NPF4 planning guidance: policy 2 - climate mitigation and adaptation

1. Introduction

1.0.1 This guidance supports the application in practice of National Planning Framework (NPF4) Policy 2 climate mitigation and adaptation. It has been prepared with input from representatives of Heads of Planning Scotland, Scottish Futures Trust, the Institution of Civil Engineers, Key Agency Group members SEPA and Architecture and Design Scotland, the Improvement Service, Verture, the Institute of Environmental Management and Assessment and RTPI Scotland.

1.0.2 The guidance will be relevant to applicants, planning authorities, decision-makers and others with an interest in contributing to positive climate outcomes from development in Scotland. Guidance on plan preparation can be found in Section 3, with guidance on planning applications presented in Sections 4 and 5 on mitigation and adaptation respectively.

1.0.3 A glossary containing definitions used in this guidance is included at the end of the document in Section 8.

1.1 Climate Mitigation and Adaptation

1.1.1 Scotland is transitioning to net-zero emissions and building resilience to climate change for the benefit of our environment, people, and prosperity.

1.1.2 Climate mitigation refers to actions taken to reduce the emission of greenhouse gases into the atmosphere. Alongside our actions to reduce emissions, we also need to adapt and build resilience to actual and expected impacts of a changing climate. We know that our changing climate is already causing impacts such as increased rainfall in winters and higher average summer temperatures. The measures taken to increase resilience to these impacts are known as adaptation measures.

1.1.3 Scotland’s climate change legislation sets our overarching goal of net zero emissions of all greenhouse gases by 2045, and Scotland is now halfway to achieving this target. Our decarbonisation pathway to 2045 is under development and will be set at a pace and scale that is feasible and reflects the latest independent advice from the Climate Change Committee. The Climate Change (Emissions Reduction Targets) (Scotland) Act 2024 moved Scotland onto a carbon budget approach to emissions reduction - a carbon budget sets a limit on the amount of greenhouse gases emitted in Scotland over a five-year period. The upcoming carbon budget Scottish Statutory Instrument will set levels for four budget periods - 2026-2030; 2031-2035; 2036-2040; and 2041-2045.

1.1.4 Scotland’s climate change legislation also requires Scottish Ministers to set out an Adaptation Plan to reflect the latest UK-wide evidence base on climate risk, which is updated every five years. Our third Scottish National Adaptation Plan 2024-2029 (SNAP3) is the Scottish Government’s response to the third UK Climate Change Risk Assessment. SNAP3 sets out a comprehensive suite of more than 200 adaptation measures for managing the current and future impacts of climate change in Scotland.

1.1.5 Legislative duties in the Climate Change (Scotland) Act 2009 are also placed on public bodies in Scotland, including local authorities, to ensure their functions are exercised in the way best calculated to help deliver the national Adaptation Plan.

1.2 National Planning Framework 4

1.2.1 NPF4 is a long term plan looking to 2045. NPF4 guides spatial development, sets out national planning policies and designates national developments. It is part of the development plan so influences planning decisions across Scotland. As a statement of national policy, NPF4 also directly informs decisions under other consenting regimes.

1.2.2 Meeting emission reduction targets is one of six statutory outcomes for our National Planning Framework introduced by the Planning (Scotland) Act 2019. Addressing the global climate emergency and the nature crisis have formed the foundations for the spatial strategy as a whole, with the regional priorities setting out opportunities and challenges for reducing emissions and adapting to the long-term impacts of our changing climate, in a way which protects and enhances our natural environment.

1.3 Policy context

1.3.1 There are a range of NPF4 policies which will be relevant to supporting climate mitigation and adaptation. The following policies in particular are relevant and inter-related, such that delivery of one benefits the others.

1.3.2 Policy 1 sets out to encourage, promote and facilitate development that addresses the global climate emergency and nature crisis.

1.3.3 Policy 1 states:

“when considering all development proposals, significant weight will be given to the global climate and nature crises”.

1.3.4 Policies 3 and 4 protect biodiversity and natural assets, which is further supported by Policies 5 on soils and 6 on forestry, woodland and trees, reflecting the important role that nature can play in both mitigation and adaptation. Adaptation and resilience is a key component of Policy 10 on coasts, Policy 20 on blue and green infrastructure and Policy 22 on flood risk and water management. Policy 7 protects the embodied carbon in the historic built environment, and Policy 9 makes better use of previously used land and buildings, helping to lock in carbon. By supporting the transition of key emissions generating activities, Policy 11 supports renewable energy development, Policy 19 helps to decarbonise heat, alongside Policy 18 and its encouragement of an infrastructure first approach. Policy 12 encourages sustainable waste management, reducing emissions, and Policy 13 will facilitate a transition towards more sustainable, lower emissions travel.

Several policies support more local living and limit the use of additional land for development. This includes Policy 8 which manages development in the greenbelt, Policy 15 which promotes local living, and Policy 16 focuses on delivering new homes that are designed to a high standard and located in sustainable places.

Minimising and reducing emissions is also integral to the six qualities of successful places, as set out in Policy 14.

1.3.5 Most significantly, Policy 2 plays a critical role in ensuring development helps meet greenhouse gas emissions targets and adapts to the current and future impacts of climate change.

1.3.6 NPF4 Policy 2 Climate Mitigation and Adaptation sets out that:

‘…development proposals will be sited and designed to minimise lifecycle greenhouse gas emissions as far as possible and adapt to current and future risks from climate change. Retrofit measures to existing developments for emissions reduction or climate change adaptation will be supported.’

1.3.7 NPF4 must be read and applied as a whole and the planning system requires decision makers to weigh up all relevant development plan policies, as well as relevant material considerations in applying balanced planning judgement (section 25 of the Town and Country Planning (Scotland) Act, 1997, as amended). It will be for the applicant to demonstrate, through the planning application, whether and how relevant policy tests have been met. Further advice to support the application in practice of Policy 2 specifically is contained throughout this guidance.

1.4 National Developments

1.4.1 The Planning (Scotland) Act 2019 introduced a requirement for our National Planning Framework to include an assessment of the likely impact of each proposed national development's lifecycle greenhouse gas emissions on achieving national greenhouse gas emissions reduction targets. Where individual development proposals come forward, this assessment can help inform further, more detailed consideration at project level. A copy of the research informing this assessment can be obtained from the Scottish Government by emailing chief.planner@gov.scot.