Future of National Parks: strategic environmental assessment - environmental report

4. Assessment of draft proposals and reasonable alternatives

Introduction

4.1 This chapter presents an assessment of the draft proposals currently being consulted on relating to the legal framework for and powers of National Park Authorities.

4.2 The key facet of the proposals is to ensure that both existing and new National Park Authorities have the legal framework and powers they need to fulfil the leadership role relating to tackling the interlinked crises of climate change and biodiversity loss, whilst also welcoming visitors and supporting local communities and businesses. It is also recognised that it is important that existing and new National Parks have effective and efficient governance, ensuring that the membership of their boards is diverse, that it reflects and represents local communities whilst also bringing relevant skills, expertise and experience into the organisation.

Assessment of the current draft proposals

4.3 The following sections present the assessment findings of the current proposals as set out in the consultation paper on the proposed legislative changes to the aims, functions, powers, and governance of National Parks in Scotland.

4.4 For the purposes of the assessment, the current proposals have been grouped together to reflect how they are presented within the consultation paper. The paper includes a number of questions which are organised under four headings. In this context, the groupings are as follows:

• Proposal NNP1: Change to the purpose of National Park Authorities, which provides a greater emphasis on nature restoration and tackling climate change (Question 1)
• Proposal NNP2: Changes to the aims of National Parks (Questions 2 – 5)
• Proposal NNP3: Changes to the application of the National Park 'principle', highlighting that when conflicts arise between the aims of National Parks, National Park Authorities should prioritise the protection and restoration of natural assets, biodiversity and ecosystems (Question 6)
• Proposal NNP4: Role of public bodies operating within National Parks with respect to the National Park aims and 'principle', and the duty on public bodies to support implementation of National Park Plans (Questions 7 – 9)

4.5 During the screening stage of the SEA, two additional sets of proposals were screened out as not requiring further assessment. These relate to the general powers of National Park Authorities (Questions 10 and 11) and relating to the governance of National Parks (Question 12). With regards to these proposals, it was viewed that these would chiefly improve business and administrative efficiency rather than lead to direct significant effects.

Approach to the assessment and limitations encountered

• The SEA topics have been reworked and streamlined to reflect the high-level nature of the proposals.
• The SEA Framework of objectives and assessment questions have provided a useful steer when considering the potential impacts of the proposals, rather than each of the proposals being tested against every objective and assessment question.
• The key issues have been pitched at a national level at this time in the absence of any shortlisted nominated areas for a potential new National Park location and are therefore relevant for the whole of Scotland.
• Likely significant environment effects of the current proposals largely relate to how the proposals interact. In this respect, considering each proposal in isolation would not necessarily enable the SEA to present the most important potential effects (i.e., the in-combination effects of proposals). Reflecting this, the assessment findings are presented as a commentary of likely effects under each SEA topic.
• The determination of significance has been informed by the inherent assumptions / implications associated with the designation of new National Park(s), which are presented in the following section. It is also recognised that specific environmental effects arising may partly depend on the eventual geographic location and circumstances of a new National Park(s).
• Given the high-level nature of the current proposals, and as there is limited information on the eventual geographic location and circumstances of a new National Park(s) at this stage, it is challenging to meaningfully assess what cumulative effects, if any, would occur. As more detailed information becomes available, it will be important to consider whether any new or previously unidentified significant effects may arise, and whether therefore any additional assessment may be required.

Assumptions / implications of designating a new National Park(s)

• There is likely to be additional emphasis on the proactive management and planning for these area(s) (e.g., inclusion of a ranger service), with an associated increase in possible funding opportunities, job opportunities, and government expenditure.
• There are likely to be new or additional statutory assessment obligations and / or policy protections where an area is designated as a National Park.
• There is likely to be an increase in visitor numbers to parts of the designated area(s), with potential recreational pressures and impacts to natural and built-environment assets (e.g., from access, disturbance, traffic).
• There may be possible divergences or convergences in aims between key stakeholder groups within the National Park(s). This could include for example, balancing the competing priorities or objectives of landowners, tenants, business owners or visitors.
• Scotland is diverse, and the implications of the designation of a new National Park depends on a range of environmental and socio-economic factors. These factors have been explored further in Chapter 4, which considers options relating to the broad principles underpinning the legislative changes and the criteria for National Parks, and Chapter 5, which considers the relative merits of designating a new National Park in a number of broad locations in Scotland.

Assessment findings

Biodiversity and Geodiversity

4.6 With respect to Proposal NNP1, an additional emphasis on nature restoration has the potential to focus the priorities of National Park authorities on one of the pressing issues across Scotland in terms of tackling the nature emergency^[10]. This is further recognised through Proposal NNP3, which seeks to retain the National Park 'principle' but with greater weight given to the protection and restoration of natural assets, biodiversity, and ecosystems. Whilst there are likely to be benefits with this additional emphasis, potential impacts are uncertain at this stage as they are linked to effective planning and monitoring.

4.7 Currently, the first National Park aim is "to conserve and enhance the natural and cultural heritage of the area". The proposed revision to the first National Park aim (see Proposal NNP2) provides an additional focus on nature protection and enhancement of biodiversity and ecosystems. Through highlighting the importance of restoring natural assets, biodiversity and ecosystems within National Parks, the revision to the aim also supports one of the key priority areas for Scotland^[11] by encouraging opportunities for nature improvements and recovery. This has the potential to indirectly support the interpretation and understanding of Scotland's biodiversity and geodiversity by raising awareness of the key issues facing Scotland's ecological and geological assets and prioritising efforts to address these concerns. Additionally, this would support a network of healthy, resilient ecosystems which, in combination with the proposals which seek to strengthen the role of public bodies operating within National Park boundaries (see Proposal NNP4), will likely facilitate significant positive effects for both nature and society.

4.8 Proposal NNP4 outlines the potential opportunities associated with partnership working between key public bodies operating within the National Park, recognising that the special qualities of National Parks are influenced by and dependent upon the relationships between people and place. For example, collaborating to deliver the National Park aims has the potential to lead to positive effects, managing the pressures on designated sites for biodiversity and geodiversity through applying coordinated approaches to nature recovery. Proposal NNP4 confirms that the duties on public bodies should be strengthened so that they have an obligation to support and contribute to the implementation of National Park Plans.

4.9 On balance, a statutory purpose specifically referring to nature recovery is likely to increase the focus of new and existing National Parks on the restoration of habitats and ecological networks, with increased benefits for biodiversity and geodiversity. When combined with the proposals which encourage greater collaboration between public bodies operating within National Parks, including with respect to the delivery of objectives within the National Park management plans, this is likely to lead to significant long-term positive effects for biodiversity and geodiversity.

Climate Change

4.10 There is a focus across Scotland on addressing the twin crises of climate change and nature loss and to capture the opportunities presented by the transition to net zero^[12]. A key proposal in this regard is Proposal NNP1, which reinforces the role that National Park authorities can have with respect to climate action. Whilst this is likely to positively contribute towards Scotland's net-zero ambitions and both tackle and adapt to climate change impacts, it is recognised that the application of mitigation and adaptation measures may conflict with some of the additional aims of Scotland's National Parks. For example, retrofitting historic buildings may detract from the significance and character of the built environment and there is potential for renewable energy generation to give rise to adverse impacts on landscape character and ecological assets. In this respect, the potential benefits of the additional focus on climate action are dependent on the extent to which such proposals effectively balance the potential climate change benefits against the wider National Park aims (as highlighted within Proposal NNP2) to deliver sustainable futures for Scotland. The proposals which encourage collaborative efforts between public bodies operating within National Parks through Proposal NNP4 are likely to support this balance.

4.11 With regards to Proposal NNP2, the proposed changes to the aims of National Parks will help enhance the resilience of National Parks to the impacts of climate change. For example, an increased focus of the first National Park aim on natural assets, biodiversity and ecosystems will help support the resilience of ecosystems in adapting to the likely impacts of climate change. This includes through reinforcing the regulating and provisioning role of ecosystem services within National Parks, which will help limit impacts from extreme weather events such as excess rainfall or drought, both within the immediate area and downstream. The proposed changes to the first National Park aim will also support climate change mitigation by directly and indirectly promoting carbon sequestration, including through activities such as peatland or woodland restoration.

4.12 Reinforcing the benefits seen through Proposal NNP2, the role of National Parks in supporting climate change mitigation and adaptation will also be supported by NNP3, which seeks to retain the principle that greater weight should be given to the protection and restoration of biodiversity and ecosystems within the National Park where there is a conflict between the National Park aims.

4.13 Overall, the proposals are likely to support the transition to net-zero and facilitate opportunities to tackle the climate crisis. Whilst this is likely to lead to significant long-term positive effects, there will be a need to ensure that impacts on landscape character from climate mitigation and nature enhancement activities are appropriately considered, ensuring that potential conflicts which may arise between climate change objectives and the wider National Park aims are reconciled. This has been discussed in more detail under the 'Landscape' topic below.

Environmental Quality

4.14 Water, soil and air quality and the effective functioning of ecosystems are intrinsically linked. Recognising that habitats and species comprise a key ecosystem service role in regulating water, soil and air quality and ensuring a resilient water supply, the commitment to protecting and improving Scotland's environmental quality is embedded in decision-making across different policies and sectors^[13].

4.15 In this respect the proposed change to the purpose of National Park Authorities to provide a greater emphasis on nature restoration and tackling climate change through Proposal NNP1 will help reinforce the regulating and provisioning role of ecosystems within National Parks in supporting water and soil quality and availability. This will be further supported by Proposal NNP2, which seeks to reinforce the focus of the first National Park aim on natural assets, biodiversity and ecosystems, and increase the focus of the second National Park aim on the sustainable management of natural resources.

4.16 These direct and indirect positive effects on environmental quality will be further supported by Proposal NNP3, which seeks to retain the principle that greater weight should be given to the protection and restoration of biodiversity and ecosystems within the National Park where there is a conflict between the National Park aims.

4.17 Whilst it is acknowledged that specific environmental effects arising are influenced by the eventual geographic location and circumstances of a new National Park(s), the proposals which encourage greater collaboration between key public bodies operating within National Park boundaries (see Proposal NNP4) will likely facilitate opportunities to reduce levels of pollution and deliver the wider benefits for air, soil and water quality from nature restoration and climate regulation.

4.18 Overall, the proposals are likely to provide additional opportunities for maintaining and enhancing the contribution of healthy ecosystems in the regulation, provision and restoration of air quality, and the quality and quantity of water and soil resources. This likely to lead to significant long-term positive effects for Scotland's environmental quality, and further support opportunities for nature recovery and climate resilience.

Material assets

4.19 The current National Park aims support material assets through seeking to promote the sustainable use of the natural resources of an area under National Park designation. This has a role in supporting natural and built assets within National Parks. Changes to the aims and an increased focus of provisions on aspects such as climate change and nature restoration through Proposal NNP1 will help reinforce National Park's role in supporting natural and built material assets, which is likely to lead to short-term positive effects. This includes through increasing the resilience of National Parks to change, enhancing opportunities for improvements to the natural and built environment, and facilitating the more effective management of natural resources.

4.20 This will be supported by Proposal NNP2, which seeks to refocus National Park aims. A key proposal in this regard is to refocus the second National Park aim relating to the promotion of the sustainable use of natural resources. This will expand existing provisions to also include a commitment to facilitate the sustainable management of the area's natural resources "to maximise the benefits for the environment, climate, economy and people". These provisions recognise the wider benefits that the sustainable management of resources can provide for material assets. Material assets will be further supported by the proposal to update the fourth National Park aim to support the growth of nature-based jobs and skills, increase investment in the area's natural capital and working with communities and businesses to help them transition to net zero whilst supporting and developing the local wellbeing economy.

4.21 Whilst retaining the National Park 'principle' (which gives greater weight to the protection and restoration of natural assets, biodiversity, and ecosystems within the National Park if there is a conflict between the National Park aims), may impact on some economic opportunities, it is anticipated that that the reassertion of this principle will have indirect positive effects for material assets overall. This includes through supporting the economic activities associated with a high quality and well managed environment, including for nature-based jobs and skills, increased investment in the area's natural capital and support for new economic opportunities.

4.22 Proposal NNP4 places additional emphasis on public bodies with respect to the delivery of objectives within the National Park Plans. This is likely to enhance opportunities for improvements to the natural and built environment and help to facilitate the sustainable management of natural resources.

4.23 Overall, the proposed revisions to the aims and purpose of National Parks, the reassertion of the National Park principle and reinforcement of public bodies' role are likely to lead to long-term positive effects with respect to material assets. These will result from supporting the sustainable use of resources, and realising the economic opportunities associated with a high quality and well managed environment, including for nature-based jobs and skills, increased investment in environmental assets, and support for the green economy.

Cultural Heritage

4.24 Proposal NNP1 seeks to initiate changes to the purpose of National Park Authorities through providing a greater emphasis on nature restoration. This will be supported through Proposal NNP2, which seeks to increase the focus of the first National Park aim on natural assets, biodiversity and ecosystems, and Proposal NNP3, which seeks to retain the application of the National Park 'principle'. With regards to the historic environment, enhancements to local character from nature restoration may have benefits for the setting of the historic environment. However, an increased focus of the National Park proposals on nature restoration, including habitat restoration and new habitat creation, may have negative impacts (direct and indirect) on the significance of heritage assets including their settings. Peatland restoration, for example, can have impacts on archaeology. In addition, localised ecologies, which reflect historic industry and character, should be considered for protection where possible, such as around historic mining areas. This includes plants that have adapted to changes in soil mineral levels or localised thermal differences. Care needs to be taken with the location, species and sizes of any new planting to avoid negative impacts, e.g. to archaeological sites or the setting of a listed building, or to minimise these and maximise opportunities for enhancement. Planting and other types of habitat restoration and re-creation will need to be informed by appropriate research and historic environment/landscape character assessments. For this reason, appropriate methods for enhancements should therefore be devised with input from historic environment specialists from the outset.

4.25 It is recognised that an increased focus on climate change within National Parks and the net zero agenda will likely drive a significant increase in demand for the retrofit of traditional and historic buildings. Additionally, there is potential for renewable energy generation to give rise to adverse impacts on the fabric and setting of the historic environment; likewise changes to the landscape brought about by climate change mitigation measures such as reafforestation or woodland planting may lead to changes to the landscape which do not reflect or engage with historic landscape character. Any such solutions would need to be carefully designed to support the significance of local heritage resources.

4.26 One of the key aims of National Parks is to conserve and enhance the cultural heritage of the area(s) covered by the designation. Proposal NNP2 seeks to expand the wording of the existing aim to include 'historic environment assets', therefore specifically acknowledging the relationship between historic environment assets (e.g., historic buildings and monuments, archaeological sites, and historic landscapes) and their contributions to Scotland's cultural heritage value. This reinforces the role that National Parks can have in terms of conserving, enhancing, and promoting Scotland's historic environment, including designated and non-designated assets (and their settings).

4.27 In order to support the collective achievement of the aims, functions, and management of Scotland's National Parks in this context, Proposal NNP4 encourages greater collaboration between key public bodies operating within their boundaries. This is likely to deliver long-term positive effects for Scotland's historic environment through helping to enable the 'win-win' opportunities associated with the effective management of the historic environment to be realised.

4.28 Overall, the proposals will bring medium and long-term positive effects for heritage assets by reinforcing the link between cultural heritage and the historic environment, supporting the effective management of the historic environment, and facilitating enhancements to the setting of the historic environment. However, an increased focus on nature restoration and climate change mitigation has the potential to bring negative impacts if nature enhancements and climate initiatives are poorly designed and do not reinforce the significance of heritage assets and historic landscape character. In this respect appropriate methods for enhancements should therefore be devised with input from historic environment specialists from the outset.

Landscape

4.29 The proposed provisions will in many respects help reinforce landscape character in and around National Parks.

4.30 Proposal NNP1 seeks to initiate changes to the purpose of National Park Authorities through providing a greater emphasis on nature restoration. This will be supported through Proposal NNP2, which seeks to increase the focus of the first National Park aim on natural assets, biodiversity and ecosystems, and Proposal NNP3, which seeks to retain the application of the National Park 'principle'. These provisions have the potential to engage positively with landscape character given that habitats form central components of the landscape, with enhancements to habitats providing significant opportunities to reinforce a landscape's special qualities. It should be recognised though that biodiversity enhancements would need to be appropriately designed to ensure that these special qualities are supported.

4.31 An increased focus of the National Park Authorities towards climate change mitigation and adaptation proposed through NNP1 would also potentially support landscape character given the importance of developing landscape-scale solutions to carbon sequestration and adaptation. Through emphasising the important leadership role that National Park authorities can play in restoring nature and in mitigating and adapting to climate change, the proposals will also help enhance the resilience of landscapes to the impacts of climate change.

4.32 However, there is potential for renewable energy generation to give rise to adverse impacts on landscape character and ecological assets; likewise changes to the landscape brought about by climate change mitigation measures such as reafforestation or woodland planting may lead to changes to the landscape which do not reflect or engage with historic landscape character.

4.33 As such, for both biodiversity enhancements and climate change mitigation and adaptation measures in National Parks, any such solutions would need to be carefully designed to support the special qualities of a landscape. Appropriate methods for enhancements should therefore be devised with input from landscape specialists from the outset.

4.34 In terms of the other proposed provisions, currently, the third National Park aim is "to promote understanding and enjoyment (including enjoyment in the form of recreation) of the special qualities of the area by the public". The review of the third National Park aim through Proposal NNP2 qualifies the 'special qualities' as their natural and cultural assets, whilst also recognising the importance of supporting sustainable tourism and visitor management. This is likely to have positive effects with respect to understanding and awareness of the special qualities of National Parks by enhancing opportunities for people to access and experience these areas. In combination with the proposals which promote opportunities for collaboration and partnerships between public bodies to deliver key objectives (see Proposal NNP4), this has the potential to facilitate a network of healthy, resilient ecosystems which provide services and benefits for both nature and society. This is likely to support the concept of 'living landscapes'^[14] and help to deliver long-term positive effects.

4.35 Otherwise, it is recognised that the designation of a new National Park(s) has the potential to lead to further positive and negative impacts. For example, positive impacts are likely to result from more balanced tourism and increased investment in visitor management. Comparatively, negative impacts may occur from the potential recreational pressures and impacts to natural and cultural assets associated with an increase in visitor numbers (e.g., from access, disturbance, traffic). Overall however, given the strong focus of National Park purpose, aims and principles on the protection and enhancement of landscape character (and the components which reinforce landscape character), it is anticipated that any potential effects are likely to be mitigated.

4.36 Overall, the proposals will help reinforce the existing role of the National Park provisions for protecting and enhancing the special qualities of landscapes. This includes through initiating approaches that will support landscapes that are resilient and adaptable to change, whilst recognising the central role of landscapes in addressing the biodiversity and climate emergencies. This will bring significant medium and long-term positive effects for this topic. However, uncertainties relate to the potential for climate change mitigation and adaptation solutions to lead to negative impacts on landscape character if poorly and inappropriately initiated. As such, any such solutions would need to be carefully designed to support the special qualities of a landscape, and appropriate methods for enhancements devised with input from landscape specialists from the outset.

Population and Human Health

4.37 Access to nature plays an important role with respect to human health and wellbeing. Scotland's National Parks are delivering on this agenda by supporting high quality walking and cycling infrastructure; and by enabling people to be active through green health partnerships, health walks, outreach and volunteer programmes.^[15] It is recognised that enhanced opportunities for recreation is a likely outcome of designating a new National Park(s), with the existing third aim promoting the enjoyment and understanding of the areas by the public (including enjoyment in the form of recreation). The proposed revision to the third aim within Proposal NNP2 provides additional emphasis on 'inclusion and improved accessibility', with the revisions to the fourth aim including a focus on promoting 'cultural development and wellbeing' of the area's communities. This is likely to facilitate long-term significant positive effects by improving opportunities to connect all individuals and communities more widely to National Parks, enabling them to access and experience these areas whilst also supporting their mental and physical well-being.

4.38 The increased impetus on nature restoration and adaptation will help to reinforce the resilience of communities to the impacts of climatic and environmental changes in and around National Parks. This has the potential to lead to significant long-term positive effects for population and human health by enhancing green and blue infrastructure networks, supporting nature-rich environments and active travel opportunities, and encouraging better connected areas and communities. However, it is recognised that the potential significance of potential effects is dependent on the eventual location of a new National Park(s) and the extent to which natural and built resources are protected, enhanced, and restored through effective planning and monitoring.

4.39 Overall, the proposals have the potential to bring significant medium and long-term positive effects for the Population and Communities topic through promoting the quality of life and health and wellbeing of communities and increasing engagement with the special qualities of (and opportunities provided) by existing and new National Parks.

Assessing reasonable alternatives in SEA

4.40 The assessment of 'reasonable alternatives' is a key element of the SEA process to meet the requirements of the Environmental Assessment (Scotland) Act 2005.

4.41 To meet this requirement, the SEA process has assessed a number of options as reasonable alternatives for the Future of National Parks proposals. The Environmental Assessment (Scotland) Act 2005 is not prescriptive as to what constitutes a reasonable alternative, stating only that the Environmental Report should "identify, describe and evaluate the likely significant effects on the environment of implementing the plan…and reasonable alternatives to the plan… taking into account the objectives and geographical scope of the plan…"

4.42 In developing reasonable alternatives for the SEA, a central consideration has been with respect to the strategic nature of the proposals. The focus has therefore been on the proposed changes to the aims, powers, and functions of National Parks in Scotland.

4.43 In this regard, this Environmental Report has assessed options as reasonable alternatives, with a view to exploring the potential for significant environmental effects. These assessments are designed to inform plan makers and stakeholders on the relative merits of alternative approaches that the proposals could take on various issues and decisions.

Development of options to assess as reasonable alternatives

4.44 The overall aims of the current proposals are to consider (i) the provisions in relation to the aims, powers and functions of National Parks and (ii) the Scottish Government's commitment under the Bute House Agreement and Programme for Government to establish at least one new National Park in Scotland by 2026.

4.45 In developing options to assess through the SEA process, AECOM engaged plan-makers to understand where reasonable alternatives might arise. From this process, it was agreed that the assessment of reasonable alternatives should mirror the strategic level of the proposals.

4.46 In addition, it was agreed that it would be appropriate at this stage for the SEA to assess options relating to the broad locations of where a new National Park could potentially be located.

4.47 The following overview presents the details and assessment of the options assessed relating to the broad principles underpinning the legislative changes and the criteria for new National Parks.

4.48 Chapter 5 subsequently presents a high-level assessment of the five broad regions of Scotland within which new National Park(s) could potentially be located.

Options exploring the broad principles underpinning the legislative changes and criteria for new National Parks

4.49 The current purpose of a National Park Authority in Scotland, as set out in the 2000 Act (section 9(1)), is "to ensure that the National Park aims are collectively achieved in relation to the National Park in a coordinated way".

4.50 These are supported by the four National Park aims which are as follows:

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.

4.51 In light of the increased recognition of National Parks' role in addressing biodiversity loss and climate change, and changes in the national policy framework in Scotland, there is potential to reframe the general purpose of a National Park Authority and strengthen National Park aims to reflect these issues.

4.52 To explore these possibilities further, three options have been assessed through the SEA process. These have explored different approaches to the broad principles underpinning the proposed changes.

4.53 The options are as follows:

• Option NP1: Do not make changes to the National Parks (Scotland) Act 2000, with a view to not designating any new National Parks in Scotland. This would be a 'do nothing' option.
• Option NP2: Deliver new National Park(s) in Scotland, with no amendments to the aims, purpose and powers.
• Option NP3: Deliver new National Parks(s), with amendments to the aims, purpose and powers of all National Parks (these changes would apply to any new National Parks and the two existing National Parks in Scotland).

4.54 It should be noted that Option NP1, which would propose no changes to the National Parks (Scotland) Act 2000, and not deliver new National Parks, is not considered to be a 'reasonable' alternative. This is due to the Scottish Government's statutory and other objectives on climate and nature (including those set out in the 2009 Climate Change Scotland Act, the 2019 Emissions Reduction Targets Scotland Act and Scottish Ministers' commitments set out in the Bute House Agreement and the Programme for Government. Option NP1 is however appropriate to consider given the 'do nothing' approach proposed by the option will help enable the relative merits of different approaches to be more effectively explored through the SEA process.

Assessment of options: findings

4.55 The following overview presents assessment findings in relation to the three options introduced above.

4.56 This is organised by the seven SEA topics and use the SEA Framework set out above.

4.57 For each SEA topic, a commentary on the likely effects is presented. Options are also ranked numerically reflecting their relative environmental performance in relation to the relevant SEA topic, with '1^st' the most favourable ranking and '3^rd' the least favourable ranking.

Biodiversity and geodiversity

4.58 Whilst the current provisions (Option NP1) seek to conserve the natural heritage of an area covered by a National Park, the existing impetus of the provisions does not reflect the reality of the nature emergency acknowledged by the Scottish Government (including through its Scottish Biodiversity Strategy and associated draft 5 year delivery plan). The establishment of a new National Park under the current provisions through Option NP2 would therefore provide a missed opportunity to increase the focus of new a National Park more firmly on nature restoration. In this respect, Option NP3, with a statutory purpose specifically referring to nature restoration, would increase the focus of new and existing National Parks on the restoration of habitats and ecological networks, with increased benefits for biodiversity and geodiversity. In addition an increased focus on climate change will help increase the resilience of habitats and species to the likely effects of climate change.

4.59 Option NP1 would also not deliver a new National Park. In this respect any benefits of National Park designation for biodiversity would be limited to the areas in the vicinities of the Loch Lomond & the Trossachs National Park and Cairngorms National Park.

Ranking:

1^st: Option NP3

2^nd: Option NP2

3^rd: Option NP1

Climate change

4.60 The current provisions of the National Parks (Scotland) Act 2000 do not explicitly acknowledge climate change mitigation or adaptation. Whilst the current provisions indirectly support climate change mitigation and adaptation (including from the principles to conserve and enhance the natural heritage of the area and to promote the sustainable use of the area's natural resources), Option NP1 could limit the scope for National Park authorities to proactively initiate actions which help tackle the climate emergency. Similarly, the delivery of a new National Park under the current provisions via Option NP2 would provide a missed opportunity to increase the focus of a new National Park on climate change, specifically on the reduction of carbon emissions and adapting to the effects of climate change.

4.61 It should also be noted that under Option NP1, the existing benefits of National Park designation for climate change mitigation and adaptation would only continue to be seen in the vicinities of the current two National Parks at Loch Lomond & the Trossachs and Cairngorms.

4.62 In contrast, Option NP3, through including specific provisions on mitigating and adapting to climate change, will help ensure that new National Parks take a proactive role in addressing climate change, whilst also reinforcing existing National Parks' role in tackling the climate emergency. The option is therefore mostly likely to offer significant medium and long-term effects in relation to this SEA topic.

1st: Option NP3

2nd: Option NP2

3rd: Option NP1

Environmental quality

4.63 The current National Park provisions, through seeking to conserve and enhance the natural heritage and promote the sustainable use of the natural resources of the area, have a role in supporting water, soil and air quality. Under Option NP1, the existing benefits of National Park designation for water, soil and air quality would only continue to take place in the vicinities of the Loch Lomond & the Trossachs National Park and Cairngorms National Park. Option NP2 would therefore widen these existing benefits to the additional areas covered by National Park designation.

4.64 An increased focus of the National Park provisions on nature restoration and climate will help reinforce the regulating and provisioning role of ecosystems within National Parks in supporting water and soil quality and availability. In this respect, in comparison to the existing provisions, Option NP3 will bring additional benefits for this SEA topic, and is most likely of the approaches to lead to a wider range of significant positive environmental effects.

Ranking:

1^st: Option NP3

2^nd: Option NP2

3^rd: Option NP1

Material assets

4.65 The current National Park aims support the material assets topic through seeking to promote the sustainable use of the natural resources of an area under National Park designation. This has a role in supporting natural and built assets within National Parks.

4.66 Changes to the aims and an increased focus of provisions on aspects such as climate change and nature restoration through Option NP3 will though help reinforce National Park's role in supporting natural and built material assets. This includes through increasing the resilience of National Parks to change, enhancing opportunities for improvements to the natural and built environment, and facilitating the more effective management of natural resources.

4.67 In this respect, Options NP1 and Option NP2 comprise a missed opportunity to strengthen the role of National Parks in a way which will support this SEA topic.

4.68 In addition, under Option NP1, the existing benefits of National Park designation relating to the sustainable use of natural resources would only continue to take place in the vicinities of the Loch Lomond & the Trossachs National Park and Cairngorms National Park. Option NP2, whilst comprising a missed opportunity to strengthen the role of new National Parks, would serve widen existing benefits to additional areas.

Ranking:

1^st: Option NP3

2^nd: Option NP2

3^rd: Option NP1

Cultural heritage

4.69 The current National Park aims seek to conserve and enhance the natural and cultural heritage of the area, promote understanding and enjoyment of the special qualities of the area by the public and promote sustainable economic and social development of the area's communities. In this respect the existing provisions have a strong focus on elements which support the conservation and enhancement of the historic environment and promote the enjoyment and understanding of heritage assets. They also facilitate the socio-economic opportunities afforded by a distinctive and well managed historic environment.

4.70 Under Option NP1, the existing benefits of National Park designation would only continue in the vicinities of the Loch Lomond & the Trossachs National Park and Cairngorms National Park. Option NP2 would take this further through widening these existing benefits to new areas covered by National Park designation.

4.71 In terms of Option NP3, a change in focus of the provisions towards nature restoration and climate change mitigation and adaptation would potentially reduce the current impetus on the conservation and enhancement of the cultural heritage of the area covered by a National Park. However, the changes are unlikely to diminish the role of National Parks in conserving and enhancing the historic environment, particularly given this role would be retained as one of the key aims of National Parks. In addition, the updates to the provisions could also reinforce benefits for the historic environment. This could include through factors such as: increasing the resilience of the historic environment to the effects of climate change; enhancing the role of the historic environment within wider environmental improvement activities; or actions which more effectively marry the natural and cultural heritage of National Parks.

4.72 It should be noted though that an increased focus of National Park provisions on biodiversity and climate change mitigation, including habitat restoration and new habitat creation, or activities to support climate change adaptation, may have negative impacts (direct and indirect) on the significance of heritage assets including their settings. For example, care would need to be taken with the location, species and scales of any new biodiversity enhancement activities to avoid negative impacts, e.g., to archaeological sites or the setting of a listed building. As such, there would be a need to ensure that biodiversity enhancements or enhancements relating to climate change mitigation and adaptation are appropriately informed by historic environment considerations and devised with input from heritage specialists from the outset.

Ranking:

1^st: Option NP2

2^nd: Option NP3

3^rd: Option NP1

Landscape

4.73 The current National Park aims seek to conserve and enhance the natural and cultural heritage of the area and promote understanding and enjoyment of the special qualities of the area by the public. In addition, where there is a conflict between aims, the aim to conserve and enhance the natural and cultural heritage of the National Park area should have greater weight. In this respect the existing provisions have a strong focus on elements which support landscape character and promote the enjoyment and understanding of the landscape.

4.74 Under Option NP1, the existing benefits of National Park designation would only continue in the vicinities of the Loch Lomond & the Trossachs National Park and Cairngorms National Park. Option NP2 would take this further through widening these existing benefits to new areas covered by National Park designation.

4.75 In terms of Option NP3, a change in focus of the provisions towards nature restoration would be likely to reinforce landscape character. This is given that habitats form central components of the landscape, with enhancements to habitats providing significant opportunities to reinforce a landscape's special qualities. However, it should be recognised that biodiversity enhancements would need to be appropriately designed to ensure that these special qualities are supported.

4.76 A change of focus towards climate change mitigation and adaptation would also potentially support landscape character given the importance of developing landscape-scale solutions to carbon sequestration and adaptation. However, there is potential for renewable energy generation to give rise to adverse impacts on landscape character and ecological assets. Any such solutions would again need to be carefully designed to support the special qualities of a landscape. As for biodiversity improvements, appropriate methods for enhancements should therefore be devised with input from landscape specialists from the outset.

Ranking:

1^st: Option NP3

2^nd: Option NP2

3^rd: Option NP1

Population and Human Health

4.77 The two latter National Park aims seek to promote understanding and enjoyment (including enjoyment in the form of recreation) of the special qualities of the area by the public and promote sustainable economic and social development of the area's communities. Whilst the conservation and enhancement of the natural and cultural heritage of the area would be given greater weight in the event of a conflict between the aims, socio-economic considerations are a key element of the current aims.

4.78 Whilst a reconfiguring of the aims towards nature restoration and climate change mitigation and adaptation through Option NP3 may change this direct focus, a similar change in impetus has the potential to bring a range of wider socio-economic benefits. This includes improved and diversified employment and education opportunities, increased community engagement with environmental improvement activities, and support for a range of positive quality of life and health outcomes. In addition, an increased impetus on nature restoration and adaptation will help reinforce the resilience of communities to the impacts of climatic and environmental changes in and around National Parks. In this respect Option NP3 has the potential to bring additional benefits for the quality of life and health and wellbeing of communities.

4.79 With regards to a comparison between Options NP1 and NP2, under Option NP1, the existing socio-economic benefits of National Park designation would only continue in the vicinities of the Loch Lomond & the Trossachs National Park and Cairngorms National Park. Option NP2 would take this further through widening these existing benefits to new areas covered by National Park designation.

Ranking:

1^st: Option NP3

2^nd: Option NP2

3^rd: Option NP1 What are the conclusions of the assessment at this stage?

4.80 The assessment has highlighted that the Future of National Park Proposals have the potential to bring a range of significant medium and long-term positive effects across the SEA topics. Whilst broad ranging, these specifically link to a strengthening of National Park provisions in relation to nature restoration and tackling climate change mitigation and adaptation, and an additional focus of the provisions on community engagement and collaboration. The assessment has also highlighted that there are no likely significant negative effects arising as a result of the proposals.

4.81 In this respect, within the context within which they sit, the proposals have the potential to support a wide range of Scottish Government policy initiatives positively and cumulatively. As such, the National Park provisions will help inform the selection of candidate areas for National Park designation which are more likely to contribute towards the delivery of emerging environmental policy drivers and aspirations, particularly with respect to nature recovery and facilitating opportunities to tackle the climate crisis. The provisions will also help ensure that the two existing National Parks in Scotland are more effectively able to support actions which respond to the climate and biodiversity emergencies, whilst delivering a wider range of environmental benefits.

4.82 The assessment has however highlighted some uncertainties with regards to the effect of nature restoration and climate change mitigation and adaptation activities on the fabric and setting of the historic environment and landscape character. In this respect, there is a need to recognise that not all solutions will be appropriate for the existing cultural landscape and historic environment of areas covered by National Park designations. In this respect, there is a need for the changes to the principles underpinning existing National Parks and the designation of new National Parks to be accompanied by a recognition of these potential indirect impacts.

Recommendations in light of assessment findings

4.83 To help ensure that the environmental value of the proposals are maximised, and the uncertainties identified through the assessment are addressed, a number of recommendations can be made for the implementation of the proposals. For example:

• To facilitate a balance between nature recovery, climate resilience, and wider National Park aims, ecological enhancements should be sensitive to the surrounding areas (e.g., with respect to their special qualities), and exercises in habitat restoration and creation should be carefully selected to complement existing character.
• To help maximise benefits to cultural heritage, and limit potential negative effects, appropriate methods for enhancements should be devised with input from historic environment specialists from the outset.
• To further support visitor management, opportunities for sustainable travel and active travel within new National Parks should be encouraged wherever possible.

4.84 As the proposals are implemented, monitoring will occur to determine whether there are any unexpected effects (see Chapter 6), with appropriate measures implemented where necessary to address any unexpected effects.