Future of National Parks: strategic environmental assessment - environmental report

5. Consideration of broad locations for a new National Park

Process for selecting and designating new National Parks

5.1 Subsequent to the current consultation on the proposed legislative changes to the aims, functions, powers and governance of National Parks in Scotland, the selection and designation of new National Park(s) will take place. This will take place through the following process:

• In Autumn 2023 nominations for new National Parks will be invited following the finalisation of an appraisal framework. Communities and organisations wishing to develop and submit a nomination will have 5 months to develop their proposals. In Spring 2024 all nominations received by the Scottish Government will be appraised.
• In Summer 2024, Ministers will announce their decision on the proposal(s) for new National Park(s) that will go forward for designation. A reporter will be appointed to undertake an investigation and report to Ministers on the proposal(s). This process will include a public consultation on the new National Park proposal(s).
• The designation of the National Park(s) will then take place during 2025-2026 through the development of and consultation on a Designation Order, and laying of the Designation Order before Parliament.

Options exploring the broad location of where a new National Park could potentially be located

5.2 In light of the process outlined above, it is recognised that it would be appropriate at this initial stage for potential broad locations for new National Park(s) to be considered through the current SEA. This is with a view to exploring the relative merits of taking forward a new National Park in different broad locations in Scotland, recognising the different characteristics of these wide areas in terms of the potential benefits and disbenefits such a designation would provide.

Options exploring the broad location of where a new National Park could potentially be located

5.3 The National Planning Framework 4 (NPF4) is the Scottish Government's national spatial strategy for Scotland, setting out spatial principles, regional priorities, national developments and national planning policy.

5.4 The NPF4 presents Regional Spatial Priorities for the five broad regions of Scotland, as follows:

North & West Coast and Islands

5.5 This area broadly comprises the island communities of Shetland, Orkney, the Outer Hebrides, and parts of Highland and Argyll and Bute. It also incorporates the north and west coastline of the Scottish mainland.

North

5.6 This area broadly includes parts of Highland with parts of Argyll and Bute, Moray, Cairngorms National Park, as well as the north of Loch Lomond and The Trossachs National Park, Stirling and Perth and Kinross, with links west and north to coastal and island communities.

North East

5.7 This area focuses on Aberdeen City and Aberdeenshire with cross-boundary links to Moray, and south towards Angus and the Tay estuary.

Central

5.8 This area broadly covers central Scotland from the Glasgow city region and the Ayrshires in the west to Edinburgh city region in the east, including the Tay cities, the Forth Valley and Loch Lomond and The Trossachs National Park

South

5.9 This area broadly includes Dumfries and Galloway and the Scottish Borders, South and East Ayrshires, South Lanarkshire in the west, with links to the Lothians towards the east.

5.10 The assessment considers at a high level these five areas in terms of the potential delivery of new National Park(s). This is with a view to exploring the relative merits of taking forward a new National Park in different broad locations in Scotland, recognising the different characteristics of these areas in terms of the potential benefits and disbenefits such a designation would provide.

Assessment findings

5.11 The following overview present an appraisal of the opportunities and key considerations associated with potentially taking forward a new National Park within each of the five broad areas.

North & West Coast and Islands

Opportunities

5.12 The area has wide range of coastal and island landscapes that are an important part of Scotland's national identity. This is reflected by the designation of a significant number of landscapes and seascapes as National Scenic Areas (NSAs). These include the South Lewis, Harris and North Uist NSA, the South Uist Machair NSA, the Assynt - Coigach NSA, the Wester Ross NSA, the Knoydart NSA, the Morar, Moidart and Ardnamurchan NSA, the Jura NSA, the Hoy and West Mainland NSA, the Shetland NSA and numerous others. National Park designation would support the protection of areas of distinctive landscape and seascape character. (Landscape)

5.13 The area is rich in biodiversity, sustaining many internationally significant ecological sites, including the UNESCO Global Geoparks in the North West Highlands and Shetland, and Wester Ross UNESCO Biosphere Reserve. (Biodiversity and Geodiversity)

5.14 A significant proportion of the area's coastal waters are internationally and nationally designated for their biodiversity interest. For example, the Inner Hebrides and the Minches Special Area of Conservation (SAC) covers much of The Minch and the Sea of the Hebrides, and most of the coastal waters in the Orkney isles are covered by Special Protection Area (SPA) designation. A National Park designation would provide additional scope for the enhanced management of habitats and species associated with these designations. (Biodiversity and Geodiversity)

5.15 The area is home to significant areas of rare and vulnerable habitats and species. This includes some of the best remaining temperate rainforest sites in Europe. A new National Park has the potential to protect and enhance these key habitats and the ecological connections supporting them. (Biodiversity and Geodiversity)

5.16 The area has a rich history, language and distinctive cultural heritage, including linked to the Gaelic language. In this context the National Park designation has the potential to support and reinforce the cultural vitality of communities. (Population and Human Health, Cultural Heritage)

5.17 The area includes a rich and varied historic environment, and includes heritage-led international designations, including the St Kilda and the Heart of Neolithic Orkney UNESCO World Heritage Sites. A new National Park would help ensure that historic environment assets receive careful management to ensure they continue to benefit communities. (Cultural Heritage)

5.18 There will be significant climate challenges for this part of Scotland. Island and coastal ecosystems, and the communities they support, are naturally more vulnerable to the effects of climate change, sea level rise and extreme events. Of particular concern are the impacts on vulnerable low-lying coastal zones and infrastructure, with potentially wide-ranging effects from biodiversity loss to coastal erosion, flooding and landslips. A new National Park can play a key role in helping to address these challenges. (Climate Change)

Considerations

5.19 There are substantial economic opportunities presented by developments in sectors such as renewable energy generation, agriculture and fisheries. In this respect, consideration would be required throughout the process of designating a new National Park to ensure that the significant economic and employment opportunities available in the area associated with these sectors, including within the renewables sector, can be realised. (Climate Change, Population and Human Health)

5.20 The area has a number of complex demographic challenges, with areas of population growth and depopulation varying between islands and coastal communities, and issues such as ageing populations. National Park designation should recognise associated issues such as changes in property prices and other aspects which have the potential to affect the diversity, vitality and viability of communities. (Population and Human Health)

North

Opportunities

5.21 The area has a range of landscapes and seascapes that are an important part of Scotland's national identity. This is reflected by the designation of a number of landscapes and seascapes as National Scenic Areas (NSAs) including the Kyle of Tongue NSA, the Dornoch Firth NSA, the Glen Strathfarrar NSA, the Glen Affric NSA and the Kintail NSA. National Park designation would support the protection of areas of distinctive landscape and seascape character. (Landscape)

5.22 The area is rich in biodiversity, sustaining many internationally significant ecological sites, including the significant coverage of the Caithness and Sutherland Peatlands SAC, SPA and Ramsar site in the area. Other internationally designated sites include the Glen Etive and Glen Fyne SPA, the Rannoch Lochs SPA, the Moidart and Ardgour SPA, the Ben Nevis SAC and a number of others. The Moray Firth is also designated as an SPA and SAC, with Noss Head and the East Caithness Cliffs both designated as Marine Protected Areas. (Biodiversity and Geodiversity)

5.23 There are significant opportunities to reinforce existing ecosystems and deliver landscape-scale enhancements which enhance the flows of ecosystem services in the area. This is given the area's rich natural capital resource. (all SEA themes)

5.24 The area has a significant climate sequestration resource given existing land uses, with peatland and forestry resources contributing to the area being a net carbon sink overall. A new National Park provides additional opportunities to reinforce this role. (Climate Change)

5.25 The area includes a rich and varied historic environment. A new National Park will help ensure that historic environment assets receive careful management to ensure they continue to benefit communities. (Cultural Heritage)

5.26 A number of thriving communities are in the area, and they depend on local jobs and learning to support their quality of life. Some communities (especially outside of Inverness) have however experienced outmigration, particularly the loss of younger people. Further population decline in these locations is a future risk, particularly for the west and north of the area. In this respect the economic opportunities provided by new National Park in an appropriate location could help alleviate these trends. (Population and Human Health)

Considerations

5.27 The area has a National Park already: the Cairngorms National Park. The northern part of the Loch Lomond and The Trossachs National Park also extends into this area. A new National Park may therefore not provide as many benefits for local people as elsewhere in Scotland. (Population and Human Health)

5.28 Like many parts of Scotland, land and sea assets in the area can play an internationally significant role in renewable energy generation. Consideration would be required throughout the process of designating a new National Park to ensure that priorities for renewable electricity generation and transmission infrastructure are realised in full. (Climate Change)

5.29 As highlighted by NPF4, many parts of the area have recently experienced an accelerated increase in house prices. The Covid-19 pandemic has reinforced long standing issues of affordability and a more mobile remote workforce has been attracted to the area, adding increased pressure. In this respect there will be a need for a new National Park to recognise impacts of designation on existing affordability pressures. (Population and Human Health)

North East

Opportunities

5.30 Whilst the area is amongst the most prosperous parts of Scotland, it has experienced significant economic challenges in recent years and has pockets of deprivation. For example, there are lower levels of educational attainment and limited access to services for communities along the Aberdeenshire and Moray coast. A new National Park will help support diversification of the economy from the traditional sectors such as oil and gas, agriculture and fishing through utilising and embracing the opportunities provided by the area's natural assets. (Population and Human Health)

5.31 The area includes a rich and varied historic environment. A new National Park will help ensure that historic environment assets receive careful management to ensure they continue to benefit communities. (Cultural Heritage)

5.32 A significant proportion of the area's coastal waters are internationally and nationally designated for their biodiversity interest. This includes the areas covered by the Loch of Strathbeg SPA, the Ythan Estuary, Sands of Forvie and Meikle Loch SPA, the Buchan Ness to Collieston Coast SPA, the Fowlsheugh SPA and the Moray Firth SPA. The north eastern coast of the area is also covered by the Southern Trench Marine Protected Area. A coastal National Park designation would provide additional scope for the enhanced management of habitats and species associated with these designations. (Biodiversity and Geodiversity)

5.33 Away from the coast, area is also rich in biodiversity, sustaining many internationally and nationally significant ecological sites including the River Dee SPA, the Cairngorms Massif SPA and a significant number of Sites of Special Scientific Interest. A National Park would help protect and reinforce ecological connections to these key biodiversity assets. (Biodiversity and Geodiversity)

5.34 The designation of a new National Park has the potential to reinforce the creation of multi-functional blue and green infrastructure networks and improve access to nature in the area. This includes through connecting with national long-distance cycling and walking networks. This supports health and wellbeing and the quality of life of residents. (Population and Human Health)

Considerations

5.35 The area already has good access to a National Park: the Cairngorms National Park. (Population and Human Health)

5.36 The area has two landscapes which are designated as National Scenic Areas (NSAs). These areas are however within the Cairngorms National Park. (Landscape)

5.37 Affordability and choice of homes is acute across the area. The growing proportion of retirees in Aberdeenshire presents a further challenge to housing and service delivery. In this respect consideration of these issues would be required through the process of designating a new National Park to help ensure that associated socio-economic challenges are reflected. (Population and Human Health)

5.38 The area is a centre for the skills and expertise that will be needed to meet Scotland's climate change commitments. Consideration would be required throughout the process of designating a new National Park to ensure that priorities for renewable electricity generation and transmission infrastructure are realised in full. (Climate Change, Population and Human Health).

Central

Opportunities

5.39 Outside of the Loch Lomond National Park, the area has landscapes and seascapes that are an important part of Scotland's national identity. This is reflected by the designation of a number of landscapes and seascapes as National Scenic Areas (NSAs) including the River Earn (Comrie to St Fillans) NSA, the Kyles of Bute NSA and the North Arran NSA. National Park designation would support the protection of areas of distinctive landscape and seascape character. (Landscape)

5.40 A significant proportion of the area's eastern coastal waters are internationally and nationally designated for their biodiversity interest. For example, the Outer Firth of Forth and St Andrews Bay Complex SPA covers much of the coastline between St Abbs Head in the south and the Tay Estuary in the north. A coastal National Park designation would provide additional scope for the enhanced management of habitats and species associated with these designations. (Biodiversity and Geodiversity)

5.41 Further areas are also rich in biodiversity, sustaining a number of internationally significant ecological sites. These include: the Renfrewshire Heights SPA; the Inner Clyde SPA and Ramsar site; the Slamannan Plateau SPA; the Black Loch Moss and Blawhorn Moss SACs; and, on and around the Isle of Arran, the Arran Moors SPA and South Arran Marine Protected Area. There are also numerous nationally designated Sites of Special Scientific Interest. A National Park would help protect and reinforce ecological connections to these key biodiversity assets. (Biodiversity and Geodiversity)

5.42 A new National Park has the potential to help implement upstream measures (including nature-based solutions) that will help mitigate the growing risk of flooding resulting from the effects of climate change. This has particular potential to support adaptation to climate change given many key settlements and economic assets in the central belt are located in flood risk areas, including associated with the river basins and estuaries of the Clyde, Forth and Tay. (Climate Change)

5.43 Poor levels of health are a key issue within many communities in the central belt of Scotland. The designation of a new National Park within this densely populated area has the potential to have particular benefits for health and wellbeing through reinforcing the creation of multi-functional blue and green infrastructure networks and improving access to nature in the area. In this respect the delivery of a new National Park in a location with ready accessibility to key population centres is likely to help improve physical and mental health and mitigate health inequalities. (Population and Human Health)

5.44 A new National Park in the area has the potential to provide an anchor role for economic activities associated with recreation, tourism and nature conservation. In this respect a new National Park can provide a role in the diversification of the economy through a utilisation of the area's natural environment and built assets. (Population and Human Health)

5.45 A number of locations in the area have a legacy of heavy industry and mining. A new National Park in these locations would help ensure that historic environment assets in these areas receive careful management, helping to restore, reuse and reinvigorate areas that were historically a focus for these activities. A new National Park would also provide significant opportunities for enhancing the understanding and awareness of the historic environment, including historic landscapes. (Cultural Heritage, Population and Human Health)

5.46 The western part of the Central area already has good access to a National Park: the Loch Lomond and The Trossachs National Park. However, given the population density of the Central belt, and its accessibility to population centres, a new National Park has the potential to bring a range of benefits to a large population. (Population and Human Health)

South

Opportunities

5.47 The area does not currently have ready access to a Scottish National Park. A new National Park in this area would increase accessibility for local people to the opportunities associated with such a designation. (Population and Human Health)

5.48 In addition to a number of locations covered by National Scenic Area designations (including Upper Tweeddale, Eildon & Leaderfoot, the Nith Estuary, East Stewartry Coast and the Fleet Valley), the area contains many further distinctive landscapes and seascapes. In this respect, National Park designation would help conserve and enhance the character of key areas of landscape and seascape value. (Landscape)

5.49 The area is renowned for its tranquillity and dark skies, as highlighted by the designation of the UK's first Dark Sky Reserve (Galloway Forest Park). A National Park would help reinforce the important dark sky resource of the area. (Landscape, Cultural Heritage)

5.50 The area is rich in biodiversity, sustaining many internationally significant ecological sites including the Galloway and Southern Ayrshire UNESCO Biosphere and numerous Special Protection Areas and Special Areas of Conservation. A National Park would help protect and reinforce ecological connections to these key biodiversity assets. (Biodiversity and Geodiversity)

5.51 The area has a significant climate sequestration resource, with significant areas of woodland and peatland which act as a carbon sink. A new National Park in this area provides additional opportunities to reinforce this role. (Climate Change)

5.52 A new National Park has the potential to support the protection of the area's wide range of environmental assets and stimulate investment in natural solutions to climate change and nature restoration. (all SEA themes)

5.53 Although the area has relatively high levels of wellbeing and quality of life, population decline is projected to continue in some locations in the west of the area, with fewer younger people and more retired people likely to live in the area in the future. A new National Park therefore has the potential to support community vitality through promoting diversification of the economy and supporting employment opportunities. (Population and Human Health)

5.54 Coastal erosion and flood risk is expected to be a significant challenge in the future for the area. National Park designation has the potential to support the implementation of nature-based solutions to this risk. (Climate Change)

Considerations

5.55 Consideration would be required throughout the process of designating a new National Park to ensure that priorities for renewable electricity generation and transmission infrastructure are realised in full. (Climate Change, Population and Human Health).