Scotland 2045: fourth National Planning Framework - draft: society and equalities impact assessment
This report considers the potential impacts of introducing the draft National Planning Framework 4 (NPF4) including on protected characteristics.
Appendix C. Fairer Scotland Duty
| Title of Policy |
Draft National Planning Framework 4 |
|---|---|
| Summary of aims and expected outcomes of strategy, proposal, programme or policy |
The adopted NPF4 will guide the development and use of land across all Scotland out to 2045. It will form part of the development plan and therefore influence more the day to day decisions on local planning matters. It will focus on our future:
In terms of policy, NPF4 is linked to the outcomes of the National Performance Framework[156]. It will look to rebalance our planning system so that climate change and nature recovery are the primary guiding principles for all our plans and all our decisions. A place based approach is at the heart of creating a more sustainable and fair Scotland. The planning system should apply the Place Principle which commits us to take a collaborative place based approach to future development. This must involve working with stakeholders and local communities to create liveable, healthier and sustainable places that improve lives, build economic prosperity and contribute to net zero and environmental ambitions. NPF4 will look to deliver on six high level outcomes which include:
It will also include land use planning policies on key issues supporting people's lives such as; tackling inequalities, engagement, local living, housing, spaces and places, work and inequalities, health and wellbeing and connectivity. It therefore has the potential to impact development and land use across all Scotland. |
| Summary of evidence
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This Fairer Scotland Duty assessment has been developed drawing on a range of primary and other source documents, including a Call for Ideas plus a public consultation on a Position Statement. We have also considered sources contained in the Scottish Government's equality evidence finder. To identify any potential improvements, we are undertaking a full consultation on Draft NPF4. At the same time we are also consulting on an Integrated Impact Assessment (covering other societal and environmental matters) and a Business and Regulatory Impact Assessment covering Draft NPF4. The adopted NPF4, incorporating the consultation feedback will be published in 2022. With links to both the purpose of planning and a high level outcome of improving equality and eliminating discrimination, NPF4 provides an outcome focussed opportunity to tackle inequalities. NPF4 explains how our spatial strategy will contribute to improving equality and eliminating discrimination. People living in the most deprived areas and neighbourhoods are more exposed to environmental conditions and other factors that negatively affect health and access to opportunities – including those relating to transport, access to green space, pollution effects, housing quality, fuel poverty, community participation, and social isolation. Spatial element of inequalities Evidence suggests that to tackle inequalities it is necessary to take both a spatial and thematic approach based on communities of geography and identity. When considering tackling poverty, Building the evidence base on tackling poverty[157] (2017) set out 'pockets', 'prospects' and 'places' as three drivers. "Places" includes: the regions and neighbourhoods people live in - impact of pollution on health, access to green space. Ability to access services and employment. Local labour market. Social networks. Regional variations in costs. The main tool for identifying the places in Scotland where people are experiencing disadvantage across different aspects of their lives is the Scottish Index of Multiple Deprivation (SIMD). Its most recent iteration was published in 2020 and includes an interactive map[158]. It can also allow effective targeting of policies and funding where the aim is to wholly or partly tackle or take account of area concentrations of multiple deprivation. Research also identified areas of Scotland that are expected to be most vulnerable to the consequences of EU Exit. An accompanying interactive map[159] allows for more granular analysis of each datazone in Scotland. Key findings were that: The risks presented by EU Exit are anticipated to have significant social and economic consequences for all areas of Scotland. Many of the areas most vulnerable to EU Exit are in rural locations, in particular on the Scottish islands. In assessing the candidate National Developments, both SIMD and EU Exit vulnerability data were considered where relevant. Differential impact of poverty and protected characteristics Poverty and Income Inequality in Scotland 2017-20[160] (2021) estimated that 19% of Scotland's population (1.03 million people each year) were living in relative poverty after housing costs in 2017-20. Before housing costs, 17% of the population (910,000 people) were living in poverty. Relative poverty is a measure of whether the lowest-income households are keeping pace with middle income households across the UK. After a long decline since the beginning of the time series in the mid-nineties, absolute poverty rates have stagnated in the last decade. Before housing costs, 14% of the population (770,000 people each year) were in absolute poverty. The trend is similar to the after housing costs measure, although the downward trend started to stagnate a few years later. Households on low incomes are more likely to experience fuel poverty than those on higher incomes. Scottish House Condition Survey data (2020) indicates that around 613,000 (24.6%) households were classified as living in fuel poverty in 2019, with around 311,000 (12.4%) living in extreme fuel poverty. It also noted that approximately half (48%) of fuel poor households are other households (without children or older members). Around 16% of households living in fuel poverty are families with children, and 36% are older households.
Age and poverty The equality analysis of poverty showed that in the last 15 years, the youngest adults (16-24 year olds) have been consistently more likely to be in relative poverty compared to older adults. Child poverty figures suggest that some types of households with children are known to be at a particularly high risk of poverty. These include households with single parents, three or more children, disabled household members, of a minority ethnic background, those with a child aged under one, or with a mother aged under 25. These groups do not cover everyone at higher risk of poverty, but taken together, they cover the majority of households with children that are in poverty. It is estimated that 24% of children (240,000 children each year) were living in relative poverty after housing costs in 2017-20. Before housing costs, it is estimated that 21% of children (210,000 children each year) were in relative poverty. Gender and poverty In 2017-20, the relative poverty rate after housing costs for all single adults (working-age and pensioners) was 27%, higher than for the total population (19%). The poverty rate was highest for single women with children (38%, 40,000 single mothers each year). The National Transport Strategy 2: Fairer Scotland duty assessment[161] (2020) noted that women in Scotland are much more likely than men to be part-time workers (44% compared to 15%) with over 75% of Scotland's part-time workforce being female. Women are also more likely to be in low-paid work, with 64% of people paid below the Living Wage being female. In particular, lone parents, the vast majority of whom are women, are more likely to be living in poverty than other single working-age adults in Scotland. Marital status and poverty Relative poverty rates are highest for singles, divorced & separated, and lowest for married adults. Poverty among widowed and divorced/separated adults largely decreased over the long term, whereas the trend for singles, cohabiting and married adults was broadly flat over time. Ethnicity and poverty In 2015-20, people from non-white minority ethnic groups were more likely to be in relative poverty after housing costs compared to those from the 'White - British' and 'White - Other' groups. The poverty rate was 41% for the 'Asian or Asian British' ethnic groups (50,000 people each year), and 43% for 'Mixed, Black or Black British and Other' ethnic groups (no population estimate available due to the small sample). The poverty rate amongst the 'White - Other' group was 24% (80,000 people) and that of the 'White - British' group was 18% (860,000 people). Religion and poverty In 2015-20, Muslim adults were more likely to be in relative poverty (52%, 30,000 each year) than adults overall (18%), after housing costs were taken into account. Disability and poverty Poverty rates remain higher for households in which somebody is disabled compared to those where no-one is disabled. In 2017-20, the poverty rate after housing costs for people in households with a disabled person was 23% (500,000 people each year). This compares with 17% (540,000 people) in a household without disabled household members. Participation Evidence suggests that people are keen to be involved in shaping the places that they stay and to be involved in local decision-making. However, in 2019[162], 17.8% of people agreed that they can influence decisions affecting their local area, down from 20.1% in 2018. This is a decrease of 2.3 percentage points since last year, and is the lowest level since first measured in 2007. Perceptions[163] of ability to influence decisions and the desire to be involved in decision-making were lower in the most deprived areas compared to the least deprived areas. Over three-quarters (78 per cent) of adults felt a very or fairly strong sense of belonging to their neighbourhood in 2019[164]. This sense of belonging was lower for people living in deprived areas. Housing and accommodation Living in poverty, or on a low income and with little or no wealth, restricts housing choices, presents affordability challenges and increases the likelihood of experiencing fuel poverty and the risks of homelessness. From the Housing to 2040 Fairer Scotland Duty assessment[165] we know that:
The draft fuel poverty strategy[166] sets out an approach which considers the wider issues of social justice and the health impact of tackling fuel poverty. It has two main objectives:
Local authority estimates, published in December 2020, showed that island and rural local authorities tended to have both higher fuel poverty rates and extreme fuel poverty rates[167]. Spaces and places Planning has a crucial role to play in reducing inequalities by ensuring everyone lives in good quality places that support quality of life. The Place Standard[168] is an effective tool for helping us all to understand the strengths and weaknesses of our places and reducing inequalities by helping to ensure everyone lives in good quality places that support quality of life. Deprivation7 reveals area-based differences, as the proportion rating their neighbourhood as a very good place to live increased significantly as deprivation declined. Of those living in the 20% most deprived areas of Scotland in 2019, 32% rated their neighbourhood as a very good place to live, rising to 77% for those living in the 20% least deprived areas. This is a similar trend to previous years. People7 in the 15% most deprived areas were less likely to think the local crime rate had stayed the same or reduced in the past two years than those living elsewhere in Scotland (65% compared to 74%). In relation to access to greenspace at home Public Health Scotland recent analysis was quoted as showing that there is quite a differentiation between space (private outdoor space at home e.g. gardens or balconies) depending on the tenure. Hansard reported that only 3% of homeowners do not have access to open space in the house, whereas for private sector tenants it is 23% and for local authority tenants it is 19%.[169] People living in the most deprived areas are less likely to live within a 5 minute walk of their nearest greenspace than people in less deprived areas. This observation has been consistent over the time series the data has been collected. Respondents living in the 15% most deprived areas of Scotland were more likely to agree or agree strongly that the quality of their local greenspace has reduced in the past 5 years (50% strongly agree/agree, compared to 40% of urban Scots) or if just use 'strongly agree' 26% compared to 18%.[170] Research found that the quality of play areas was poorer in more deprived neighbourhoods, as compared to those in the least deprived areas. The 2016 Scottish Household Survey16 showed that most children had access to play areas in their neighbourhood, but that availability differed according to levels of deprivation within urban areas. Households within the 20% of most deprived urban areas said they had less access to a natural environment or wooded area in their neighbourhood, compared to the rest of urban areas. Parents living in the 20% most deprived urban areas were also much less likely to think that it was safe for children to travel alone to most play areas.[171] Research published by Public Health Scotland finds that 'Socio-economic inequalities in use of green and open spaces existed before lockdown. Lockdown did not reduce these and may have made them worse.' It also notes that users reported that green and open space benefited their mental health during lockdown. Individuals of higher social grade were more likely to report increases in use, and also greater benefits to their mental health.[172] The Scottish Vacant and Derelict Land Survey 2019[173] (2020) found that 55% of people living in the most deprived decile in Scotland are estimated to live within 500 metres of derelict land, compared to 11% of people in the least deprived decile. The Scottish Household Survey Key Findings 2019[174] (2020) found that adults living in the 20 percent most deprived areas were more likely not to have not made any visits to the outdoors in the past 12 months (19 percent) compared to those in the 20 percent least deprived areas (four percent). Although level of deprivation did not impact social isolation, as measured by the number of people meeting socially at least once a week, those living in the most deprived areas were almost twice as likely to experience feelings of loneliness as those living in the least deprived areas. Connectivity Digital Connectivity Adults in the most deprived areas and those with lower household income are less likely to use the internet or to have home internet access[175]. In the 20% most deprived areas in Scotland, 82% of households had access to the internet, compared to 96% in the 20% least deprived areas. 21% of adults in social housing did not use the internet (compared to only 5% in Private Rented Sector and 10% of owner occupiers)8. Being older or disabled, living in a deprived area or living in social housing were risk factors for exclusion from access to digital services[176]. Transport Connectivity The Fairer Scotland Duty assessment accompanying the National Transport Strategy 2[177] noted the following key information.
There are links between poverty and ability to cycle. Household access to bikes increases with household income. 62% of households with an income of £50,000 or more have access to one or more bikes, compared to 20% of households with an income up to £10,000. Bicycle access is higher in rural areas than urban areas. There are also links between household income and people walking just for pleasure or to keep fit. For those living in households with annual income up to £10,000, 58% walk one or more days per week. For those in households with more than £50,000 annual income the figure rises to 71%. Transport and Travel in Scotland 2019[178] (2020) noted that 68% of people travelled to work by car or van, 12% by walking and 10% by bus. However, this varied with income. Those in households with incomes under £15,000 were more likely to take the bus or walk than those on higher incomes. People from households with incomes over £50,000 were the most frequent car users. Health and wellbeing Both mental and physical health are notably poorer in more deprived areas. In the most deprived areas in Scotland, 33% of adults lived with a limiting condition, while 15% of adults lived with a limiting condition in the least deprived areas[179]. People living in the most deprived areas are also more likely to be in poor health and to have many long-term conditions. Long-term monitoring of health inequalities: January 2021 report[180] noted that both males and females in the most deprived areas in Scotland are estimated to spend a lower proportion of their life in good health than those living in the least deprived areas. For adults, 26% of adults in the most deprived areas were at a healthy weight, compared to 38% of those in the least deprived areas. For children, the trend was similar, with 62% of children in the most deprived areas at a healthy weight, compared to 76% of children living in the least deprived areas. 74% of adults in the least deprived areas met physical activity recommendations, compared with 54% of adults in the most deprived areas. In 2019/2020, 84% of the population lived in households with high food security. This means that 16% of people lived in households with marginal, low or very low food security. People in poverty were less likely to experience high food security: just 60% of those in relative poverty, and 59% of those in absolute poverty lived in high food security households. Food insecurity has consistently been more prevalent among adults living in low income households. In 2019, 23% of adults with household incomes in the bottom quintile (less than £14,444/year) reported experiencing food insecurity compared to 3% of adults with household incomes in the top quintile (more than £49,400/year). Prevalence of food insecurity has consistently been higher among adults living in the most deprived areas compared to those living in the least deprived areas. |
| Summary of assessment findings
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To achieve a net zero, nature-positive Scotland, we must rebalance our planning system so that climate change and nature recovery are the primary guiding principles for all our plans and all our decisions. For people on low incomes – this is a strong determinant for people's ability to respond to and recover from climate change impacts. Our future places and spaces need to contribute to improving equality and eliminating discrimination by addressing the environmental conditions and other factors that negatively affect health and access to employment opportunities – plus those relating to connectivity – both digital and transport, access to green space, pollution effects, housing quality, fuel poverty and community participation. The planning system should support decisions that improve equality and help to eliminate discrimination, with a fairer, more inclusive and equalities based approach to planning the future. Draft NPF4 contains an overarching policy such that planning should respect, protect and fulfil human rights, seek to eliminate discrimination and promote equality. NPF4 has the potential to impact upon people across the whole of Scotland irrespective of the socio-economic status. We have identified a number of key policies to tackle inequalities in this broadest sense. These policies are set out in the NPF4 spatial strategy and thematic policies and are reflected in the proposed national developments. In addition to the policies contained within Draft NPF4, the Scottish Government is preparing associated guidance for planning authorities on local development planning. Access to employment opportunities Recognising the three drivers of poverty; 'pockets', 'prospects' and 'places', the NPF4 spatial strategy recognises that our future places will attract new investment, build business confidence, stimulate entrepreneurship and facilitate future ways of working – improving economic, social and environmental wellbeing. This will help Scotland to have a globally competitive, entrepreneurial, inclusive and sustainable economy, with thriving and innovative businesses, quality jobs and fair work for everyone. A new National Strategy for Economic Transformation will set out how we can work together to recover from the pandemic and build a sustainable economy in the longer term. By helping to deliver this, planning will contribute to our short term recovery, as well as our long term just transition to a net zero, nature-positive economy. We want to encourage development that supports the prosperity of key sectors, builds community wealth and creates fair work and good green jobs where they are most needed. This will support people's aspirations for good quality jobs and help reduce child poverty. The Scottish Government wants to see local development plans set out proposals to meet requirements for employment land, infrastructure and investment in a way which supports a greener, fairer and more inclusive wellbeing economy. The total investment to decarbonise Scotland's (domestic and non-domestic) buildings is estimated to be in the region of £33 billion over the period to 2045, and is likely to support around 24,000 jobs each year as investment reaches its peak in the late 2020s[181]. Participation We hope to empower more people to shape their places. NPF4 sets out that the Government is aspiring to inspire people to pro-actively decide how their places should develop in the future and have influence in the decisions that impact on their lives. Policies will meet the Government's place aspirations by ensuring that plans and decisions are properly informed by the views of local people through a more collaborative approach to engagement. Housing and accommodation Good quality homes should be at the heart of great places and contribute to strengthening the health and wellbeing of Scotland's communities. To help tackle climate change, we will need more energy efficient, net zero emissions homes. This can also support a greener, fairer and more inclusive wellbeing economy and has the potential to help build community wealth and reduce fuel poverty. Scottish Ministers consider that development of land supported by the policies and proposals in the NPF will deliver high quality, sustainable homes that meet the needs of people throughout their lives. Proposals for new homes that improve affordability and choice will be supported and that an equalities led approach to addressing identified gaps in provision should be taken. Draft NPF4 recognises that heat networks can help contribute to Scotland's net zero ambitions by using and storing heat from low or zero emissions sources, such as surplus or waste heat, heat from large scale heat pumps, particularly in conjunction with geothermal systems or bodies of water or clean hydrogen to provide zero emissions heat to homes. There is scope for this to reduce fuel poverty. Space and places The Social Capital in Scotland: Report[182] (2020) suggests that we need to ensure there are good quality, affordable and accessible places and spaces where people spend time, gather and meet. It noted it is essential to create, retain and maintain the environmental and social infrastructure that supports social interactions and participation in communities – the informal public places, spaces, and facilities where people spend time, gather and meet. Evidence shows this is most important in the areas where there is a perceived lack of these places, e.g. in areas of deprivation. On a range of indicators people who live in deprived areas are faring worse than those in less deprived areas, these include: a sense of belonging to their community or rating their neighbourhood as a good place; perceptions around the local crime rate; less likely to have access to greenspace; made visits to the outdoors; or living within 500 metres of vacant and derelict land and properties. Place is where people, locations and resources combine to create a sense of identity and purpose, and it is at the heart of addressing the needs and realising the full potential of communities. The planning system should apply the Place Principle and ensure that a design-led approach is taken for future development which involves working with stakeholders and local communities to create liveable, sustainable places that improve the lives of people, support greater equity, and inclusive and sustainable economic growth and contribute to net-zero ambitions. The planning system should support development that will contribute to the creation of walkable, liveable and thriving places that provide communities with local access to the wide range of local facilities and services that they need, including access to employment opportunities, health and care facilities and services, shopping, safe streets and places, childcare and education, affordable housing plus green networks, outdoor spaces for play, community gardens, culture, sport and recreation facilities. Connectivity Digital connectivity The Scottish Government wants to ensure that no areas are left behind by closing the digital divide. The planning system should continue to support the roll-out of digital infrastructure across all of Scotland, ensuring that policies recognise the importance of future-proofing infrastructure provision whilst addressing impacts on local communities and the environment. Policies in local development plans should support the delivery of digital infrastructure, particularly in areas with gaps in connectivity and barriers to digital access. Development proposals that deliver new digital services or provide technological improvements, particularly in areas with no or low connectivity capacity, should be supported. Transport connectivity Scotland's transport system should contribute to the creation of great places through prioritising the need to reduce inequalities; take climate action; help deliver inclusive economic growth; and improve health and wellbeing. The planning system will support development that minimises the need for travel and encourage active travel. Health and Wellbeing Improving the health and wellbeing of the people of Scotland is one of the six high level outcomes for NPF4. The spatial strategy recognises that our future places, homes and neighbourhoods will be better, healthier and more vibrant places to live. This will help us to be healthy and active, creative and diverse, so that people grow up loved, safe and respected, and realise their full potential. Places are important for physical and mental health and overall wellbeing. The places where children and young people grow up shape the opportunities that they have and influence the course of their life. The planning system should support development that reduces health inequalities and creates an environment that promotes active and healthier lifestyles. The reuse of vacant and derelict land and properties can contribute to climate change targets and support biodiversity, health and wellbeing improvements and resilient communities by providing much needed greenspace, growing spaces and other community benefits. The planning system should also prioritise the use of vacant and derelict land and properties including supporting temporary uses where proposals for permanent development are unlikely to be imminent. Reductions in the amount of vacant and derelict land can assist in the mitigation of its harmful effects on people's health and wellbeing. Local development plans should aim to create vibrant, healthier and safe places and should seek to tackle health inequalities particularly in places which are experiencing the most disadvantage. Development proposals for, or including, space or facilities for local community food growing and allotments should be supported. In addition to the policies contained within Draft NPF4, the Scottish Government is preparing associated guidance for planning authorities on local development planning. This is subject to consultation and covers areas highlighted in this assessment. National Developments National developments are those that strongly support the delivery of the spatial strategy, i.e. are 'needed'. Their identification is helpful to those delivering and hosting them including; public, commercial, and third sector bodies; and communities. The national developments proposed in the draft NPF4 are aligned to wider Scottish Government policy as far as is reasonable to do so at this time, to strengthen the connection between the NPF4 spatial strategy and delivery. Over 250 national development suggestions were received and were considered against four criteria. Climate change: The development will help to reduce emissions, will be emissions neutral, or emissions negative, contributing to Scotland's target of net zero emissions by 2045. People: The development will support the health, wellbeing, sustainability, and quality of life of our current and future population. Inclusive Growth: The development will contribute to sustainable economic growth that helps to reduce poverty and inequality across Scotland. Place: The development will protect or enhance the quality of a place or improve biodiversity. In assessing the candidate National Developments, both SIMD and EU exit vulnerability data were considered where relevant, The Draft NPF4 includes 18 proposed national developments;
Draft NPF4 is subject to scrutiny in the Scottish Parliament and currently out for public consultation. We will finalise the assessment in response to comments received and publish a revised assessment with the adopted NPF4. |
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Name: Dr Fiona Simpson Job title: Chief Planner |
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Email: Chief.Planner@gov.scot
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