Architecture and Design Scotland review: background report

Options

5.0 The purpose of the Review is to identify how activity and resources that support the delivery of architecture and design policy can be best deployed to deliver improved outcomes within the current context.

Activity

5.1 The outcomes of the functional assessment and stakeholder feedback indicate that improvements can be made to increase the impact of A&DS through adjusting the activities of the body.

Resources

5.2 As a small NDPB, A&DS resources are limited and currently spread over a wide range of issues. There are significant challenges over budget sustainability for A&DS and very limited ability for the body to reduce costs further. There are potential benefits in reforming the structure of A&DS to achieve budget sustainability and optimise impact from the allocation of resources.

Context

5.3 The context in which A&DS is operating has changed significantly since the previous review of the body. The conditions around public finances, Ministerial priorities and the shape and composition of built environment and creative industry organisations have evolved. The economic analysis has also identified new opportunities for the growth of Scottish architecture and design. Responding to these shifts in context is essential to ensure public investment achieves best value.

5.4 The engagement and analysis has led to the development of a series of options, illustrating potential future pathways that may be explored further as part of a programme of improvement and reform for A&DS. These options comprise a number of potential changes, some of which may be more deliverable and impactful than others. The proposed options within this Review are illustrative rather than definitive and the exact configuration of future pathways for the organisation should be explored further, alongside impact, viability, and cost of each option.

5.5 Options for reform are categorised under the below headings:

• A&DS role
• Income generation
• A&DS structure
• Strategic partnerships

A&DS role

5.6 The current aim of A&DS to make ‘the implementation of the Place Principle and everyday reality’ is derived from the policy direction within the Creating Places statement as well as increased focus on place-based working in Scotland. However, this has led to the role of the organisation drifting away from architecture and design, resulting in low visibility of A&DS work in some key stakeholder areas. This limits the reach and impact of the organisation and has led to real and/ or perceived duplication with the role of other organisations.

5.7 Feedback from the architecture profession has been that awareness of current A&DS activity is very low. Priorities for the sector revolve around growing opportunity and supporting the benefits of design within high value sectors, such as construction. The role of design to develop solutions to societal problems was also highlighted as a strong opportunity not fully capitalised on.

5.8 A&DS is a small organisation tasked with promoting architecture and design across Scotland. However, Scotland has a high quality and very well-respected architecture profession and there may be benefits in adopting a more strategic approach which more directly supports the development of the architecture profession. A well-functioning and innovative architecture profession is then well placed to deliver economic benefits as well as applying the advantages of good design to a wider range of social and environmental outcomes.

Sector development role

Architecture practice

5.9 A compelling case exists to switch A&DS’s focus from promoting good design outcomes in the built environment towards supporting the architecture and design sector more actively.

5.10 As part of improving public services, there is good potential to consider A&DS design involvement in public projects to improve efficiency and impact. This involves developing a strong evidence base to help to embed high quality architectural design skills early in the process and throughout.

5.11 There is potential for architecture and design skills to develop solutions to social problems by initiatives aimed at addressing societal and environmental issues. This requires consideration of other policy levers such as procurement and planning as well as continuing engagement with public sector and industry organisations.

5.12 The economic analysis identified good export opportunities for architecture. International practice suggests a holistic approach rooted in a specific industry and guided by specialists and its community is the best way to develop a sub-sector in a rounded, long-term way.

5.13 This may be supported by dedicated programmes to promote and develop international trade through trade missions; providing advice (directly or through third parties) on practicalities of operating internationally; business development advice; professional accreditation advice; linkages with Scottish Government overseas offices etc.

5.14 Agreeing networks and partnerships with design bodies in Scotland, the rest of the UK and internationally can help the increase resources A&DS can call on to develop its role. This can be extended to strengthening links with other design sub-sectors where knowledge transfer opportunities exist.

5.15 International opportunities can be supported through building a narrative around Scottish architecture and incorporating brand promotion as part of industrial growth policy.

Cultural activity

5.16 Alongside supporting the health and impact of Scottish architecture practice, there is an important cultural role played by architecture and this has been acknowledged and supported through previous policy delivery work. This type of activity is viewed as important by the sector and a key element of raising awareness of the value and role of architecture and design.

5.17 The Lighthouse in Glasgow formerly operated as a national centre for design and architecture, initially as a trust in receipt of public support and then supported through A&DS programmes whilst the body was a tenant and participant in the building. With The Lighthouse no longer operating as a national centre for design and architecture, and with A&DS resource constraints meaning that the body is not able to independently support exhibitions, there is an absence of a coordinated public programme on architecture.

5.18 Including consideration of a public programme as part of sector development work may help to identify synergies and opportunities to promote and support architecture as both as a business activity and as cultural activity. In particular, the role of strategic partners and building on complementary activities has potential to address the current gap in activity. For example, the V&A Dundee has been established as the national centre for design, has a world-renowned brand and receives public funding. Exploring ways in which relationships with cultural institutions such as V&A Dundee can be developed to support sector and cultural; development is critical to maximising resources, activity, and impact.

5.19 Additionally, international promotion of Scottish architecture has been supported, principally through participation in the architecture exhibition at the Venice Biennale, commissioned through the Scotland + Venice partnership (comprising Creative Scotland, British Council Scotland, national Galleries Scotland, Architecture & Design Scotland, and the Scottish Government). The Venice Biennale has annual exhibitions on visual art and on architecture, taking place on alternate years, each running for 6 months.

5.20 In 2023 the Scotland + Venice partners announced a pause in participation in the Venice Biennale from 2024 to review the project. An independent review of Scotland’s participation at the Venice Biennale was subsequently commissioned by the Scotland + Venice partners and a report^[7] published in April 2025. The review determined that different tactics were needed for art and architecture. Following the publication of the Review the Scotland + Venice partners announced the intention for Scotland’s participation in the visual arts Biennale to resume in 2026, and a commitment to future editions in 2028 and 2030. The review also stated that further consultation should continue with the architecture sector to determine an appropriate model with funding for architecture to return to Venice in future.

5.21 Participation in the Venice Biennale provides a high-profile global platform to showcase Scottish architecture. However, the resources required to support the project are significant and there is no current and objective evaluation of the overall impact and benefit to Scottish architecture. Therefore, it is reasonable to consider future participation in the Venice Biennale alongside other opportunities to support Scottish architecture internationally and this could be explored further.

Centre of excellence

5.22 A shift towards supporting sectoral development may be combined with maintaining, and strengthening, functions on technical design expertise and there are good examples of this operating well in other public bodies. This would likely require a more streamlined and focussed approach around a clearly defined set of priorities. This prioritisation would provide opportunity for A&DS technical design expertise to be presented as a national centre of excellence.

5.23 This role may take a variety of forms, such as researching, collating, and publishing cutting edge developments in architecture and design; publishing strategic national guidance documents on design; providing design advisory service for nationally significant building and placemaking projects; coordinating architecture and design related activity across organisations nationally.

5.24 Developing A&DS as a centre of excellence has potential to improve the profile and reputation of A&DS and increase the viability of income generation through paid-for design advice services.

5.25 The A&DS design review function has been referenced positively by stakeholders and a refreshed and revised design review function may support this role, in particular as a requirement for major public sector capital investment/ nationally significant projects.

5.26 Place-based working would continue to form a significant part of the operating environment: however, the role of the organisation would be more clearly focussed on supporting priorities through action on architecture and design.

Income generation

5.27 Developing an income generation or cost recovery model would help support budget sustainability and potentially provide the A&DS with resources to invest in innovation and development.

5.28 Generating income through A&DS design services has been proposed and rejected previously, but the prospect has never been explored in detail. Comparable models for income generation from other design organisations currently exist and operate successfully, notably Design Council and V&A Dundee Design and Innovation team. Similarly, A&DS programmes may be delivered using expert panellists or associates from external organisations, allowing specialist industry capacity to compliment skills within core staff teams. Services may be charged at a commercial rate or for cost recovery. Subsidy control issues would require to be explored in developing any income generation model.

5.29 Current constraints around public finances mean that income generation from public sector clients is likely to be challenging, in the short term at least. For an income generation or cost recovery model to be successful, there needs to be a clear benefit for service users and a viable client base. Previously, the prospect of income generation has not been pursued due to a perceived lack of resource in key potential client groups such as local authorities. The benefits for private industry, such as the development sector and housebuilders have not been developed or tested.

5.30 Income generation may be viable for A&DS if clear benefits are demonstrated to service users and an appropriate programme developed. This would be supported by developing the evidence base on the impact of design approaches based on research and exemplar models. Learning from and linking with V&A Dundee programmes on chargeable design services and research base would be an appropriate starting point.

A&DS structure

5.31 The below options for structural reform are indicative only and provided for discussion and potential further exploration. They have not been examined in detail, nor tested for legal viability.

Maintain status quo

5.32 This would involve maintaining A&DS as stand-alone, arms-length body in its current form. Projected budget deficits and a transition to a refreshed role mean that maintaining A&DS in current form is likely to pressurise resources. Identifying additional routes of income generation from external sources within the short term is also unlikely, although this may be achievable over a longer timeframe.

5.33 A&DS ran a voluntary severance scheme in late 2024 and further reductions in the size of the organisation would place considerable pressure on its ability to deliver. Without proper consideration of medium to long term structure options, any savings through reducing the size of the organisation risk attritional reductions to a level where ongoing viability becomes uncertain.

In-house delivery of activities within Scottish Government

5.34 Fully integrating A&DS within SG core would effectively mean abolishing the public body, with the staff and functions transferred to government. A model similar to some European Chief/ State Architect roles may be appropriate, where architecture and design promotion is supported through central government.

5.35 Promotion of good design through central government activity is also essentially the model operated by UK Government where the remit to support the design quality of new houses and places resides with the Ministry for Housing, Communities and Local Government (MHCLG). This follows the closure of the arms-length body, the Office for Place in November 2024 and the subsequent redeployment of staff and remit to MHCLG.

5.36 There would be little in immediate savings through this route given A&DS’s high level of expenditure on staff costs that would require to be maintained due to non-compulsory redundancy policy. However, bringing A&DS staff into SG may deliver some efficiencies by releasing SG staff to resource other priorities and increasing overall capacity.

5.37 In the event of a transfer of the functions of A&DS to Scottish Government, the provision of design advice for individual projects would require careful consideration to avoid prejudicing Ministerial involvement in planning applications.

5.38 A move to integrate A&DS within Scottish Government would likely be perceived negatively by stakeholders and could be viewed as a significant removal of support for architecture and design and consequently an erosion of support for the climate agenda and sustainable development. It may also run counter to the messaging withing National Planning Framework 4 around the importance of design, sustainability, and quality.

5.39 If A&DS were to be absorbed into core SG, then retaining a distinct design unit with a similar purpose to that of A&DS would go some way to addressing concerns. However, this would likely simply replicate the existing structure and functions with the loss of the advantages of the arms-length, independent operating model.

5.40 Consideration would need to be given to where this resource would sit within SG. The balance and concentration of skills accumulated alongside strong staff retention internal networks mean that A&DS’s value is greater than the sum of its parts. If A&DS resource was to be dispersed and distributed widely across SG, then there is a danger that the professional skills and experience built up by A&DS over 20 years would quickly be lost.

5.41 The introduction of a new sector development role may be less compatible with Scottish Government activity and this type of activity is generally supported by industry and enterprise agencies, with government actions being more focussed on policy and strategic actions.

Merger/ ‘nested model’ within another publicly funded organisation

5.42 This model would involve A&DS either formally merging or developing a new shared governance and corporate structure with another organisation.

5.43 Nested models can be structured where a distinct area of activity and resource is located within a larger host organisation, which often has a complementary overarching focus or purpose. ‘Nested’ models operate successfully within other public body structures and provide efficiencies and shared resources whilst preserving distinct and operationally independent activities.

5.44 A nested model would provide A&DS with resilience and efficiency on corporate and operational infrastructure whilst allowing the necessary autonomy and independence to fulfil the discrete functions of a national architecture and design body.

5.45 Benefits of adopting a nested model would include:

• retaining a distinct architecture and design body and professional skills within public sector
• retaining Ministerial oversight and accountability
• providing operating efficiencies and organisational resilience
• providing greater flexibility and delivery capacity than through Scottish Government
• opportunity to capitalise on synergies with other services provided by a host body
• increased potential to develop income generation/ cost recovery through linking with wider services within the host organisation
• opportunity to build on successful examples operating within public bodies

5.46 The identification of an appropriate host organisation would be dependent on any changes to the role and functions of A&DS and the outcomes of any the wider public service reform agenda.

5.47 There are a variety of models for a nested approach from full merger and integration within a host body, retention of a degree of dedicated architecture and design non-executive oversight, corporate shared services style arrangements, and looser but formalised partnership agreements. The degree of complexity and timescales associated with a nested model would vary due to any implications for legislation establishing and governing a potential host body. As a company limited by guarantee, A&DS was not established under statute, (other than the Companies Act).

Merger within a not-for-profit organisation/ academia

5.48 A merger or nested model may be possible with organisations outwith the core public sector, such as academia and charitable organisations. This would to some extent mirror the approach taken when UKG dissolved the Commission for Architecture and the Built Environment (CABE) in 2012. This saw some functions of CABE merging with the Design Council, an independent charity.

5.49 Merger with a not-for profit or academic institution would increase the autonomy and independence of the organisation and transfer ongoing budget responsibility away from government to an external organisation (although government may still provide a degree of grant funding in such an arrangement). It may also deliver benefits in terms of cross-fertilisation of ideas and approaches not common to public sector working. It would, however, reduce the ability of government to directly influence the operations and functions, including the extent to which policy and Ministerial priorities are promoted. It would also alter the accountability of the organisation. It is likely to be perceived as a net loss of support for architecture and design by stakeholders.

5.50 There are synergies with a range of independent organisations operating in relevant fields which have relationships to public sector through their current funding arrangements. The location of A&DS within the Edinburgh Futures Institute building provides opportunity to scope out synergies and nature of collaboration potential between A&DS and academic partners.

Strategic partnerships

6.0 Reform of A&DS structure aims to increase the impact of the body. However, as a small organisation A&DS have limited resources with which to address significant policy challenges and priorities. Therefore, considering the activities of A&DS within a wider context of related organisations will help to optimise the ability of the body to effect positive change.

6.1 The cultural role of architecture has been a feature of previous policy delivery with a public programme of activity supported through A&DS and The Lighthouse a key element in this regard. Additionally, international promotion of Scottish architecture has been supported, principally through participation in the architecture exhibition at the Venice Biennale.

6.2 With The Lighthouse no longer functioning as a public centre for architecture and design and the significant resources required to exhibit at the Venice Biennale, consideration of how strategic partnerships may support a public programme of architecture, domestically and internationally, should be explored.

6.3 A strategic partnership around architecture, the wider design sector, the creative industries, and the construction sector would provide a strong and coherent framework for A&DS to operate within. The operation of A&DS within a strategic partnership structure would be an important support for the body in pivoting its operations to focus more on supporting sectoral development.

6.4 Organisations initially identified as key to a wider strategic partnership are set out below.

V&A Dundee

6.5 V&A Dundee has a remit as a national centre for design – there is clear overlap here in terms of the interests and activities of A&DS. V&A receives SG support (circa £3.8m in 25-26) and developing effective links, sharing resources, identifying efficiencies and actions around a common design agenda is imperative if resources are to be optimised.

6.6 V&A has dedicated programmes focussed on design thinking to support the business sector. V&A also undertakes design research programmes and the potential for this to be expanded/ supported to develop the evidence base on design in the built environment should be explored.

6.7 As started previously, A&DS previously supported a public programme for architecture through its presence and exhibitions at The Lighthouse in Glasgow. Resource for this public programme no longer exists within A&DS however consideration may be given to the opportunities to support a public programme around architecture and design through or in partnership with V&A Dundee.

6.8 The considerable profile and resources of V&A Dundee would provide a nationally significant platform to raise public awareness and interest in architecture and to attract interest from the private sector, for potentially minimal investment.

Royal Incorporation of Architects in Scotland (RIAS)

6.9 The RIAS is the professional body for architects in Scotland. There is good scope to engage with RIAS on a strategic level as part of a wider framework, particularly on promotion of Scottish architecture, sector growth and export potential. A strategic partnership would provide direct interaction with, and support for, the architecture sector in Scotland, allowing progress to be made on areas of common interest.

6.10 V&A Dundee and RIAS are independent organisations and implementing a strategic partnership would require negotiation and agreement.

Creative Scotland

6.11 The remit and activities of Creative Scotland extend well beyond the scope of architecture and design but there are significant synergies and overlaps between the activities of the organisation and A&DS.

6.12 In particular, the work of the Creative Scotland creative industries team in providing support for design sector development, funding, business development opportunities and networking as well as close working with V&A Dundee, has clear relationship to architecture and design.

6.13 An independent review of Creative Scotland is currently underway and will consider Creative Scotland’s functions and remit to ensure ongoing relevance for the culture sector and in meeting Ministers’ aspirations. The outcome of this Review may shape the nature of any relationship between A&DS and Creative Scotland.

6.14 Additionally, strategic links with other organisations such as Edinburgh Futures Institute, BE-ST, Design Council and Scottish Futures Trust may add value for A&DS and help to optimise resources and impact.

Wider design remit

6.15 The SG analysis into the economic opportunities within the creative industries highlighted that in future A&DS could have a remit that sees it take more of a leadership role in raising awareness of the potential of design to be used by the wider business sector to design better services and make them work more effectively for users and companies.

6.16 This evidence suggests there is value in exploring how the functions of A&DS may evolve to support design in a wider context, beyond that of the built environment. Experience from other countries such as Denmark as well as research undertaken by V&A Dundee and Creative Scotland suggests a strong community is important for developing the wider design sector.

6.17 The design community in Scotland is distributed across a range of disciplines. Scottish architecture currently has strong community with an active professional body (the RIAS) and a public sector body in A&DS which provides a robust framework to support sectoral development. Establishing a sound and well-functioning sector development model for architecture has potential to be expanded to support other design disciplines over the medium/ longer term.

6.18 Such a model may benefit from the development of strategic partnerships with other key national design organisations, such as V&A Dundee which already provides programmes of design support for business development. This approach would link existing key programmes of public funding for design support in Scotland and would mirror elements of the UK Design Council model and the Danish Design Center which support design thinking across multiple policy areas and industries.

6.19 This model also has potential to increase the visibility and relevance of A&DS to a wider audience of potential public and private sector clients as part of an income generation approach.

Assessment of Options

6.20 Below, is set out, a range of structural reform options considered, and an evaluation of the potential benefits

Status Quo – reduced size

6.21 Maintaining the current arrangement is likely to require rationalisation to manage budget. This may be achieved through:

• deleting posts through natural staff turnover – staff turnover in A&DS is generally low and this option would be reliant on actions outwith A&DS or SG direct control
• voluntary severance – A&DS ran a voluntary severance scheme in late 2024 and further reductions in the size of the organisation would place considerable pressure on its ability to deliver
• limited staff transfer to Scottish Government – transferring a small number of staff to SG (either on temporary or permanent basis) may alleviate immediate budget pressures but would significantly constrain the capacity of the body to deliver on its role. Overall cost to the public purse would not reduce significantly in the short- medium term.

Scottish Government in-house delivery of services

6.22 Delivering A&DS role in-house would effectively mean abolishing the public body, with the staff and functions transferred to government. This arrangement would generate little immediate savings given the current level of expenditure on staff costs would need to be maintained due to non-compulsory redundancy policy. However, bringing A&DS staff into SG may deliver some efficiencies by releasing SG staff to resource other priorities and increasing overall capacity.

6.23 Such a move would benefit from maintaining a distinct and obvious design unit identity within SG. Core SG already undertakes promotion of design quality although some activities around commenting on plans and projects would require appropriate arrangements to manage any perception of overlap with statutory functions. The scope and/ or viability of a potential income generation model may also be affected if design advice services were to be provided by core SG.

6.24 Stakeholder feedback suggests that design review functions add value. SG could provide design review function if it were administered through an independent panel of experts. The loss of A&DS by bringing its functions into central government may be viewed by stakeholders as undermining the importance of design in Scotland.

Merger with another public body

6.25 Merger with another body would allow A&DS purpose to be maintained and delivered through an existing public body. It may provide medium to long term financial benefits through rationalisation of costs and provide greater financial and corporate resilience. However, due to the difference in size, profile, and funding, a ‘merger’ may be perceived by some stakeholders as closer to absorption of A&DS and there may concerns about the ability to maintain a focus on architecture and design over the long term.

Nested model

6.26 A nested model would provide similar benefits to a merger but would preserve the distinct identity and purpose of A&DS. ‘Nested’ models operate successfully within other public body structures and provide efficiencies and shared resources, governance and corporate structures with an umbrella organisation whilst preserving distinct and operationally independent activities. A nested model may provide greater resilience and the ability to preserve a long-term focus on architecture and design and retain existing professional skills. Examples suggests sectoral development activities combined with technical expertise can be an impactful delivery model.

Academic partnership

6.27 Academic Partnership would involve funding a formal partnership/ grant arrangement with an academic institution to provide the functions of A&DS. In the short term this would likely involve transfer of A&DS staff to the organisation. This arrangement may provide benefits in relation to increasing innovation and sharing knowledge on key priorities such as climate change and housing delivery. It may also provide a more arms-length arrangement where resourcing and budget management would be handled independently by the academic institution. However, it would likely involve a reduced level of control over priorities, less direct accountability and the cost/ benefits are unknown. There is a significant risk that the organisation may become seen as more, rather than less, removed from practical challenges such as development delivery.

Merger with (or services provided by) an independent organisation

6.28 Merger with an existing independent organisation was to some extent the approach taken when CABE merged with the Design Council. Some functions of CABE were retained and delivered by Design Council. These built environment functions have become more dispersed across the organisation than when provided through dedicated CABE activities and although the organisation produces material on the built environment it is part of a broader design activity.

6.29 Rather than a merger with an independent organisation, it may be more appropriate for A&DS to engage with other organisations as part of strategic partnership work in the short- medium term.

Public corporation

6.30 There are no goods, assets or services that would support A&DS to function as a Public Corporation

Local Government

6.31 Local Government does not have the resources or skills to deliver the functions of A&DS and is more likely to be a user of design support activities than a provider of the service. However, there may be merit in exploring the potential of linkages/nesting alongside other public investment in architecture, planning, design, and infrastructure to support public bodies to embed design and place.