SCOTTISH EXECUTIVE

Development Department

PLANNING

Rural Planning
Typologies
Research
Report

February 2005

Rural Planning
Typologies
Research
Report
Land Use Consultants
February 2005
Crown Copyright

If you wish further copies of this research report please contact:

Scottish Executive Development Department

Planning Division
Victoria Quay
Edinburgh
EH6 6QQ
Tel: 0131 244 7066
Website: www.scotland.gov.uk/planning

The views expressed in this report are those of the researcher and do not necessarily
represent those of the Department or the Scottish Ministers

CONTENTS
CHAPTER 1. INTRODUCTION ...........................................................................................1
BACKGROUND NPPG15 AND THE RESEARCH QUESTIONS ...................................................1
METHODS ...............................................................................................................................2
REPORT STRUCTURE ...............................................................................................................2
RURAL TYPOLOGIES: A DEFINITION ........................................................................................3
THE EMERGING CONCEPT OF RURAL TYPOLOGIES ...................................................................4
CHAPTER 2. THE CONCEPT OF RURAL TYPOLOGIES.............................................5
TYPOLOGIES IN PRACTICE INTERNATIONAL IDEAS AND EXPERIENCES ..................................5
SECTOR-SPECIFIC IDEAS ON TYPOLOGIES ..............................................................................10
CONCLUSION.........................................................................................................................14
CHAPTER 3. OVERVIEW OF THE QUESTIONNAIRE FINDINGS...........................18
INTRODUCTION .....................................................................................................................18
KEY FINDINGS .......................................................................................................................18
CONCLUSION.........................................................................................................................20
CHAPTER 4. REVIEW OF DEVELOPMENT PLANS ...................................................21
ANGUS ..................................................................................................................................22
ARGYLL AND BUTE ...............................................................................................................25
AYRSHIRE .............................................................................................................................27
GLASGOW AND CLYDE VALLEY ...........................................................................................29
HIGHLAND ............................................................................................................................32
LOTHIAN ...............................................................................................................................35
ORKNEY ................................................................................................................................37
PERTH AND KINROSS ............................................................................................................40
COMHAIRLE NAN EILEAN SIAR .............................................................................................42
CONCLUSIONS ON THE DEVELOPMENT PLAN ANALYSIS .........................................................46
CHAPTER 5. RURAL TYPOLOGIES AND DEVELOPMENT CONTROL ................48
INTRODUCTION .....................................................................................................................48
ANGUS CASE STUDIES ..........................................................................................................48
ARGYLL AND BUTE CASE STUDIES .......................................................................................49
ORKNEY CASE STUDIES ........................................................................................................51
SOUTH LANARKSHIRE CASE STUDIES ...................................................................................52
CONCLUSIONS ON THE DEVELOPMENT CONTROL CASE STUDIES ..........................................54
CHAPTER 6. GUIDANCE ON THE USE OF RURAL TYPOLOGIES.........................55
INTRODUCTION .....................................................................................................................55
PART A: DEVELOPING TYPOLOGIES ..........................................................................55
PART B: APPLYING TYPOLOGIES ................................................................................67
SCENARIO 1.......................................................................................................................70
SCENARIO 2.......................................................................................................................76
SCENARIO 3 .....................................................................................................................80
CONCLUSIONS DEVELOPING AND APPLYING TYPOLOGIES...................................................84
CHAPTER 7. CONCLUSIONS...........................................................................................85

CHAPTER 1. INTRODUCTION
1.1. This Report has been prepared by Land Use Consultants (LUC) on behalf of the
Scottish Executive. It is based on research that was undertaken between July 2003 and
March 2004 to investigate the role and effectiveness of rural typologies in Scottish planning.
Rural typologies emerged as a key issue during the evaluation of National Planning Policy
Guidelines 15 Rural Development (2002), which concluded that although they are a sound
planning concept further research and advice was needed.
1.2. Rural typologies are essentially a policy development tool. They can assist the
development process by helping to identify the varying needs and opportunities of rural areas.
The approach is based on a now widely accepted recognition that rural areas are not
homogenous. Rural typologies provide a way of not only reflecting the differences between
rural areas, but also tailoring development policies and decision making to reflect these
differences. Well developed and consistently applied typological policies can help to ensure
that the planning system makes a positive contribution to rural development. This is
important if communities throughout rural Scotland are to overcome some of the difficulties
they have faced in recent years by positively releasing their considerable potential.
BACKGROUND NPPG15 AND THE RESEARCH QUESTIONS
1.3
Paragraphs 5 to 8 of NPPG15, which was published in 1999, set out an approach to
rural policy making which aimed to reflect rural diversity. The policy suggested a
typological approach that was based on a range of factors, brought together in the Scottish
Rural Life Update in 1996. It suggested that rural areas could be classified as being
commuter, intermediate or remote, by taking into account a range of factors including
degree of remoteness, settlement pattern, population density, demographic structure and
employment trends. NPPG15 went on to note that each of these areas is subject to different
pressures for development, and consequently could be characterised by a range of planning
issues. It then outlined the ways in which area-based policy development could be used to
ensure that the planning system recognises and responds to the differences between rural
areas.
1.4. The evaluation of NPPG15 drew a number of conclusions in relation to rural
typologies. It showed that many planning authorities supported and were already actively
using rural typologies, but that more guidance on the matter would be useful. The evaluation
suggested that such guidance should particularly focus on methodological issues including
the criteria that could be used to define typologies. In addition, the research concluded that it
would be important to clarify the relationship between national and more locally defined
typologies in any future consideration of the concept.
1.5.
The research suggested that different areas considered the guidance in NPPG15 to be
too broad brushed. It was perceived as being urban centric and risked literal interpretation
regardless of local variation. For example, consultees participating in the evaluation noted
that there could be exceptions to the three way approach, including areas of development
pressure in remote areas, and depressed rural communities within commuter areas. As a
result, the research recommended that a further examination of the process of defining
typologies would be of assistance. This was confirmed by an exploration of typologies at the
local level, which showed that there are numerous examples of good practice, but that there
appeared to be as many approaches to developing rural typologies as there are areas where
they have been used. In addition, the research identified considerable variation in the
application and effectiveness of each of the approaches.

1.6
Following on from the key findings of the Evaluation of NPPG15, the research has
been structured around a number of core research questions:

To consider, and provide examples of, different rural typologies and the varied
approaches used by local authorities in their development;

To assess the finer grained policies currently in use by planning authorities and assess
whether these are complementary to, or quite independent of the typology in NPPG15;

To provide further advice on ways in which rural policy can be developed in parallel
with the typology of an area.

1.7
As a result, the study has aimed to explore the ways in which typologies have been,
and could potentially be, applied to rural planning, policy and decision making. It was
anticipated at the outset of the project that the work would conclude in practical and clearly
justified recommendations for the planning system from the national to local level. This
report therefore focuses on these outcomes, drawing from current practice and experience
where appropriate.
METHODS
1.8

Several core methods were used in the study:

A literature review was undertaken early in the study, to identify the range of current
practice in developing and applying rural typologies.

A questionnaire was prepared and distributed to all local authorities in Scotland. This
aimed to establish the extent of current practice, the reasoning behind the use of rural
typologies, and more detailed aspects of the methods that have been used.

This was followed by an area based review of development plans. This allowed for the
ways in which the typological approach had influenced policy to be defined.

Further information on development control practice and case studies was also collated
in a smaller number of authorities, which helped to illustrate key points.

Modelling of typologies in relation to different contexts was undertaken, at the national,

strategic and local levels to allow for the practical issues to be applied and explored in
relation to a range of development settings.

Report Structure
1.9. Following this introduction, the remainder of the report includes the following
sections:

Section 2 provides background on the concept of rural typologies, drawing from

international theory and experience;

Section 3 provides an overview of the findings of the local authority questionnaire;

Section 4 sets out the findings of the review of development plans;

Section 5 explores the application of typologies through the development control

process;

Section 6 combines the research findings with the study recommendations, to form step
by step guidance on the development and application of rural typologies;

Section 7 concludes the report by reflecting on the key issues emerging from the
research.

RURAL TYPOLOGIES: A DEFINITION

1.10. It is important to define what is meant by the concept of rural typologies.
Fundamental to the idea is the identification of geographic areas that have similar policy
issues.
1.11. While it could be argued that, at one end of the scale, the distinction between green
belt and non green belt areas represents a typology of sorts, this would normally be
considered as too simplistic a division. At the other end of the scale, it would be possible to
divide a local authority into a large number of areas each with a different set of policies
relating to different kinds of development. This would normally be considered as too
complex a division. The concept of rural typologies explored here lies somewhere between
these poles. It should be based on a number of different factors (e.g. environmental
sensitivity, socio-economic needs and development pressures), should be equally relevant to
all parts of a plan area and should be recognisable on the ground, either as a reflection of
physical characteristics or social or economic factors.
1.12. Ideally, typologies will be valuable in informing policy development and development
control. They should also help developers and others involved in the planning process
understand more clearly where development is more or less likely to be acceptable. They
may also indicate the kinds of development that are likely to be relevant in different areas and
may help inform the consideration of planning conditions.
1.13 In considering rural typologies, it may be helpful to think about the way in which the
typology will be used (e.g. to help inform specific aspects of policy development, or to
structure the plan as a whole), the issues or datasets which should be used to describe
geographic variations within the plan area (e.g. are there specific economic, environmental or
development issues or pressures that either create the need for different policies or that should
be reflected within it?) and the scale of analysis that is dictated by not only the application
and the issue, but also the data that are available or can be collected.

Key issues

Application

Scale

THE EMERGING CONCEPT OF RURAL TYPOLOGIES

1.14. The evaluation of NPPG15 showed that the concept of rural typologies is widely
supported by both local authorities and stakeholders at the national level. Some people view
typologies as a natural part of the planning process and many planning officers considered the
development of area based policies to be an integral and important part of planning for their
area.
1.15. The concept of area based policy making has indeed been part of the planning system
for some time and clearly pre-dates the promotion of rural typologies in NPPG15. As a
result, in parallel with the policy emerging at the national level, more locally different
approaches to rural typologies were emerging. This research has therefore aimed to go
further than testing the extent to which the specific recommendations provided by NPPG15
have been followed, by also reflecting examples of good practice from different areas. It
brings together what has previously been informal or fragmented approaches to provide more
coherent guidance.
1.16. In light of practice and theory emerging to date, the key aims of rural typologies can
be summarised as:
To provide a framework for the development of geographically specific planning policies
that reflect the key development pressures, opportunities and sensitivities across a
development plan area;
To allow policies to become more closely tailored to geographically specific issues;
To provide greater certainty for the development sector, identifying areas where
particular types of development are, all other things being equal, more, or alternatively
less, likely to be granted planning consent;
To maintain a relatively simple approach that is relevant across most planning policy
areas, reflecting the fact that more detailed and specific policies may be required in
relation to particular policy areas;
To provide a framework to balance national and more local perspectives.
1.17. These aims reflect the potential role of rural planning typologies in policy
development.
However, in practice some authorities have used typologies as a
characterisation tool, to help assemble a clearer picture of the needs and opportunities within
an area. The extent to which the characterisation has subsequently informed policy
development has varied in these cases.
1.18. It is useful to consider why rural as opposed to urban or more general typologies have
a role to play. Part of their value lies in changing perceptions of the countryside and the role
of planning in relation to these areas. Traditionally, as noted in the evaluation of NPPG15,
rural planning has been perceived as playing a mainly regulatory role, with more positive
planning such as regeneration, being confined to an urban setting. More recently, however,
numerous policy documents and events have changed the ways in which the Scottish
countryside is viewed. As a result, planning has begun to make a gradual shift towards taking
on a more positive, development oriented role in rural areas. There is a growing recognition
that rural areas need not only to be protected, but also reinvigorated, particularly where
primary economic sectors have been declining or depopulation and loss of services has
become an issue. Rural typologies have a key role to play in helping to achieve this,
particularly by providing a tool for raising awareness of the different needs of different areas.

CHAPTER 2. THE CONCEPT OF RURAL TYPOLOGIES

2.1.
This section considers some of the ways in which rural typologies are being
developed in different areas. It also sets out some of the key issues that those using them
consider to be the most relevant factors in the development of useful approaches. Whilst
some of the approaches referred to here have been developed at varying scales, and within
contexts that are clearly different from rural Scotland, some key issues can be identified
which can then be used to inform the analysis of more local experience.
TYPOLOGIES IN PRACTICE INTERNATIONAL IDEAS AND EXPERIENCES
American Models economic and demographic analyses
2.2.
It is perhaps unsurprising, given the size of the country and its diversity, that rural
typologies have featured as a tool for policy and planning in North America. Although the
context and in particular the scale and pressure for development is clearly different in the
USA, the process of defining rural areas provides a further insight into the typological
approach. In particular, typologies have been developed by the Economic Research Service
(ERS) (1994) in a bid to characterise areas according to their social and economic
characteristics. As the ERS themselves put it: ...the typology is based on the assumption
that knowledge and understanding of different types of rural economies and their distinctive
economic and socio-demographic profiles can aid rural policymaking.1 The types of rural
area identified at the county level were:

farming-dependent counties: which tended to be remotely located, with a sparse and

declining population and economic decline. This largely comprised the Midwest;

mining-dependent counties: which have suffered similar problems to the latter type of
area. Most of these counties are in the south or west of the US;

manufacturing-dependent counties: which tend to be more urban in character, often

close to cities and towns, with larger populations, and slight growth in employment
during and since the 1980s. These types of area are concentrated in the south east;

government-dependent counties: which are scattered across the US, have growing
economies and populations;

services-dependent counties: which are concentrated to a degree in the west, but found
throughout the country. These areas have grown in line with a long term growth in the
service sector of the economy as a whole;

non-specialized counties: where a range of other sectors may characterise the area in
combination and which are spread throughout the US. Economic performance in such
areas has varied over the years.

2.3.
These types do not overlap but are overlain by five overlapping policy based areas
including:

Economic Research Service, 1994, The Revised ERS County Typology: An Overview, paper published on
website, http://www.nal.usda.gov/ric/resources/backgrnd/counties/02typ.htm

retirement destination counties: with ageing populations predominating, but also

growing concentrations of young people. These areas had particularly high levels of
economic growth;

federal lands counties: which are characterised by high levels of federal land ownership
and are largely concentrated in the west. Again these areas had high levels of economic
and population growth;

commuting counties: which have close links with more urban areas (metro areas), have
relatively slower economies in their own right (due to income and employment being
generated outwith their boundaries) and concentrations of economically at risk people.
Many of these counties are in the south, with others in the Midwest;

persistent poverty counties: which are largely concentrated in the south, with high levels
of social exclusion, low incomes and higher unemployment;

transfers-dependent counties: which rely on subsidies to support their economies, are

more remote, sparsely populated and generally concentrated in the south and Midwest.
Many of these areas overlap with the previous category.

2.4. This approach is clearly relevant at a broader scale than the Scottish national level of
analysis. Whilst the issues and contexts are different, it may be worthwhile considering the
scope for taking on board an approach that combines social and economic characteristics.
Reflecting Diversity in Rural Canada
2.5.
In Canada, similarly economically oriented approaches have emerged. There has also
been detailed and applied analysis of the methodologies used to classify areas, which extend
beyond the choice of criteria and scale of interpretation. Reimer reflects on the Canadian
approach, which emerged as a result of the New Rural Economy (NRE) Project (2002). This
work has shown the ways in which typologies are not static, but require ongoing updating in
order to maintain their currency. As recorded by Reimer (2002)2, the aim of the project was
to develop a more sensitive approach, with the factors included in the typology being:

the extent to which the community based areas are integrated into the global economy,
or are characterised by indigenous economies;

whether economies in each area are stable, or fluctuating;

the proximity of areas to major urban centres;

the institutional capacity of areas (defined by levels of service provision); and

analysis of socio-economic data to identify leading and lagging regions.

2.6.
By combining these criteria, a matrix, which included 24 different options, was
defined. This is illustrated in the following table:

Reimer, B., (2002) Exploring Diversity in Rural Canada, Paper prepared for USDA, Economic Research
Service.

Table 2.1 NRE Sample Classification

Globally
exposed

Fluctuating
economy

High Capacity

Low Capacity

Leading

Leading

Lagging

Lagging

Metro
adjacent
Not
Adjacent

Stable
economy

Metro
adjacent
Not
Adjacent

Less
globally
exposed

Fluctuating
economy

Metro
adjacent
Not
Adjacent

Stable
economy

Metro
adjacent
Not
Adjacent

Source: Reimer (2002)

2.7.
Areas within Rural Canada were each allocated to one part of the matrix, and a
sample was subsequently tested using a combination of population surveys, field work and
more detailed analysis. The aim of the testing was to explore the accuracy of the matrix and
identify the conclusions that could be drawn by policy makers in response to each of the
characteristics. The application and analysis of the framework revealed complexities at the
typological unit level.
2.8.
Whilst work is ongoing, conclusions drawn from the NRE experiences included the
need to consider rural areas in relation to urban contexts, as Reimer puts it: The more we
attend to the distinction between rural and urban, the less we pay attention to the places
where their interests coincide and create new opportunities for mutual revitalization. It is
suggested that the environmental footprints of cities should be assessed in more detail to
determine the area and type of countryside which is required to support urban systems, and
vice versa. The work also suggests that the level of analysis is important, and that typologies
should be sufficiently flexible to allow for change over time. The work concluded that areas
capacity and institutional infrastructure is as important an indicator as outputs such as poverty
or employment.
European Spatial Planning Typological Perspectives at an International Scale
2.9.
European policy and programming has long emphasised the need to undertake
strategic analysis in order to ensure that resources are appropriately targeted. The designation
of areas for the administration of structural funds, and the differentiated approach to
disbursement of resources under the Common Agricultural Policy (CAP) at the national level
are amongst the well known interventions which are based on an understanding of the level

of need within the states and regions of the EU. Much of the work underlying this has been
based on economic analyses, and could not be considered to form rural typologies as such.
Nevertheless, the established practice of European Spatial Planning provides an opportunity
to consider the different types of circumstances within the regions at a broad level.
2.10. The Politecnico di Milano produced one of the most relevant discussions on the
development of rural typologies for the European Union as a whole in 19993. The work notes
that whilst in the past rural areas were treated as homogenous units, more recently there have
been moves towards analysing areas to ensure that their different characters can be taken into
account. This work focused particularly on the interrelationships between urban and rural
areas. As the authors state: Environmental equilibrium and territorial efficiency depend on
the success of urban production and hence on the existence of agglomeration advantages,
but also on the ability of the rural habitat to produce sufficient income for the social and
demographic stabilisation of communities. Whilst cities provide markets for the sale of
rural goods, they also generate pollution and waste. Rural areas can provide attractive
landscapes, food, and stable hydro-geological resources, but can also be the subject of
negative biological change as a result of unsustainable management and exploitation for
production. The study also notes that it is impossible to reach a single and unequivocal
definition of a rural area.
2.11. The Politecnico di Milano went on to discuss the various ways in which rural areas
can be characterised. This might be achieved at a regional level in its most simple form by
considering the population density of an area. The Study also referred to previous work4 that
identified three types of rural area:
integrated rural areas: growing population, employment in secondary and tertiary sectors,
farming remains a key land use, potential environmental, social, cultural heritage threats,
relatively close to cities, risk of becoming rurbanized or dormitory areas;
intermediate rural areas: relatively distance from urban centres, mix of primary and
secondary sectors, often large scale farming operations;
remote rural areas: lowest population densities, lowest incomes, older populations,
heavily dependent on agriculture, less services, isolating features such as difficult terrain
or topography, remoteness from transport infrastructure.
2.12. The authors of the study concluded that previous approaches were overly focused on
either quantitative or qualitative approaches to definitions, and as a result explore some
alternatives. They identify three alternative rural types as shown in Table 2.2.

Politecnico do Milano, 1999, A Typology of Rural Areas in Europe: Indicators on Strength and Weakness of
Rural territories and Selection of Areas (NUTS III), Strategic Study: Towards a New Urban Rural Partnership in
Europe, Milan.
4
as defined in The Future of Rural Society (1990) House of Lords Select Committee on the European
Communities.

Table 2.2 An alternative methodology for defining rural Europe

Type

Definition / considerations

Successful areas

Areas where maintenance of rurality is due to its

endogenous strength.

Areas under pressure

Areas where persistence of rurality derives from its

synergetic relationship with the town.

Weak areas

Areas characterised by rural marginalisation, either because

their rural nature is succumbing to urban sprawl, or due to
lack of relations with urban areas.

Source: from Politecnico di Milano, 1999

2.13. Four key indicators were used to define this, including the productivity of agriculture,
importance of agriculture (in terms of proportion of land in use for agriculture), agriculture
compatible activities (e.g. food or other product processing or sales), and urban sprawl
(percentage of discontinuous built-up area within the overall utilised agricultural area). The
diagram below identifies the ways in which these indicators were combined to reach
conclusions on the core types of area:
Table 2.3 Classification of Rural Europe the Milan Approach
High productivity of agriculture
and High importance of
agricultural area
High
productivity of
agriculture

Low
productivity of
agriculture

High productivity of agriculture

and Low importance of
agricultural area

Low productivity of agriculture

and High Importance of
agricultural area

Strong

High Diversification
of Activities

Low Urban Sprawl

Strong

High Urban Sprawl

Under pressure

Low Diversification
of Activities
High Diversification
of Activities
Low Diversification
of Activities

Low productivity of agriculture

and Low importance of
agricultural area

Under pressure
Low Urban Sprawl

Weak

High Urban Sprawl

Under pressure
Weak

Weak

Source: Politecnico di Milano, 1999

2.14 It is suggested by the study that this is a more accurate approach, which allows for
consideration of economic, locational and settlement characteristics to be considered in
combination to lead to an assessment of area capacity. The authors also indicate that the
ability to develop such an approach is highly dependent on data availability and consistency.
2.15 It is notable that the two typological approaches described above have similarities to
the commuter / intermediate / remote classification set out in NPPG15.

SECTOR-SPECIFIC IDEAS ON TYPOLOGIES

2.16. Within the UK, several different typologies have emerged which aim to inform
sector-specific policies. The approaches in each case have emerged as a result of the issues
that define the sectoral policy frameworks.
Transport based typologies
2.17. The Commission for Integrated Transport (CIT) produced a typology which is
applicable to rural transport5. This approach includes the identification of eight types of rural
area, defined on the basis of their transportation characteristics:

peri-urban rural areas (i.e. those close to major conurbations or immediately surrounding cities),
where traffic volume and heavy vehicle usage are key concerns;
market towns with hinterlands, where access to services, cost of public transport and car usage are
the main transport issues. Within this category, there are subcategories of:
market towns where services are declining and the market is overshadowed by the
proximity of a large urban centre;
towns which service a very dispersed rural population, making public transport difficult;
towns with a rural population dispersed along main transport routes in a linear fashion.
remote areas, including:
remote but honeypot areas which have the combined problems of peripherality and
congestion (mainly tourist based);
isolated villages with high levels of car dependence, lack of access to services and shops
and high fuel costs;
isolated households and extremely isolated settlements.

2.18. The CIT noted that these categories are not mutually exclusive, with some areas
including two or more categories, and all rural areas having similar issues about car usage
and public transport provision to a greater or lesser degree. The CIT concluded that this
classification should be combined with analysis of socio-economic characteristics in order to
provide a more accurate picture. As a result, the CIT work did not go as far as considering
how the framework could be used to influence transport policy.
2.19. This goes part of the way towards providing an alternative to the approach set out in
NPPG15 which is not entirely different to the established policy, but which takes into account
a wider range of transport modes and the levels of user demand which can influence the
effectiveness of infrastructure, and indeed the sustainability of an area as a whole. The work
also identified that some aspects of the typology were difficult to define as a result of the lack
of data sources available to analyse particularly in relation to public transport coverage,
spending on transport and user decision making.

Commission for Integrated Transport, (2001) Rural Transport: An Overview of Key Issues,
http://www.cfit.gov.uk/reports/rural/key/07.htm

10

2.20. Scotland-specific research within the transport sector has also been undertaken which
examines Rural Accessibility in more detail6. The work took forward the NPPG15 typology,
and noted that access to a principal centre of population is only one aspect of rural
accessibility. In more remote areas, access to regional and locally important population
centres is as important. The researchers noted that other approaches have been emerging,
including the characterisation of areas according to transport need (comparative, expressed,
stated and community). They concluded that a robust rural typology should combine analysis
of geographical conditions, transport provision and need.
Education
2.21. The Arkleton Centre undertook research in 2001 that examined Pre-School
Educational Provision in Rural Areas, on behalf of the Scottish Executive Education
Department7. The work made use of rural typologies as a means of assessing levels of
provision of facilities. Three zones were identified:

a zone adjacent to urban areas of sufficient population to support a pre-school centre;

an intermediate zone of areas 2 to 15 miles from such a settlement; and

a remote zone, more than 15 miles distant.

2.22. The work concluded that there was a correlation between remoteness and lack of
services available to rural population. On the basis of the findings, a further typology of five
rural challenge zones was defined by the researchers, which each required different
solutions in order to remedy existing problems.
Housing
2.23. Research has been undertaken which examines the Factors Affecting Land Supply for
Affordable Housing in Rural Areas8. This drew on previous analysis that had defined the
characteristics of rural housing markets9:

bouyant areas: where population economic activity and housing pressure are all
increasing while supply is constrained;

pressured areas: where population and housing pressure are increasing, some with
indigenous economic growth. These include both areas of increased demand from
external markets, and areas of increased commuter pressure;

fragile areas: with little or no economic growth, emigration of young families, but
continuing pressure on housing supply, particularly of rented housing, much ineffective
or poor quality housing.

Halden, D., Farrington, J., and Copus, A., (2002) Rural Accessibility, Research Report prepared for the
Scottish Executive Central Research Unit, HMSO: Edinburgh.
7
Copus, A., Petrie, S., Shucksmith, J., Shucksmith, M., Still, M., and Watt, J., (2001) Pre-School Educational
Provision in Rural Areas: A Report to the Scottish Executive Education Department, Reproduced as an Arkleton
Occasional Report No.1, Aberdeen.
8
School of Planning and Housing, Edinburgh College of Art / Heriot-Watt University, (2001) Factors Affecting
Land Supply for Affordable Housing in Rural Areas, HMSO: Edinburgh.
9
Satsangi, M., Bramley, G., and Storey, C., (2000) Selling and Developing Land and Buildings for Rent and
Low Cost Home Ownership: the Views of Landowners, Edinburgh: Scottish Homes / Scottish Landowners
Federation.

11

 regeneration areas: lower pressure areas, but with a wide spread of deprivation, including
areas of derelict land;
intermediate areas: featuring pockets of deprivation or pressure;
primarily buoyant but economically fragile areas: containing spatially distinct buoyant
local economies and weak local economies;
transitional areas: recovering from loss of traditional economic activity.
2.24. This illustrates a further issue based approach to analysis which links sectoral
problems and opportunities with wider aspects of rural development.
Typologies as an analytical tool
2.25. On reviewing Census statistics between 1981 and 1991 for rural Scotland, in 1995
Scottish Rural Life Update10 stated that The processes of change have been accelerating in
the last ten years and it is no longer meaningful, if it ever was, to discuss rural Scotland as if
it were the same from the Borders to Shetland. There is considerable variation within rural
Scotland and policy responses should be targeted at the differing needs of these areas. The
study suggested typology of rural areas which is based on a combination of Census statistics,
as follows:

10

Williams, N., Shucksmith, M., Edmond, H. and Gemmell, A., (1995) Scottish Rural Life Update: A Revised
Socio-Economic Profile of Rural Scotland, The Scottish Office: Edinburgh.

12

Table 2.4 Scottish Rural Life Indicators

Type

Definition

Areas11

Remote rural

remote districts
low population density
scattered settlement
high proportion of employment in the primary
sector
population is ageing and static,
relatively high level of deprivation and dependence
on benefits
less remote districts
fewer people employed in primary sector
more tourism employment
less deprivation and dependence on benefit
population has been increasing and projected to
increase through further in-migration
mixed urban / rural character
high population densities
high proportion of people in settlements
small proportion of primary sector employment
younger population
lack of remoteness
high levels of deprivation, dependence on benefits
and low car ownership
remoteness
greater proportion of the population living in
settlements
younger age structure
smaller proportion of in-migrants who are retired
relatively high primary sector employment
lower employment in tourism
influenced by Aberdeens labour and housing
markets
high population growth natural and in-migration
small proportion of in-migrants are retired
young population
high rates of car ownership
low levels of deprivation and dependence on
benefits
low rates of long term illness
commuterism

Berwickshire, Stewartry,
Wigtown, Skye and Lochalsh,
Sutherland, Argyll and Bute,
Western Isles

Less remote rural

Mixed urban /
rural

Remote
settlement
dominated

Prosperous / high
growth

Ettrick and Lauderdale,

Roxburgh, Tweeddale
Annandale and Eskdale, North
East Fife, Badenoch and
Strathspey, Nairn, Perth and
Kinross
Stirling, Nithsdale, Inverness,
Clydesdale, Cumnock and Doon
Valley, Kyle and Carrick, Angus

Banff and Buchan, Moray,

Caithness, Lochaber, Ross and
Cromary, Orkney, Shetland

Gordon, Kincardine and Deeside

2.26. This work helped to not only define population densities, but added further
dimensions to show differences in housing tenure, levels of car ownership, health,
employment and household composition.
The work showed that the population
characteristics of rural Scotland had not changed significantly between the 1981 and 1991
Census. Unlike other parts of Europe, a relatively large part of the rural population of
Scotland could be characterised as being remote (one third) with a further 11% being
very remote. The work showed that population growth was mainly being fuelled by inmigration to rural areas, whilst there were identified pockets of population decline, for
example in Shetland, which had been brought about by the lack of economic opportunities.
Both migration to and from rural areas was dominated by younger age groups (16-29 years),
11

These areas represent local authority areas prior to local government reorganisation, which was undertaken in
1996.

13

resulting in an overall balanced picture. More people in the older age groups were also
moving into rural areas (and not moving out), contributing to the overall trend of an ageing
rural population that was already well established.
2.27. In short, the approach has allowed for a finer grain of analysis to be undertaken which
not only allowed for characterisation of areas, but also took into account local circumstances
and place specific issues.
2.28. More recently, The Scottish Household Survey has included a classification index
which can be used to distinguish firstly between urban and rural areas, and then between the
different types of each. This was achieved through a number of stages:
1. consideration of settlement populations, with categorization into large urban areas (more
than 125,000 population), other urban areas (10,000 to 125,000 with a good range of
services), small towns (3,000 to 10,000 without a full range of services) and rural (less
than 3,000 inhabitants with lack of services).
2. next, accessibility was taken into account. This was achieved by considering drive time
from a settlement of 10,000 or more.
2.29. In combination, these considerations resulted in the definition of eight different types
of area:
Large urban areas;
Other urban areas;
Accessible small towns;
Remote small towns;
Very remote small towns;
Accessible rural;
Remote rural;
Very remote rural.
2.30. Research on the provision of rural services applied this approach recently12. This
allowed for drive time to a range of services to be identified, and for comparisons to be drawn
between urban and rural provisions.
CONCLUSION
2.31. The review set out above helps to identify some conceptual and methodological issues
in relation to the development of rural typologies.
2.32. Firstly, whilst different approaches have emerged which specifically relate to
particular policy sectors, there appears to be consensus that the most useful typologies are
likely to be those that combine a range of different criteria. The selection of criteria will
directly influence the conclusions, which are drawn from the analysis. Typologies and
12

Scottish Executive, (2002) Availability of Services in Rural Scotland, HMSO: Edinburgh.

14

indicators are highly selective windows on the world. They direct our attention to particular
phenomenon, and exclude others in the process. For that reason, discussions of typologies,
indicators, and units of analysis are far from benign they have theoretical and policy
implications that go well beyond the sometimes technical debates over definitions and
measures (Reimer, 2002). The types of criteria included in the studies reviewed (sometimes
in isolation, but also in partial combinations) included:
rural accessibility (calculated with and without taking into account all modes of transport);
population characteristics, including age, social and economic status and activities,
household composition, diversity, health;
economic sectoral analysis (i.e. levels of dependence on particular sources of employment
and investment) and the relationship between the area and the global economy;
agricultural change, land use, income, employment, and type;
levels of state investment in an area, ranging from European programme based assistance,
to federal land ownership and employment in the US;
housing conditions, including distribution of tenure within a given area and the quality and
affordability of housing;
environmental quality, such as landscape character, environmental capacity, and natural
heritage value;
criteria which reflect changes in an area over time (i.e. migration, industrial growth or
decline, or investment patterns) to provide a more analytical assessment of current and
future circumstances;
criteria which reflect a judgement or assessment of local conditions (e.g. stable or
fluctuating economy, pressurised areas etc.);
levels of development, the extent of urban sprawl and pressure for further development
within an area;
characteristics arising from the synergistic relationships between rural and urban areas,
including proximity and influences of major conurbations, links between rural areas and
market towns, and varying patterns of settlement (i.e. dispersal) in remote areas;
levels of diversification of activities in recent years;
geographic conditions, including topographic or proximity based restrictions, levels of
derelict land;
levels of service provision i.e. extent to which areas are served by shops, schools, health
services.
2.33. The research also shows that it is important that the typology does not become too
complex, as a result of the combination of many different criteria. This could mean that the
application of policies becomes fragmented with each area having a unique approach, thereby
negating the aim of typologies of defining shared issues and opportunities and consequently
providing more transparent and consistent policy approaches as appropriate.

15

2.34. The research also suggests that the criteria used should not just relate to outputs or
factual information, but should incorporate more qualitative assessments to allow for a
true picture to emerge. For example, the emphasis within the Canadian research on
institutional capacity allowed for the consequent typologies to consider current circumstances
and potential future directions. Such an approach would allow for perceptions of place and
community priorities (possibly as defined through community planning) to be built into the
analysis.
2.35. Whilst there appears to be an acceptance that typologies are particularly useful for
rural policy development, research also shows that it is inappropriate to view rural areas in
isolation from urban areas. As a result, more recently emerging studies have sought to
provide typologies which relate to an urban-rural continuum, as opposed to beginning and
ending at a city boundary: Environmental equilibrium and territorial efficiency depend on
the success of urban production and hence on the existence of agglomeration advantages,
but also on the ability of the rural habitat to produce sufficient income for the social and
demographic stabilisation of local communities. (Politecnico di Milano, 1999). Further
work shows that rural areas do not only relate to main cities, but that in more remote areas,
smaller regionally or locally important towns have a similar influence.
2.36. The examples of transport based typologies show that within a single sector there
may be variation in the criteria that could be applied, depending on the methods used for
the assessment. Thus, whilst some transport typologies focus on car based journey times,
others also take into account access to public transport. This latter approach in turn clearly
reflects transport policy aims of encouraging more sustainable modes of transport. It could
be concluded that the criteria should be defined on the basis of policy aspirations: e.g.
housing analysis taking into account the supply of affordable housing, or economic criteria
incorporating diversification activities.
2.37. All of the research has tended to conclude that in addition to the choice of criteria, the
scale at which the typology is developed and applied will influence the outcomes.
Furthermore, an ideal approach could be seen as combining national and local perspectives,
so that conclusions can relate to policy making at both levels. The international level, namely
European policy and analysis, is also an important dimension that should be taken into
account if a fully integrated response to rural need and opportunity is to be developed for
Scotland. Indeed, rural typologies could be viewed as the missing link between land use and
spatial planning in Scotland if an approach is defined which combines European level
analysis with bottom up development at the local scale. The national planning framework is
likely to be a key mechanism for achieving this in the future, and it could be informed by
both strategic and local typologies. This could help the land use planning system to act as an
interface, connecting development and investment strategies to produce a more complete
approach to rural and urban planning.
2.38. It appears that typologies should be sufficiently flexible to allow for review and
consideration of change over time. This is likely to be particularly important where more
qualitative criteria such as capacity or community aims, as opposed to geographic conditions,
which tend to remain the same, are to be incorporated.
2.39. Finally, whilst the extent of testing of typologies has varied to date, the Canadian
experience suggests that this should be recognised as an important and beneficial part of the
process. This in turn, however, implies that typologies require time and the inputs of

16

different stakeholders, if they are to be developed as policy tool that works over the long term
and at different levels.

17

CHAPTER 3. OVERVIEW OF THE QUESTIONNAIRE

FINDINGS
INTRODUCTION
3.1. In order to inform the research, a questionnaire was distributed to all structure and
local planning authorities in Scotland. This Section sets out the key findings from the
questionnaire responses.
3.2. The purpose of the questionnaire was to provide a general baseline of information,
identifying which planning authorities are using rural typologies and the ways in which they
are influencing decision-making at a practical level. Overall, a good response was received
with feedback covering the majority of the structure plan areas in Scotland. The
questionnaire findings helped to identify where comprehensive approaches to typology
development had been undertaken, the influences behind the typology approach and the
criteria used. The questionnaire was also used to examine future guidance needs in relation
to rural typology development and implementation.
KEY FINDINGS
3.3. The findings showed that out of the seventeen structure plan areas in Scotland, twelve
used a rural typology at either both a structure and local plan level, or at a local plan level
only. Only two structure plan areas that responded stated that they did not use a typology
either at the structure plan level or in any of their local plans (Fife and Shetland). As a
general rule where a typology approach was set out in the structure plan it was followed
through at a local plan level.
3.4. The questionnaire responses highlighted a number of trends in the types of criteria
used to define typologies. Both planning policy based and development control criteria were
identified in the responses, with rural typologies more frequently being used at the former
stage. In terms of policy based criteria, a large number of the typology approaches focused
on housing and settlement strategies where different levels of regulation are applied.
Environmental sensitivity/capacity and socio-demographic characteristics were also
frequently used criteria. The complexity of the typology approach also varied greatly
between planning authorities, with some approaches detailing a large number of distinct areas
(such as Argyll and Bute) and others having only a small number of categories, with an
overall average of four categories.
3.5. Interestingly, the predominantly urban structure and local planning areas felt that the
greenbelt was the only typology they were required to apply to rural areas. In other cases
where a typology approach was not used, respondents felt that their area was homogenous.
Examples of this included East Lothian, where development pressure extends throughout the
area, and Clackmannanshire, where it was felt that a rural typology approach would not be
relevant within such a small local authority area.
3.6. In terms of development control led criteria, the questionnaire showed that the
majority of typologies were being used to increase planning controls, more often than to
achieve positive promotion or targeting of development. Most notably and reflecting the
strong influence of housing and settlement strategies on the development of typologies, a

18

large number of respondents stated that their typology affects decisions on rural housing
developments.
3.7. Overall the majority of typologies were developed and applied at the outset of the plan
preparation process. The more specific methods used to define the typology criteria were
also identified by some respondents. Often a single data source was used to define the
typology (such as Housing Market Areas or rural primary school catchments). In other cases
independent research or the Report of Survey was used to inform the approach.
3.8. The extent to which the typologies covered either the whole of the plan area or just a
proportion was also examined, with responses showing that this varied greatly between
different planning authorities. The majority of typologies were applied to the whole plan area,
although there were area-specific approaches in some areas, where the typology approach is
only applicable in discrete parts of the plan areas.
3.9. The main reason cited by planning authorities for developing a typology approach was
predominantly related to issue based concerns, for example strong differences in economic,
environmental or social conditions across the area. An example of this is Orkney where there
was a need to create a distinct urban/rural separation. Other reasons included the
development of the typology as part of an overall professional planners approach to policy
making and also in response to development pressure. It is interesting to note that, for several
of the planning authorities, the typology had been developed over a number of years or may
have been based on an approach that emerged prior to the current plan. Less than half of the
responses cited guidance in NPPG15 as an influencing factor, although it should also be
noted that many of the typologies were under development before it was published.
3.10. The questionnaire also provided the opportunity for respondents to set out their
opinions regarding the strengths and weaknesses of a typology based approach. In several
cases the typology has not been in use for long enough to provide a useful analysis of its
effectiveness. In those cases where the typology approach had been tried and tested it was
felt that overall the approach can be a useful means of reflecting local circumstances but that
it can also be a complex tool which is difficult to use in practice. The positive potential for
typologies to integrate rural development with wider issues such as community planning was
also recognised by one planning authority. There were several concerns about the resourcing
of this approach, particularly in terms of the amount of work required for survey and analysis
to ensure its effectiveness. It was also highlighted that there are always exceptions to the rule
in that policies cannot anticipate or reflect all circumstances and that discretion is required
when interpreting typologies and applying them in practice.
3.11. Despite the acknowledgement of limitations, all of the questionnaire respondents
expected to use rural typologies into the future, with recognition that it should evolve over
time in line with changing circumstances. The overall value of typologies was recognised by
many of the respondents, although they also often felt that future use will depend on whether
they continue to fulfil their purpose and the degree to which they can integrate with other
policy considerations such as community planning.
3.12. Respondents were asked to identify the need for future guidance on rural typologies.
The greatest support was expressed for guidance that includes examples of the issues that
rural typologies can help to address, advice on the way in which policies can be designed to
respond to typologies and examples of good practice from other areas. When reflecting on
the use of typologies in general, many respondents felt that a Scotland wide approach would

19

not be appropriate due to the need for a typology approach that provides sufficient flexibility
to adapt to local circumstances.
CONCLUSION
3.13. The questionnaire responses have shown that overall:
There is significant usage of rural typologies in both the structure and local plan
frameworks of many planning authorities in Scotland;
As a general rule the structure plan provides an overall broad typology framework which
is often complemented by implementation and tailoring at the local plan level;
The criteria used to formulate the rural typologies are predominantly focused on housing
and settlement strategies, with environmental capacity/sensitivity and socio-demographic
characteristics also being prominent;
Most typology formulation appears to take place at the plan preparation and policy
development stage;
The scale of typologies varies greatly between areas, some with a very detailed approach
and others being more broad brushed;
There has been little direct application of the recommendations set out in NPPG15,
although this can partly be attributed to the timing of many of the plans;
The benefits of typologies in providing an area specific focus are recognised, but there are
also concerns about complexity of using a typology based approach and the resources
required for its successful development;
There is general support for more guidance on rural typologies and a need to share good
practice.

20

CHAPTER 4. REVIEW OF DEVELOPMENT PLANS

4.1. This Chapter of the Report sets out the findings of a review of development plans,
which was undertaken following the analysis of questionnaire responses. The sample of
development plans aimed to ensure that a good cross section of current practice was included
in the review. The aim of this part of the work was to identify:
text and policy relating directly to the typology itself, and the criteria used;
the extent to which the typology has been integrated across policy sectors (i.e. is it
monosectoral or can it be interpreted to relate to multiple policy aims?);
the spatial characteristics of the approach in each area is it a plan wide approach or does
it relate to particular areas of pressure or need;
the relationship between different tiers of policy making including structure and local plan
linkages.
4.2.

Table 4.1 sets out the plans that were included in the review (see overleaf);

4.3.
The questionnaire responses provided a focus for the more detailed analysis of the
plans that added a further dimension to the analysis. We have provided a description of each
plan and its content and considered the wording in each case. For the analysis we considered;
the data which have been used to inform the development of typology;
the way in which the policy had developed over time, looking at the earliest plan in each
group first, and tracing through the influence of typologies to subsequent policy;
the extent to which the typology is used as background or advisory information, or has
been followed through to develop actual policies;
we considered the ways in which zones have been defined, including the identification of
boundaries where physical zones have been used, or criteria based approaches;
the spatial extent of the typologies (i.e. whether or not they are plan wide or applied to a
focused area);
levels of integration and inclusion in overall strategies or sectorally focused chapters.
4.4.
Examples of innovation were drawn from the plans where they occurred, in order to
illustrate the ways in which practice is developing.

21

Table 4.1 Development plans included in the review

Plans

Issues

Dundee and Angus Structure Plan (2002)

use of rural settlement units established as a long term approach

(originating in the Tayside Structure Plan)
aims to reduce depopulation in rural areas
relates to housing market areas
bottom up approach
multi-criteria
based on capacity to absorb development
economic and housing based approach
structure plan criteria followed through to local plan level
2 area types
aims to encourage business development in more remote rural
areas
relaxation of controls has led to excessive pressure
structure plan requires the identification on rural investment
areas
numerous development control examples
greenbelt as a factor within typologies around urban areas
multiple criteria
implicit use to inform policy
long established
local interpretation different approaches and interpretation in
various local plan areas
local response to landscape and economic needs
need for diversification of housing tenure
lowland crofting case studies policy under review
contrast with homogeneous commuter area

Angus Local Plan, (Finalised 2002)

(replacing 2000 approved)
Argyll and Bute Structure Plan, 2002
Argyll and Bute Local Plan, consultative
draft, 2004 target (adoption target 2005)
Ayrshire Structure Plan (2000)
East Ayrshire Local Plan (2003)
South Ayrshire Local Plan (Finalised,
2002)
Glasgow and Clyde Valley Structure Plan
(2000)
Upper Clydesdale Local Plan (1996)
Lower Clydesdale Local Plan (2000)
Highland Structure Plan (2001)
Ross and Cromarty East Local Plan,
(Consultative Draft 2002)

Lothians Structure Plan (Finalised, 2003)

Calders Area Local Plan (1995)
Bathgate Local Plan (1998)
East Lothian Local Plan (2000)
Orkney Structure Plan (2002)
Orkney Local Plan (Finalised Draft,
2002)
Perth and Kinross Structure Plan (2003)
Highland Area Local Plan (2000)

Western Isles Structure Plan (1988 and

2003) (latter with Ministers for approval)
Broadbay Local Plan (2003)

based on urban / rural continuum

pressure within remote area
landscape protection from intrusion by development
reflected in development control case studies

typology influenced development strategy

consideration of options for development
multi-criteria including landscape character assessment and
pressure for development
aim of encouraging rural development
no pressure for development
stemming depopulation from remote rural area

ANGUS
4.5.
The Dundee and Angus Structure Plan includes the city of Dundee. As the Dundee
city boundary is closely drawn around the built up area and rural typologies are therefore less
relevant to this area, it has not been included in our review. The following plans were
therefore included in the analysis of this area:
Dundee and Angus Structure Plan (2002);
Angus Local Plan (2000).

22

4.6.
The approach to the use of a rural typology in the Dundee and Angus Structure Plan is
introduced through the development strategy. The Plan recognises the diversity of
communities within a relatively compact area as representing both a strength and a challenge
for the area. It also recognises the need to address rural disadvantage to help to address
ongoing issues of poverty and inequality. The Development Strategy sets out key priorities
for Dundee; Angus Towns and Villages; and the rural areas. Within the rural areas the
priorities include protecting the diversity and quality of the environment whilst encouraging
local development that supports the population and services in rural communities. The
chapter on employment identifies that there is a need to encourage economic activity, support
employment in the countryside, recognising the continuing fragility of the rural economy and
related jobs. The typological approach is more formally discussed in relation to policies on
Housing and Communities. The Plan adopts a two-tier typology approach with differing
policy approaches to housing in the rural area. Two housing categories are identified:

Category 1 areas, which are generally non remote, with stable or increasing populations,
or where there are no services or facilities to support. In these areas new housing
development outwith settlements is restricted.

Category 2 areas, which are primarily remote rural areas where limited new housing
development outwith settlements may be appropriate in order to stem rural depopulation
and/or support existing services.

4.7.
The Angus Local Plan (2000) sets out in the Strategy three broad area types: the
Glens, Strathmore and the Coastal Area. Within each of these areas, different development
aims are provided to reflect their distinctive needs and opportunities. At the start of each
chapter the areas to which the policies will apply are identified, including Angus wide, Town
Only and Village and Countryside. The plan notes that there are variations within the rural
area of Angus (para 5.19), and that the Rural Settlement Unit (RSU) approach, as proposed
by the Structure Plan, is used for small area analysis and to express the policy approach to
housing in the countryside. The RSUs are illustrated on the proposals map of the Plan. The
plan states that new housing development outwith development boundaries will be
considered in line with each of the RSUs. In addition there are a number of additional criteria
with which housing in the countryside should comply. This includes: avoiding ribbon
development, plot size, protecting environmental designations, servicing, and safe access
from the highway.
4.8.
Following on from the preceding Local Plan, the Consultative Draft of the
replacement Angus Local Plan (2003) makes similar references to the differentiation between
the Glens, Strathmore and the Coast. The order of the chapters has been altered to make the
Housing Chapter the first within Part 2, Building Sustainable Communities. As in the
current plan, distinction is made between the different rural areas and the plan identifies the
five separate housing market areas.
4.9.
The typology was originally developed with the aim of stemming rural depopulation
and loss of services, whilst also taking demographic, location and social characteristics into
account. The approach allowed recognition of areas of different development pressure within
the rural areas of Angus. The approach was carried through to shape policy in the Angus
Rural Areas Local Plan in 1989. This policy has since been refined over time to that
currently set out in the Dundee and Angus Structure Plan and the Angus Local Plan.
4.10. In the Dundee and Angus Structure Plan, the criteria used to differentiate the areas
within the typology include distance from the nearest large settlement, levels of demand for

23

residential development, urban and rural interrelationships and social/demographic

characteristics. In addition, supporting text in the Structure Plan identifies the need to
recognise variations in landscape, land use, population characteristics, and availability /
access to services and facilities across rural Angus. These factors are assessed by Rural
Settlement Unit (RSU) policy. The plan aims to achieve an appropriate balance between
allowing for housing development in the countryside that helps to maintain the viability of
fragile communities, whilst respecting the environment. Census data has been monitored to
assess the effectiveness of the policy.
4.11. The use of the typology approach is expected to continue into the future, subject to
adjustments arising from development plan reviews.
4.12. This typology approach has emerged in response to the influences within a specific
part of the plan area. Although the development of the typology approach is based upon a
range of factors, the plan applied the typology more specifically to housing as a result of local
circumstances. Within NPPG15 the typology approach reflected the need to support
development in relation to social, economic and environmental objectives within distinctive
areas. Although the plan could be considered to not have a multisectoral typology, it is likely
that this focus has occurred in response to the particular issues associated with housing in
rural areas. The approach could be extended to explicitly address both environmental and
economic policies.
4.13. The typology approach is based upon two categories of differential housing pressure
within the rural area. These areas are broadly similar to commuter and intermediate areas
suggested by NPPG15, but also take on board a more localised perspective by allowing for
levels of remoteness to be considered and addressed as appropriate.
4.14. The evidence for the distinction between the two different categories is set out in the
supporting text. The Housing Market Areas, as defined in the Structure Plan Key Diagram,
do not differentiate between Category 1 and Category 2 areas, reflecting the criteria based
approach, as opposed to more geographic emphasis. However, the RSUs are broadly defined
in a policy specific map within the plan. This approach is flexible enough to be responsive to
changing circumstances and avoids relying on too heavily an specific boundary drawn on a
map.
4.15. The criteria used to formulate the typology reflect a number of those outlined in
NPPG15 and include distance from nearest large settlement, level of demand for residential
development and urban/rural interrelationships, and social/demographic characteristics.
These criteria also underpin the approach suggested by NPPG15, although further factors
such as employment could also be incorporated. The implementation of the typology is
considered by the plan with Housing Policy 5: Countryside Housing, setting out criteria for
permitting housing development in the countryside which includes issues such as
infrastructure provision and landscape capacity.

24

Key conclusions from Angus

The approach undertaken in the Dundee and Angus Structure Plan area reflects a
single topic, underpinned by multiple criteria, and implemented through a two tier
typology.

The typology represents a long standing approach, which has developed over time to
address the key issues affecting rural areas in Angus.

The Structure Plan recognises the influence of a range of social, economic and
housing issues across the rural plan area, although the typology approach focuses
more specifically on the locally dominant issues of housing and communities.

The criteria based approach allows for a degree of flexibility in the interpretation of
the policy and helps to avoid possible debates on boundaries which might occur if the
approach was mapped at a more detailed level.

ARGYLL AND BUTE

4.16. The Argyll and Bute approach to typologies has been developed in the Structure Plan
and in parallel in the new Local Plan. The approved Structure Plan has identified five
zones, which have been defined by their general development capacity as opposed to the
area types. This approach has also been adopted in the development of the new Local Plan.
The five zones defined in the Plans are:
Countryside around settlements;
Greenbelt;
Very sensitive countryside;
Sensitive countryside; and
Rural opportunity areas.
4.17. These typologies have formed the basis for a capacity based zonal approach in the
area. It is more explicit than the typology approach identified in NPPG15, aiming to provide
a simple planning framework that sets out clear guidance on the levels of development
appropriate to each area. The typology framework is designed to promote development in
areas of social and economic need, as opposed to simply discouraging development in
sensitive areas. This approach is designed to provide a more structured framework for
planning decision making, taking into account the relationships between urban and rural
areas, agricultural use, and the ability of rural areas to absorb developments.
4.18. The typology framework for Argyll and Bute also forms the core framework for
development control and settlement planning in the area. It has evolved through a unified
development plan approach, which aims to achieve a set of policies that reflect and respond
to realities on the ground rather than overarching policies for which one size fits all. As the
questionnaire response states: The policies being worked up in the local plan are supportive
of the Structure Plan zonal arrangement. These policies may be thought of as setting an

25

initial green or red light for development proposals. When green, it will only turn to red
if the details of the proposals are found to be fundamentally flawed in terms of
environmental, servicing or access impact. When red, it will only turn green if there is an
exceptional case justifying the development and if the proposal is otherwise acceptable in
terms of environmental servicing and access impact. In appropriate cases, sequential tests
can be built into the exceptional case criteria.
4.19. There was a strong basis from which the development of the zonal typology approach
emerged in Argyll and Bute. The guidance contained in NPPG15 was an important factor
although the actual approach varies considerably. There is a wide differentiation in the
economic, social and environmental conditions across Argyll and Bute which makes a zonal
approach to settlement and development control a practical and desirable option. The
approach is also regarded as an improvement on the previous planning regime (based on the
Strathclyde Structure Plan) by planners in Argyll and Bute because, as noted in the
questionnaire response, it has helped to reinforce the growth agenda, reinforce the
sustainable development process, engage with partners and communities more effectively,
and counteract negative views of development control which have been building up
4.20. As part of the capacity based methodology, a process of area capacity evaluation
(ACE) has been introduced through the Structure Plan. The ACE will be used when
considering particular categories of development in rural opportunity areas and sensitive
countryside. At present the process involves development control and development plan
officers working together, and it is hoped that this will be extended to also involve members,
developers and communities.
4.21. The methodology for defining the zones within Argyll and Bute has been outlined in
the Structure Plan and deployed at a very local level. The typologies cover three categories
of settlement and the five categories of countryside outlined above. The categories have been
mapped at 1:5000 scale for all of Argyll and Bute. Although this is a labour intensive
exercise it is hoped that Once mapped, it becomes a dynamic framework which can evolve
within the timescale of local plan reviews. The approach is explored further in Chapter 6 of
this report.
4.22. The following paragraphs outline the criteria used for the identification of each of the
five typologies used in the Argyll and Bute Structure and Local plans:
Countryside around settlements: the peripheral countryside has been defined to frame a
10-20 year perspective for the settlement plan areas (these areas will be mapped in the
settlement plans). The extent of these has been delineated to include only the peripheral
areas under most pressure from development. There is a general presumption in favour of
developments which fit the criteria outlined in the structure plan.
Greenbelt: the area defined as greenbelt is noted as an exception to the countryside
around settlements zone. There is a general presumption against development in the
green belt area because it is regarded as a more sensitive zone.
Very sensitive countryside: these are generally very remote areas that are devoid of
development and are therefore vulnerable to development impacts (for example high areas
of hills and mountains along with isolated coast). There is again a general presumption
against development in these areas. However, it is noted that some developments, such as
wind farms and telecommunications, may have a strong locational need for being in these
areas.

26

 Rural opportunity areas: these are areas with an identified general capacity to absorb
small scale development in the open countryside. These areas have been identified
through area wide landscape character appraisal, although this has been refined to provide
more localised areas of common landscape character.
Sensitive areas: the sensitive areas have been identified as those residual or transition
areas between the very sensitive areas and the rural opportunity areas. However, the
sensitivity of these areas varies greatly across Argyll and Bute. Like very sensitive areas,
they are often unable to absorb any extensive new development in the countryside but
generally do have the capacity to absorb small scale infill and redevelopment.
4.23. It is also important to recognise that these zones have been identified with social and
economic influences in mind. This should help to ensure that the typologies accurately
reflect the actual conditions on the ground around Argyll and Bute.
Key conclusions from Argyll and Bute

The approach is a capacity based, multi-criteria assessment incorporating outcomes

and also judgements on capacity of development. The typology also considers rural
and settlement areas together;

The approach has been led by the structure plan, and is in the process of being
followed through to local plan and development control;

The approach aims to facilitate community involvement as an integral part of the

process, ensuring that they form a transparent process.

The typology has emerged in response to the overall aim of ensuring a positive
approach to rural planning, and encouraging new ways of thinking on the value and
needs of rural communities and environments.

AYRSHIRE
4.24.

The following Ayrshire development plans were considered for analysis:

Ayrshire Joint Structure Plan (1999);

East Ayrshire Local Plan (2003);
Finalised South Ayrshire Local Plan (2002).
4.25. The Ayrshire Joint Structure Plan notes that typologies are essential part of ensuring
that policies are responsive to local rural needs. The approach is outlined explicitly in several
policies within the structure plan. These policies provide a strategic perspective, as well as
advice on how strategic aims can be taken forward at a more local level.
4.26. The strategic level typology, as set out in Policy ADS6 of the Structure Plan, requires
that the three Ayrshire Councils identify and promote three broad policy areas for the
countryside: Green Belt at Ayr/Prestwick and Troon, a Rural Protection Area and a Rural
Diversification Area. This characterisation is reflected in policies, which set out the types of
development that are acceptable and which reflect development pressure in each area. As
might be expected, within the greenbelt area where development pressures are high, policies

27

are mostly restrictive. The Rural Protection Area also has restrictions on development, but
local economic and social needs are also taken into account. Within the Rural Diversification
Area, the policy states that development should be encouraged particularly within settlements
to allow for rural diversification and economic activities.
4.27. The typology itself is relatively prescriptive and relates to the area as a whole. It
emphasises the importance of ensuring that Local Plans also reflect this approach. The
typology uses a number of criteria to differentiate between the areas, including distance from
nearest large settlement, levels of demand for residential development, environmental
sensitivity, economic need, accessibility by car, urban/rural interrelationships, sociodemographic characteristics and landscape types.
4.28. The typology forms a key aspect of the plan, being included within strategic
development guidelines and therefore having cross sectoral relevance. This section explains
that policies are underpinned by the settlement strategy which essentially indicates a
presumption in favour of developments within settlement boundaries, whilst outwith these
boundaries the policies relating to typological areas are applicable. The typology itself was
developed to determine the settlement strategy. However, the typology terms Rural
Protection Area and Rural Diversification Area are not mentioned in any of the other more
sector specific chapters at this level, with Local Plans instead taking forward sectoral
interpretations.
4.29. This Structure Plan typological framework has been followed through into both the
East Ayrshire Local Plan (2003) and the Finalised South Ayrshire Local Plan (2002).
4.30. The East Ayrshire Local Plan acknowledges the strategic development strategy set out
within the Joint Structure Plan and the need to identify and promote Rural Protection Areas
and Rural Diversification Areas as a basis for dealing with rural planning related matters.
Policies SD3 and SD4 outline the criteria used to assess development in the rural protection
and rural diversification areas respectively. This is then followed through to influence more
specific policy sectors including industry, minerals and housing. This provides a high level
of integration with references to the typology being made within both the policy and
supporting text of each of these chapters. The criteria used to differentiate between the
typology areas include demand for residential development, environmental
sensitivity/capacity, economic need, urban rural relationships and landscape types.
4.31. The South Ayrshire Local Plan sets out the settlement strategy in Chapter 1, stating
that it is the foundation upon which all the subsequent policies in the Plan are built.
Explicit acknowledgement of the framework provided by the Joint Structure Plan is also
provided within the text. Along with an explanation of the settlement strategy within the text,
this Chapter also sets out policies that relate to development in the Green Belt, the Rural
Protection Area and the Rural Diversification Area. As in East Ayrshire, these general aims
are then carried through into specific policies on residential development, minerals and
economic development throughout the plan.
4.32. The typology approach was introduced in the 1999 Structure Plan following
recommendations in NPPG 15 and research undertaken by the previous Strathclyde Regional
Council. It is considered that the approach has been useful in directing development to
certain areas, protecting others and acting as a focused incentive to economic development.
It is expected that the use of the typology will continue into the forthcoming review of the
Structure Plan (commencing October 2003) although it may be slightly revised.
Questionnaire responses indicated that the typology approach is very successful and provides

28

a clear development framework leading to clear policy which can be applied in relation to all
planning applications in rural areas. Concerns about this holistic approach reflect the way in
which boundaries are often under question and there are no transitional policy areas for
these blurred zones where delineation is difficult.
4.33. The Ayrshire methodology employs a consistent approach that has been followed
through from the Joint Structure Plan into the workings of the Local Plans. The typology is
relatively simple with only three categories, one of which (the Green Belt) only being
relevant to South Ayrshire. The approach illustrates the possibility of integrating a consistent
typology approach to different levels of plan making. It also provides an example of how a
typology can be applied across a number of different sectors such as housing, minerals and
economic development. It provides a balanced approach to development, allowing both a
positive and regulative emphases to be applied in accordance with different rural
circumstances. The typology is simple in nature and therefore, to an extent, corresponds
relatively closely with the approach recommended in NPPG15.
Key conclusions from Ayrshire

The Ayrshire case illustrates the ways in which structure and local plan approaches
can be combined to produce a strong policy framework, which is recognisable and
easily understood as a result of its relative simplicity.

At the local plan level a multisectoral approach has developed, which takes into
account spatial characteristics and links them with development sector approaches.

The typology in this area plays both a regulatory and more positive planning role.

The approach broadly reflects the approach which was recommended in NPPG15.

GLASGOW AND CLYDE VALLEY

4.34. The Lower Clydesdale Local Plan (2000) has been developed from within the
framework established by the Glasgow and Clyde Valley Structure Plan (2002). The
Structure Plan has used a relatively spatially focused approach compared to many other plans.
This has set the focus for the development of the Lower Clydesdale Local Plan. The Upper
Clydesdale Local Plan (1996) also contains some spatial elements in relation to development
in the countryside.
4.35. The spatial approach adopted in the Structure Plan applies to both rural and urban
areas. Although the plan does not specifically use the term typology, the use of the
methodology is embedded into the document. The Plan defines a Corridor of Growth
which comprises a mainly urban zone focused on the main east west transport corridor
through the area. Rural investment areas have been identified within the plan. Rural
Investment Areas are identified as important areas of focus for the structure plan area. It is
noted that rural areas can often have high levels of unemployment due to the decline of
traditional rural industries and that many of these areas require support and investment to
ensure that they become sustainable communities. However, the plan also recognises that
there is a need to control the development of housing in locations which encourage longer
distance commuting. The Structure Plan does not define these areas spatially but it provides
the framework for the Ayrshire Local Plans to develop the typology approach at the local

29

level. The plan notes that Most of these matters are dealt with through Local Plan policies.
Similarly the Structure Plan also provides the foundation for the identification of Urban
Expansion Areas in local plans within the Glasgow and Clyde Valley area (Schedule 1c).
The areas defined in the strategy have been identified for development of housing and
industry in the areas around settlements.
4.36. The Structure Plan also uses typologies to define the greenbelt within the area. The
differentiation between different types of greenbelt is made in four categories: Inner
Greenbelt including sensitive wedges; Greenbelt Structural Corridors separating major
parts of the conurbation; Outer Greenbelt and Wider Countryside. This differentiation
between types of greenbelt has generated different policy solutions for different areas. The
Inner Greenbelt area has been defined in recognition of the important relationship between
the rural/urban fringes. There is a general presumption against development in the Greenbelt
but it is recognised that there is a need to give priority to urban renewal. Therefore, in
some areas, it may be desirable to release greenbelt land for development. There is a strong
presumption against development in the Greenbelt Structural Corridors which have been
specifically identified as a greenbelt category in order to prevent neighbouring towns from
merging and controlling sporadic and isolated development. The criteria for identifying
these areas are not fully discussed within the plan itself, possibly as it is anticipated that this
should be undertaken at a more local level, but the typological differentiation is carried
throughout the development strategy.
4.37. The Lower Clydesdale Local Plan (2000) within South Lanarkshire was prepared in
parallel with the Structure Plan, and affords the plan area as a whole the same level of
protection from development. The plan contains two policies that have used rural typologies
as their basis, relating to the greenbelt and development in the rural area. This relates closely
to the approach taken in the Structure Plan.
4.38. South Lanarkshire is located within the area defined as Wider Countryside in the
Glasgow and Clyde Valley Structure Plan. Within this context South Lanarkshire Council
has identified a small area of greenbelt as is suggested in the Structure Plan: in South
Lanarkshire Local Plans will therefore continue to review the greenbelt boundary within the
framework of the Structure Plan. In line with national and Structure Plan policy there is a
general presumption against development in the greenbelt. This zone was defined,
particularly in response to development pressures in the area. The Rural Area typology
covers the rest of the rural area covered by the Lower Clydesdale Local Plan. In this area
there is a general presumption in favour of development of an appropriate form. This area
also incorporates some of the Rural Investment Areas defined in the Structure Plan. The plan
states that In Douglas Valley/South Clydesdale there is particular need to support the
provision of local facilities to address local housing and employment needs. However, the
Rural Investment Areas have not been identified in the current Local Plan. They will be
identified during the preparation of the South Lanarkshire Local Plan, which is due to
commence in early 2004.
4.39. The Upper Clydesdale Local Plan (1996) predates both the Structure Plan and
NPPG15. However, it contains a typology approach to rural planning based predominantly
on the development pressures created by housing. The plan states that The major
development influence over the Plan period is likely to be housing. The Local Plan
recognises a distinction between areas where accessibility to Lanark/Glasgow and to
Edinburgh creates greater pressure for housing land and the more remote areas where the
housing market is more directly related to local needs. As a result, it identifies Areas

30

Around Towns and Remoter Rural Areas with varying levels of control and different criteria
for determining proposals.
4.40. The Areas Around Towns typology is comparable to the greenbelt zone identified in
the more recent Lower Clydesdale Local Plan. In this zone there is a general presumption
against development. Outwith this area, the Remoter Rural Area is comparable to the Rural
Area typology defined above. The differentiation in policy is similar to that used in the
Upper Clydesdale Local Plan demonstrating that there has been an evolutionary approach to
the development of a rural typology approach in the South Lanarkshire area.
4.41. This approach has been used in the plan area as a whole except in Upper Clydesdale
where, according to the questionnaire response, an additional area of tighter control was
identified in the Biggar/Dolphinton area in response to development pressure from the
Edinburgh/Lothians housing market area. The questionnaire response from South
Lanarkshire Council also identifies three main criteria that were used in the development of
these policies. These were:
levels of demand for residential development;
accessibility by car; and
accessibility by public transport.
4.42. The questionnaire states that these criteria were defined at structure plan level and the
local authority did not use any other approaches for defining them. The questionnaire also
notes that the typology approach to planning decisions is useful, A hierarchy of rural areas
is essential in an extensive authority such as South Lanarkshire with a wide range of rural
conditions and levels of development pressure. The questionnaire also notes that a simple
approach which recognises existing designations such as greenbelts is considered most
appropriate.
4.43. South Lanarkshire Council intends to review its approach to rural planning as a whole
as the area wide Local Plan is prepared during 2004. The approach will be based on the need
to respond to excessive development pressure in more remote areas that may have arisen
from the existing relaxation of control, and the requirement within the Structure Plan to
identify Rural Investment Areas at the local level. As a result, it is too early to fully define
the ways in which the strategic aims have been followed through to the local level.
4.44. The Glasgow and Clyde Valley Structure Plan has taken a spatial approach to many of
its policies and proposals both in rural and urban areas. The approach to Rural Typologies
does not mirror the methodology outlined in NPPG15, although this may be a reflection of
the strong urban character of the area and as most areas within the Structure Plan zone are
characterised as intermediate or remote. A finer grain of analysis has therefore emerged at
two levels strategically in the Structure Plan, and more spatially defined in the Local Plans.

31

Key conclusions from Glasgow and Clyde Valley

The dominance of the Greater Glasgow conurbation in close proximity to the area
has led to a rural typology related to greenbelt analysis;

The strategic approach in the Structure Plan has been more specifically interpreted in
emerging local plan policy.

The questionnaire response from South Lanarkshire suggested that there may be
issues about a more relaxed approach to rural development acting as a catalyst for
increased market pressure, and consequently a need for ongoing monitoring and
review of the typology approach.
HIGHLAND
4.45. Highland Council has adopted a typological approach that includes both rural and
urban areas. Both the Highland Structure Plan (adopted March 2001) and the Ross and
Cromarty East Local Plan (consultative draft June 2002) use typologies to outline the spatial
elements of the strategy. However, the typologies used in the Structure Plan and Local Plan
differ to some extent.
4.46. The Structure Plan outlines five typologies that provide the spatial elements of the
strategy. These spatial elements set the context for the rest of the document, highlighting the
key differentiations between areas (both urban and rural), highlighting the areas in which
development will be encouraged and which areas are potentially more sensitive to
developments. Of the five typologies identified, three are rural based. These are:

The Inner Moray Firth: within this zone, decentralisation from Inverness is
encouraged, particularly to the smaller towns in the area.
This policy of
decentralisation is designed to reduce the development pressures on Inverness, and to
help encourage development in the surrounding sub-regional centres. The zone
identified within the Plan incorporates both rural and urban areas.

The Rural Development Area: is the area within the Highland region which has the
greatest levels of economic and social need for jobs, homes and services. In particular
these are the areas outwith commuting distance of the main centres of employment, and
those adjudged to be most fragile in terms of their needs. These areas offer the most
scope for further development of environmental resources, use of new technologies for
remote working, and to make better use of natural and cultural heritage.

Fragile Areas: are the areas of highest natural and cultural heritage in the north and
west of the Highland region (along with the Cairngorms) which already provide
significant economic and social benefits to local communities. These areas require
special management to ensure they continue to reinforce the unique identity of the
Highlands.

4.47. It is important to recognise that these rural typologies are closely associated with the
urban typologies outlined in the Plan. These were the regional centres, sub-regional centres
and local centres (settlements). One of the key aspects of the development of the typology
approach adopted in Highland was the interconnection between the rural areas and the service
centres in the regional, sub-regional and local centres.

32

4.48. The criteria for the typologies in both the structure plan and Ross and Cromarty East
Local Plan were the same. These included:

Defining levels of demand for residential development;

The environmental sensitivity or capacity of an area;

Economic need and levels of unemployment;

Accessibility by car (travel times);

Urban rural interrelationships;

Social and demographic characteristics; and

Landscape types.

4.49. According to the questionnaire response, the approach in Highland has been
developed over a number of years and defines different zones within each plan within
which different policy approaches are appropriate. The Ross and Cromarty East Local Plan
also has a spatial element, identifying four area types: the Development Corridor; the
Rural Development Area; the Hinterland; and the Natural Heritage Area. Policies are
proposed in relation to each of these areas.
4.50. Although the Ross and Cromarty East area is located within the Rural Development
Area and Inner Moray Firth zones as identified in the Highland Structure Plan, the
typological categories used in the local plan are much more localised. The zones identified as
Rural Development Areas are significantly smaller than those identified in the structure plan.
The Hinterland and Development Corridor areas have a general fit with the objectives
outlined for the Inner Moray Firth Area. The Natural Heritage Area (roughly comparable
with the Fragile Areas identified in the Structure Plan) covers a large area of land not
designated as fragile within the structure plan. The typologies outlined in the plan are:

The Rural Development Area which incorporates a large number of settlements and
individual homes. Many of these communities have been identified as having a lack of
affordable housing, less than adequate access to services and a low level of public
utilities. The area identified requires a programme of investment and community
initiatives to retain population, reduce seasonality of employment, deliver services and
promote first time infrastructure schemes. This has led to a permissive housing policy
for the area, which is designed to help young people to stay in the area and attract
newcomers.

The Development Corridor which is the main area of economic activity within the
Ross and Cromarty East Local Plan area. It comprises a corridor within the Hinterland
Area incorporating the main settlements from the Muir of Ord, along the Cromarty
Firth to Tain. Within the settlements in this corridor, general support is given to
developments that will reduce the dependence on Inverness as the main service centre
for the area. The importance of maintaining green wedges between the communities
within the Development Corridor, in order to avoid coalescence and to protect the
opportunities for recreation, farming and forestry, is highlighted as a key priority.

The Hinterland extending around 25 to 30km around Inverness, incorporating the

main settlements in the Ross and Cromarty East Local Plan area. There are significant

33

development pressures in the area due to high levels of commuting and the impacts of
many single housing developments in countryside in the recent past. The Plan states
that the settlements in the area are well placed to be able to meet the demand for
affordable housing in the area. Outside the settlements, development is restricted to
conversions and proposals which are considered to be necessary for land management
reasons.

The Natural Heritage Area incorporating the large areas of uplands in the Ross and
Cromarty East Local Plan Area. There is a very low population density in the area and
a very limited capacity for development. The main policy objective for the area is to
value the natural and semi-natural features, encourage measures which improve or reinstate bio-diversity and key habitats, and to presume against developments which
would detract from the intrinsic core qualities.

4.51. The questionnaire response from Highland Council stated that the typology approach
was developed because It was recognised that different policy approaches may be necessary
in different parts of the plan area in Inverness, for example, the city itself is growing
rapidly and the hinterland is experiencing considerable development pressures which require
to be appropriately controlled and directed whilst in the more rural area there are small and
fragile communities which require to be supported. The typology approach in Highland
incorporates both rural and urban areas, considering all of the components of the area in
combination, rather than as isolated or completely distinct areas. Although both the plans
outline their typology approach early in the documents, there is very little explicit reference
to the spatial elements of the strategies in the rest of the document. According to the
questionnaire response the only specific reference outwith the spatial elements section of
the Structure Plan is provided in the Housing Policy (H3) Housing in the Countryside for
which a different policy approach is applied within the Hinterland of the main town.
4.52. The use of typologies within both plans is implicit. Although they provide a
framework for both rural and urban areas, there are no explicit references throughout the rest
of the text. The questionnaire response states that the development of the typologies
approach has occurred over a number of years, but that its implementation as a policy tool
has occurred relatively recently with the adoption of the Highland Structure Plan in 2001 and
the Ross and Cromarty East Local Plan in 2002.
4.53. The typology approach adopted in both Plans reflects the need to consider the
interconnections between the urban and rural environments, rather than as separate entities.
They do this by outlining a typology which reflects the distinctiveness of each settlement and
their place within the surrounding countryside.
4.54. The approach to typologies in the Highland area has helped to spatially define
different areas within the region. The spatial element has been used to identify different
areas with different levels of capacity for development. The typology approach includes both
rural and urban areas, highlighting the important interconnections and relationships between
the two. Although the process of developing typologies has evolved over a number of years,
the effectiveness of the approach is not yet known because of the short time period during
which they have been in place. However, the Highland Council are of the view that a one
size fits all approach to typologies is not a practical option, particularly in relation to an area
as extensive and diverse as the Highlands.

34

Key conclusions from Highland

A broad typology is identified in Structure Plan and refined at a more local level
within the Local Plan. The approach is considered to be an essential means of
reflecting local diversity.

The criteria used to develop the typologies are a combination of distance from
services (and accessibility), demand for residential development, environmental
capacity and social characteristics;

The criteria have been defined and refined over a number of years, but have been
included as policy text relatively recently;

It may be too early to test the effectiveness of the typology on the ground, given its
relatively recent inclusion in plans for the area.

LOTHIAN
4.55. The overall planning framework for the Lothians area comes from the Edinburgh and
the Lothians Structure Plan (Finalised Plan), which was produced in March 2003. However
the previous Lothian Structure Plan 1994 (approved 1997) remains partly relevant to this
analysis. The Calders (1995) and Bathgate (1998) Local Plans and the East Lothian Local
Plan (2001) were also included in the review.
4.56. The Bathgate and Calders Local Plans provide a single policy-specific typology, and
this approach was also reflected in the Lothian Structure Plan (1994). The Structure Plan
contains a section on agricultural diversification that recognises that a better balance of
economic development could be achieved by introducing alternative development into the
countryside. Within this part of the plan support is given for the concept of Lowland
Crofting with the main aim of transforming the bleak landscapes to the west of Livingston.
This concept was promoted as an experiment in landscape improvement, as an exception to
the presumption against sporadic rural development. A number of pilot schemes will be
undertaken to determine the likely success of this. The Structure Plan states that the Bathgate
and Calders Local Plans should provide further details of this approach, and that the pilot
schemes will be introduced in these areas.
4.57. The Calders and Bathgate Local Plans refer to the typology in policy relating to very
low density housing and woodland development. The policy states that in certain areas of
southern and western West Lothian where the countryside is relatively degraded and
pressures for development are relatively light, the Council will encourage the comprehensive
restructuring of farms to provide limited numbers of rural dwellings in well-wooded settings.
This policy is based on the concept of promoting lowland crofting. This is also reflected in
the Edinburgh and the Lothians (Finalised) Structure Plan where lowland crofting is stated as
being an exception to the policy that development in the countryside will only be allowed
where it has an operational requirement for such a location.
4.58. This typology is relatively closely related to the policy, and is mentioned in two out of
the five West Lothian adopted local plans. The policy on very low density rural housing and
woodland development is carried through into the Finalised West Lothian Local Plan (2001)
which reiterates the policy outlined in the Calders and Bathgate Local Plans. This states that
the policy relates to the open countryside of the south and west of West Lothian where the

35

land is of limited agricultural value. It also adds a further dimension, not included within
previous local plans, by stating that a housing design brief will be prepared for each site
developed in this way to ensure quality design.
4.59. This is a very specific typology relating to housing and low density housing in
particular. It was defined by an independent report prepared by consultants and incorporated
into the local plans. The typology itself is not made explicit within the plans, although the
context of the typology relating to the policy is set out in explanatory preceding text. This
identifies the areas eligible for the lowland crofting initiative and the likelihood that only a
small number of farms will be suitable for this type of restructuring. The area relating to this
policy is defined by a proposals map on which an almost vertical line has been drawn in
which the area to the west of the line is eligible for the policy. The rationale behind this
typology is to help create landscape and economic regeneration in the western part of the
authority area to meet the need for a more varied housing choice. Although the typology is
not made explicit, it uses a number of different criteria to differentiate between areas: demand
for residential development, environmental sensitivity, economic need, socio-demographic
characteristics and landscape types.
4.60. In short, the concept of lowland crofting, and therefore the typology which it relates
to, is carried through in all of the applicable development plans. It is, however, a very area
specific policy, seeking to tackle localised rural issues and may not fully reflect the scope
which typologies offer to reflect on a wider area and provide an appropriate policy response.
4.61. In East Lothian, no specific rural typology is proposed within the plan or in practice,
as a result of the perceived homogeneity of the area as a commuter area relating to the city of
Edinburgh. This could be considered to be in accordance with the recommendations on
typologies provided by NPPG15, but may overlook localised variations in alternative rural
characteristics within the area such as landscape capacity, economic or social need, and
access to public transport as well as the road network.
4.62. In the Lothian area as a whole there is homogeneity in the way that rural areas are
defined. Separation is only made in relation to the rural areas to the extreme west of the area
which are in need of regeneration and where a typology approach has been adopted. In
relation to the typology approach within NPPG 15, which delineates rural areas into
commuter, intermediate and remote, it can be seen that the Lothians area has adopted this on
a certain level. The areas identified as being applicable for the lowland crofting initiative
represent the intermediate areas defined by NPPG15, as diversification from agriculture is
needed through small-scale economic development and the re-use of redundant agricultural
buildings. All other areas appear to be defined as being commuter facing pressures for new
housing, business and industry, as outlined within the East Lothian Local Plan. It can be seen
therefore that the Lothian area is partially in line with the national approach although this is
not explicit. Local issues have certainly been taken into account as far as the lowland
crofting policy is concerned, but there may be more scope to explore further variation in rural
characteristics that have so far not been identified. Local typologies should also be supported
at the strategic level through the structure plan.

36

Key conclusions from Lothian

There is some lack of consistency in approaches to and recognition of rural

typologies, with the strategic perspective of homogeneity overlooking locally defined
priorities.

High levels of urban based pressure for development are likely to be a key influence
on the approach, with an overall emphasis on regulation for environmental protection
and urban containment.

The approach is broadly in line with current advice provided by NPPG15, although
there may be a need to reconsider the relationships between local and strategic
issues.

ORKNEY
4.63.

The Orkney case study includes the following plans:

The Orkney Structure Plan (December 2001); and

The Orkney Local Plan (Finalised Draft February 2002).
4.64. The Orkney Structure Plan clearly sets out in its development strategy the requirement
for a differential approach to development across the plan area. The structure plan recognises
the disparities in the nature of growth across Orkney and outlines the change required to
address this. The settlement pattern in Orkney is very dispersed and this pattern of
development has been reinforced through the previous operation of a relatively relaxed
housing in the countryside policy.
4.65. The structure plan sets out a number of key themes that support the rural typology
approach. These include relating development to existing settlement patterns and
infrastructure provision and protecting the environment whilst supporting the social and
economic needs of communities. Policy SP/DS2 Development Strategy (c) sets out a
framework for the rural typology approach. This involves:

maximising opportunities within the urban centres by accommodating growth within

the urban settlements of Kirkwall and Stromness through capitalising on the strengths
of Kirkwall as the principal residential, industrial, commercial and administrative
centre of the Isles, and on the strengths of Stromness as the secondary residential,
industrial and commercial centre;

developing a hierarchy of settlements in the County, which allows development

appropriate to the role of the village or rural settlement; and,

providing a more flexible framework within the Isles recognising that every opportunity
requires to be made to support development which assists the viability and
sustainability of the remoter communities of the County.

4.66. The typology approach is reflected in the three differential policies relating to
Countryside Around Towns, Inhabited Islands and Uninhabited Islands. The following
outlines the main characteristics of each category:

37

Policy SP/04 Countryside Around Towns: The development permitted in this

category reflects the pressure for development in the countryside closest to the main
settlements. This category adopts a restrictive approach to development in this area
with the aim of preserving the setting of the main settlements.

Policy SP/l1 Inhabited Islands: The development approach within this category
facilitates development to support the social and economic wellbeing of the island
communities.

Policy SPl2 Uninhabited Islands: The uninhabited islands which constitute the third
category in Orkney are remote but also uninhabited and therefore represent a category
where only very few types of development would be permitted due to the infrastructure
and landscape constraints on development offered by these remote locations.

4.67. The Orkney Local Plan Policy LP/N4 reiterates the statement set out in Structure Plan
Policy SP/04 Countryside Around Towns. Within the Natural Heritage section of the Local
Plan the policy for Countryside Around Towns reflects the protection of the landscape
character of Kirkwall and Stromness. The success of the policy in conserving the character
of the countryside protection zone will be monitored through the use of Landscape Impact
Assessments.
Development of typology approach
4.68. The development of the typology approach in Orkney is in response to the need for
the plan to adequately address the differential pressure for development within the plan area.
The 1993 structure plan attempted to divert pressure for development to other parts of the
County but this has not occurred. There has been continued piecemeal development of
Kirkwall and Stromness and the previously relaxed policy towards housing in the countryside
has been to the detriment of small villages and settlements where there has been little
development. The structure plan also notes that the economic circumstances and problems
associated with declining population levels in the Isles are quite different to those that apply
to Orkney mainland.
4.69. The development strategy recognises that Kirkwall and Stromness are the principal
towns in the county, and as such they will remain the focus for the majority of development
during the plan period. With all of the mainland and linked South Isles being within
commuting distance of either Kirkwall or Stromness, development pressures are linked
closely to what is happening in the two towns for example pressure for housing in areas
within close commuting distance of both towns.
4.70. The typology approach was developed at the outset of the plan preparation process,
and the structure plan was approved in December 2001. A number of criteria have been used
to differentiate between the areas, and these include:

Distance from nearest large settlement;

Levels of demand for residential development;

Environmental sensitivity/ capacity;

Urban/rural interrelationships;

Landscape types.

38

4.71. The typology approach is set out in the current structure plan (2001) and due to the
short time since its adoption it is difficult to evaluate its effectiveness to date. As a result, it
is expected that the policy will continue to be used into the foreseeable future. Rural
typologies are seen as a useful approach to planning in the Orkneys as they recognise the
varying needs of different landscapes and clarify the position of these areas in terms of
development opportunities.
4.72. The typology emphasises the need to consider issues within remote rural areas at a
much finer grain. However, the typology approach developed in Orkney also resembles the
approach set out in NPPG15 in that it adopts a three tiered approach to development in areas
outwith the main settlements. Two of the criteria used in the development of the typology
approach reflect that set out in NPPG15: distance from nearest large settlement and the levels
of demand for residential development.
4.73. The typology applies to the whole structure plan area outwith the main settlements of
Kirkwall and Stromness. The mainland is under the greatest development pressure, the
inhabited islands are economically and socially fragile, and there is a general presumption
against development on the uninhabited islands.
4.74. The policies that constitute the typology approach are not presented in the plan as
forming a coherent typology. However, each category is presented in the chapter relating to
development within each type of rural area.
4.75. The development strategy (structure plan, Chapter 2) sets out the main focus for new
development and also the approach to development in rural areas. The strategy
acknowledges the strategic issues affecting development pressure in the plan area and the
issues to be addressed. Policy SP/DS2 Development Strategy outlines the different
approach to development between the urban settlements of Kirkwall and Stromness, and the
Isles which require a more flexible approach to development. The differential policy
approach for the mainland is discussed under Chapter 11 Kirkwall and Stromness. The
differential approach to the inhabited islands and uninhabited islands is discussed under
Chapter 12 The Isles.
4.76. The approach to the typology is set in Policy SP/04 which relates to countryside
around the two main settlements of Kirkwall and Stromness. The policy emphasises the
different planning approach between the towns of Kirkwall and Stromness and the
surrounding countryside. Policy SP/04 is reflected in the supporting text, which recognises
the importance of the setting of the towns within the landscape, and the need to protect the
landscape from new housing development. This is discussed in terms of settlement
boundaries together with a countryside protection zone. The policy that applies to the
inhabited islands, outwith the mainland and linked South Isles, clearly supports development
in these islands, provided it is in line with other plan policies and of an appropriate scale and
nature. In the uninhabited islands the policy sets out the types of development likely to be
permitted such as those which would be of strategic benefit to the whole of Orkney or
required for public safety.
4.77. The boundaries between the towns and countryside are defined through the use of
settlement boundaries together with a countryside protection zone. The inhabited islands
beyond the mainland and linked isles, and uninhabited islands provide a clear differentiation.

39

Key conclusions from Orkney

The typology sets out a clear spatial strategy for the islands;

Typology applies to the whole of the plan area outwith the main towns;

The spatial distribution of the typologies corresponds to different island communities

which provides a clear distinction between the different areas;

The typology approach demonstrates the variation in the approach to development

between the different zones. There is a presumption against development in the
inner zone and a more permissive approach to development in the inhabited islands,
followed by a prohibitive approach to development in the uninhabited islands.

PERTH AND KINROSS

4.78.

The following documents were considered in this analysis:

Towards A Sustainable Future, Perth and Kinross Structure Plan 2002;

Perth and Kinross Structure Plan Report of Survey;
Perth and Kinross Highland Area Local Plan 2000.
Overview of the Approach
4.79. The Perth and Kinross Structure Plan contains a spatial strategy which recognises the
diversity in the areas covered by the plan. The spatial strategy has used a typological
approach to outline three areas: the Perth Core Area, the Upland Area and the Lowland Rural
Area. The purpose of these areas is to appropriately guide the location and scale of
development. The core area covers the locations that are approximately 25 minutes travel
by local bus from the centre of Perth. It is here that the majority of the population live and
where there is greatest employment. The lowland area is accessible to many parts of central
Scotland and contains high quality agricultural land. This area is the focus of development
pressures from outwith Perth and Kinross. The upland area has very different issues and is
characterised by small towns and villages with an economy based on hill farming, forestry
and tourism. This delineation of areas is useful as the development issues within each one
are very different. For example the spatial strategy recognises that Perth is the dominant
centre and therefore the plan focuses growth on Perth and other growth points within the
Core Area. The aim for the Lowland Area is to promote greater social and economic selfsufficiency and facilitate diversification of the rural economy. In the Upland Area the aim is
to support diversification and sustain fragile communities.
4.80. The typology itself has been developed as part of the overall development strategy of
the structure plan. The Report of Survey outlines the process that was undertaken in
assessing the best development strategy options. As an essential part of this it was found that
three possible strategic approaches could be taken. Option 1 was that of concentration
focusing development on Perth and its immediate edges. Option 2 was dispersal and this
considered constraining development in Perth to brownfield and infill sites and spreading
new development across smaller towns and villages. Option 3 was that of selective growth

40

in Perth and key towns. The latter option was defined as being the most appropriate when
assessed against criteria, including existing settlement patterns, energy efficiency, efficient
use of infrastructure, access to employment and relationship to services. It was thought that
the selective growth option would provide a good balance between continued growth in and
around Perth and continued vitality in the smaller towns and rural areas. The overall strategic
approach within the structure plan is to build on the individual characteristics and qualities of
each of the three areas. Following on from this there are specific aims for each of these areas
which are used to inform the policies of the structure plan. Therefore it can be seen that this
spatial strategy is the basis of the overall development approach.
4.81. The Structure Plan itself is based on three key themes that relate to the Councils
corporate priorities. These are:

Building sustainable communities;

Creating a Sustainable Economy; and

Sustaining the Environment and Resources.

4.82. The following chapter of the Plan then outlines in detail the spatial strategy and this is
stated as being the broad land use approach to addressing the key themes. Following from
this there is a good level of integration of the typological approach throughout the Plan. The
chapter on building sustainable communities sets out policies relating to housing within
each of the typological areas. In addition the chapter on creating a sustainable economy
outlines the typological categories within the accompanying explanatory text to guide the
policies and to define issues.
4.83. The Highland Area Local Plan (2000) predates this structure plan, however it also
identified the need for a different approach to development in certain rural areas. It states
that in the more remote western part of the plan area, where a more dispersed form of
settlement prevails, a modified form of the housing in the countryside policy is proposed.
This is outlined within Policy 54 (e), which extends the acceptable housing in the countryside
criteria to be of specific relevance to the Western Highland area.
4.84. The structure plan typology was adopted as part of an issue based approach to
developing the structure plan due to the strong differences in development pressures across
the area. It is thought however that at present it is too early to state whether this approach has
been effective or not. It has been stated that planners feel that the typology is useful for
identifying issues, but may be too general to provide solutions, with local views still being a
dominant factor in decision making.
4.85. This typology has not been based explicitly on the NPPG 15 model, instead it
originated through a complex process of options analysis. However, it echoes the approach
within national guidance by taking on the notion of rural diversity and the need to
differentiate between different types of rural area in order to help shape the emphasis of
policy. The three categories outlined within the Perth and Kinross approach do have some fit
with the NPPG 15 typology of areas. In the NPPG 15 approach the Perth and Kinross area
would be designated mostly commuter, with a band of intermediate areas interspersed
with pockets of remote. The structure plan typologies acknowledge that Perth and Kinross
contain these areas, but also note that the spatial groupings are slightly different. Upland
areas relate to those that are remote in terms of national guidance, but may also be
considered to be partly intermediate areas. In addition the lowland area and the Perth

41

Core Area would both be delineated as commuter within the NPPG 15 approach and at a
strategic level, with the structure plan seeking to delineate these further in response to
particular local issues and pressures.
4.86. This is an interesting approach to typologies in that it has been used as an overall basis
for development options in the area which aim to provide a positive response to local
pressures. It is well balanced, reflecting the particular needs and settlement characteristics in
rural areas. There are clear links between the different levels of plans and the way in which
they develop over time, as the local plan model contains a rural housing typology, and the
subsequent Structure Plan takes the typology idea further in delineating rural areas in relation
to a wider range of developments.
Key conclusions from Perth and Kinross

This case illustrates the positive use of the typology in relation to characterisation of
areas as a basis for directing development.

The approach illustrates the potential for typologies to be a flexible tool for policy
development, in that it has clearly evolved over time and is not explicitly linked with
prescriptive policies.

COMHAIRLE NAN EILEAN SIAR

4.87.

The Western Isles case study area includes the following plans:

Western Isles Structure Plan (1988);

Finalised Western Isles Structure Plan 2003 (currently with Scottish Ministers for
approval);

Broadbay Local Plan (2003).

Overview of the Approach

4.88. The Western Isles Structure Plan was approved in 1988. The plan sets out in the
introductory paragraph that it will be innovative or developmental in approach, and will not
be restrictive and /or over selective in land use allocation and control. The structure plan
identifies a strategic settlement strategy and four types of policy area covering towns and
rural areas. The policy areas are set out in the Strategy chapter, which is based on a
typological approach. The policy areas are:

Peripheral Policy Areas (PPAs) Certain areas or communities face specific problems
on account of remoteness, communication and size and density of settlement. In many
instances these areas require a higher level of provision than might otherwise be
expected in relation to their population levels.

Moorland Policy Areas (MPAs) Large areas of the Western Isles are at present
virtually uninhabited with large tracts of moorland which are unimproved and present
some opportunities for development such as peat extraction, mineral extraction and
water resources. All uninhabited offshore islands are designated as MPAs and also St
Kilda. It is envisaged that general developments in MPAs will be resource based.

42

Central Policy Areas (CPAs) This includes Stornoway and Balivanich, and CPAs
have a high concentration of employment. This suggests that particular emphasis
should be placed on economic development outwith these areas.

Intermediate Policy Areas (IPAs) The majority of the population of the Western
Isles live in intermediate policy areas. Here the predominant sources of employment
are the traditional activities. There is some commuting to the CPAs from these areas,
but the level depends on the distance and travelling time involved.

4.89. The spatial extent of these policy areas is illustrated on the Key Diagram, with the
CPA policy indicating that development should be focused outwith certain areas, to support
development in less developed areas. This approach is supported through policies
PC6/PC7/PC9 in the Settlement chapter, which outline the Councils acceptance of higher
capital and revenue expenditure to provide infrastructure and service provision to peripheral
policy areas, and also support the provision of infrastructure for the successful exploitation of
natural resources in PPAs. This is tempered by policy PD6, which presumes against new
development in moorland policy areas and on uninhabited islands (including St Kilda) other
than resource based development. Policy PA8 encourages economic development in areas
outwith the main settlements and especially in the PPAs.
4.90. The declining population of the Western Isles and the adverse impact this has on
population structure, community well being and the social fabric of the islands forms the
strategic context for the Finalised Structure Plan (2003). The plan sets out the role that a
positive development framework that can play in combating the threat of further population
decline and helping to create sustainable communities.
4.91. The typological approach is set out in the chapter on sustainable communities. It
provides a suite of policies to address the key elements considered necessary to sustain the
communities of the Western Isles. This includes Policy SC1 Sustainable Community Areas
which states that:
The Comhairle will develop policies which address land use planning aspects arising from
the Western Isles Quality of Life initiative (Local Agenda 21), and will provide the basis for
investment decisions and service provision for 13 areas.
4.92. In addition, Policy SC2 Retain Population and Encourage In-migration, states that
the Comhairle will work with its Community Planning partners to develop targeted
strategies which assist in retaining population and encourage in migration.
4.93. The chapter on Development Management also notes that among the objectives on
which the overall approach to land use and management of development are based:

Special consideration should be given to addressing the issues of fragility, remoteness,

peripherality and physical regeneration.

Undeveloped countryside, coastline and uninhabited islands should generally remain

so unless exceptional circumstances exist.

4.94. Policy DM1 Location of Development sets out support for development proposals
which can be absorbed without harming the local social, economic or environmental
characteristics of the Sustainable Community Area in which they are located. Local plans
will identify locations for development opportunities within settlements and townships.
Development outwith settlements and townships will only be permitted where it does not

43

require excessive additional public expenditure for site services or (amongst other criteria)
the planning authority considers that the development should be supported because of the
social and economic benefits arising.
4.95. The plan notes that certain areas or communities face specific problems on account of
remoteness and size and density of settlement, which require particular attention to ensure
their long term sustainability. The differential policy approach is set out in Policy DM2
Remote and peripheral areas:
The Comhairle, along with its Community Planning partners, will give specific
consideration to levels of service provision, development opportunities and availability of
land for development in areas suffering from the impact of peripherality, insularity or
remoteness.
The Local Plan will identify where such areas exist and, subject to the other policies of this
Plan, have particular regard to their needs when identifying opportunity sites for
development.
4.96. The Broadbay Local Plan (2003) sets out core policies that support the rural economy.
This includes Policy E2: Location of Business Development. This policy actively encourages
business development to locations elsewhere within the Western Isles, unless it can be
demonstrated that it is absolutely necessary economically to locate in Stornoway. This is in
line with structure plan policy to support the maintenance of viable communities throughout
the islands.
4.97. The core housing policies set out in the Broadbay Local Plan identify different
housing policy for the areas outwith Broadbay area and within rural Broadway. Housing
policy H23 Housing sites, North Tolsta which states that:
As a matter of urgency, the Comhairle will seek to identify and promote the development of
housing sites in the North Tolsta area in tandem with opportunities for economic
development. The reasoned justification is that this is the only settlement in the Local Plan
area exhibiting signs of decline and it is required to reverse this trend.
4.98. The plan notes that a high quality environment makes a positive contribution to
economic growth. As a result, sustainable development, which recognises and safeguards the
important natural heritage resources of the area, should be promoted.
4.99. The development of the typology approach in the Western Isles came from the report
of survey analysis and consultation. Local plans work within the structure plan framework
and their typology criteria will emerge following an assessment of international/national
guidance and other plans and policies such as the Community Plan and consultation with
other agencies and the public.
4.100. The Western Isles Structure Plan (1988) set out a strategic framework for local plans
with policy areas identifying central, intermediate, peripheral and moorland areas, and
strategic settlements as well as specific infrastructure/environmental policies. This has been
brought more widely into the Finalised Structure Plan (2003), which takes a less distinctive
approach to the typology approach.
4.101. The criteria used in defining the typologies include a broad range of accessibility,
environmental, economic, infrastructure and social demographic characteristics.

44

4.102. The Western Isles Council questionnaire response suggested that the approach may
have had a limited impact in providing a clear overall framework to guide land use change
and development to best meet the needs of the local community. However, these limitations
were felt to be attributable to wider social and economic trends, as opposed to the typology
itself.
Analysis
4.103. The original typology approach set out in the Western Isles Structure Plan (1988)
adopted a similar approach to the distinctions set out in NPPG15. The use of central,
intermediate, peripheral and moorland areas reflect the degrees of remoteness illustrated in
NPPG15. The Approved Western Isles Structure Plan (1988) policy area approach was
defined by distance/remoteness from a main centre as well as demographic /settlement
/development and landscape characteristics. This approach is reflected in some degree in the
new Finalised Structure Plan (2003). In the Finalised Structure Plan, Sustainable Community
Areas are defined by geography and locality, whilst also noting that they can be defined by
areas of common interest. The factors that influenced the development and use of rural
typologies are outlined as in response to guidance in NPPG15, and recognition of different
issues across the area and issues emerging from a political and official desire for flexibility.
4.104. The main policy section on rural typologies is in the second chapter of both the
Approved Western Isles Structure Plan (1988) and the Finalised Western Isles Structure Plan.
This means the approach is clearly set out at a strategic stage in the plan and provides a
framework for subsequent policies. In the development of the typology approach for the
Finalised Structure Plan, the most effective components of the previous plan have been
incorporated into the new one. In the future this will be applied via a new single Western
Isles Wide Local Plan.
4.105. The translation of the typology approach in the Broadbay Local Plan is not explicitly
set out in line with the structure plan. It follows the policy guidance by including support for
the development of natural resources for economic growth, whilst protecting the natural
heritage, and also supports development in areas facing economic decline.

Key conclusions from the Western Isles

Approved structure plan (1988) sets out a clear spatial policy, however this clarity is
not reflected in the Finalised Structure Plan (2003);

Application of the typology addresses both residential and economic development;

Finalised Structure Plan (2003) sets out a more general approach to rural
development, supporting development in more peripheral areas;

Translation of the rural typology into the Broadbay Local Plan (2003) is relatively
unclear, although it does consider urban and rural areas together and aims to
support different types of development in areas sharing different characteristics.

45

CONCLUSIONS ON THE DEVELOPMENT PLAN ANALYSIS

4.106. In drawing overall conclusions on the analysis of development plans, it is useful to
revisit the questions that were used to structure the review.
4.107. Firstly, the review aimed to identify the ways in which the typologies and associated
policies had evolved over time. Each area has a distinctive history underlying its typology,
ranging from Angus where the approach is a well established part of policy making inherited
from a previous structure plan, to Orkney and South Lanarkshire where typologies have
emerged more recently as a result of the effects of previously permissive policies and in order
to sustainably manage market forces. This suggests that typologies can be an engrained
aspect of policy making or can be a more responsive or potentially temporary tool for the
planning system, depending on the issues that they are seeking to address. In addition,
several case study plans have shown that the need for a typology, or the issues which it is
seeking to address, can change over time. As a result, some plans have broadened the
policies which typologies relate to, whilst others are planning to review the policy impacts
and take any requirements for change into account within future plan reviews.
4.108. The second question focused on the ways in which typologies have formed
background information, or have been more proactively followed through to influence
policy development. In most of the plans, the typology has directly shaped policy making
although in several structure plans this has been achieved relatively broadly, with more
specific interpretation being followed up at the local plan level. Typologies can therefore
provide both a useful characterisation tool, and be intrinsically linked to consequential policy
development. In the case of Perth and Kinross, at the strategic level, the typology was more a
tool for analysis than an explicit part of the policy rationale within the plan. Using typologies
in this way can be a useful way of structuring the approach to policy development, although it
can also limit the potential for typologies to help clarify development preferences and
therefore promote a greater degree of certainty.
4.109. The review explored the extent to which typologies have been defined on the basis of
issues or criteria, or have been more geographically defined. Practice appears to vary,
although most areas tend to combine criteria to include both physical and conceptual
rationales. The level of detail shown in the plans varies in accordance with this, with more
issue based approaches tending to result less frequently in the delineation of area boundaries,
partly because this can be difficult to achieve. Many of the policies however, did have clear
spatial implications, which were illustrated in the plans. This approach has benefits in
increasing transparency, and also disadvantages as it can generate significant debate. This
may explain why strategic mapping of typological areas, as in the case of Angus, tends to be
the preferred approach.
4.110. The spatial extent of typologies and associated variations in practice is also of
interest. Most of the areas had applied typologies on a plan-wide basis, although at the local
level some examples of finer grain policies have been used to highlight particular issues
arising in an area or community. Both approaches have benefits, suggesting that the spatial
application of typologies should be led by the geographic extent and location of the issues
that it is seeking to address.
4.111. Few of the plans were specific about the data sources that had been employed to
define the typology. This is perhaps unsurprising given that there is a current commitment to
streamlining development plans and avoiding overly detailed discussions or justifications.

46

However, typologies might be considered to be more robust if they are justified more
specifically in relation to the data analysis which underlies them. Indeed, most of the
development plan approaches have strong foundations as they are based on Census data or
other robust sources of information. Explaining the ways in which the typologies have been
developed and the sources of information that have been drawn from more fully within a plan
may help to make the typological approach more transparent and to strengthen its provisions
further.
4.112. Finally, integration across policy sectors and between levels of policy making
raises several issues. Some of the plans have typologies that underpin more specific sectoral
policies, whilst others have clearly set out the influence of the typology on different
development types. The Ayrshire typology illustrates this, with the structure plan outlining a
generic development typology, and the local plans taking this forward to apply it to housing,
minerals, and diversification proposals. It may be that this is more realistic and achievable at
a local as opposed to strategic level. In some areas, there may be scope to broaden sector
specific approaches to incorporate a wider range of issues, depending on the local
circumstances. The Angus development plans illustrate this, with a multi-criteria typology
being focused specifically on proposals for housing development, but also potentially being
relevant to decisions about rural services or business development. Again, there has been
considerable variation in the extent to which this has been an aim, with some local authorities
opting for a more focused approach in response to a relatively specific policy agenda.

47

CHAPTER 5. RURAL TYPOLOGIES AND DEVELOPMENT

CONTROL
INTRODUCTION
5.1.
As noted in the previous chapter, a number of key issues can be identified as a result
of the review of development plan policies. Following on from this, it is also important to
consider the ways in which these policies are being applied in practice. As a result, the
research has focused on a smaller number of local authority areas, in order to examine the
ways in which typologies have been translated into development control decision making.
This has included:

Angus: where the aim of the typology has been to promote development in more
remote areas and restrict it in others. The case also illustrates potential national park
related issues and reflects an approach which has been developing over the long term;

Argyll and Bute: which illustrates the use of multiple criteria for a range of
developments and contexts, and provides an interesting example of top down and
bottom up approaches being combined through a transparent and inclusive process;

Orkney: an island based setting, where issues arise from the need to regulate
development within a relatively remote area;

South Lanarkshire: where the typology focuses on the need to reduce commuter
pressure in the urban fringe whilst increasing remote opportunities in parallel. The
approach reflects the need for adjustment of typologies as pressure for development
grows over time.

5.2.
These areas were identified as having employed particularly interesting rural
typologies, and together they represent a good range of current practice and a number of
different contexts. The selection of these case studies also allowed for multi-criteria based
typologies to be compared with relatively simple versions, and for different levels of
correlation with the NPPG15 guidance to be examined further. The following sections
therefore explore development control cases in each of these areas in turn.
ANGUS DEVELOPMENT CONTROL CASE STUDIES
5.3.
One of the key aims of the typology developed in Angus was to allow for
development in areas where there is a need to help sustain rural communities and services.
5.4.
In Glenogil an application was made in 2001 for the erection of six chalets and a
bunkhouse. Key issues in determining the application related to the need to ensure that the
development would not have an adverse impact on its local setting, and in particular in
relation to an operational farm and a dwelling house in the immediate vicinity of the site.
This reflected the broader policy commitment within the development plan to support
existing rural businesses.
5.5.
The committee report relating to the development discussed the typological approach
and in particular the aims of the Category 1 and 2 rural settlement units defined in the local
plan. The development site was located within a Category 2 RSU and was therefore
classified as a remote rural area where a more relaxed planning regime is appropriate in order
to stem rural depopulation and support existing services. Within the Category 2 areas, policy

48

H8 of the Angus Local Plan notes a presumption in favour of developments subject to a set of
development criteria (as defined in Schedule 1 of the plan). The Development Criteria set out
in Schedule 1 note that sites should be self contained and should not set a precedent or open
up a desirable area for similar applications. It was considered that the site complied with
these requirements in relation to size, landscaping, and space for private amenity. The
planning officer noted concerns on the part of the neighbouring farms and that the policy
relating to intensive livestock buildings should be applied. This suggested that the
development was not appropriate as the site is less than the 400m threshold from the farm
building (130m) which was considered to be in intensive agricultural use. However the
planning officer noted that the building will be used for keeping cattle as opposed to chickens
and pigs which are usually associated with intensive practices and the GDPO excludes cattle
from the distance requirements of 400m. As a result, and in accordance with the aims
underlying the rural typology, it was concluded that the application was in keeping with the
policies and was recommended for approval with conditions.
This case could be viewed as an example of the ways in which the rural typology can
provide a more strategic perspective and spatial emphasis, which in turn can help to
interpret localised concerns within a broader perspective.
5.6.
A second planning application was made in 2002 for an outline proposal to erect a
dwellinghouse on farmland near Tannadice. The site formed part of an area of young
woodland, and was bounded on other sides by open farmland. The site was within a
Category 2 RSU where a more relaxed overall approach to development is undertaken.
However, when the application was assessed in relation to Schedule 1 of the plan, it was
noted that the site exceeded the size recommended by the application and could not be
regarded as self contained, thereby potentially setting a precedent for other developments. It
was also considered that there was no justification for felling the woodland to accommodate
the development. The site boundaries were considered to have been artificially created and
as a result, it was thought that consent could lead to pressure for development of the
remainder of the site. The application was therefore recommended for refusal.
This case illustrates the way in which there is a need for broader aims provided by the
typology to be supported by criteria based policies to ensure that a presumption in
favour of development does not result in inappropriate development and incremental
erosion of the open character of rural areas.
ARGYLL AND BUTE DEVELOPMENT CONTROL CASE STUDIES
5.7.
The Argyll and Bute approach emphasised the importance of a multi-criteria
methodology which takes into account the capacity to accommodate development as defined
at a finer grain within a broader strategic typological framework.
5.8. The first application of interest was submitted in 2001 for the erection of a dwelling
house in an area of open agricultural land within an existing medium density row of housing
along the coast at South Shian. In this area there is a general presumption against proposals
for prominent or sporadic development which would have an adverse impact on the
landscape quality, with the site lying within the Lynn of Lorn National Scenic Area. In
considering the application, the planning authority made reference to the Strathclyde
Structure Plan, the Lorn Local Plan, and Planning Advice Note 36 The siting and design of
housing in the countryside.

49

5.9.
In relation to the Strathclyde Structure Plan, reference was made to policies that
protect landscape quality and natural heritage. The local plan included two rural policies
which afford protection to the National Scenic Area, and Housing Policy HO25 was applied
assess housing proposals in the Oban Catchment Area in which the development was
situated. It was considered that the proposed development would not adversely affect the
landscape character of the area, was justifiable in environmental impact, and reflected the
existing settlement pattern of housing in the countryside in this area. The proposal was noted
to be contrary to Policy HP25 of the local plan which has removed the presumption in favour
of new housing development within the Oban Catchment Area. However it was considered
there were grounds for approving this application as a minor departure to the development
plan, although it did not fulfil the required criteria for infill or rounding off development of
an existing cluster form of development.
5.10. Notwithstanding the statutory framework for determination, further discussion of the
application is likely to have been informed by the more recent consideration of area based
capacity and rural typologies which has been undertaken in Argyll and Bute. As the site was
on the periphery of the catchment area and the policy was becoming out of date, it was
emphasised that the new local plan would be likely to designate this area as a rural
opportunity area where there is a presumption in favour of new development up to a defined
capacity. Within this more positive context, the proposal was considered acceptable in terms
of environmental impact and also in relation to the existing settlement pattern. As a result,
the proposal was recommended for approval.
5.11. A further application, which underlined the need for such safeguards particularly in
areas where development is being encouraged but where the landscape setting is particularly
sensitive, was made in 2001. This application, for a dwellinghouse on Colonsay, was
considered to be potentially damaging due to its elevated location on the islands
undeveloped coast and therefore was recommended for refusal. In determining the
application, reference was made to the finalised Argyll and Bute Structure Plan 2001, and
Policy STRAT DC1 which aims to avoid inappropriately sited or designed developments in
the landscape and coastscape. The report to committee also noted that Policy STRAT 5 of
the Islay, Jura and Colonsay Settlement Strategy requires that special consideration be given
to the encouragement of new development in the Colonsay vulnerable rural fringe area.
However, it was concluded that this typologically defined aim should not be followed without
considering the more specific impacts of individual developments. The capacity analysis,
which also informed the typology, noted the limited scope for development in this area, given
the sensitive and distinctive nature of the coastline. The report concluded:
Whilst it is recognised that Colonsay is a vulnerable community, and that new development
is very important to secure its long term viability, it is also recognised that tourism plays an
important part in sustaining the economy of the island.
5.12. The planning officer noted that, had the development been better designed and sited,
the application would have been approved in light of the broader needs of the Colonsay area.
These case studies reflect the potentially dynamic nature of typologies, and the way in
which they need not necessarily be a formally accepted part of policy making to
influence development control decision making. As in Angus, broad presumptions in
favour of development are supported by criteria that aim to safeguard against
potentially adverse environmental and localised impacts of development.

50

5.13. The continuing assessment of area based capacity for development in Argyll and Bute
has been a key consideration in numerous applications for development. An outline
application in 1999 for the erection of a dwelling house at land near Appin illustrated the way
in which this finer grain of consideration can provide a more tailored response to
development proposals. In considering the application, the planning officer made reference
to Policy SAS1 of the Strathclyde Structure Plan, which indicated a general presumption
against development in that location given that it was within a Regional Scenic Area. The
Lorn Local Plan (preceding the area wide replacement plan which is currently being
prepared) also indicated a presumption against prominent or sporadic development which
would have an adverse impact on the environment. As a result, the application was tested to
establish whether it would have a detrimental effect on environmental quality, and this was
achieved by making reference to the assessed capacity of the area to absorb development. It
was concluded that the landscape character and established pattern of settlement would allow
for limited additional housing to be accommodated without adverse effects. The assessment
of capacity included the identification of rural opportunity areas, sensitive areas and very
sensitive areas in order to help guide development. Although the proposal was in a sensitive
area discretionary interpretation of these zones was applied in light of the considered lack of
adverse effects. The application was therefore recommended for approval.
The case study shows the ways in which the typology based on capacity has provided a
framework for determining applications, but that regulative policy boundaries should
be interpreted on a case by case basis to avoid making over generalised assumptions on
capacity. The use of capacity to define area types is an effective tool for assessing
broader strategic policies at a local level.
ORKNEY DEVELOPMENT CONTROL CASE STUDIES
5.14. The Orkney typology illustrated the way in which development pressure can occur
within a remote area, therefore supporting the need for local interpretation of broad brushed
typologies. The policies have emerged in response to considerable development pressure on
the urban fringe within the area. Different approaches to regulation have also been identified
in the typology that sets out priorities for islands that have and have not been settled.
5.15. In Orkney, a planning application was submitted in 2001 for the erection of a house
for a farm worker on farmland to the south east of Kirkwall. The main aim was to create a
separate dwelling house for the son to take over responsibility for the main operations of the
farm as his parents moved into retirement and remained in the existing farmhouse. In
considering the application, the planning authority made reference to the Deposit Draft
Orkney Structure Plan (2001) and the Consultation Draft Orkney Local Plan (2000). The
application was supported by an Operational needs assessment report, prepared for the
applicant by SAC.
5.16. The site was considered to be within a restricted housing zone and countryside
protection zone (redefined as countryside around town in the Finalised Draft Local Plan) in
the Local Plan (2000). Policy LP/N4 of the Finalised Local Plan aims to restrict new
development within this area to informal rural recreation, developments with a demonstrable
specific location requirement, and the rehabilitation or change of use of existing buildings. In
accordance with this policy, and a number of other policies with which the development did
not comply, the application was refused consent.
5.17. A second application was submitted in 2002 for outline planning permission for the
erection of a dwelling house at Morvean, outwith Kirkwall. The site comprised an area of

51

land currently used for rough grazing. In considering the application the planning authority
made reference to the Deposit Draft Orkney Structure Plan (2001) and the Consultative Draft
Orkney Local Plan (2000). The report to committee referred to national planning policy
NPPG1 The Planning System, NPPG3 Land for Housing and PAN36 Siting and Design of
Housing in the Countryside.
5.18. A prior application for two houses in a field adjacent to the site had previously been
refused at planning committee. The site fell outwith the Kirkwall town boundary, and
therefore was situated within the area covered by Local Plan policy LP/N4 Countryside
Around Towns. The application was contrary to structure and local plan policies on housing
in the countryside, and did not meet the criteria set out in Local Plan Policy LP/N4. The
application was refused as it did not meet the criteria in these policies.
5.19. A third application in Orkney was submitted in 2002 for an environmental
improvement project creating woodland areas at Eastabist, near Papdale, Kirkwall. The site
comprised a vacant amenity area lying to the rear of the Papdale local authority housing
estate, which was to be improved by an environmental improvement project and the planting
of woodland. In considering the application, the planning authority made reference to the
Deposit Draft Orkney Structure Plan (2001) and the Consultation Draft Orkney Local Plan
(2000).
5.20. It was noted that, as with the previous application, the land fell outwith the Kirkwall
town boundary and was therefore covered by Policy LP/N4 Countryside around towns. This
policy will only permit development where it enhances the landscape setting of towns, the
distinctions between urban and rural areas and comprises recreation development or the
development of an existing building. It was considered that this development would enhance
the landscape setting of the town, and should be granted subject to conditions relating to an
existing flooding problem within the area.
The case studies illustrate the ways in which national perspectives of typologies can vary
from more local views. Whilst on one level support for business within remote areas
could be viewed as being a policy which accords with national policy, at the same time
there is a need to respond to development patterns to ensure that local environments are
protected. The typology can also allow for different types of development (with their
respective different impacts) to be considered separately within a single area type.
SOUTH LANARKSHIRE DEVELOPMENT CONTROL CASE STUDIES
5.21. The case study analysis in South Lanarkshire aimed to assess the extent to which the
different types of rural area and their respective policies had been effective in securing the
wider aims of the development plans for the area.
5.22. The first application was submitted for outline consent in 2001. The site, located near
Carstairs, comprised some agricultural buildings (which would be redeveloped to form
residential units) and the existing country club and golf course. The latter facilities would be
expanded and improved, and the application also aimed to provide for 16 new house plots on
land with existing country club facilities (which would be relocated).
5.23. In considering the application, the planning authority made reference to the Lanark
Local Plan, Upper Clydesdale Local Plan and Lower Clydesdale Local Plan, as the site
extended across the plan boundaries. NPPG3 was referred to in relation to the application.
The committee report noted that, in general, development in the countryside should be
discouraged unless provisions are made by the development plan for alternative approaches

52

or there are special needs. The report also noted that small scale settlements in the
countryside could play a role where they are linked to private sector tourist or leisure related
developments. No reference was made to NPPG15 in determining the application.
5.24. In terms of local plan policy, the Lanark Local Plan and Upper Clydesdale Local Plan
both aim to discourage sporadic house building unless it is in the interests of a use
appropriate to a rural area. One of the main aims underlying the housing proposals was to
generate income, which could then be used for further investment in the leisure facilities,
which the planning authority termed as a bona fide rural use. The Lower Clydesdale Local
Plan (Finalised Draft) Policy ENV2 aims to also resist sporadic rural development, whilst at
the same time favouring development which meets the needs of, and support, the rural
community (including agricultural diversification). In accordance with this policy, which is
based on the need for differentiated approaches to regulation in different parts of the plan
areas, the application was recommended for approval, subject to conditions.
The typology based approach could therefore be viewed as having been instrumental
and effective in determining the application and allowing for income generating
development in an area where there is a need to support rural communities with
appropriate development types.
5.25. A second application was submitted in 2002 for the erection of a workshop for steel
fabrication on a site that included workshops, offices and a yard area at a site near Lanark.
Again, the application provided additional information on the business requirements for the
development, and this was taken into account in determining the proposal. The workshop
would be a replacement to an existing unit on the site. The application was advertised by the
authority as being potentially contrary to the development plan.
5.26. The report to committee did not identify any relevant national policy guidance or
advice. The Lanark Local Plan Policy 72 (Rural Area) and the Lower Clydesdale Local Plan
Policies were applicable to this application. These policies provided the key tests against
which the application was to be determined. The authority was of the view that the
development was not an appropriate Rural Use as required by the policy framework.
However, further discussion of the issues showed that Policy ENV2 does state support for
diversification of agricultural businesses, and noted that the site does have an established use.
Although the application was viewed as departing from the development plan, it was
considered justifiable as a result of its role in supporting the rural economy, and due to the
way in which it integrated well with an existing group of buildings and the surrounding
landscape. The economic arguments for the development were assessed with the aid of a
business plan, which the applicant also submitted.
The case illustrates the scope for supporting interpretation of rural typologies with case
by case analysis of business viability to ensure that a presumption in favour of such
developments does not allow inappropriate developments to be approved.
5.27. An application was made for the development of a dwelling house on land near
Biggar which was located between two existing houses, and which was currently in use for
grazing. The Upper Clydesdale Local Plan showed that the site is located within the Remoter
Rural Area Area of Restricted Development, where Policy 72 is applicable. In this area,
applications will not be approved unless they can be shown to be necessary in the interest of
agriculture, horticulture, forestry or other uses which are regarded as being appropriate to a
rural area. Again, in determining the application, the plan noted the context set by NPPG3
Land for Housing, but did not make explicit reference to NPPG15s typological or other
recommendations.

53

5.28. The planning report concluded that there was no necessity which justified the
proposal, and showed concerns that the development would set an unfortunate precedent. It
is considered that housebuilding at this location would further erode the rural character of
the area and the amenity it affords.
This illustrates the effective use of control in a sub-area within which development
might otherwise have been encouraged. Rural typologies can provide sufficient
flexibility to achieve this by incorporating further criteria for assessing applications.
5.29. An application was made in 2002 for a visitor centre and formation of access
associated with the Black Law windfarm in South Lanarkshire. The centre was proposed to
provide interpretation in relation to the habitat management proposals associated from the
windfarm. The application was for outline consent.
5.30. Policy 73 of the Upper Clydesdale Local Plan aims to protect against inappropriate
development in the Remoter Rural Area, whilst also encouraging development which
supports the rural economy and maintains community vitality. The application was
considered to be in accordance with the local plan, in principle. Some detailed issues were
considered including the need for site clearance prior to development, design requirements
(respecting the natural environment), the need to ensure the site was not contaminated, and
the need for more detailed consideration of drainage issues. Restoration provisions had to be
made for beyond the lifespan of the windfarm. It was concluded that the windfarm visitor
centre provided a valuable resource for the area and was recommended for approval, subject
to site specific conditions.
As in Orkney, this case study illustrates the scope, which a typology based, approach
can provide, for restricting some types of development and supporting others.
CONCLUSIONS ON THE DEVELOPMENT CONTROL CASE STUDIES
5.31. Whilst it is not possible to assemble an exhaustive list of cases where typologies have
been a determining factor, the selection of case studies shown above illustrate the ways in
which policies based on typologies have been translated into development control decisions.
On the whole, it would appear that rural typologies help provide a sound basis for decision
making, and that they can help with the evaluation of applications. In particular, they have
been effective in ensuring that site specific issues can be balanced with wider strategic
aspirations for rural areas, so that each case is considered on its own merits but is also linked
with the needs and opportunities of the rural community, economy and environment.
5.32. The cases also show that there is a need for criteria based supporting policies, if
presumptions in favour of development are not to lead to inappropriate development and the
regulation of development is to avoid suppressing opportunities for investment. This also
allows for different types of development and their associated impacts to be recognised
within the typological frameworks, and appropriate decisions to be made accordingly.
Varying levels of formality (i.e. the extent to which they generally underpin policies, or are
more specifically cited within the policy text) associated with the typologies appear not to
have influenced their application or usefulness, as it had been suggested might be the case by
some questionnaire respondents. On the whole, the analysis suggests that typologies can
provide a robust and practical policy tool for planning authorities within a wide range of
settings.

54

CHAPTER 6. GUIDANCE ON THE USE OF RURAL

TYPOLOGIES
INTRODUCTION
6.1.
This section of the report provides a series of recommendations on the future
development and application of rural typologies. Each of the recommendations is explained
and considered in relation to relevant aspects of the research findings. The chapter comprises
two key components: Firstly advice on methods for developing typologies is provided, and
secondly a range of scenarios where typologies might be applied, are explored.
PART A: DEVELOPING TYPOLOGIES
6.2.
In developing typologies, it is important to think about the process as a whole. In
particular, experience to date shows that this approach can form more than a static set of
policies relating to a single point in time, by being designed in a flexible way. As a result, the
process of developing and applying rural typologies should include a feedback loop to allow
for ongoing iteration.
6.3.
It is also important to think about the typological starting point. Often, and in the
most useful scenarios, rural typologies will be issue based, aiming to respond to an identified
priority within an area. Alternatively, the typology might emerge as a result of a policy
review or monitoring process. Again, it is important that the process is sufficiently flexible to
allow for variation of timing in accordance with local circumstances. The diagram below sets
out the key components of the process of developing and applying rural typologies,
emphasising the cyclical as opposed to linear nature of the process.
Typological development

What scale of
typology is most
appropriate?

Typological application

How will
the typology
be used?

Undertake the
characterisation and
identification of priorities

Prepare / edit/ amend

policies relating to the
typologies
What issues or
criteria will be
used to develop the
typology?

Monitor the
effectiveness of the
typological approach

55

Explore the need for a typology?

- are there particular issues that affect different parts of
the plan area in different ways? Are these differences a
reflection of variations in the intrinsic characteristics of
the area or do they reflect differences in development
pressure?
- would it be helpful to reflect these issues in the process
of policy development, for example as a means of testing
the robustness or relevance of a policy?
- would it be helpful to have policies that differentiate
explicitly between different parts of the area, increasing
certainty for developers and other interests?

If the need for a typology is identified, involve partner

stakeholders to agree the basis for such a typology. Key
issues to consider include social, economic and
environmental characteristics of the area in question, the
range of development pressures acting upon it, the scale
that would be most appropriate and the data that are
available to define the typology on the ground.

Assemble relevant data, undertake sieve mapping of key

issues, define scale of typology and typology areas.

Test the typology in consultation with partner agencies to

ensure it reflects their perceptions of differences across the
plan area. In the case of detailed typologies, it may be
helpful to undertake some ground truthing. Compare with
the national typology. Does it correspond, elaborate or
contradict?

Develop plan policies that reflect and respond to the issues

identified through the typology.
Review policy application and trends that may affect the
issues on which the typology has been defined.

56

6.4. Several key components are likely to be undertaken together, at an early stage in the
process. They underline the importance of ensuring that the typologys full potential is
explored as far as possible before it is subsequently applied. This will help to make the
approach focused and relevant, as well as appropriate to the scale at which it is being
developed and applied.
6.5. Each of these components present a number of methodological issues, and they can be
informed by current practice identified in the preceding research findings. The following
paragraphs explore each component, or methodological principle, in turn.
Consideration of Scale
6.6.
From the outset, the typology should be developed with regard to the level of detail
and issues that it is appropriate to include as a result of the scale of the policy to which it will
be applied.
6.7.
The research showed that rural typologies have been developed at an international
level. European funding strategies (e.g. Structure Fund Programmes and the Common
Agricultural Policy) have been distributed in accordance with area based analysis. This level
of analysis represents a very broad based approach that nevertheless allows for comparisons
to be drawn between countries and regions. Many countries are likely to include a degree of
typological analysis within their political considerations of where development aid should be
targeted. Alongside the supporters of this approach, there will almost always inevitably be
critics of allocation procedures who will suggest that the approach overlooks significant
pockets of localised need. Notwithstanding this, the international level of analysis is of
interest in conceptual terms, but is methodologically less relevant to this review.
6.8.
In addition to NPPG15, at the national level numerous policy statements and research
projects have characterised rural Scotland in different ways. Often these approaches have
emerged in response to specific issues and opportunities. A simple example is the policy
framework for natural heritage conservation and enhancement, which identifies types of areas
within the hierarchical framework for natural heritage designations. In terms of rural
Scotland, several classification systems of this nature have emerged which respond to
economic or development pressure, population and social needs and environmental
sensitivities or constraints. Some comprise hierarchies based on numerical analysis, whilst
others are more descriptive in nature. The Scottish Household Survey 8-Fold Urban Rural
Classification is an example of such an approach at this scale.
6.9.
In combination, these different approaches can be at times mutually reinforcing, but in
other cases could be contradictory. For example, combined maps, which set out the drive
time classification together with employment and social conditions, confirm that there are
pockets within commuter areas where development and investment should be actively
encouraged, as well as remote areas where there is little capacity for new growth. Despite
this, by considering the combined national analysis, it is possible to identify ways in which a
finer grain of combined national guidance could potentially provide a more sensitive
overview for local areas that reflects a wider combination of sector.
6.10. We consider that national guidance should set out the process by which rural
typologies can be provided. As such, it should avoid being overly prescriptive, and should
describe the range of factors that planning authorities might consider reflecting in the
development of typologies.

57

In some cases, it may be appropriate to develop a typology using the approach

set out in NPPG15.
This could involve identifying urban, commuter,
intermediate and remote areas calculated on the basis of proximity to urban
areas. These categories could be adapted to reflect the local hierarchy of
settlements or expanded to include a wider range of more locally specific issues.
Alternatively, approaches may emerge from the more local level, and together
ultimately inform strategic and national planning approaches. This may be
particularly useful in areas where the national level perspective is perhaps less
appropriate (e.g. islands or particularly remote areas where localised issues
predominate). These different approaches are modelled in Part B.
6.11. The research has identified areas where typologies have been developed and applied
through structure and local plans. The questionnaire analysis showed that several key uses of
rural typologies have emerged. As shown in the research findings, typical Structure Plan
approaches might aim to provide a relative broad brushed perspective which tends to then
be followed through to the local plan levels. Examples include the Highland Structure Plan,
where a typology underlies the overall development framework for the area, taking into
account the spatial constraints and opportunities within the area. In some areas, typologies
have emerged at the local plan level, which have not necessarily been reflected in subsequent
strategic policy statements.
6.12. In terms of local plans, the case of South Lanarkshire illustrates not only the scope to
encourage development in parts of a plan area, but to concurrently restrict development
where there is a need to manage high levels of market demand and avoid adverse
environmental impacts. Local plans provide an opportunity to consider the ways in which
structure plan typologies can be applied in practice and can influence development control
decisions. Following on from the Ayrshire Structure Plan, East Ayrshire Council links this
spatial analysis with sectoral policies in order to define the ways in which the different types
of area should be addressed.
6.13. It is important that these different levels of typological development are firstly
recognised as distinctive, but secondly viewed as part of a multi-layered process. There is no
correct order in which the typologies should be developed, and given that plan preparation is
not achieved in such a structured way, it would not be realistic to suggest, for example, that
structure plans should define typologies which local plans should then follow. Despite this, it
is important that the different levels of policy making are consistent and mutually reinforcing.
In some cases this might be easy to achieve, for example the Argyll and Bute Structure Plan
typology is being logically developed at a finer grain in the emerging area wide Local Plan.
In other areas, it may be necessary to revisit a typology in a preceding plan, which was
prepared some time before the new policy, to ensure that the approach remains relevant and
should therefore continue to be reflected in subsequent policies. The next section provides
advice on how this might be achieved.
Rationale for the typology
6.14. The main purpose of rural typologies is to ensure that policies for rural areas are
based on a fundamental recognition that the issues that they are seeking to address are multi
faceted. At the same time, typologies can simplify and clarify the process by grouping areas
and communities that have common characteristics and therefore could have similar policy
responses consistently applied to them.

58

6.15. Rural typologies have been used in some areas to control development, sometimes in
accordance with the assumption set out in NPPG15 that this approach is most likely to be
required in the countryside immediately around major settlements. In response to the
questionnaire of local authorities, several more urban authorities (including Glasgow City
Council and the City of Edinburgh Council) which had relatively small areas of countryside
within their boundary, considered that rural policy was not particularly relevant to their work,
and that in any case greenbelt designation often limited development and corresponded with
the controls recommended nationally in commuter type areas. Moving outwards from urban
areas to the countryside around cities, some local authorities felt that their area was wholly
commuter in character, and that as a result of what was considered to be the direct
interpretation of NPPG15, development should be restricted. In these areas, including East
Lothian and Fife, pressure for development is indeed high and regulation is necessary to
maintain their character and quality of life.
6.16. Examples of typology based control of development were also identified in more
intermediate and remote rural areas. In Orkney, for example, a typology has emerged which
aims to restrict development around the islands two towns, as a means of providing urban
containment and maintaining environmental quality.
6.17. In other areas, the research has shown that rural typologies can be used to positively
promote development. The Comhairlie nan Eilean Sar (Western Isles Council) has used the
typology to help encourage investment in some of the areas most remote communities.
Closer to the Central Belt, the Ayrshire Structure Plan also promoted a different policy
approach in the northern, more accessible parts of the plan area where rural development
would be restricted, as compared to the more remote south of the area where rural
diversification and consequently some types of development would be more positively
promoted. As well as stimulating business development, the research has shown that some
authorities have developed typologies in order to address the decline in the rural population
and associated reductions in service provision. This includes the area which was included in
the (former) Tayside Structure Plan, as carried forward by the Dundee and Angus Structure
Plan, where rural settlement units have been defined in accordance with both social trends
and service provision (e.g. primary school capacity).
6.18. Typologies can also play a role in changing public and market perceptions. Several
questionnaire respondents felt that typologies could underline the more balanced approach to
rural development that has been emerging in more recent years. For example, in Argyll and
Bute, it was felt that the rural typology could help to overcome some stakeholders
perceptions that the planning system was essentially regulative in rural areas. In other cases,
there may be a political impetus to demonstrate that planning policy can play a role in
maintaining rural character and quality of life by promoting regulation.
6.19. Of course, it is important to recognise that typologies based on the wrong kinds of
data (including out of date information) and prepared at an inappropriate scale will be
ineffective and may even create problems in plan making or development control. It is
therefore important to explore carefully the range of issues of concern, the way in which the
typology will be used and the scale at which data are available.
Involve stakeholders representing a range of interests in the development
planning process to help identify why a typology would be useful, and how it
might be developed and applied within the area.

59

6.20. In order to identify the priorities which the typology should be seeking to address it
may be most useful to hold discussions with key stakeholders within the council and in
partner agencies and organisations to develop a consensus based view on the key planning
related issues to be reflected and explored in more detail through the council-wide typology.
Stakeholders might include Scottish Enterprise / Highlands and Islands Enterprise and their
networks of local enterprise companies, Scottish Natural Heritage, Historic Scotland, land
management interests, voluntary sector organisations (e.g. RSPB, SCVO), community
planning representatives and transport planners and providers. These stakeholders should
continue to be included in the process as the typology and policy messages evolve.
Identification of Criteria
6.21. At the local level, it would be possible to undertake a detailed analysis across a wide
range of issues, which results in a fine grain geographical classification. It is, however,
important to reflect the role of rural typologies in bringing clarity to policy development and
implementation. This suggests that a limited number of categories, based on the key policy
issues, will be more appropriate than a broader ranging detailed characterisation of the
council area.
Criteria for classifying areas should be identified. The criteria used should
reflect the issues that the typology is seeking to address. In many cases, a
combination or layering of criteria is likely to be the most useful approach.
6.22. The selection of local criteria will directly influence the conclusions that can be drawn
from rural typological analysis. No single set of criteria has been used in all areas to define
rural typologies. Indeed, the research has shown that there are as many approaches to the use
of criteria, as there are areas where the criteria have been applied. The following discussion
firstly considers different types (relating to policy sectors) of criteria that have been used, and
secondly reviews the ways in which qualitative and quantitative criteria have been developed
and applied.
6.23. In broad terms, the literature review showed that some sets of sector-specific criteria
have emerged where typologies have been applied to part of a plan or strategy. For example,
some typologies have focused on characterising demand for housing or renewable energy
development as a means of characterising an area, with this in turn being used to develop
policies which relate specifically to these areas. The type, number and complexity of
typological criteria have varied between and within sectors. For example, the following
approaches have been identified by the research:

Housing: in several areas, typologies have been intrinsically linked to rural housing
developments. At the national level, research has been undertaken which has led to
areas being defined in relation to the characteristics of rural housing markets13. This
qualitative assessment of the housing markets allows for policies to respond by either
limiting development in areas where there is extreme pressure for development
combined with a lack of environmental capacity, or promoting development in areas
where there is deprivation, derelict land and a need for good quality housing which
meets the populations needs. Housing related typologies have also been developed on
the basis of criteria which reflect other issues.

13

School of Planning and Housing, Edinburgh College of Art/ Heriot Watt University, (2001) Factors Affecting
Land Supply for Rural Affordable Housing in Rural Areas, HMSO: Edinburgh.

60

Transport and Accessibility: the Scottish Rural Life Update and subsequently the
approach proposed by NPPG15, partly drew from transportation and accessibility
criteria. NPPG15 emphasised the importance of drive times between an area and larger
urban settlements. However, other approaches have sought to combine travel time by
car with the availability, capacity and frequency of public transport services. Transport
based typologies have been devised as sectorally specific tools, for example by the
Commission for Integrated Transport (CIT)14 which emphasised the importance of
public transport access and routes as a determinant of rural health and opportunity.
Scotland-specific research within the transport sector has also been undertaken which
examines Rural Accessibility in more detail15. The work took forward the NPPG15
typology and noted that access to a principal centre of population is only one aspect of
rural accessibility, with social exclusion also being a key factor. In more remote areas,
access to regional and locally important population centres is as important as the links
with more urban areas. The researchers noted that other approaches have been
emerging, including the characterisation of areas according to transport need
(comparative, expressed, stated and community). They concluded that a robust rural
typology should combine analysis of geographical conditions, transport provision and
need.
The examples of different transport based typologies show that within a single sector
there may be various criteria that could be applied, depending on the methods used for
the assessment. Thus, whilst some transport typologies focus on car based journey
times, others also take into account access to public transport. This latter approach in
turn clearly reflects transport policy aims of encouraging more sustainable modes of
transport. It could therefore be concluded that the criteria should be defined on the
basis of policy aspirations if they are to be as relevant as possible.

Environment: Although they do not form a typology in their own right, landscape
character assessments provide a useful means of characterising an area, and often
provide advice on the ways in which development plans and development control can
respond to these characteristics. Natural heritage designations also provide a logical
reference point as well as the coastal definitions supported by NPPG 13 and other
documents such as Forestry and Woodland Strategies. These policies help to identify
areas where development impacts require the most careful consideration. Many of the
local authorities that are currently using typologies have made reference to
environmental sensitivity and assessments of capacity.

Rural Service Availability: Education is another key rural service which can have an
important influence of the capacity of rural areas to accommodate change. Work has
focused on pre-School Education Provision in Rural Areas16. It made use of rural
typologies as a means of assessing levels of facility provision and concluded that there
was a correlation between remoteness and lack of services available to the rural

14

Commission for Integrated Transport (2001) Rural Transport: An Overview of Key Issues,
http://www.cfit.gov.uk/reports/rural/key/07.htm
15
Halden, D., Farrington, J., and Copus, A. (2002) Rural Accessibility, Research Report prepared for the
Scottish Executive Central Research Unit, HMSO: Edinburgh.
16
Copus, A., Petrie, S., Shucksmith, J., Still, M., and Watt, J. (2001) Pre-school Educational Provision in Rural
Areas: A Report to the Scottish Executive Education Department, Reproduced as an Arkleton Occasional Report
No. 1, Aberdeen.

61

population. On the basis of the findings, the researchers defined a further typology of
five rural challenge zones. These zones each required different solutions in order to
remedy existing problems. Many local authority consultees have noted that other
service and infrastructure related issues such as water and sewage capacity, the
availability of IT broadband services, and hospital and health care provision can have
an important influence on development and should be built into rural typologies
wherever possible.

Population characteristics: with typologies covering a range of factors including age,

social and economic status and activities, household composition, diversity, health and
migration patterns. In particular, rural typologies are commonly used as a tool for
developing policies to reverse declining populations, particularly where plans cover
more remote areas. Whilst this is recognised as a legitimate aim, at the same time the
capacity of typologies to fully address this issue is also recognised by some as limited.
Clearly, typologies can help to address issues arising from market demand, but can do
much less to influence the demand in the first place. Western Isles Council suggested
that improved guidance to help planning authorities provide appropriate policy
responses where market demand is lacking would be beneficial to them. Dumfries and
Galloway Council noted that the only way in which such policies could be successfully
applied would be if they were applied with a degree of flexibility and discretion being
maintained.

Economic characteristics: for example, levels of dependence on particular sources of

employment and investment (or the lack of these factors), agricultural change, income,
employment, relationship between the area and the global economy. In Ayrshire, the
Structure Plan has identified areas where rural diversification should be encouraged,
partly as a result of their relative inaccessibility to markets. In West Lothian, the
lowland crofting approach sought to assist with the reinvigoration of rural areas where
employment decline was a significant factor.

Levels of development pressure: the questionnaire analysis shows that the most
common reason for developing a typology was the need to provide a proactive response
to the market and in particular development pressure. Conversely, in areas where there
is no pressure for development, typologies have been used to redistribute pressure and
stimulate development. For example, in the Aberdeen and Aberdeenshire Structure
Plan 2001-2006 (NEST), the typology emerged as a result of a need to provide
opportunities for rural housing in remoter communities where the danger of over
development or suburbanisation was considered less acute and where development
rates make development of traditional housing sites unlikely due to the high on-site
costs. A different policy was provided for the Rural Housing Market Area as compared
to the stricter levels of control in place for the Aberdeen Housing Market Area (in the
area immediately surrounding the urban area). Planners felt that this helped to
introduce a greater degree of transparency to the housing decision making process.

6.24. Often there are complex reasons underlying the selection of typological criteria. In
some areas, particular typological approaches have emerged as a result of a distinctive
political agenda. In response to the questionnaire, for example, Argyll and Bute Council
emphasised the benefits of typologies in promoting development in rural areas, and engaging
with partners and communities more effectively. Underlying this is the aim of counteracting
views of the development control process in the area that it is an essentially regulative and

62

therefore negative process. Several consultees identified the scope which there may be in the
future to build in assessments of need and opportunity undertaken as an integral part of the
community planning process. This would allow for bottom up perceptions to influence
more strategic policy, but is likely to be a relatively complex approach, given the range of
issues which community planning seeks to address (some of which extend beyond the remit
of the statutory land use planning system) and the numerous stakeholders who are involved in
the process.
6.25. Typologies can of course be prepared at a variety of different scales. To a large extent
this will be defined by the application (e.g. policy development at strategic or local scales),
by the nature of issues being considered and, significantly, the data that are readily available.
In some cases (as in Argyll and Bute, for example) it may be considered important to carry
out more detailed survey or analysis where existing datasets are insufficiently detailed for the
application in question.
The Use of Qualitative and Quantitative Criteria
6.26. The review of current practice showed that types of criteria can also vary depending
on the extent to which they are based on factual information, or are more qualitatively
defined. For example, the Canadian rural analysis suggested that aspects of an area such as
institutional capacity (defined through analysis of infrastructure) were as important an
indicator as more quantitative information such as output levels, incidence of poverty or
levels of employment.
The research shows that in addition to factual criteria, it is possible to build more
complex qualitative assessments into the definition of a typology. Whilst these qualitative
assessments can require additional analysis, often they can be gathered from wider work
which is being undertaken by local authorities and their partners. Examples of possible
qualitative criteria include:

Criteria which reflect changes in an area over time for example, patterns of
migration, economic growth and decline, or investment patterns;

Criteria which reflect the stakeholder values attributed to areas, gathered through
consultation (e.g. community planning processes) e.g. community perceptions of
decline or desirability, or consensus based future visions.

Assessments of capacity whether this is organisational, economic infrastructure

based or environmental.

Some of these criteria can help to build in an additional dimension by allowing the
typology to recognise not only where an area has been, but where it is, or could be
heading in the future17. Others allow for different perspectives to be built in and balanced
up.

17

See Chapter 2, and for a fuller discussion of the benefits of such an approach, Reimer, B., (2002) Exploring
Diversity in Rural Canada, Paper prepared for USDA, Economic Research Service.

63

The two new Scottish National Parks are working towards preparation of their National
Park Plans. Reflecting the specific purposes that have been defined for the two Parks, the
National Park Authorities are currently preparing State of the Park Reports as a means of
identifying the special qualities that underpin designation and the different development
patterns that exist across the Park areas. It is likely that different geographic areas within
the parks will have different policy emphases and that such variations will be reflected in
complementary strategies in areas such as landscape management, nature conservation
and recreation.

Combined approaches
6.27. The literature review concluded that the most effective typologies are likely to be
those that combine a range of different criteria.
6.28. At the national level, NPPG15 recommends that rural areas be classified in
accordance with the analysis developed in the Scottish Rural Life Update, as commuter,
intermediate and remote, incorporating information on accessibility, settlement patterns,
population density, demographic structure and employment terms. However, consideration of
other aspects of policy making shows that other national characterisation approaches already
exist which could be used as alternatives to this approach. The National Planning
Framework, which is currently being developed, could provide a particularly relevant spatial
interpretation of planning issues for typologies to take forward. Other approaches include the
system of natural heritage designations, which allow for a cascading approach to policy
making from areas where the strongest levels of protection should apply, to those where no
statutory designations exist. In some other policy sectors, typologies have emerged as a
means of presenting research findings, and do not go as far as providing policy or decision
making recommendations in relation to different areas. This includes the numerous maps that
illustrate levels of social need and opportunity. From these maps it is possible to identify
areas of particular need or opportunity, and consequently to draw further conclusions on the
type of rural policy responses which would potentially be most effective.
6.29. Other countries have typologies that make use of different criteria in response to
various policy aims. In the United States, counties have been classified according to their
economic profile and this has been combined with social analysis, which highlighted
migration trends and population characteristics18. Although they emerged through a wholly
different methodology and policy rationale, in Canada19, a similar emphasis has been placed
on the use of criteria which reflect the economic composition of different areas. However, as
opposed to noting the key economic sectors, the Canadian approach classified areas as either
having fluctuating or stable economies and considered the extent to which they were exposed
to globalisation. This was combined with analysis of urban and rural relationships and the
institutional capacity of areas to provide a multidimensional typology for rural Canada.

18

Economic Research Service, (1994), The Revised ERS County Typology: An Overview, paper published on
website, http://www.nal.usda.gov/ric/resources/backgrnd/counties/02typ.htm
19
Reimer, B., (2002) Exploring Diversity in Rural Canada, Paper prepared for USDA, Economic Research
Service

64

Characterisation and identification of priorities

6.30. Having established why the typology would be beneficial, and the criteria that will be
used to characterise the area, the developmental phase can move on to application of the
typology. In practical terms, within any Council area, potentially the most effective way of
combining policy issues with spatial analysis is to make use of GIS software. Mapping key
issues and topic areas can help to identify common themes and patterns. As shown in some
of the examples of current practice and discussed in the previous section, combined analysis
might include a range of criteria.
6.31. The case studies showed that, a range of different data sources may be used. Census
information commonly provides a source of useful information, particularly where social and
economic criteria are being used. Environmental criteria might be informed by a range of
statutory and non statutory documents, including Landscape Character Assessments or
biodiversity audits. Judgement based criteria are likely to be defined by a number of different
sources, as well as incorporating evaluation or judgement based inputs. Typologies can be
data hungry and therefore should be planned with these potential data sources in mind.
6.32. After initial mapping it may be useful to consult again with stakeholders to help
consider the implications of the analysis. The process should culminate in the identification
of local policy issues which, when mapped, will provide a local perspective by further
subdividing the national typology. In some circumstances the GIS analysis and subsequent
stakeholder discussions may indicate that the national typology is sufficient in its own right.
Our analysis of East Ayrshire, for example, indicates that the intermediate area corresponds
closely to the area with the most environmental designations.
6.33. It may be helpful to test the resulting typology in relation to the principal topic areas
covered by the structure or local plan. To be effective and useful, the detailed typology
should lend itself easily to the more geographical specific policies for most, if not all, topic
areas. It is important, for example, that the typology is not overly influenced by a single type
of development (e.g. windfarms) since this will restrict its application to often equally
important issues such as housing or employment.
Policy Development
6.34. Of course, defining and mapping the typologies represents the starting point in policy
development. Having defined various zones across the council area, the next step will be to
prepare policies that reflect the characteristics, opportunities, needs and constraints within
each. Policies may be:

Zone specific and definitive;

Zone specific and criteria based (with the range of criteria reflecting the nature of the
zone in question);

Council wide but with zone-related exceptions.

6.35. Policy development and its subsequent application through development control
highlights the benefit of developing a relatively simple typological approach.
6.36. It is anticipated that the involvement of key stakeholders in defining the local
typology may encourage other agencies to adopt a similar approach in their policies and
programmes.

65

Monitoring and Evaluation

6.37. The final step in the process is to monitor the effectiveness of the typology as it begins
to influence decision making. This appears to have been a limited part of the approach in
areas to date, although often the effects have been informally noted. In Angus, Census
information has been used to establish whether the desired levels of development have been
taking place. In South Lanarkshire, the number of applications arising within areas of relaxed
planning control have provided an indicator of not only the success of the policy, but also the
need for revision of the typology as development pressure has grown.
6.38. It is therefore recommended that, alongside the identification of criteria and
subsequent policy development, indicators are defined which can be used to assess the policy
and highlight where and when reviews of the typology should be undertaken. Typologies
should be reviewed regularly on the basis of this information to ensure that they remain valid
as development patterns change.

66

PART B: APPLYING TYPOLOGIES

6.39. Having identified the key methods for developing rural typologies, it is worthwhile
exploring the ways in which they might work in a range of different settings. The following
paragraphs therefore set out a number of different typological models. As has been apparent
in the research findings, there are many different ways in which typologies can be developed
and used. However, different approaches can be identified based on the policy scale at which
they will be applied, the way they will be used in plan preparation and the key issues and
objectives prevailing locally. These are represented in the simple diagram below and
described in the paragraphs that follow. The next section of this chapter illustrates the
process of developing each kind of typology.

Policy Issues
Key issues within plan area

Policy scale (local,

strategic, national)

Policy Application

Approaches defined by policy scales: as shown in the case studies, there can be
different relationships between different levels of policy making. Some typologies may
follow a nationally defined spatial approach, whilst others could emerge as a result of
local action and planning. Examples might include:
o Bottom up typologies linking with strategic frameworks. The Argyll and Bute
example illustrated the ways in which a fine grained approach to typological
development can be aggregated at the development plan level to assist directly
with policy formulation.
o

Structure and local plan combined policy development. The case studies provided
interesting examples to illustrate the ways in which typologies can form a focus
for synergies between structure and local plan policies. Structure plans provide a
framework for strategic characterisation of areas, and associated spatially defined
policies. Local plans can complement this by taking the strategic issues forward
through additional sectoral interpretation and site specific application.

o National guidelines with local interpretation. Whilst national level interpretations

to some extent represent a top down approach that could be characterised as being
urban-centric, they do provide a simple proxy for the likely level of development
pressure in a given area. They also have the advantage of ensuring that a degree
of consistency can be maintained across council areas. It should be emphasised

67

that this national level of classification provides a starting point for the definition
of more locally specific typologies.

Approaches defined by policy application: typological approaches will also be

influenced by their role in relation to the development planning and development control
components of the planning system: The overall formality of the typological
development and application may vary considerably between areas. In some areas, it may
be appropriate to develop a typology that is explained to a relatively detailed level within
statutory plans, and is therefore fully justifiable when applied. In other areas, it may be a
less formal policy or guidance tool, allowing applicants and decision makers to think
about developments in relation to their context, but not necessarily directly influencing
decisions on whether or not consent should be granted. The case studies show that either
approach can effectively influence decision making.
o Providing a spatial framework for a plan. In several examples, typologies have
been used to define broad strategies, defined as core development principles or
aims within a structure or local plan. This may, or may not, also lead to the
provision of complementary more detailed policies. The key aim of the
typological approach in such a model, however, is to provide a broad brushed area
characterisation which underpins the rest of the plan, as opposed to having a more
specific remit in relation to development control decision making.
o Providing development control policies. In some cases, typologies have been used
to shape more detailed policies that are primarily aimed at guiding decision
making through the development control process. The case studies showed that
this can be a particularly useful approach, with such policies being commonly
used to influence determination of applications.
o Developing plan options policy formulation role. Rural typologies can also be
used to influence decision making in the early stages of plan making. This
approach was used in Perth and Kinross, with the typology ultimately forming an
implicit part of the plan.

Approaches defined by key local or strategic policy issues: finally, different models can
be identified to reflect the varying issues which a typology might address:
o Stimulating investment and stemming depopulation. A typology can be used to
positively encourage development in rural areas, in order to address social and
economic issues.
o Guiding residential developments. This is a common typological approach, with
case studies showing that they can be used to justify spatially targeted support or
regulation of residential development. Often this is dictated by levels of market
pressure, although environmental capacity, service and infrastructure availability
also contribute to the approach taken.
o Achieving environmental protection and enhancement. Environmental protection
can often be an underlying typological aim, and there appeared to be fewer
examples of the use of typologies to achieve positive environmental enhancement
in practice. It is therefore worthwhile to consider how such an aim might work in
relation to typologies in practice.

68

6.40. Each of these models might be combined, for example with environmental,
settlement and economic aims being taken forward at any level of policy making and
contributing to both implicit policy making and development control decision making. The
following paragraphs therefore test out how a number of different combinations might work
in practice, so that the role of typologies, and the importance of area based tailoring, can be
examined further. They provide simple worked examples of how typologies in different
areas can:
1. provide additional layers of information to elaborate a simple division of a council
area into urban, commuter, intermediate and remote areas;
2. provide an alternative perspective, highlighting an example of the simple division into
urban, commuter, intermediate and remote areas masking locally important social and
economic needs and priorities;
3. provide a means of differentiating between different parts of a council area where the
simple division into urban, commuter, intermediate and remote areas has classified
most or all of a council area as falling within a single category.

69

SCENARIO 1
Policy Scale

Policy Application

National typology
Providing a spatial
framework
Local typology

Policy Issue
Stimulating
investment and
stemming
depopulation

6.41. The first scenario combines the idea of providing a national typology together with
local interpretation, with a typology that defines a spatial framework for a plan. The aim of
the typology is to stimulate investment and reduce depopulation from an area.
6.42. Within this scenario, it would firstly be useful to consider the ways in which the
national typologies relate to the local area. Any typological approach might be applied,
depending on the issues which are being addressed. NPPG15 introduced typology
(commuter, intermediate and remote areas) based on the consolidation of five grouping
identified in the 1996 Scottish Rural Life Update analysis. This considered factors such as
degrees of remoteness, settlement pattern, population density, demographic structure and
employment trends. Since NPPG15 was published, the Scottish Executive has developed and
mapped an eight-fold classification as part of the Scottish Household Survey (2003). When
grouped into four categories, this classification corresponds broadly with this typology. In
this case, the 8-fold typology forms a starting point in the development of the local approach.
6.43. In order to test this scenario, we have mapped out the national level classification,
drawing on the Scottish Household Survey. Map 6.1 below shows the eight categories
defined in the survey. Table 6.1 shows how the eight categories have been combined into
four categories. These are illustrated in Map 6.2 which includes Council boundaries.
Table 6.1: Aggregation of 8-fold Scottish Household Survey to 4-fold national level
planning typology
8-fold classification from Scottish Household Survey
Large urban areas with population of over 125,000
Other urban areas with a population of over 10,000
Accessible small towns (3,000 to 10,000 population) within 30
minutes drivetime of a town with a population of 10,000 or more
Remote small towns (3,000 to 10,000 population) between 30 and 60
minutes drivetime of a town with a population of 10,000 or more
Very remote small towns (3,000 to 10,000 population) more than 60
minutes drivetime of a town with a population of 10,000 or more
Accessible rural with settlements of less than 3,000 population
within 30 minutes drivetime of a town with a population of 10,000 or
more
Remote rural with settlements of less than 3,000 population between
30 and 60 minutes drivetime of a town with a population of 10,000 or
more
Very remote rural with settlements of less than 3,000 population
more than 60 minutes drive time of a town with a population of 10,000
or more

70

4-fold national level

planning typology
Urban areas
Included in commuter
Included
in
intermediate
Included in remote
Commuter
Intermediate
Remote

Map 6.1 Scottish Household Survey 8-Fold Urban Rural Classification

Map 6.2 National level planning typology

71

6.44 It is evident from this analysis that some council areas will include a range of
different areas, for example a combination of commuter and intermediate, or urban and
commuter. Aberdeenshire includes areas that could be classified as commuter, intermediate
and remote. Some councils, on the other hand, are likely to fall largely within a single
category. Examples might include small central belt council areas such as Clackmannanshire
or West Lothian which might, from this initial perspective, fall wholly within the commuter
category, and larger but very rural areas such as Argyll and Bute or the Western Isles. The
relatively course nature of this national level classification confirms the importance of
providing a finer grain dimension to the typology based on locally defined issues.
Furthermore, it should be acknowledged that it is based solely on settlement size and drive
time and that boundaries should not be regarded as hard lines on the ground.
6.45.

The following diagrams (Figure 6.1) provide a theoretical illustration of the process.

6.46. In the first step, the national typology is applied to the council area. It is evident that
much of the council area falls into the intermediate category, though there are also remote
(in the north) and commuter (in the south) areas.
6.47. This national typology provides a proxy for the level and type of development
pressure that might be expected in different parts of the council area. However, it tells us
little about the capability or sensitivity of different parts of the council area to accommodate
development. As a result, and as described in Step 3, this should be combined with a number
of key criteria that can be used to classify the council area according to its intrinsic
characteristics. In this example, key factors include the high (reflected in landscape and
biodiversity designations) and the social, economic and environmental issues associated with
a former coalfield area to the south. The example demonstrates that the local typology can be
multi-dimensional, layering several topic areas together.

72

Figure 6.1 Translating national typologies at the local level

73

6.48. Having undertaken this local interpretation of national issues, the typology could then
be used to focus in on the different social and economic constraints and opportunities within
the various mapped category areas. The typology could help to identify where regeneration
might be targeted in the coalfield areas, and to contrast this with a greater emphasis on
diversification and development in more remote agricultural areas where there are less
environmental sensitivities. The typology would also highlight areas where development
constraint might be more appropriate, either due to market pressure where commuting is an
issue, or as a result of environmental fragility and vulnerability to change. More specifically
with regard to investment, the typology could form the foundations of an assessment of the
links between environmental quality and positive development and the capacity of different
parts of a plan area to absorb new development.
6.49. Although there would be much more detailed data and analysis underlying this
typological approach. Given that in this scenario it would be used to influence the overall
spatial strategy of the areas structure and / or local plans, it may only be necessary to go as
far as describing the current situation for each of the zones, and explaining what future
strategies would be appropriate. The typology would therefore help to raise awareness of
geographic concentrations of constraint, need and opportunity for investment and
depopulation within an area, assist developers by showing where new investment might be
encouraged, and highlight areas of concern as a result of depopulation.
Real life example: East Ayrshire
6.50. East Ayrshire is a largely rural council area with areas of lowland agriculture, plateau
moorlands and part of the southern uplands. Settlement is dominated by the town of
Kilmarnock in the northern part of the council area. However, there are also a number of
smaller former mining settlements such as New Cumnock and Muirkirk where high levels of
unemployment combine with a degree of isolation to compound issues of social exclusion.
6.51. A review of the national typology
indicates that the north and western part of the
council area falls into the commuter category,
reflecting proximity to Kilmarnock and the A77
providing links to Glasgow and other towns in
Ayrshire.

74

6.52. Consideration of two more local policy layers risk of social exclusion and
environmental designations provides further detail on key issues within East Ayrshire. The
map of social exclusion confirms the need for community regeneration initiatives in
Kilmarnock, smaller settlements in the commuter zone (for example along the River Ayr
corridor) and in more isolated settlements in the intermediate zone to the south. The map of
environmental designations shows that a high proportion of the intermediate zone falls within
either an ESA or SSSI. By contrast, there are no such designations within the commuter
zone.
6.53. While in reality it would be important to consider other policy layers, this brief review
suggests that the analysis of local issues supports the overall pattern defined by the simple
urban, commuter, intermediate and remote typology. The identification of more local sub
areas may therefore be unnecessary, though the description of policy issues, and the
subsequent policy response should of course be amplified as a result of the foregoing analysis
of issues. For example:

Social inclusion issues are found throughout the council area, though policy responses
may vary according to the size of the settlement and (reflecting the national typology)
the relative isolation. Greatest attention might focus on pockets of social exclusion in
areas beyond the commuter zone where opportunities for economic diversification are
more limited.

The close coincidence between more sensitive environmental resources and the
intermediate zone suggests a clear policy boundary in line with the national typology.
The quality of the local environment could positively inform policies for regeneration
of communities in this area (for example, exploiting their industrial heritage or
promoting key settlements as gateways to the southern uplands).

75

SCENARIO 2
Policy Scale
Structure plan
typology

Policy Application

Development control
policies

Policy Issue

Guiding residential
development (control
and promotion)

Local typology

6.54. It is also useful to think about the ways in which typologies might emerge more
locally, and in particular to focus on the relationships between structure and local plan policy
making. In this scenario, the approach would evolve in response to an area having
considerable pressure for residential development in some areas where there are also
environmental constraints. At the same time, within any given plan area, there may be a need
to promote further residential development in order to provide support for declining rural
services.
6.55. Within this scenario, the typology could be used at a relatively detailed level, to
provide a clear steer for development control decision making which links with the wider
aims of the structure and local plans. The structure plan would identify broad areas of
opportunity and constraints, defined on the basis of environmental sensitivity and socioeconomic data including census statistics and rates of new business start ups, sectoral shares
and employment trends. The local plan would be the most appropriate level to translate this
into site specific policies and proposals. This process is illustrated in Figure 6.2.

76

Figure 6.2 Developing locally specific typological approaches in response to

market demand and opportunity
77

Real life example: Fife

6.56. This example provides a further illustration of the ways in which such a scenario
might evolve. Fife is located in the eastern part of the central belt, bounded by the Firth of
Forth to the south and the Firth of Tay to the north. The council area includes former
coalfield area in the south and west and the higher quality rural areas to the north and east.
The latter includes a number of historic settlements.
6.57. A locally defined typology would be able to reflect some of these important local
variations. The following maps show that, although there are comparatively few
environmental designations across Fife, there are significant variations in socio-economic
factors, with significantly higher levels of employment deprivation in the south and west of
the area. This is reflected in the development area status. Coincidentally, the socioeconomic distinction between the north-east and south-west of Fife is mirrored by the
designation of a nitrate sensitive area covering the northern part of the area.

6.58. The national typology (shown below) suggests that the entirety of Fife falls within the
commuter category, implying a degree of development restraint. While this may be
appropriate in the more prosperous north and east of the council area, this may be less

78

relevant in the south and west where there are higher levels of social exclusion, allied to local
environments that have been degraded by past industrial activity. These pockets of potential
rural need exist alongside considerable development pressure due to the areas proximity to
Edinburgh. These pressures are greater than in the north and east of Fife.

6.59. Taken together, these factors suggest that a council wide typology would subdivide
the national commuter area into at least two smaller areas, reflecting the variation in the
socio-economic, local environmental and historic character of north-east and south-west Fife.
The typology could also reflect the variations in market pressures for residential development
in the east and west of the area. As a result, development control policies with varying
assessment criteria for applications could be provided in relation to different parts of the area.
Such policies may either reflect a presumption in favour of, or against residential
development in different typological categories.

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SCENARIO 3:
Policy Scale
Bottom up typology

Policy Application

Developing and
testing plan options

Local and Structure

Plan approaches

Policy Issue

Achieving
environmental
protection and
enhancement

6.60. In considering whether or not to develop a typology, it is firstly important to think

about how far it is likely to be taken. Will the typology be used to help develop a better
understanding of an area (characterisation) or will it have a more normative role and be taken
forward to guide the development of policies? This may influence the level of detail allowed
for in the approach. In this scenario, the typology would play an implicit role within the plan
development stage, allowing the planning authority to consider potential development options
within an area, which can then be tested in relation to market demand and sustainability.
6.61. In this scenario, it is interesting to combine this implicit, yet strategic role with an
approach that allows for qualitative criteria on the environment to be identified at a local
level, and then fed upwards into the local and structure plans. Although some top down
analyses might be useful, particularly in terms of the identification of areas which are
protected for their cultural and natural heritage values, it is also useful, particularly within
rural areas, to build in local communities perspectives on how much development might be
accommodated within their areas. Communities, with land manager representation, would
also be well placed by working with environmental agencies and professions, to consider the
extent to which these environmental constraints and opportunities relate to their wider needs
for service provision and employment. The typology would provide scope for the
environmentally focused approach to be intrinsically linked with related social and economic
considerations.
6.62. This process is illustrated and compared with the national typological approach in
Figure 6.3.

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Figure 6.3 Developing local typologies based on an assessment of capacity

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Real life example: Argyll and Bute

6.63. Argyll and Bute is an extensive council area, extending from Helensburgh in the east
to the islands of Coll and Tiree in the west. The council area covers 26 islands including the
larger islands of Islay, Mull and Jura, together with the Kintyre peninsula. Cut by a series of
lochs, with intervening hills and ridges, the council area is significantly more remote than its
physical proximity to the central belt would suggest. The economy is dominated by activities
such as forestry and tourism, though specialist sectors such as distilling are locally important.
With a history of depopulation and with sectors such as agriculture experiencing structural
change, securing appropriate forms of economic growth is a key local priority while
conserving the areas natural and cultural heritage.

6.64. Analysis of Scottish Executive maps of access to services and access to employment
suggest significant problems across much of Argyll and Bute, confirming the importance of
regeneration and economic development as council wide priorities.

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6.65. At the same time, an overview of environmental designations highlights the

significance and sensitivity of much of the council area, suggesting that development needs to
be carefully considered in relation to its environmental impact. Equally, it highlights the
opportunity for economic development that responds to the opportunities presented by the
areas high quality environment.
6.66. Comparison with the simple typology (based on urban, commuter, intermediate and
remote categories) indicates that the bulk of Argyll and Bute falls within the remote
category. The only exceptions to this are the area around Helensburgh and Gareloch
(classified as commuter areas, reflecting their proximity to the A82 corridor and Dumbarton
and Glasgow to the east), and the area along the eastern side of Cowal and Lochs Long and
Fyne (classified as an intermediate area). With the exception of these two areas, it is clear
that the national topography sheds relatively little additional light on planning policies across
the area. This, therefore places even greater emphasis on the process of developing a local,
or bottom up typology as a means of informing development plan policies.

6.67. Reflecting these issues, Argyll and Bute Council is in the process of developing a
finer grain typology at a scale of 1:5000. The approach is based on the areas environmental
sensitivity or capacity for development.
6.68.

The Council has identified the following areas:

Those parts of Argyll and Bute lying within the Loch Lomond and the Trossachs National
Park;

Countryside around settlements - where there is a need for a planned response to

development;

Greenbelt areas close to settlements on the edge of the Glasgow conurbation where a
planned response based on strict controls, settlement separation and buffer areas is
appropriate;

Very sensitive countryside where there is very limited general capacity to successfully
absorb development;

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Sensitive countryside where there a limited general capacity to successfully absorb

development; and

Rural opportunity areas where there is general capacity to successfully absorb small
scale development.

CONCLUSIONS DEVELOPING AND APPLYING TYPOLOGIES

6.69. Based on the research findings, this section has shown that rural typologies can be
developed and used in a variety of different ways, with each Council area being best placed
to determine their role in relation to local contexts. The examples provide an insight into the
ways in which nationally defined typologies may or may not provide a starting point for such
typologies. The scenarios discussed here show how the concept can be developed and
applied through development plans and the development control process. When the range of
potential scales, roles and aims of typologies is taken into account, it is clear that typologies
have a key role to play in devising rural policies which reflect spatial differentiation across
the policy spectrum.

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CHAPTER 7. CONCLUSIONS
7.1.
Rural Scotland is clearly heterogeneous, and this research has shown that planning
policies relating to these areas are similarly varied. As a result, it is not possible to define a
single typological approach or set of criteria, which would be relevant to all of rural Scotland.
The approaches identified in the case studies showed that each typology has been developed
in response to locally specific issues, as might have been expected given the role of
typologies in providing a tailored response to issues and opportunities. As a result, this
research has provided an outline of a process for defining typologies in a way which is locally
specific, whilst also being set within a national strategic framework.
7.2.
Typologies have various roles at different levels of policy and decision making.
Nationally, it is useful to develop a perspective and to prioritise areas of development and
constraint, to help ensure that commitments to rural development can be achieved. At the
structure plan level, typologies can respond to this framework, and provide further strategic
interpretation in order to inform the definition of typologies within local plans. Through
local plans, typologies can provide a more clearly defined approach, in order to help create
more certainty and therefore encourage development in areas and sectors where need and
opportunity are greatest. The development control process can be greatly assisted by this
framework, with the case studies showing that they act as a mechanism for balancing site
specific considerations with the bigger picture within any given area.
7.3.
Some further methodological conclusions can be drawn from the research. Whilst
typologies should respond to their contexts and will therefore vary, experience and
typological research from within Scotland and further afield suggests that land use planning
could benefit significantly from being founded on typologies which reflect a combination of
social and economic characteristics, as well as environmental analyses. Taking this further,
typologies can do more than just reflect data that provide a snapshot of local circumstances
in any given point in time. By making use of qualitative criteria, and building in analyses of
attributes such as capacity or trend data, typologies can become more robust and potentially
more relevant to policy making. In particular, the experience in Canada suggests that an
areas capacity and institutional infrastructure is as important an indicator of its health and
need for development, as more clearly identifiable but relatively simplified criteria based on
outputs such as poverty or employment. In Scotland, the work being undertaken in parallel
with the planning process to prepare community plans potentially provides a way of
understanding rural areas, which could be built into typologies as it progresses. The value of
integrating a range of stakeholder perspectives within typologies in order to ensure that
multiple criteria are fully understood and integrated, is also clear from the research findings.
7.4.
Both theory and practice support an approach to typologies that combines a range of
different data sources to provide integrated conclusions on the capacity of an area to absorb
development. At the same time, however, it is important that typologies remain a relatively
simple way of understanding the needs and opportunities within an area, and that they do not
become so complex that their value in providing transparency for the planning system,
developers and communities is not lost. Planning authorities should avoid developing overly
prescriptive typologies, so that the approach is sufficiently flexible to allow them to guide but
not standardise policy and decision making.
7.5.
As shown by the case studies, the approaches that have emerged in each case have
been developed as a result of local issues and opportunities. Comparison of locally based
typologies with the framework provided by NPPG15 and other national typologies could add

85

another dimension to the process and assist with the integration of policy objectives at all
levels in the planning process. The review of research and experience from further afield
suggests that the approach to typologies set out in NPPG15 has a number of similarities to
approaches that have emerged in other countries. At present, some development plan
typologies in Scotland follow the guidance set out in NPPG15 on rural typologies, whilst
others take a different stance as a result of local characteristics.
7.6.
The advice provided in NPPG15 provides a starting point for the process of
developing rural typologies, but was not intended to prescribe a particular set of criteria that
should be literally applied at the local level. Instead, each planning authority should explore
the potential relevance of this and other national perspectives, including those which may
emerge from the National Planning Framework. Ideally, but not in every case, the
combination of different typological layers from the national to local level could be
mutually reinforcing, with higher levels of detail emerging from increasingly localised
interpretations of an area. However, these different levels of typological development should
be recognised as being distinctive, providing an opportunity to enhance our understanding of
rural Scotland at all policy levels.

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February 2005
Crown Copyright
ISBN 0 7559 2528 9

Astron B38801 02-05