National Marine Plan 2 - planning position statement: consultation analysis

Executive Summary

The National Marine Plan 2 (NMP2) will replace the existing National Marine Plan (NMP), setting out planning policies to guide decision-making for Scotland’s seas, with a view to balancing the different needs of people, environment and economy. NMP2 will facilitate improved opportunities for co-existence and address conflict arising from competition for marine space.

Past, present and future challenges mean we need to make the right choices so our seas can continue to benefit future generations. As part of our commitment to consider just transition principles in the marine planning process, we have been sharing outputs as they become available, inviting views and feedback from the people who use or rely on Scotland’s seas to better understand their needs.

Delivering a new NMP relies on listening and working with those who know our seas best, using their experiences and knowledge to help create a new plan that works well for the people of Scotland.

A key stage in the development of NMP2, and as committed to in our NMP2 Statement of Public Participation and Stakeholder Engagement Strategy, was publication of the Planning Position Statement (PPS). The PPS contained updated objectives, representing the national-level ambition for what marine planning can do to support sustainable development in our seas, and potential approaches to planning policy.

A public consultation ran from 5 November 2024 to 7 February 2025, asking for feedback on the objectives and policy ideas set out within the PPS, and early-stage work in the development of the NMP2.

This consultation analysis report has been prepared based on the key findings of the public consultation process; summarising feedback received from a range of marine sector stakeholders and focusing on key themes where divergent views have been expressed.

In total, 102 responses were received in response to the PPS consultation. These were from a wide range of individuals, stakeholder groups and decision makers, representing the varied interest in how we use and protect our seas. We have taken account of the responses received, including via the analysis conducted in this report, and are using these to inform our next steps in terms of engagement and development of NMP2.

The responses highlight divergent views from stakeholders. Several key issues affecting marine planning have been identified and are summarised below.

Clearer priorities for Scotland’s seas

Scotland’s marine space is used for a variety of purposes, each important to

Scotland’s economy, environment and cultural heritage in different ways. However, there are a myriad of expectations for marine planning across sectors, with differing views expressed on:

• what outcomes or uses should be prioritised
• how priority use could be determined
• how prioritisation could be delivered
• how to better recognise and support the range of different island and coastal community priorities through planning

Competition for space

As the intensity and range of human activities continues to increase in response to demand for marine products, energy and transport, competition for marine space is unavoidable. Many respondents highlighted that the increasing demand on available marine space could result in conflict between sectors, as well as displacement of existing uses where emerging uses are favoured.

Although not proposed in the PPS, marine spatial planning as a concept was raised in many of the consultation responses, showing broad support for further consideration of spatial planning by developers, decision makers (including government agencies), Environmental non-governmental organisations (ENGOs) and community groups.

It is clear that there is an expectation for the NMP2 to be used to implement the Scottish Governments priorities for the use of space, therefore helping to reduce the likelihood of conflict where there is competition for space.

Implementation of existing marine plans and measures

Several responses noted a preference for improved implementation of the existing NMP, including to deliver action on Good Environmental Status (GES), over the ideas proposed for NMP2. Some responses raised concerns that the proposals in the PPS could weaken environmental protection by removing sector-specific objectives, not implementing spatial restrictions, and through updates to the existing planning policy on Priority Marine Features (PMFs).

Stakeholder frustration

In several responses there is an indication of wider frustration and stakeholder fatigue due to the number of consultations and the lack of tangible and timely government action to address marine issues. This was in relation to a range of topics, from environmental protection to displacement of fisheries.

For example, the Fish Producers’ Organisations noted in their PPS responses: “Historically, fishing interests have been side-lined in favour of offshore energy and conservation, with consultations often being tokenistic rather than meaningfully impactful.”

Conclusion

The decisions that govern our oceans are vital to the future of our planet. It is clear, from the varied and in-depth responses received, that the sustainable management to protect and support our valuable marine environment is of the utmost importance to the people of Scotland.

Marine planning is a powerful tool for managing multiple use of our seas by bringing together different interests, and balancing the needs of people and our environment through decision-making. We want NMP2 to support the sustainable development of our seas, protect our marine environment, and deliver for our coastal communities. It is therefore essential that we speak and work with those who know our seas best.

This approach is part of our commitment to the just transition principles in the marine planning process, and we would like to thank everyone who responded for providing us with their views.

This report provides a detailed analysis of the varied responses and issues raised during the public consultation. At the end of our analysis, we have set out our response to some of the specific issues raised and clarified our next steps in more detail.

However, it is clear that further consideration of particular issues is required, in order to adequately address emerging and existing issues and provide an effective, overarching planning framework for the sustainable development of our marine area.

We have therefore made the decision to postpone the upcoming consultation on a draft NMP2. This is to allow for further consideration of the feedback received and our intended approach to the draft NMP2. We will provide a further update on anticipated timing which will be communicated in due course.