancement of green
infrastructure on allocated development sites.
Through its layout and design, new development should respond to the location of
existing green infrastructure and should support appropriate uses and functions.
Through the Development Control process where it is considered that the
development will have a detrimental effect on the quantum or function of existing
green infrastructure then the development will not be permitted unless replacement
provision is made that is considered to be of equal or greater value than that which
will be lost through development.
In enhancing existing green infrastructure, development should seek to provide
physical/functional linkages between different elements of green infrastructure, and
introduce an appropriate multi–functional use of spaces and linkages. This may be
achieved in part through the improvement of the function of existing green
infrastructure.
On-site provision and/or off-site contributions will be sought. Such provision will be
required in accordance with adopted policies and strategies relating to green
infrastructure and biodiversity network provision.
Where compensatory provision is to be made for the loss of existing green
infrastructure the provision of new and/or enhancement of green infrastructure will
be required in addition to any compensatory provision. Where appropriate, in
accordance with adopted standards, the Council will seek to secure via planning
obligations provision for the future management and/or maintenance of green
infrastructure.
Core Strategy and Development Control Policies DPD (Breckland District Council, adopted 2009).

Open Space, Sport, and Recreation

1.44 There remains confusion within local planning policies as to the distinction
between green infrastructure and open space; planning policies should make
clear that open space is one of several possible GI assets, and avoid using
terms interchangeably.

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1.45 It is useful to recognise that while open space policies aim to protect and
improve the provision of recreational and green space, they do not provide
the same opportunity to guide development at the landscape scale as a policy
on green infrastructure. There is a strong argument to be made in landscape
terms of a preference to incorporate open space and recreational provision
within policy on green infrastructure, where appropriate.
1.46 Open space, sport, and recreation policies may contribute to landscape
objectives, however, by establishing a requirement for new facilities to
respect local character through the use of siting, materials, and lighting, for
example.

Development in the countryside

1.47 Local planning policy generally aims to control development in the
countryside in order to protect open countryside and rural character.
Countryside policies also provide an opportunity to highlight broader linkages
between landscape and the rural economy, including agriculture and tourism.
Such policies should be informed by (and refer to, as appropriate) local
landscape and townscape character assessments and design guidance, to guide
the location, scale, and design of development.
1.48 Such policies may also refer to agri-environmental schemes, which provide
funding and/or advice and support to farmers or other land managers to
deliver effective environmental management on their land. Natural England
manages the Environmental Stewardship programme in England, for example,
and provides information and guidance on the benefits of such schemes.26

Tunbridge Wells’ Core Strategy establishes the need to protect the

interrelationship between the special features that determine rural character.

Core Policy 14: Development in the Villages and Rural Areas

The interrelationship between the natural and built features of the landscape will be
preserved, enhanced and, where necessary, restored, this being the principal determinant of
the character of rural area. Development will maintain the local distinctiveness of particular
localities.
Core Strategy (Tunbridge Wells Borough, adopted June 2010).

26
Environmental Stewardship, Natural England website (accessed August 2010):
http://www.naturalengland.org.uk/ourwork/farming/funding/es/default.aspx

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 Lancaster District’s Core Strategy policy on tourism recognises that the
‘countryside abounds in opportunities for quiet recreation’ and that two AONBs
and other natural areas in the District offer ‘unique experiences’, and the
potential to support sustainable tourism.

Policy ER6: Developing Tourism (Excerpt)

The Council will promote and enhance tourism development in the District by:
… encouraging agricultural diversification to create quiet recreation and small scale
sensitively designed visitor attractions and accommodation in the District’s countryside,
promoting new walking and cycling routes including long-distance routes and linkages to
national networks;
...
Core Strategy (Lancaster City Council, adopted July 2008).

Wycombe District’s Core Strategy protects the environmental features and

local character of rural areas. The policy refers to ‘environmental assets’
which are defined in a separate policy (included in this note under Natural
and Built Environment).
Policy CS 7: Rural Settlements and the Rural Areas

(Excerpt)

The rural settlements and rural areas of the District will be sustained by:

6. ensuring new development respects the particular character and sense of place of
villages and hamlets
7. strictly controlling development in the open countryside
8. protecting and enhancing the environmental assets of the rural areas
Adopted Core Strategy (Wycombe District Council, adopted July 2008).

Design quality
1.49 Local design policy can establish the need for new development to respect
and enhance local townscape and landscape character, referring to character
appraisals or detailed design guidance as appropriate. Landscape Character
Assessment provides a baseline for developing guiding principles, and outline
issues and objectives for each character area, and these should inform the
understanding of the local design context.
1.50 Local policies should consider the impact of a development’s siting, scale,
density, design and materials, as well the relationship of new development to
existing development patterns. Design policies should promote development
that is sensitive to and contributes to the character and identity of its locality.

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 Dartmoor National Park Authority Core Strategy (2008) establishes design
criteria which protect and enhance local character.
Policy COR4 (Excerpt)
Development proposals will be expected to conform to the following design principles:
a) demonstrating a scale and layout appropriate to the site and its surroundings,
conserving or enhancing the quality and distinctiveness of the built environment and local
landscape character;
Core Strategy DPD 2006-2026 (Dartmoor National Park Authority, adopted June 2008).

The Borough of Poole’s Core Strategy policy on local distinctiveness

recognises specific natural features that contribute to local landscape
character.

PCS 23 – Local Distinctiveness (Excerpt)

… development will be permitted provided that… for sites containing or adjacent to
Trees, Open Spaces and Woodlands:
i. it retains woodlands and mature trees and tree belts, particularly where such trees form
a distinctive edge, ridge or canopy or provide an important enclosure for public spaces;
ii. it respects the setting and character of natural areas and viewpoints, including
Compton Acres, Luscombe Valley, the Harbour, Poole Bay and Evening Hill;
iii. it does not have a detrimental impact upon the character of parks or other open
spaces…
Core Strategy (Borough of Poole, adopted February 2009).

CONCLUSION
1.51 The planning system provides an important tool to protect landscape
character and manage landscape change. This review highlights best practice
examples of local landscape policies, drawing from plans which have been
found sound through an examination in public.
1.52 Local policy addressing landscape was found to be structured within several
different types of policies, including landscape-specific, green infrastructure,
and natural environment policies. It becomes clear, therefore, that a single
over-arching policy on landscape is not the only effective approach to guide
landscape management.
1.53 Despite the variety in policy structure, several best practice principles
emerge from this review:
• Positive planning: the value of local landscape policies being framed
in positive terms, recognising that landscapes continually change, and
the potential for development to contribute positively to landscape
character and local distinctiveness.

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 • All landscapes: best practice policy avoids reiterating protection of
nationally designated landscape, and establishes guidance for all
landscapes, reflecting the European Landscape Convention.
• Character: The use of a character-based approach to guide
landscape change, establishing policy that is informed by and
references a suitable Landscape Character Assessment.
• Holistic approach: best practice policy recognises and incorporates
the many components and features that contribute to landscape (such
as geology, biodiversity and heritage), and recognises the value of a
landscape-scale approach to guide the management of these features
(for example, through the protection of landscape character or
overarching policies on green infrastructure).

Further review
1.54 There is scope for further review into best practice local landscape policies.
In particular, as Supplementary Planning Documents (SPDs) are a useful tool
for local planning authorities to provide more detailed guidance on landscape,
a best practice review of landscape and/or local design SPDs could provide an
important contribution to guiding the development of local landscape policy.
1.55 Additionally, an investigation into the effectiveness of policies on landscape, in
terms of their influence or impact on development decisions and local
landscape management, would be a valuable contribution to guidance on
landscape policy. Such an investigation would require consideration of a
suitable methodology to monitor the outcomes of landscape policy, as this
has not been done in many cases to date.

Land Use Consultants

September 2010.
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Policies\Documents\cover.doc

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