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!!E.5.11 Solving the ‘HLA in Planning’ Problem: Aberdeenshire case study
''Bruce Mann, Aberdeenshire Council''
One question currently echoing around Local Authorities is what can we do with Historic Landuse Assessment (HLA) data? In Aberdeenshire this is being addressed by integrating part of the HLA data into the Sites & Monuments Record (SMR). HLA not only presents a broad indication of the sweep from moors in the highlands down to farming in the lowlands, it also tells a more complex story. After the dataset had been made available across Aberdeenshire’s Planning Service as an overlay on its GIS, there was uncertainty about what to do with this story. Multiple landscape types varying in period and use proved to be difficult to interpret for untrained staff. Considering the pressures that Development Control (DC) officers already faced in dealing with planning applications and the numerous issues to consider as potential constraints, it was decided to incorporate HLA into the planning system in a different way from its existing overlay. Responsibilty for interpretation of the data resided with the Archaeology Service within the Council, which allowed the logical step of moving information from HLA into the SMR so that landscapes could be presented as archaeological sites (see figures 57 and 58).
Obviously not all landuse types as defined in HLA can be made into archaeological sites. HLA on the whole provides a historical landscape setting in which the monuments lie, something that will be used in the contexts of strategic policy decisions in the future. For the purpose of examining how rare landscape types in HLA could be integrated into planning it was decided to use Designed Landscapes as the initial example.
As with all Local Authorities there is a separate inventory for Historic Gardens and Designed Landscapes. The Inventory for Aberdeenshire contains 26 examples of national importance, leaving a far greater number identified through HLA falling outside of the ‘special consideration’ given to those on the list. By taking such landscapes and giving them archaeological designations the following processes had to be undertaken:
#Using the Designed Landscape type as a template, as displayed on the HLA overlay, the landscapes were added to the archaeological GIS overlay as polygons defining the exact area covered. The polygons were then linked to an entry in the SMR database. This had the effect of creating a unique site record for each designed landscape that integrated seamlessly into the overall SMR.
#A consensus was reached among the parties that would normally comment on planning applications relating to designed landscapes as to how all comments would be presented to a developer. This involved the Environment Planners (landscape, projects, natural heritage), the Built & Cultural Heritage Planners (listed buildings, conservation, archaeology) and where appropriate selected team leaders/managers. A new flagging system was established in which all parties were informed of a pending application and allowed to forward their comments to one document that went out in response.
#A new model development brief dealing solely with the archaeological concerns of designed landscapes was written. This allowed a standard set of mitigation measures aimed specifically at designed landscapes to be put into place that supplemented other planning considerations such as Tree Preservation Orders and so forth. This model brief can also act as an aid for a developer during pre-scoping talks prior to a formal application being submitted.
#New supplementary planning guidance notes were written with the aim of clarifying for planning staff what a designed landscape is, the typical features found within it, and what to preserve.
#A draft version of the new Archaeology Policy for the Local Plan was created. The new policy will include HLA as a whole and act as a broad context for all the landscape types that may be flagged up in the future as being nationally or regionally important.
%%image-caption
[{Image src='fig57.jpg' alt='Figure 57: HLA overlay showing a Designed Landscape.'}]
''Figure 57: HLA overlay showing a Designed Landscape (©Aberdeenshire Council 2007 and ©Crown Copyright. All rights reserved. 100020767. 2007).''
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The immediate benefit of SMR integration and removal of the HLA dataset from the DC process was that it removed the need for extensive training in interpretation and guidance for staff. The additional problem of why DC should consider HLA in the first place, when there are currently no policies that mention it, was also resolved, as the land-use types now became archaeological sites on the GIS overlays. Following this successfully adaptation of one part of HLA to suit the planning system, in particular development control, we can draw several conclusions:
#HLA should be presented to a Council in two formats: the first is the original dataset that anyone can use at a strategic level. The second is a modified version of the data that is simpler to use and understand by untrained staff. This could follow Aberdeenshire’s example of putting selected portions of the data such as designed landscapes or relict landuse types into other, current, databases such as the SMR so that staff do not have to do the interpretation.
#The policies in the Structure and Local Plans need to take into account HLA and the question of landscape setting within their wording. This will ensure that policy teams and DC consider HLA.
#Guidance notes and development briefs have to be written for each landscape type that is to be protected in order to achieve consistency and understanding, including dealing with the practical need to manage the key features of these landscapes without precluding acceptable development. This goes beyond the current guidelines issued by HLA.
#When dealing with entire landscapes there will always be several sections of Planning that will want to comment on applications. A unified approach must be adopted for responses so that a developer knows what is wanted from the outset.
By integrating the important landscape types from HLA into the SMR and packaging them with their own guidance notes and so forth, a very flexible system can be created that adapts to changing pressures from developers. It also makes the landscapes easier to understand for planning staff and could perhaps help form a detailed manual on HLA interpretation for the future in the Council. But perhaps the most important aspect is that the story HLA is telling is no longer being missed.
%%image-caption
[{Image src='fig58.jpg' alt='Figure 58: SMR overlay showing same Designed Landscape as an archaeological site.'}]
''Figure 58: SMR overlay showing same Designed Landscape as an archaeological site (©Aberdeenshire Council 2007 and ©Crown Copyright. All rights reserved. 100020767. 2007).''
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