Viewpoint: Strategic Planning in Scotland Nurturing a Complex Idea with 'Modest

Optimism'
Author(s): M. G. Lloyd and D. Peel
Source: The Town Planning Review , 2007, Vol. 78, No. 3 (2007), pp. i-vi
Published by: Liverpool University Press

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 TPR, 78 (3) 2007

M. G. Lloyd and D. Peel

Viewpoint

Strategic planning in Scotland

Nurturing a complex idea with 'modest optimism'

The status and purpose of the National Planning Framework in Scotland has changed
dramatically following the Planning, etc. (Scotland) Act 2006. In its original form
the Framework (Scottish Executive, 2004) was described as a framework to guide the
spatial development of Scotland to 2025. Essentially, it set out a 'vision' of Scotland in
which other public policy plans and programmes could share, and, importantly, which
they could inform in a reciprocal way. While it was not intended to be a 'prescriptive
blue-print', it was nonetheless to serve as a 'material consideration' in framing local
planning policy, development plans and in determining planning applications and
appeals.
The first articulation of the National Planning Framework drew together the then
available evidence relating to Scotland's development and the factors which were held
to be driving change and influencing associated spatial patterns into one comprehen-
sive document. Here its authors were seeking to capture current thinking with respect
to balancing city forms, infrastructure investment programmes, agency activity, and
economic development, drawing, for example, on the evidence base provided by
the Cities Review and new visions and aspirations for the principal cities (Peel and
Lloyd, 2005). The Framework thus identified the priorities and perceived opportunities
for different spatial perspectives within the territory and linked these to the action
agendas being put into effect by the Scottish Executive and its public agencies in order
to realise the ambitions of the Framework.
The idea of introducing a National Planning Framework has been an integral part of
an 'active modernisation' of the land use planning system in Scotland. In the context
of seeking efficiency gains and greater effectiveness in land use planning decision
making, the contribution of a national overview was deemed critical. There were a
number of important exogenous and endogenous drivers to this argument. On the
one hand, for example, attention was drawn to the geographical location of Scotland
in a broadening European context, the potential offered by the European Spatial Develop-
ment Perspective, and the acknowledged need to have appropriate institutional measures
in place, supported by a clear spatial rationale, in order to secure future European
funding (Scottish Executive, 2004, 2). This awareness reflected a strong resonance with

M. G. Lloyd is professor of planning and D. Peel is a lecturer in the Department of Civic Design, University of
Liverpool, Gordon Stephenson Building, 74 Bedford Street South, Liverpool L69 7ZQ; email: mglloyd@liv.ac.uk;
dpeel@liv.ac.uk

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jj M. G. Lloyd and D. Peel

European planning practices and is

policy in Scotland (Lloyd and Peel,
Planning Framework was asserted in
in labour and housing market perfor
and the political commitment to p
line 'quality and connectivity', use
Framework, was important in emph
place-making and design and for e
connect Scotland more efficiently b
In political terms, the emergence o
a parallel set of ideas associated w
to the construction of a distinctiv
terms, the Framework was part of
desire to achieve greater certainty
making. The process of modernis
minute detail, examining, for exa
arrangements for enhancing publi
ment. This wide-reaching exercis
consultation, dialogue with key st

Towards a more signific

The introduction of a revised ser
and a draft Planning Bill was acco
Communities Committee which i
Significantly, the idea of the Nati
Parliament's Finance Committee w
its position in order to deliver re
Scotland. The Committee was une
tion, coordination and prioritisat
promote Scotland's economic grow
a National Planning Framework. This
legislation. As a consequence, the F
number of inter-related ways whi
is intended to map national territori
policy processes and practices acro
professional behaviours. In effect it
development plan hierarchy and w
ment. As part of the wider proces
on a cultural turn in the modern

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 Viewpoint jjj

the National Plan

rendered 'necessa
At this next stag
National Planning
territorial devel
Mark 1, Mark 2
how and when d
(Scottish Execut
remit, the final d
Scottish Parliame
cult decisions asso
regional choices,
in the detail, and
and a new cultur
anticipated territ
requiring new co
Scotland can dra

Looking back?
Hindsight can provide rich insights into the development of such new competen-
cies. Looking back over some thirty years at comments made with respect to regional
experimentation in Scotland provides evidence of attempts to build an appropriate
apparatus to deal with sub-national issues. It reveals what may be considered to be
a catalogue of prescient observations and expectations based on critically reflective
learning in Scottish strategic planning practices. Three decades is a mere snapshot in
the history of planning ideas and measures, yet encompasses a generation of practi-
tioners. Evidence and understanding tend to be reconstructed over time. Yet we are
mindful of Solesbury's (2002) prompt to be alert to the deliberations of past research.
Three selective echoes from the past resonate with current debates.
The first echo in the Scottish experience to which we can draw attention is an
earlier established tradition of strategic thinking in policy and planning in the form
of the regional reports (McDonald, 1977). This experiment in active regionalism
crossed over between the emerging 'corporate' thinking in local government and
the then prevailing statutory land use planning system. In effect, it represented an
early argument for enabling effective integrated working across the public sectors
as a whole, and also hinted at the potentially pivotal function of a spatial planning
approach. In particular, it asserted the importance of linking infrastructure provision
to the context of managing settlement planning and economic and social change. In
method, it provided the necessary evidence across the Scottish regions and linked it

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iv M. G. Lloyd and D. Peel

to analysis and informed priorit

willand momentum at the time m
ular strategic approach at both n
The second echo turns on a d
highlighted the importance of d
sationally complex policy makin
to secure an appropriate match
of National Planning Guidelines,
planning, while cautioning agai
planning sought to become overly
over-extended. He further alert
enterprise with strategic planning
in those circumstances where de
across a number of different p
(1979) additionally asserted the a
the wider provision and prioriti
(1979) draws attention to the ne
suggests the importance of secu
development of land, together w
base.

The third echo is rehearsed m

sion of the required critical elem
multi-objective and inter-related
importance of a hierarchy so as
multi-level planning and govern
creating over-elaborate arrangem
drew attention to achieving the
sary to secure policy implementati
management in planning practice
tives in a global frame, the Nation
purpose. Following Bruton and
the National Planning Framewor
Clearly, this duality will require
of scalar context and method wit
research into the National Plann
1987) further confirmed the impo
of change in different locales and
and learning achieved by local p

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 Viewpoint v

Looking fo
This academic a
incarnation of
will and approp
policy perspect
National Plannin
contrast, its dev
learning proces
adds a new com
to be managed. T
and assertive age
a critical word
Here, the Fram
priorities, and st
standing. Can it
would then simp
and evidence-ba
tial and transfo
from the past?
here before. Is
practice?

References
bruton, m. and Nicholson, d. (1985), 'Strategic land use planning and the British development
plan system', Town Planning Review, 56, 21-41.
diamond, D. (1979), 'The uses of strategic planning: the example of the National Planning
Guidelines in Scotland', Town Planning Review, 50, 18-2^.
lloyd, m. g. and peel, d. (2005), 'Tracing a spatial turn in planning practice in Scotland',
Planning, Practice & Research, 20, 313-25.
mcdonald, s. t. (1977), 'The Regional Report in Scotland', Town Planning Review, 48, 215-32.
peel, D. and lloyd, m. G. (2005), 'City-visions: visioning and delivering Scotland's economic
future', Local Economy, 20, 40-52.
rowan-robinson, j., lloyd, m. G. and elliott, r. g. (1987), National Planning Guidelines and
strategic planning, matching context and method', Town Planning Review, 58, 369-81.
Scottish executive (2004), National Planning Framework for Scotland, Edinburgh, Scottish Execu-
tive.

Scottish executive (2007a), National Planning Framework. Small country - Big plans, Edinburgh,
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Scottish executive (2007b), Preparation of the Second National Planning Framework. Participation
Statement, Edinburgh, Scottish Executive.

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vi M. G. Lloyd and D. Peel

solesbury, w. (1979), 'The uses of stra

Guidelines in Scotland: comment', Tow
solesbury, w. (2002), 'The ascendancy o
wannop, u. a. (1979), 'The uses of stra
Guidelines in Scotland: comment', Tow

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