National Planning Policy Framework

National Planning Policy Framework

www.communities.gov.uk
community, opportunity, prosperity

National Planning Policy Framework

March 2012
Department for Communities and Local Government

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March, 2012
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Contents
Ministerial foreword 

i

Introduction

1

Achieving sustainable development

2



1. Building a strong, competitive economy

6



2. Ensuring the vitality of town centres

7



3. Supporting a prosperous rural economy

9



4. Promoting sustainable transport

9



5. Supporting high quality communications infrastructure

11



6. Delivering a wide choice of high quality homes

12



7. Requiring good design

14



8. Promoting healthy communities

17



9. Protecting Green Belt land 

19

10. Meeting the challenge of climate change, flooding and coastal change

21

11. Conserving and enhancing the natural environment

25

12. Conserving and enhancing the historic environment

30

13. Facilitating the sustainable use of minerals

32

Plan-making

37

Decision-taking

45

Annexes


1. Implementation

48



2. Glossary

50



3. Documents replaced by this Framework

58

|i

Ministerial foreword
The purpose of planning is to help achieve sustainable
development.
Sustainable means ensuring that better lives for ourselves don’t
mean worse lives for future generations.
Development means growth. We must accommodate the new
ways by which we will earn our living in a competitive world.
We must house a rising population, which is living longer and
wants to make new choices. We must respond to the changes
that new technologies offer us. Our lives, and the places in which we live them,
can be better, but they will certainly be worse if things stagnate.
Sustainable development is about change for the better, and not only in our built
environment.
Our natural environment is essential to our wellbeing, and it can be better looked
after than it has been. Habitats that have been degraded can be restored. Species
that have been isolated can be reconnected. Green Belt land that has been
depleted of diversity can be refilled by nature – and opened to people to
experience it, to the benefit of body and soul.
Our historic environment – buildings, landscapes, towns and villages – can better
be cherished if their spirit of place thrives, rather than withers.
Our standards of design can be so much higher. We are a nation renowned
worldwide for creative excellence, yet, at home, confidence in development itself
has been eroded by the too frequent experience of mediocrity.
So sustainable development is about positive growth – making economic,
environmental and social progress for this and future generations.
The planning system is about helping to make this happen.
Development that is sustainable should go ahead, without delay – a presumption
in favour of sustainable development that is the basis for every plan, and every
decision. This framework sets out clearly what could make a proposed plan or
development unsustainable.
In order to fulfil its purpose of helping achieve sustainable development, planning
must not simply be about scrutiny. Planning must be a creative exercise in finding
ways to enhance and improve the places in which we live our lives.
This should be a collective enterprise. Yet, in recent years, planning has tended to
exclude, rather than to include, people and communities. In part, this has been a
result of targets being imposed, and decisions taken, by bodies remote from them.
Dismantling the unaccountable regional apparatus and introducing neighbourhood
planning addresses this.

ii |

In part, people have been put off from getting involved because planning policy
itself has become so elaborate and forbidding – the preserve of specialists, rather
than people in communities.
This National Planning Policy Framework changes that. By replacing over a
thousand pages of national policy with around fifty, written simply and clearly,
we are allowing people and communities back into planning.

Rt Hon Greg Clark MP
Minister for Planning

|1

Introduction
1.

The National Planning Policy Framework sets out the Government’s planning
policies for England and how these are expected to be applied.1 It sets out
the Government’s requirements for the planning system only to the extent
that it is relevant, proportionate and necessary to do so. It provides a
framework within which local people and their accountable councils can
produce their own distinctive local and neighbourhood plans, which reflect
the needs and priorities of their communities.

2.

Planning law requires that applications for planning permission must be
determined in accordance with the development plan,2 unless material
considerations indicate otherwise.3 The National Planning Policy Framework
must be taken into account in the preparation of local and neighbourhood
plans, and is a material consideration in planning decisions.4 Planning policies
and decisions must reflect and where appropriate promote relevant EU
obligations and statutory requirements.

3.

This Framework does not contain specific policies for nationally significant
infrastructure projects for which particular considerations apply. These are
determined in accordance with the decision-making framework set out in the
Planning Act 2008 and relevant national policy statements for major
infrastructure, as well as any other matters that are considered both
important and relevant (which may include the National Planning Policy
Framework). National policy statements form part of the overall framework
of national planning policy, and are a material consideration in decisions on
planning applications.

4.

This Framework should be read in conjunction with the Government’s
planning policy for traveller sites. Local planning authorities preparing plans
for and taking decisions on travellers sites should also have regard to the
policies in this Framework so far as relevant.

5.

This Framework does not contain specific waste policies, since national waste
planning policy will be published as part of the National Waste Management
Plan for England.5 However, local authorities preparing waste plans and
taking decisions on waste applications should have regard to policies in this
Framework so far as relevant.

1 A list of the documents revoked and replaced by this Framework is at Annex 3.
2 This includes the Local Plan and neighbourhood plans which have been made in relation to the area (see glossary for full
definition).
3 Section 38(6) of the Planning and Compulsory Purchase Act 2004 and section 70(2) of the Town and Country Planning
Act 1990.
4 Sections 19(2)(a) and 38(6) of the Planning and Compulsory Purchase Act 2004 and section 70(2) of the Town and
Country Planning Act 1990. In relation to neighbourhood plans, under section 38B and C and paragraph 8(2) of new
Schedule 4B to the 2004 Act (inserted by the Localism Act 2011 section 116 and Schedules 9 and 10) the independent
examiner will consider whether having regard to national policy it is appropriate to make the plan.
5 The Waste Planning Policy Statement will remain in place until the National Waste Management Plan is published.

2 | National Planning Policy Framework

Achieving sustainable development
International and national bodies have set out broad principles of sustainable
development. Resolution 42/187 of the United Nations General Assembly
defined sustainable development as meeting the needs of the present without
compromising the ability of future generations to meet their own needs. The
UK Sustainable Development Strategy Securing the Future set out five ‘guiding
principles’ of sustainable development: living within the planet’s environmental
limits; ensuring a strong, healthy and just society; achieving a sustainable
economy; promoting good governance; and using sound science responsibly.

6.

The purpose of the planning system is to contribute to the achievement of
sustainable development. The policies in paragraphs 18 to 219, taken as a
whole, constitute the Government’s view of what sustainable development in
England means in practice for the planning system.

7.

There are three dimensions to sustainable development: economic, social and
environmental. These dimensions give rise to the need for the planning
system to perform a number of roles:
●●

an economic role – contributing to building a strong, responsive and
competitive economy, by ensuring that sufficient land of the right type is
available in the right places and at the right time to support growth and
innovation; and by identifying and coordinating development
requirements, including the provision of infrastructure;

●●

a social role – supporting strong, vibrant and healthy communities, by
providing the supply of housing required to meet the needs of present and
future generations; and by creating a high quality built environment, with
accessible local services that reflect the community’s needs and support its
health, social and cultural well-being; and

●●

an environmental role – contributing to protecting and enhancing our
natural, built and historic environment; and, as part of this, helping to
improve biodiversity, use natural resources prudently, minimise waste and
pollution, and mitigate and adapt to climate change including moving to
a low carbon economy.

Achieving sustainable development | 3

8.

These roles should not be undertaken in isolation, because they are mutually
dependent. Economic growth can secure higher social and environmental
standards, and well-designed buildings and places can improve the lives of
people and communities. Therefore, to achieve sustainable development,
economic, social and environmental gains should be sought jointly and
simultaneously through the planning system. The planning system should
play an active role in guiding development to sustainable solutions.

9.

Pursuing sustainable development involves seeking positive improvements in
the quality of the built, natural and historic environment, as well as in
people’s quality of life, including (but not limited to):
●●

making it easier for jobs to be created in cities, towns and villages;

●●

moving from a net loss of bio-diversity to achieving net gains for nature;6

●●

replacing poor design with better design;

●●

improving the conditions in which people live, work, travel and take
leisure; and

●●

widening the choice of high quality homes.

10. Plans and decisions need to take local circumstances into account, so that
they respond to the different opportunites for achieving sustainable
development in different areas.

The presumption in favour of sustainable development
11. Planning law requires that applications for planning permission must be
determined in accordance with the development plan unless material
considerations indicate otherwise.7
12. This National Planning Policy Framework does not change the statutory status
of the development plan as the starting point for decision making. Proposed
development that accords with an up-to-date Local Plan should be approved,
and proposed development that conflicts should be refused unless other
material considerations indicate otherwise. It is highly desirable that local
planning authorities should have an up-to-date plan in place.
13. The National Planning Policy Framework constitutes guidance8 for local
planning authorities and decision-takers both in drawing up plans and as
a material consideration in determining applications.

6 Natural Environment White Paper, The Natural Choice: Securing the Value of Nature, 2011.
7 Section 38(6) of the Planning and Compulsory Purchase Act 2004 and section 70(2) of the Town and Country Planning
Act 1990.
8 A list of the documents revoked and replaced by this Framework is at Annex 3. Section 19(2)(a) of the Planning and
Compulsory Purchase Act 2004 states, in relation to plan-making, that the local planning authority must have regard to
national policies and advice contained in guidance issued by the Secretary of State.

4 | National Planning Policy Framework

14. At the heart of the National Planning Policy Framework is a presumption in
favour of sustainable development, which should be seen as a golden
thread running through both plan-making and decision-taking.




For plan-making this means that:
●●

local planning authorities should positively seek opportunities to meet the
development needs of their area;

●●

Local Plans should meet objectively assessed needs, with sufficient
flexibility to adapt to rapid change, unless:
––

any adverse impacts of doing so would significantly and demonstrably
outweigh the benefits, when assessed against the policies in this
Framework taken as a whole; or

––

specific policies in this Framework indicate development should be
restricted.9

For decision-taking this means:10
●●

a pproving development proposals that accord with the development plan
without delay; and

●●

here the development plan is absent, silent or relevant policies are
w
out‑of‑date, granting permission unless:
––

any adverse impacts of doing so would significantly and demonstrably
outweigh the benefits, when assessed against the policies in this
Framework taken as a whole; or

––

specific policies in this Framework indicate development should be
restricted.9

15. Policies in Local Plans should follow the approach of the presumption in
favour of sustainable development so that it is clear that development which
is sustainable can be approved without delay. All plans should be based upon
and reflect the presumption in favour of sustainable development, with clear
policies that will guide how the presumption should be applied locally.
16. The application of the presumption will have implications for how
communities engage in neighbourhood planning. Critically, it will mean that
neighbourhoods should:
●●

develop plans that support the strategic development needs set out in
Local Plans, including policies for housing and economic development;

9 For example, those policies relating to sites protected under the Birds and Habitats Directives (see paragraph 119) and/or
designated as Sites of Special Scientific Interest; land designated as Green Belt, Local Green Space, an Area of
Outstanding Natural Beauty, Heritage Coast or within a National Park (or the Broads Authority); designated heritage
assets; and locations at risk of flooding or coastal erosion.
10 Unless material considerations indicate otherwise.

Achieving sustainable development | 5

●●

plan positively to support local development, shaping and directing
development in their area that is outside the strategic elements of the
Local Plan; and

●●

identify opportunities to use Neighbourhood Development Orders to
enable developments that are consistent with their neighbourhood plan
to proceed.

Core planning principles
17. Within the overarching roles that the planning system ought to play, a set of
core land-use planning principles should underpin both plan-making and
decision-taking. These 12 principles are that planning should:
●●

be genuinely plan-led, empowering local people to shape their
surroundings, with succinct local and neighbourhood plans setting out a
positive vision for the future of the area. Plans should be kept up‑to‑date,
and be based on joint working and co‑operation to address larger than
local issues. They should provide a practical framework within which
decisions on planning applications can be made with a high degree of
predictability and efficiency;

●●

not simply be about scrutiny, but instead be a creative exercise in finding
ways to enhance and improve the places in which people live their lives;

●●

proactively drive and support sustainable economic development to deliver
the homes, business and industrial units, infrastructure and thriving local
places that the country needs. Every effort should be made objectively to
identify and then meet the housing, business and other development
needs of an area, and respond positively to wider opportunities for
growth. Plans should take account of market signals, such as land prices
and housing affordability, and set out a clear strategy for allocating
sufficient land which is suitable for development in their area, taking
account of the needs of the residential and business communities;

●●

always seek to secure high quality design and a good standard of amenity
for all existing and future occupants of land and buildings;

●●

take account of the different roles and character of different areas,
promoting the vitality of our main urban areas, protecting the Green Belts
around them, recognising the intrinsic character and beauty of the
countryside and supporting thriving rural communities within it;

●●

support the transition to a low carbon future in a changing climate, taking
full account of flood risk and coastal change, and encourage the reuse of
existing resources, including conversion of existing buildings, and
encourage the use of renewable resources (for example, by the
development of renewable energy);

6 | National Planning Policy Framework

●●

contribute to conserving and enhancing the natural environment and
reducing pollution. Allocations of land for development should prefer land
of lesser environmental value, where consistent with other policies in this
Framework;

●●

encourage the effective use of land by reusing land that has been
previously developed (brownfield land), provided that it is not of high
environmental value;

●●

promote mixed use developments, and encourage multiple benefits from
the use of land in urban and rural areas, recognising that some open land
can perform many functions (such as for wildlife, recreation, flood risk
mitigation, carbon storage, or food production);

●●

conserve heritage assets in a manner appropriate to their significance, so
that they can be enjoyed for their contribution to the quality of life of this
and future generations;

●●

actively manage patterns of growth to make the fullest possible use of
public transport, walking and cycling, and focus significant development
in locations which are or can be made sustainable; and

●●

take account of and support local strategies to improve health, social and
cultural wellbeing for all, and deliver sufficient community and cultural
facilities and services to meet local needs.

Delivering sustainable development
1. Building a strong, competitive economy
18. The Government is committed to securing economic growth in order to
create jobs and prosperity, building on the country’s inherent strengths, and
to meeting the twin challenges of global competition and of a low carbon
future.
19. The Government is committed to ensuring that the planning system does
everything it can to support sustainable economic growth. Planning should
operate to encourage and not act as an impediment to sustainable growth.
Therefore significant weight should be placed on the need to support
economic growth through the planning system.
20. To help achieve economic growth, local planning authorities should plan
proactively to meet the development needs of business and support an
economy fit for the 21st century.
21. Investment in business should not be over-burdened by the combined
requirements of planning policy expectations. Planning policies should
recognise and seek to address potential barriers to investment, including a
poor environment or any lack of infrastructure, services or housing. In
drawing up Local Plans, local planning authorities should:
●●

set out a clear economic vision and strategy for their area which positively
and proactively encourages sustainable economic growth;

Achieving sustainable development | 7

●●

set criteria, or identify strategic sites, for local and inward investment to
match the strategy and to meet anticipated needs over the plan period;

●●

support existing business sectors, taking account of whether they are
expanding or contracting and, where possible, identify and plan for new
or emerging sectors likely to locate in their area. Policies should be flexible
enough to accommodate needs not anticipated in the plan and to allow a
rapid response to changes in economic circumstances;

●●

plan positively for the location, promotion and expansion of clusters or
networks of knowledge driven, creative or high technology industries;

●●

identify priority areas for economic regeneration, infrastructure provision
and environmental enhancement; and

●●

facilitate flexible working practices such as the integration of residential
and commercial uses within the same unit.

22. Planning policies should avoid the long term protection of sites allocated for
employment use where there is no reasonable prospect of a site being used
for that purpose. Land allocations should be regularly reviewed. Where there
is no reasonable prospect of a site being used for the allocated employment
use, applications for alternative uses of land or buildings should be treated
on their merits having regard to market signals and the relative need for
different land uses to support sustainable local communities.

2. Ensuring the vitality of town centres
23. Planning policies should be positive, promote competitive town centre
environments and set out policies for the management and growth of
centres over the plan period. In drawing up Local Plans, local planning
authorities should:
●●

recognise town centres as the heart of their communities and pursue
policies to support their viability and vitality;

●●

define a network and hierarchy of centres that is resilient to anticipated
future economic changes;

●●

define the extent of town centres and primary shopping areas, based on a
clear definition of primary and secondary frontages in designated centres,
and set policies that make clear which uses will be permitted in such
locations;

●●

promote competitive town centres that provide customer choice and a
diverse retail offer and which reflect the individuality of town centres;

●●

retain and enhance existing markets and, where appropriate, re‑introduce
or create new ones, ensuring that markets remain attractive and
competitive;

●●

allocate a range of suitable sites to meet the scale and type of retail,
leisure, commercial, office, tourism, cultural, community and residential
development needed in town centres. It is important that needs for retail,
leisure, office and other main town centre uses are met in full and are not
compromised by limited site availability. Local planning authorities should

8 | National Planning Policy Framework

therefore undertake an assessment of the need to expand town centres to
ensure a sufficient supply of suitable sites;
●●

allocate appropriate edge of centre sites for main town centre uses that
are well connected to the town centre where suitable and viable town
centre sites are not available. If sufficient edge of centre sites cannot be
identified, set policies for meeting the identified needs in other accessible
locations that are well connected to the town centre;

●●

set policies for the consideration of proposals for main town centre uses
which cannot be accommodated in or adjacent to town centres;

●●

recognise that residential development can play an important role in
ensuring the vitality of centres and set out policies to encourage residential
development on appropriate sites; and

●●

where town centres are in decline, local planning authorities should plan
positively for their future to encourage economic activity.

24. Local planning authorities should apply a sequential test to planning
applications for main town centre uses that are not in an existing centre and
are not in accordance with an up-to-date Local Plan. They should require
applications for main town centre uses to be located in town centres, then in
edge of centre locations and only if suitable sites are not available should out
of centre sites be considered. When considering edge of centre and out of
centre proposals, preference should be given to accessible sites that are well
connected to the town centre. Applicants and local planning authorities
should demonstrate flexibility on issues such as format and scale.
25. This sequential approach should not be applied to applications for small scale
rural offices or other small scale rural development.
26. When assessing applications for retail, leisure and office development outside
of town centres, which are not in accordance with an up-to-date Local Plan,
local planning authorities should require an impact assessment if the
development is over a proportionate, locally set floorspace threshold (if there
is no locally set threshold, the default threshold is 2,500 sq m).This should
include assessment of:
●●

the impact of the proposal on existing, committed and planned public and
private investment in a centre or centres in the catchment area of the
proposal; and

●●

the impact of the proposal on town centre vitality and viability, including
local consumer choice and trade in the town centre and wider area, up to
five years from the time the application is made. For major schemes where
the full impact will not be realised in five years, the impact should also be
assessed up to ten years from the time the application is made.

27. Where an application fails to satisfy the sequential test or is likely to have
significant adverse impact on one or more of the above factors, it should be
refused.

Achieving sustainable development | 9

3. Supporting a prosperous rural economy
28. Planning policies should support economic growth in rural areas in order to
create jobs and prosperity by taking a positive approach to sustainable new
development. To promote a strong rural economy, local and neighbourhood
plans should:
●●

support the sustainable growth and expansion of all types of business and
enterprise in rural areas, both through conversion of existing buildings and
well designed new buildings;

●●

promote the development and diversification of agricultural and other
land-based rural businesses;

●●

support sustainable rural tourism and leisure developments that benefit
businesses in rural areas, communities and visitors, and which respect the
character of the countryside. This should include supporting the provision
and expansion of tourist and visitor facilities in appropriate locations where
identified needs are not met by existing facilities in rural service centres;
and

●●

promote the retention and development of local services and community
facilities in villages, such as local shops, meeting places, sports venues,
cultural buildings, public houses and places of worship.

4. Promoting sustainable transport
29. Transport policies have an important role to play in facilitating sustainable
development but also in contributing to wider sustainability and health
objectives. Smarter use of technologies can reduce the need to travel. The
transport system needs to be balanced in favour of sustainable transport
modes, giving people a real choice about how they travel. However, the
Government recognises that different policies and measures will be required
in different communities and opportunities to maximise sustainable transport
solutions will vary from urban to rural areas.
30. Encouragement should be given to solutions which support reductions in
greenhouse gas emissions and reduce congestion. In preparing Local Plans,
local planning authorities should therefore support a pattern of development
which, where reasonable to do so, facilitates the use of sustainable modes of
transport.
31. Local authorities should work with neighbouring authorities and transport
providers to develop strategies for the provision of viable infrastructure
necessary to support sustainable development, including large scale facilities
such as rail freight interchanges, roadside facilities for motorists or transport
investment necessary to support strategies for the growth of ports, airports
or other major generators of travel demand in their areas. The primary
function of roadside facilities for motorists should be to support the safety
and welfare of the road user.
32. All developments that generate significant amounts of movement should be
supported by a Transport Statement or Transport Assessment. Plans and
decisions should take account of whether:

10 | National Planning Policy Framework

●●

the opportunities for sustainable transport modes have been taken up
depending on the nature and location of the site, to reduce the need for
major transport infrastructure;

●●

safe and suitable access to the site can be achieved for all people; and

●●

improvements can be undertaken within the transport network that cost
effectively limit the significant impacts of the development. Development
should only be prevented or refused on transport grounds where the
residual cumulative impacts of development are severe.

33. When planning for ports, airports and airfields that are not subject to a
separate national policy statement, plans should take account of their growth
and role in serving business, leisure, training and emergency service needs.
Plans should take account of this Framework as well as the principles set out
in the relevant national policy statements and the Government Framework
for UK Aviation.
34. Plans and decisions should ensure developments that generate significant
movement are located where the need to travel will be minimised and the
use of sustainable transport modes can be maximised. However this needs to
take account of policies set out elsewhere in this Framework, particularly in
rural areas.
35. Plans should protect and exploit opportunities for the use of sustainable
transport modes for the movement of goods or people. Therefore,
developments should be located and designed where practical to
●●

accommodate the efficient delivery of goods and supplies;

●●

give priority to pedestrian and cycle movements, and have access to high
quality public transport facilities;

●●

create safe and secure layouts which minimise conflicts between traffic
and cyclists or pedestrians, avoiding street clutter and where appropriate
establishing home zones;

●●

incorporate facilities for charging plug-in and other ultra-low emission
vehicles; and

●●

consider the needs of people with disabilities by all modes of transport.

36. A key tool to facilitate this will be a Travel Plan. All developments which
generate significant amounts of movement should be required to provide a
Travel Plan.
37. Planning policies should aim for a balance of land uses within their area so
that people can be encouraged to minimise journey lengths for employment,
shopping, leisure, education and other activities.
38. For larger scale residential developments in particular, planning policies
should promote a mix of uses in order to provide opportunities to undertake
day-to-day activities including work on site. Where practical, particularly
within large-scale developments, key facilities such as primary schools and
local shops should be located within walking distance of most properties.

Achieving sustainable development | 11

39. If setting local parking standards for residential and non-residential
development, local planning authorities should take into account:
●●

the accessibility of the development;

●●

the type, mix and use of development;

●●

the availability of and opportunities for public transport;

●●

local car ownership levels; and

●●

an overall need to reduce the use of high-emission vehicles.

40. Local authorities should seek to improve the quality of parking in town
centres so that it is convenient, safe and secure, including appropriate
provision for motorcycles. They should set appropriate parking charges that
do not undermine the vitality of town centres. Parking enforcement should
be proportionate.
41. Local planning authorities should identify and protect, where there is robust
evidence, sites and routes which could be critical in developing infrastructure
to widen transport choice.

5. Supporting high quality communications infrastructure
42. Advanced, high quality communications infrastructure is essential for
sustainable economic growth. The development of high speed broadband
technology and other communications networks also plays a vital role in
enhancing the provision of local community facilities and services.
43. In preparing Local Plans, local planning authorities should support the
expansion of electronic communications networks, including
telecommunications and high speed broadband. They should aim to keep the
numbers of radio and telecommunications masts and the sites for such
installations to a minimum consistent with the efficient operation of the
network. Existing masts, buildings and other structures should be used,
unless the need for a new site has been justified. Where new sites are
required, equipment should be sympathetically designed and camouflaged
where appropriate.
44. Local planning authorities should not impose a ban on new
telecommunications development in certain areas, impose blanket Article 4
directions over a wide area or a wide range of telecommunications
development or insist on minimum distances between new
telecommunications development and existing development. They should
ensure that:
●●

they have evidence to demonstrate that telecommunications infrastructure
will not cause significant and irremediable interference with other
electrical equipment, air traffic services or instrumentation operated in the
national interest; and

●●

they have considered the possibility of the construction of new buildings
or other structures interfering with broadcast and telecommunications
services.

12 | National Planning Policy Framework

45. Applications for telecommunications development (including for prior
approval under Part 24 of the General Permitted Development Order) should
be supported by the necessary evidence to justify the proposed development.
This should include:
●●

the outcome of consultations with organisations with an interest in the
proposed development, in particular with the relevant body where a mast
is to be installed near a school or college or within a statutory
safeguarding zone surrounding an aerodrome or technical site; and

●●

for an addition to an existing mast or base station, a statement that selfcertifies that the cumulative exposure, when operational, will not exceed
International Commission on non-ionising radiation protection guidelines;
or

●●

for a new mast or base station, evidence that the applicant has explored
the possibility of erecting antennas on an existing building, mast or other
structure and a statement that self-certifies that, when operational,
International Commission guidelines will be met.

46. Local planning authorities must determine applications on planning grounds.
They should not seek to prevent competition between different operators,
question the need for the telecommunications system, or determine health
safeguards if the proposal meets International Commission guidelines for
public exposure.

6. Delivering a wide choice of high quality homes
47. To boost significantly the supply of housing, local planning authorities should:
●●

●●

●●

use their evidence base to ensure that their Local Plan meets the full,
objectively assessed needs for market and affordable housing in the
housing market area, as far as is consistent with the policies set out in this
Framework, including identifying key sites which are critical to the delivery
of the housing strategy over the plan period;
identify and update annually a supply of specific deliverable11 sites
sufficient to provide five years worth of housing against their housing
requirements with an additional buffer of 5% (moved forward from later
in the plan period) to ensure choice and competition in the market for
land. Where there has been a record of persistent under delivery of
housing, local planning authorities should increase the buffer to 20%
(moved forward from later in the plan period) to provide a realistic
prospect of achieving the planned supply and to ensure choice and
competition in the market for land;
identify a supply of specific, developable12 sites or broad locations for
growth, for years 6-10 and, where possible, for years 11-15;

11 To be considered deliverable, sites should be available now, offer a suitable location for development now, and be
achievable with a realistic prospect that housing will be delivered on the site within five years and in particular that
development of the site is viable. Sites with planning permission should be considered deliverable until permission
expires, unless there is clear evidence that schemes will not be implemented within five years, for example they will not
be viable, there is no longer a demand for the type of units or sites have long term phasing plans.
12 To be considered developable, sites should be in a suitable location for housing development and there should be a
reasonable prospect that the site is available and could be viably developed at the point envisaged.

Achieving sustainable development | 13

●●

for market and affordable housing, illustrate the expected rate of housing
delivery through a housing trajectory for the plan period and set out a
housing implementation strategy for the full range of housing describing
how they will maintain delivery of a five-year supply of housing land to
meet their housing target; and

●●

set out their own approach to housing density to reflect local
circumstances.

48. Local planning authorities may make an allowance for windfall sites in the
five-year supply if they have compelling evidence that such sites have
consistently become available in the local area and will continue to provide a
reliable source of supply. Any allowance should be realistic having regard to
the Strategic Housing Land Availability Assessment, historic windfall delivery
rates and expected future trends, and should not include residential gardens.
49. Housing applications should be considered in the context of the presumption
in favour of sustainable development. Relevant policies for the supply of
housing should not be considered up-to-date if the local planning authority
cannot demonstrate a five-year supply of deliverable housing sites.
50. To deliver a wide choice of high quality homes, widen opportunities for home
ownership and create sustainable, inclusive and mixed communities, local
planning authorities should:
●●

plan for a mix of housing based on current and future demographic
trends, market trends and the needs of different groups in the community
(such as, but not limited to, families with children, older people, people
with disabilities, service families and people wishing to build their own
homes);

●●

identify the size, type, tenure and range of housing that is required in
particular locations, reflecting local demand; and

●●

where they have identified that affordable housing is needed, set policies
for meeting this need on site, unless off-site provision or a financial
contribution of broadly equivalent value can be robustly justified (for
example to improve or make more effective use of the existing housing
stock) and the agreed approach contributes to the objective of creating
mixed and balanced communities. Such policies should be sufficiently
flexible to take account of changing market conditions over time.

51. Local planning authorities should identify and bring back into residential use
empty housing and buildings in line with local housing and empty homes
strategies and, where appropriate, acquire properties under compulsory
purchase powers. They should normally approve planning applications for
change to residential use and any associated development from commercial
buildings (currently in the B use classes) where there is an identified need for
additional housing in that area, provided that there are not strong economic
reasons why such development would be inappropriate.
52. The supply of new homes can sometimes be best achieved through planning
for larger scale development, such as new settlements or extensions to
existing villages and towns that follow the principles of Garden Cities.

14 | National Planning Policy Framework

Working with the support of their communities, local planning authorities
should consider whether such opportunities provide the best way of
achieving sustainable development. In doing so, they should consider
whether it is appropriate to establish Green Belt around or adjoining any
such new development.
53. Local planning authorities should consider the case for setting out policies to
resist inappropriate development of residential gardens, for example where
development would cause harm to the local area.
54. In rural areas, exercising the duty to cooperate with neighbouring authorities,
local planning authorities should be responsive to local circumstances and
plan housing development to reflect local needs, particularly for affordable
housing, including through rural exception sites where appropriate. Local
planning authorities should in particular consider whether allowing some
market housing would facilitate the provision of significant additional
affordable housing to meet local needs.
55. To promote sustainable development in rural areas, housing should be
located where it will enhance or maintain the vitality of rural communities.
For example, where there are groups of smaller settlements, development in
one village may support services in a village nearby. Local planning authorities
should avoid new isolated homes in the countryside unless there are special
circumstances such as:
●●

the essential need for a rural worker to live permanently at or near their
place of work in the countryside; or

●●

where such development would represent the optimal viable use of a
heritage asset or would be appropriate enabling development to secure
the future of heritage assets; or

●●

where the development would re-use redundant or disused buildings and
lead to an enhancement to the immediate setting; or

●●

the exceptional quality or innovative nature of the design of the dwelling.
Such a design should:
––

be truly outstanding or innovative, helping to raise standards of design
more generally in rural areas;

––

reflect the highest standards in architecture;

––

significantly enhance its immediate setting; and

––

be sensitive to the defining characteristics of the local area.

7. Requiring good design
56. The Government attaches great importance to the design of the built
environment. Good design is a key aspect of sustainable development, is
indivisible from good planning, and should contribute positively to making
places better for people.

Achieving sustainable development | 15

57. It is important to plan positively for the achievement of high quality and
inclusive design for all development, including individual buildings, public and
private spaces and wider area development schemes.
58. Local and neighbourhood plans should develop robust and comprehensive
policies that set out the quality of development that will be expected for the
area. Such policies should be based on stated objectives for the future of the
area and an understanding and evaluation of its defining characteristics.
Planning policies and decisions should aim to ensure that developments:
●●

will function well and add to the overall quality of the area, not just for
the short term but over the lifetime of the development;

●●

establish a strong sense of place, using streetscapes and buildings to
create attractive and comfortable places to live, work and visit;

●●

optimise the potential of the site to accommodate development, create
and sustain an appropriate mix of uses (including incorporation of green
and other public space as part of developments) and support local facilities
and transport networks;

●●

respond to local character and history, and reflect the identity of local
surroundings and materials, while not preventing or discouraging
appropriate innovation;

●●

create safe and accessible environments where crime and disorder, and the
fear of crime, do not undermine quality of life or community cohesion;
and

●●

are visually attractive as a result of good architecture and appropriate
landscaping.

59. Local planning authorities should consider using design codes where they
could help deliver high quality outcomes. However, design policies should
avoid unnecessary prescription or detail and should concentrate on guiding
the overall scale, density, massing, height, landscape, layout, materials and
access of new development in relation to neighbouring buildings and the
local area more generally.
60. Planning policies and decisions should not attempt to impose architectural
styles or particular tastes and they should not stifle innovation, originality or
initiative through unsubstantiated requirements to conform to certain
development forms or styles. It is, however, proper to seek to promote or
reinforce local distinctiveness.
61. Although visual appearance and the architecture of individual buildings are
very important factors, securing high quality and inclusive design goes
beyond aesthetic considerations. Therefore, planning policies and decisions
should address the connections between people and places and the
integration of new development into the natural, built and historic
environment.
62. Local planning authorities should have local design review arrangements in
place to provide assessment and support to ensure high standards of design.

16 | National Planning Policy Framework

They should also when appropriate refer major projects for a national design
review.13 In general, early engagement on design produces the greatest
benefits. In assessing applications, local planning authorities should have
regard to the recommendations from the design review panel.
63. In determining applications, great weight should be given to outstanding or
innovative designs which help raise the standard of design more generally in
the area.
64. Permission should be refused for development of poor design that fails to
take the opportunities available for improving the character and quality of an
area and the way it functions.
65. Local planning authorities should not refuse planning permission for buildings
or infrastructure which promote high levels of sustainability because of
concerns about incompatibility with an existing townscape, if those concerns
have been mitigated by good design (unless the concern relates to a
designated heritage asset and the impact would cause material harm to the
asset or its setting which is not outweighed by the proposal’s economic,
social and environmental benefits).
66. Applicants will be expected to work closely with those directly affected by
their proposals to evolve designs that take account of the views of the
community. Proposals that can demonstrate this in developing the design
of the new development should be looked on more favourably.
67. Poorly placed advertisements can have a negative impact on the appearance
of the built and natural environment. Control over outdoor advertisements
should be efficient, effective and simple in concept and operation. Only those
advertisements which will clearly have an appreciable impact on a building or
on their surroundings should be subject to the local planning authority’s
detailed assessment. Advertisements should be subject to control only in the
interests of amenity and public safety, taking account of cumulative impacts.
68. Where an area justifies a degree of special protection on the grounds of
amenity, an Area of Special Control Order14 may be approved. Before
formally proposing an Area of Special Control, the local planning authority is
expected to consult local trade and amenity organisations about the
proposal. Before a direction to remove deemed planning consent is made for
specific advertisements,15 local planning authorities will be expected to
demonstrate that the direction would improve visual amenity and there is no
other way of effectively controlling the display of that particular class of
advertisement. The comments of organisations, and individuals, whose
interests would be affected by the direction should be sought as part of the
process.

13 Currently provided by Design Council Cabe.
14 Regulation 20, The Town and Country Planning (Control of Advertisements) (England) Regulations 2007.
15 Regulation 7, The Town and Country Planning (Control of Advertisements) (England) Regulations 2007.

Achieving sustainable development | 17

8. Promoting healthy communities
69. The planning system can play an important role in facilitating social
interaction and creating healthy, inclusive communities. Local planning
authorities should create a shared vision with communities of the residential
environment and facilities they wish to see. To support this, local planning
authorities should aim to involve all sections of the community in the
development of Local Plans and in planning decisions, and should facilitate
neighbourhood planning. Planning policies and decisions, in turn, should aim
to achieve places which promote:
●●

opportunities for meetings between members of the community who
might not otherwise come into contact with each other, including through
mixed-use developments, strong neighbourhood centres and active street
frontages which bring together those who work, live and play in the
vicinity;

●●

safe and accessible environments where crime and disorder, and the fear
of crime, do not undermine quality of life or community cohesion; and

●●

safe and accessible developments, containing clear and legible pedestrian
routes, and high quality public space, which encourage the active and
continual use of public areas.

70. To deliver the social, recreational and cultural facilities and services the
community needs, planning policies and decisions should:
●●

plan positively for the provision and use of shared space, community
facilities (such as local shops, meeting places, sports venues, cultural
buildings, public houses and places of worship) and other local services to
enhance the sustainability of communities and residential environments;

●●

guard against the unnecessary loss of valued facilities and services,
particularly where this would reduce the community’s ability to meet its
day-to-day needs;

●●

ensure that established shops, facilities and services are able to develop
and modernise in a way that is sustainable, and retained for the benefit of
the community; and

●●

ensure an integrated approach to considering the location of housing,
economic uses and community facilities and services.

71. Local planning authorities should take a positive and collaborative approach
to enable development to be brought forward under a Community Right to
Build Order, including working with communities to identify and resolve key
issues before applications are submitted.
72. The Government attaches great importance to ensuring that a sufficient
choice of school places is available to meet the needs of existing and new
communities. Local planning authorities should take a proactive, positive and
collaborative approach to meeting this requirement, and to development that
will widen choice in education. They should:
●●

give great weight to the need to create, expand or alter schools; and

18 | National Planning Policy Framework

●●

work with schools promoters to identify and resolve key planning issues
before applications are submitted.

73. Access to high quality open spaces and opportunities for sport and recreation
can make an important contribution to the health and well-being of
communities. Planning policies should be based on robust and up‑to‑date
assessments of the needs for open space, sports and recreation facilities and
opportunities for new provision. The assessments should identify specific
needs and quantitative or qualitative deficits or surpluses of open space,
sports and recreational facilities in the local area. Information gained from
the assessments should be used to determine what open space, sports and
recreational provision is required.
74. Existing open space, sports and recreational buildings and land, including
playing fields, should not be built on unless:
●●

an assessment has been undertaken which has clearly shown the open
space, buildings or land to be surplus to requirements; or

●●

the loss resulting from the proposed development would be replaced by
equivalent or better provision in terms of quantity and quality in a suitable
location; or

●●

the development is for alternative sports and recreational provision, the
needs for which clearly outweigh the loss.

75. Planning policies should protect and enhance public rights of way and access.
Local authorities should seek opportunities to provide better facilities for
users, for example by adding links to existing rights of way networks
including National Trails.
76. Local communities through local and neighbourhood plans should be able to
identify for special protection green areas of particular importance to them.
By designating land as Local Green Space local communities will be able to
rule out new development other than in very special circumstances.
Identifying land as Local Green Space should therefore be consistent with the
local planning of sustainable development and complement investment in
sufficient homes, jobs and other essential services. Local Green Spaces should
only be designated when a plan is prepared or reviewed, and be capable of
enduring beyond the end of the plan period.
77. The Local Green Space designation will not be appropriate for most green
areas or open space. The designation should only be used:
●●

where the green space is in reasonably close proximity to the community it
serves;

●●

where the green area is demonstrably special to a local community and
holds a particular local significance, for example because of its beauty,
historic significance, recreational value (including as a playing field),
tranquillity or richness of its wildlife; and

●●

where the green area concerned is local in character and is not an
extensive tract of land.

Achieving sustainable development | 19

78. Local policy for managing development within a Local Green Space should be
consistent with policy for Green Belts.

9. Protecting Green Belt land
79. The Government attaches great importance to Green Belts. The fundamental
aim of Green Belt policy is to prevent urban sprawl by keeping land
permanently open; the essential characteristics of Green Belts are their
openness and their permanence.
80. Green Belt serves five purposes:
●●

to check the unrestricted sprawl of large built-up areas;

●●

to prevent neighbouring towns merging into one another;

●●

to assist in safeguarding the countryside from encroachment;

●●

to preserve the setting and special character of historic towns; and

●●

to assist in urban regeneration, by encouraging the recycling of derelict
and other urban land.

81. Once Green Belts have been defined, local planning authorities should plan
positively to enhance the beneficial use of the Green Belt, such as looking for
opportunities to provide access; to provide opportunities for outdoor sport
and recreation; to retain and enhance landscapes, visual amenity and
biodiversity; or to improve damaged and derelict land.
82. The general extent of Green Belts across the country is already established.
New Green Belts should only be established in exceptional circumstances, for
example when planning for larger scale development such as new
settlements or major urban extensions. If proposing a new Green Belt, local
planning authorities should:
●●

demonstrate why normal planning and development management policies
would not be adequate;

●●

set out whether any major changes in circumstances have made the
adoption of this exceptional measure necessary;

●●

show what the consequences of the proposal would be for sustainable
development;

●●

demonstrate the necessity for the Green Belt and its consistency with Local
Plans for adjoining areas; and

●●

show how the Green Belt would meet the other objectives of the
Framework.

83. Local planning authorities with Green Belts in their area should establish
Green Belt boundaries in their Local Plans which set the framework for Green
Belt and settlement policy. Once established, Green Belt boundaries should
only be altered in exceptional circumstances, through the preparation or
review of the Local Plan. At that time, authorities should consider the Green

20 | National Planning Policy Framework

Belt boundaries having regard to their intended permanence in the long
term, so that they should be capable of enduring beyond the plan period.
84. When drawing up or reviewing Green Belt boundaries local planning
authorities should take account of the need to promote sustainable patterns
of development. They should consider the consequences for sustainable
development of channelling development towards urban areas inside the
Green Belt boundary, towards towns and villages inset within the Green Belt
or towards locations beyond the outer Green Belt boundary.
85. When defining boundaries, local planning authorities should:
●●

ensure consistency with the Local Plan strategy for meeting identified
requirements for sustainable development;

●●

not include land which it is unnecessary to keep permanently open;

●●

where necessary, identify in their plans areas of ‘safeguarded land’
between the urban area and the Green Belt, in order to meet longer-term
development needs stretching well beyond the plan period;

●●

make clear that the safeguarded land is not allocated for development at
the present time. Planning permission for the permanent development of
safeguarded land should only be granted following a Local Plan review
which proposes the development;

●●

satisfy themselves that Green Belt boundaries will not need to be altered
at the end of the development plan period; and

●●

define boundaries clearly, using physical features that are readily
recognisable and likely to be permanent.

86. If it is necessary to prevent development in a village primarily because of the
important contribution which the open character of the village makes to the
openness of the Green Belt, the village should be included in the Green Belt.
If, however, the character of the village needs to be protected for other
reasons, other means should be used, such as conservation area or normal
development management policies, and the village should be excluded from
the Green Belt.
87. As with previous Green Belt policy, inappropriate development is, by
definition, harmful to the Green Belt and should not be approved except in
very special circumstances.
88. When considering any planning application, local planning authorities should
ensure that substantial weight is given to any harm to the Green Belt. ‘Very
special circumstances’ will not exist unless the potential harm to the Green
Belt by reason of inappropriateness, and any other harm, is clearly
outweighed by other considerations.
89. A local planning authority should regard the construction of new buildings as
inappropriate in Green Belt. Exceptions to this are:
●●

buildings for agriculture and forestry;

Achieving sustainable development | 21

●●

provision of appropriate facilities for outdoor sport, outdoor recreation
and for cemeteries, as long as it preserves the openness of the Green Belt
and does not conflict with the purposes of including land within it;

●●

the extension or alteration of a building provided that it does not result in
disproportionate additions over and above the size of the original building;

●●

the replacement of a building, provided the new building is in the same
use and not materially larger than the one it replaces;

●●

limited infilling in villages, and limited affordable housing for local
community needs under policies set out in the Local Plan; or

●●

limited infilling or the partial or complete redevelopment of previously
developed sites (brownfield land), whether redundant or in continuing use
(excluding temporary buildings), which would not have a greater impact
on the openness of the Green Belt and the purpose of including land
within it than the existing development.

90. Certain other forms of development are also not inappropriate in Green Belt
provided they preserve the openness of the Green Belt and do not conflict
with the purposes of including land in Green Belt. These are:
●●

mineral extraction;

●●

engineering operations;

●●

local transport infrastructure which can demonstrate a requirement for a
Green Belt location;

●●

the re-use of buildings provided that the buildings are of permanent and
substantial construction; and

●●

development brought forward under a Community Right to Build Order.

91. When located in the Green Belt, elements of many renewable energy projects
will comprise inappropriate development. In such cases developers will need
to demonstrate very special circumstances if projects are to proceed. Such
very special circumstances may include the wider environmental benefits
associated with increased production of energy from renewable sources.
92. Community Forests offer valuable opportunities for improving the
environment around towns, by upgrading the landscape and providing for
recreation and wildlife. An approved Community Forest plan may be a
material consideration in preparing development plans and in deciding
planning applications. Any development proposals within Community Forests
in the Green Belt should be subject to the normal policies controlling
development in Green Belts.

10. Meeting the challenge of climate change, flooding and
coastal change
93. Planning plays a key role in helping shape places to secure radical reductions
in greenhouse gas emissions, minimising vulnerability and providing resilience
to the impacts of climate change, and supporting the delivery of renewable

22 | National Planning Policy Framework

and low carbon energy and associated infrastructure. This is central to the
economic, social and environmental dimensions of sustainable development.
94. Local planning authorities should adopt proactive strategies to mitigate and
adapt to climate change,16 taking full account of flood risk, coastal change
and water supply and demand considerations.
95. To support the move to a low carbon future, local planning authorities
should:
●●

plan for new development in locations and ways which reduce greenhouse
gas emissions;

●●

actively support energy efficiency improvements to existing buildings; and

●●

when setting any local requirement for a building’s sustainability, do so in
a way consistent with the Government’s zero carbon buildings policy and
adopt nationally described standards.

96. In determining planning applications, local planning authorities should expect
new development to:
●●

comply with adopted Local Plan policies on local requirements for
decentralised energy supply unless it can be demonstrated by the
applicant, having regard to the type of development involved and its
design, that this is not feasible or viable; and

●●

take account of landform, layout, building orientation, massing and
landscaping to minimise energy consumption.

97. To help increase the use and supply of renewable and low carbon energy,
local planning authorities should recognise the responsibility on all
communities to contribute to energy generation from renewable or low
carbon sources. They should:
●●

have a positive strategy to promote energy from renewable and low
carbon sources;

●●

design their policies to maximise renewable and low carbon energy
development while ensuring that adverse impacts are addressed
satisfactorily, including cumulative landscape and visual impacts;

●●

consider identifying suitable areas for renewable and low carbon energy
sources, and supporting infrastructure, where this would help secure the
development of such sources;17

●●

support community-led initiatives for renewable and low carbon energy,
including developments outside such areas being taken forward through
neighbourhood planning; and

16 In line with the objectives and provisions of the Climate Change Act 2008.
17 In assessing the likely impacts of potential wind energy development when identifying suitable areas, and in determining
planning applications for such development, planning authorities should follow the approach set out in the National
Policy Statement for Renewable Energy Infrastructure (read with the relevant sections of the Overarching National Policy
Statement for Energy Infrastructure, including that on aviation impacts). Where plans identify areas as suitable for
renewable and low-carbon energy development, they should make clear what criteria have determined their selection,
including for what size of development the areas are considered suitable.

Achieving sustainable development | 23

●●

identify opportunities where development can draw its energy supply from
decentralised, renewable or low carbon energy supply systems and for
co-locating potential heat customers and suppliers.

98. When determining planning applications, local planning authorities should:
●●

●●

not require applicants for energy development to demonstrate the overall
need for renewable or low carbon energy and also recognise that even
small-scale projects provide a valuable contribution to cutting greenhouse
gas emissions; and
approve the application18 if its impacts are (or can be made) acceptable.
Once suitable areas for renewable and low carbon energy have been
identified in plans, local planning authorities should also expect
subsequent applications for commercial scale projects outside these areas
to demonstrate that the proposed location meets the criteria used in
identifying suitable areas.

99. Local Plans should take account of climate change over the longer term,
including factors such as flood risk, coastal change, water supply and
changes to biodiversity and landscape. New development should be planned
to avoid increased vulnerability to the range of impacts arising from climate
change. When new development is brought forward in areas which are
vulnerable, care should be taken to ensure that risks can be managed
through suitable adaptation measures, including through the planning
of green infrastructure.
100. Inappropriate development in areas at risk of flooding should be avoided by
directing development away from areas at highest risk, but where
development is necessary, making it safe without increasing flood risk
elsewhere.19 Local Plans should be supported by Strategic Flood Risk
Assessment and develop policies to manage flood risk from all sources,
taking account of advice from the Environment Agency and other relevant
flood risk management bodies, such as lead local flood authorities and
internal drainage boards. Local Plans should apply a sequential, risk-based
approach to the location of development to avoid where possible flood risk
to people and property and manage any residual risk, taking account of the
impacts of climate change, by:
●●

applying the Sequential Test;

●●

if necessary, applying the Exception Test;

●●

safeguarding land from development that is required for current and
future flood management;

●●

using opportunities offered by new development to reduce the causes and
impacts of flooding; and

●●

where climate change is expected to increase flood risk so that some
existing development may not be sustainable in the long-term, seeking

18 Unless material considerations indicate otherwise.
19 Technical guidance on flood risk published alongside this Framework sets out how this policy should be implemented.

24 | National Planning Policy Framework

opportunities to facilitate the relocation of development, including
housing, to more sustainable locations.
101. The aim of the Sequential Test is to steer new development to areas with the
lowest probability of flooding. Development should not be allocated or
permitted if there are reasonably available sites appropriate for the proposed
development in areas with a lower probability of flooding. The Strategic
Flood Risk Assessment will provide the basis for applying this test. A
sequential approach should be used in areas known to be at risk from any
form of flooding.
102. If, following application of the Sequential Test, it is not possible, consistent
with wider sustainability objectives, for the development to be located in
zones with a lower probability of flooding, the Exception Test can be applied
if appropriate. For the Exception Test to be passed:
●●

it must be demonstrated that the development provides wider
sustainability benefits to the community that outweigh flood risk,
informed by a Strategic Flood Risk Assessment where one has been
prepared; and

●●

a site-specific flood risk assessment must demonstrate that the
development will be safe for its lifetime taking account of the vulnerability
of its users, without increasing flood risk elsewhere, and, where possible,
will reduce flood risk overall.

Both elements of the test will have to be passed for development to be
allocated or permitted.
103. When determining planning applications, local planning authorities should
ensure flood risk is not increased elsewhere and only consider development
appropriate in areas at risk of flooding where, informed by a site-specific
flood risk assessment20 following the Sequential Test, and if required the
Exception Test, it can be demonstrated that:
●●

within the site, the most vulnerable development is located in areas of
lowest flood risk unless there are overriding reasons to prefer a different
location; and

●●

development is appropriately flood resilient and resistant, including safe
access and escape routes where required, and that any residual risk can be
safely managed, including by emergency planning; and it gives priority to
the use of sustainable drainage systems.21

104. For individual developments on sites allocated in development plans through
the Sequential Test, applicants need not apply the Sequential Test.
Applications for minor development and changes of use should not be

20 A site-specific flood risk assessment is required for proposals of 1 hectare or greater in Flood Zone 1; all proposals for
new development (including minor development and change of use) in Flood Zones 2 and 3, or in an area within Flood
Zone 1 which has critical drainage problems (as notified to the local planning authority by the Environment Agency); and
where proposed development or a change of use to a more vulnerable class may be subject to other sources of flooding.
21 The Floods and Water Management Act 2010 establishes a Sustainable Drainage Systems Approving Body in unitary or
county councils. This body must approve drainage systems in new developments and re-developments before
construction begins.

Achieving sustainable development | 25

subject to the Sequential or Exception Tests22 but should still meet the
requirements for site-specific flood risk assessments.
105. In coastal areas, local planning authorities should take account of the UK
Marine Policy Statement and marine plans and apply Integrated Coastal Zone
Management across local authority and land/sea boundaries, ensuring
integration of the terrestrial and marine planning regimes.
106. Local planning authorities should reduce risk from coastal change by avoiding
inappropriate development in vulnerable areas or adding to the impacts of
physical changes to the coast. They should identify as a Coastal Change
Management Area any area likely to be affected by physical changes to the
coast, and:
●●

be clear as to what development will be appropriate in such areas and in
what circumstances; and

●●

make provision for development and infrastructure that needs to be
relocated away from Coastal Change Management Areas.

107. When assessing applications, authorities should consider development in a
Coastal Change Management Area appropriate where it is demonstrated
that:
●●

it will be safe over its planned lifetime and will not have an unacceptable
impact on coastal change;

●●

the character of the coast including designations is not compromised;

●●

the development provides wider sustainability benefits; and

●●

the development does not hinder the creation and maintenance of a
continuous signed and managed route around the coast.23

108. Local planning authorities should also ensure appropriate development in a
Coastal Change Management Area is not impacted by coastal change by
limiting the planned life-time of the proposed development through
temporary permission and restoration conditions where necessary to reduce
the risk to people and the development.

11. Conserving and enhancing the natural environment
109. The planning system should contribute to and enhance the natural and local
environment by:
●●

protecting and enhancing valued landscapes, geological conservation
interests and soils;

●●

recognising the wider benefits of ecosystem services;

●●

minimising impacts on biodiversity and providing net gains in biodiversity
where possible, contributing to the Government’s commitment to halt the

22 Except for any proposal involving a change of use to a caravan, camping or chalet site, or to a mobile home or park
home site, where the Sequential and Exception Tests should be applied as appropriate.
23 As required by the Marine and Coastal Access Act 2009.

26 | National Planning Policy Framework

overall decline in biodiversity, including by establishing coherent ecological
networks that are more resilient to current and future pressures;
●●

preventing both new and existing development from contributing to or
being put at unacceptable risk from, or being adversely affected by
unacceptable levels of soil, air, water or noise pollution or land instability;
and

●●

remediating and mitigating despoiled, degraded, derelict, contaminated
and unstable land, where appropriate.

110. In preparing plans to meet development needs, the aim should be to
minimise pollution and other adverse effects on the local and natural
environment. Plans should allocate land with the least environmental or
amenity value, where consistent with other policies in this Framework.
111. Planning policies and decisions should encourage the effective use of land by
re-using land that has been previously developed (brownfield land), provided
that it is not of high environmental value. Local planning authorities may
continue to consider the case for setting a locally appropriate target for the
use of brownfield land.
112. Local planning authorities should take into account the economic and other
benefits of the best and most versatile agricultural land. Where significant
development of agricultural land is demonstrated to be necessary, local
planning authorities should seek to use areas of poorer quality land in
preference to that of a higher quality.
113. Local planning authorities should set criteria based policies against which
proposals for any development on or affecting protected wildlife or
geodiversity sites or landscape areas will be judged. Distinctions should be
made between the hierarchy of international, national and locally designated
sites,24 so that protection is commensurate with their status and gives
appropriate weight to their importance and the contribution that they make
to wider ecological networks.
114. Local planning authorities should:
●●

set out a strategic approach in their Local Plans, planning positively for the
creation, protection, enhancement and management of networks of
biodiversity and green infrastructure; and

●●

maintain the character of the undeveloped coast, protecting and
enhancing its distinctive landscapes, particularly in areas defined as
Heritage Coast, and improve public access to and enjoyment of the coast.

115. Great weight should be given to conserving landscape and scenic beauty in
National Parks, the Broads and Areas of Outstanding Natural Beauty, which
have the highest status of protection in relation to landscape and scenic
beauty. The conservation of wildlife and cultural heritage are important

24 Circular 06/2005 provides further guidance in respect of statutory obligations for biodiversity and geological conservation
and their impact within the planning system.

Achieving sustainable development | 27

considerations in all these areas, and should be given great weight in
National Parks and the Broads.25
116. Planning permission should be refused for major developments in these
designated areas except in exceptional circumstances and where it can be
demonstrated they are in the public interest. Consideration of such
applications should include an assessment of:
●●

the need for the development, including in terms of any national
considerations, and the impact of permitting it, or refusing it, upon the
local economy;

●●

the cost of, and scope for, developing elsewhere outside the designated
area, or meeting the need for it in some other way; and

●●

any detrimental effect on the environment, the landscape and recreational
opportunities, and the extent to which that could be moderated.

117. To minimise impacts on biodiversity and geodiversity, planning policies
should:
●●

plan for biodiversity at a landscape-scale across local authority boundaries;

●●

identify and map components of the local ecological networks, including
the hierarchy of international, national and locally designated sites of
importance for biodiversity, wildlife corridors and stepping stones that
connect them and areas identified by local partnerships for habitat
restoration or creation;

●●

promote the preservation, restoration and re-creation of priority habitats,
ecological networks and the protection and recovery of priority species
populations, linked to national and local targets, and identify suitable
indicators for monitoring biodiversity in the plan;

●●

aim to prevent harm to geological conservation interests; and

●●

where Nature Improvement Areas are identified in Local Plans, consider
specifying the types of development that may be appropriate in these
Areas.

118. When determining planning applications, local planning authorities should
aim to conserve and enhance biodiversity by applying the following
principles:
●●

if significant harm resulting from a development cannot be avoided
(through locating on an alternative site with less harmful impacts),
adequately mitigated, or, as a last resort, compensated for, then planning
permission should be refused;

●●

proposed development on land within or outside a Site of Special Scientific
Interest likely to have an adverse effect on a Site of Special Scientific
Interest (either individually or in combination with other developments)
should not normally be permitted. Where an adverse effect on the site’s
notified special interest features is likely, an exception should only be made

25 English National Parks and the Broads: UK Government Vision and Circular 2010 provides further guidance and
information about their statutory purposes, management and other matters.

28 | National Planning Policy Framework

where the benefits of the development, at this site, clearly outweigh both
the impacts that it is likely to have on the features of the site that make it
of special scientific interest and any broader impacts on the national
network of Sites of Special Scientific Interest;
●●

development proposals where the primary objective is to conserve or
enhance biodiversity should be permitted;

●●

opportunities to incorporate biodiversity in and around developments
should be encouraged;

●●

planning permission should be refused for development resulting in the
loss or deterioration of irreplaceable habitats, including ancient woodland
and the loss of aged or veteran trees found outside ancient woodland,
unless the need for, and benefits of, the development in that location
clearly outweigh the loss; and

●●

the following wildlife sites should be given the same protection as
European sites:
––

––
––

potential Special Protection Areas and possible Special Areas of
Conservation;
listed or proposed Ramsar sites;26 and
sites identified, or required, as compensatory measures for adverse
effects on European sites, potential Special Protection Areas, possible
Special Areas of Conservation, and listed or proposed Ramsar sites.

119. The presumption in favour of sustainable development (paragraph 14) does
not apply where development requiring appropriate assessment under the
Birds or Habitats Directives is being considered, planned or determined.
120. To prevent unacceptable risks from pollution and land instability, planning
policies and decisions should ensure that new development is appropriate for
its location. The effects (including cumulative effects) of pollution on health,
the natural environment or general amenity, and the potential sensitivity of
the area or proposed development to adverse effects from pollution, should
be taken into account. Where a site is affected by contamination or land
stability issues, responsibility for securing a safe development rests with the
developer and/or landowner.
121. Planning policies and decisions should also ensure that:
●●

the site is suitable for its new use taking account of ground conditions and
land instability, including from natural hazards or former activities such as
mining, pollution arising from previous uses and any proposals for
mitigation including land remediation or impacts on the natural
environment arising from that remediation;

●●

after remediation, as a minimum, land should not be capable of being
determined as contaminated land under Part IIA of the Environmental
Protection Act 1990; and

26 Potential Special Protection Areas, possible Special Areas of Conservation and proposed Ramsar sites are sites on which
Government has initiated public consultation on the scientific case for designation as a Special Protection Area, candidate
Special Area of Conservation or Ramsar site.

Achieving sustainable development | 29

●●

adequate site investigation information, prepared by a competent person,
is presented.

122. In doing so, local planning authorities should focus on whether the
development itself is an acceptable use of the land, and the impact of the
use, rather than the control of processes or emissions themselves where
these are subject to approval under pollution control regimes. Local planning
authorities should assume that these regimes will operate effectively. Equally,
where a planning decision has been made on a particular development, the
planning issues should not be revisited through the permitting regimes
operated by pollution control authorities.
123. Planning policies and decisions should aim to:
●●

●●

avoid noise from giving rise to significant adverse impacts27 on health and
quality of life as a result of new development;
mitigate and reduce to a minimum other adverse impacts27 on health and
quality of life arising from noise from new development, including through
the use of conditions;

●●

recognise that development will often create some noise and existing
businesses wanting to develop in continuance of their business should not
have unreasonable restrictions put on them because of changes in nearby
land uses since they were established;28 and

●●

identify and protect areas of tranquillity which have remained relatively
undisturbed by noise and are prized for their recreational and amenity
value for this reason.

124. Planning policies should sustain compliance with and contribute towards EU
limit values or national objectives for pollutants, taking into account the
presence of Air Quality Management Areas and the cumulative impacts on air
quality from individual sites in local areas. Planning decisions should ensure
that any new development in Air Quality Management Areas is consistent
with the local air quality action plan.
125. By encouraging good design, planning policies and decisions should limit the
impact of light pollution from artificial light on local amenity, intrinsically dark
landscapes and nature conservation.

27 See Explanatory Note to the Noise Policy Statement for England (Department for the Environment, Food and Rural
Affairs).
28 Subject to the provisions of the Environmental Protection Act 1990 and other relevant law.

30 | National Planning Policy Framework

12. Conserving and enhancing the historic environment
126. Local planning authorities should set out in their Local Plan a positive strategy
for the conservation and enjoyment of the historic environment,29 including
heritage assets most at risk through neglect, decay or other threats. In doing
so, they should recognise that heritage assets are an irreplaceable resource
and conserve them in a manner appropriate to their significance. In
developing this strategy, local planning authorities should take into account:
●●

the desirability of sustaining and enhancing the significance of heritage
assets and putting them to viable uses consistent with their conservation;

●●

the wider social, cultural, economic and environmental benefits that
conservation of the historic environment can bring;

●●

the desirability of new development making a positive contribution to local
character and distinctiveness; and

●●

opportunities to draw on the contribution made by the historic
environment to the character of a place.

127. When considering the designation of conservation areas, local planning
authorities should ensure that an area justifies such status because of its
special architectural or historic interest, and that the concept of conservation
is not devalued through the designation of areas that lack special interest.
128. In determining applications, local planning authorities should require an
applicant to describe the significance of any heritage assets affected,
including any contribution made by their setting. The level of detail should be
proportionate to the assets’ importance and no more than is sufficient to
understand the potential impact of the proposal on their significance. As a
minimum the relevant historic environment record should have been
consulted and the heritage assets assessed using appropriate expertise where
necessary. Where a site on which development is proposed includes or has
the potential to include heritage assets with archaeological interest, local
planning authorities should require developers to submit an appropriate
desk-based assessment and, where necessary, a field evaluation.
129. Local planning authorities should identify and assess the particular
significance of any heritage asset that may be affected by a proposal
(including by development affecting the setting of a heritage asset) taking
account of the available evidence and any necessary expertise. They should
take this assessment into account when considering the impact of a proposal
on a heritage asset, to avoid or minimise conflict between the heritage asset’s
conservation and any aspect of the proposal.
130. Where there is evidence of deliberate neglect of or damage to a heritage
asset the deteriorated state of the heritage asset should not be taken into
account in any decision.

29 The principles and policies set out in this section apply to the heritage-related consent regimes for which local planning
authorities are responsible under the Planning (Listed Buildings and Conservation Areas) Act 1990, as well as to
plan-making and decision-taking.

Achieving sustainable development | 31

131. In determining planning applications, local planning authorities should take
account of:
●●

the desirability of sustaining and enhancing the significance of heritage
assets and putting them to viable uses consistent with their conservation;

●●

the positive contribution that conservation of heritage assets can make to
sustainable communities including their economic vitality; and

●●

the desirability of new development making a positive contribution to local
character and distinctiveness.

132. When considering the impact of a proposed development on the significance
of a designated heritage asset, great weight should be given to the asset’s
conservation. The more important the asset, the greater the weight should
be. Significance can be harmed or lost through alteration or destruction of
the heritage asset or development within its setting. As heritage assets are
irreplaceable, any harm or loss should require clear and convincing
justification. Substantial harm to or loss of a grade II listed building, park or
garden should be exceptional. Substantial harm to or loss of designated
heritage assets of the highest significance, notably scheduled monuments,
protected wreck sites, battlefields, grade I and II* listed buildings, grade I and
II* registered parks and gardens, and World Heritage Sites, should be wholly
exceptional.
133. Where a proposed development will lead to substantial harm to or total loss
of significance of a designated heritage asset, local planning authorities
should refuse consent, unless it can be demonstrated that the substantial
harm or loss is necessary to achieve substantial public benefits that outweigh
that harm or loss, or all of the following apply:
●●

the nature of the heritage asset prevents all reasonable uses of the site;
and

●●

no viable use of the heritage asset itself can be found in the medium term
through appropriate marketing that will enable its conservation; and

●●

conservation by grant-funding or some form of charitable or public
ownership is demonstrably not possible; and

●●

the harm or loss is outweighed by the benefit of bringing the site back
into use.

134. Where a development proposal will lead to less than substantial harm to the
significance of a designated heritage asset, this harm should be weighed
against the public benefits of the proposal, including securing its optimum
viable use.
135. The effect of an application on the significance of a non-designated heritage
asset should be taken into account in determining the application. In
weighing applications that affect directly or indirectly non designated
heritage assets, a balanced judgement will be required having regard to the
scale of any harm or loss and the significance of the heritage asset.

32 | National Planning Policy Framework

136. Local planning authorities should not permit loss of the whole or part of a
heritage asset without taking all reasonable steps to ensure the new
development will proceed after the loss has occurred.
137. Local planning authorities should look for opportunities for new development
within Conservation Areas and World Heritage Sites and within the setting of
heritage assets to enhance or better reveal their significance. Proposals that
preserve those elements of the setting that make a positive contribution to or
better reveal the significance of the asset should be treated favourably.
138. Not all elements of a World Heritage Site or Conservation Area will
necessarily contribute to its significance. Loss of a building (or other element)
which makes a positive contribution to the significance of the Conservation
Area or World Heritage Site should be treated either as substantial harm
under paragraph 133 or less than substantial harm under paragraph 134, as
appropriate, taking into account the relative significance of the element
affected and its contribution to the significance of the Conservation Area or
World Heritage Site as a whole.
139. Non-designated heritage assets of archaeological interest that are
demonstrably of equivalent significance to scheduled monuments, should be
considered subject to the policies for designated heritage assets.
140. Local planning authorities should assess whether the benefits of a proposal
for enabling development, which would otherwise conflict with planning
policies but which would secure the future conservation of a heritage asset,
outweigh the disbenefits of departing from those policies.
141. Local planning authorities should make information about the significance of
the historic environment gathered as part of plan-making or development
management publicly accessible. They should also require developers to
record and advance understanding of the significance of any heritage assets
to be lost (wholly or in part) in a manner proportionate to their importance
and the impact, and to make this evidence (and any archive generated)
publicly accessible.30 However, the ability to record evidence of our past
should not be a factor in deciding whether such loss should be permitted.

13. Facilitating the sustainable use of minerals
142. Minerals are essential to support sustainable economic growth and our
quality of life. It is therefore important that there is a sufficient supply of
material to provide the infrastructure, buildings, energy and goods that the
country needs. However, since minerals are a finite natural resource, and can
only be worked where they are found, it is important to make best use of
them to secure their long-term conservation.
143. In preparing Local Plans, local planning authorities should:

30 Copies of evidence should be deposited with the relevant Historic Environment Record, and any archives with a local
museum or other public depository.

Achieving sustainable development | 33

●●

identify and include policies for extraction of mineral resource of local and
national importance in their area, but should not identify new sites or
extensions to existing sites for peat extraction;

●●

so far as practicable, take account of the contribution that substitute or
secondary and recycled materials and minerals waste would make to the
supply of materials, before considering extraction of primary materials,
whilst aiming to source minerals supplies indigenously;

●●

define Minerals Safeguarding Areas and adopt appropriate policies in
order that known locations of specific minerals resources of local and
national importance are not needlessly sterilised by non-mineral
development, whilst not creating a presumption that resources defined
will be worked; and define Minerals Consultation Areas based on these
Minerals Safeguarding Areas;

●●

safeguard:
––

existing, planned and potential rail heads, rail links to quarries,
wharfage and associated storage, handling and processing facilities for
the bulk transport by rail, sea or inland waterways of minerals,
including recycled, secondary and marine-dredged materials; and

––

existing, planned and potential sites for concrete batching, the
manufacture of coated materials, other concrete products and the
handling, processing and distribution of substitute, recycled and
secondary aggregate material.

●●

set out policies to encourage the prior extraction of minerals, where
practicable and environmentally feasible, if it is necessary for non-mineral
development to take place;

●●

set out environmental criteria, in line with the policies in this Framework,
against which planning applications will be assessed so as to ensure that
permitted operations do not have unacceptable adverse impacts on the
natural and historic environment or human health, including from noise,
dust, visual intrusion, traffic, tip- and quarry-slope stability, differential
settlement of quarry backfill, mining subsidence, increased flood risk,
impacts on the flow and quantity of surface and groundwater and
migration of contamination from the site; and take into account the
cumulative effects of multiple impacts from individual sites and/or a
number of sites in a locality;

●●

when developing noise limits, recognise that some noisy short-term
activities, which may otherwise be regarded as unacceptable, are
unavoidable to facilitate minerals extraction; and

●●

put in place policies to ensure worked land is reclaimed at the earliest
opportunity, taking account of aviation safety, and that high quality
restoration and aftercare of mineral sites takes place, including for
agriculture (safeguarding the long term potential of best and most
versatile agricultural land and conserving soil resources), geodiversity,
biodiversity, native woodland, the historic environment and recreation.

34 | National Planning Policy Framework

144. When determining planning applications, local planning authorities should:
●●

give great weight to the benefits of the mineral extraction, including to
the economy;

●●

as far as is practical, provide for the maintenance of landbanks of nonenergy minerals from outside National Parks, the Broads, Areas of
Outstanding Natural Beauty and World Heritage sites, Scheduled
Monuments and Conservation Areas;

●●

ensure, in granting planning permission for mineral development, that
there are no unacceptable adverse impacts on the natural and historic
environment, human health or aviation safety, and take into account the
cumulative effect of multiple impacts from individual sites and/or from a
number of sites in a locality;

●●

ensure that any unavoidable noise, dust and particle emissions and any
blasting vibrations are controlled, mitigated or removed at source,31 and
establish appropriate noise limits for extraction in proximity to noise
sensitive properties;

●●

not grant planning permission for peat extraction from new or extended
sites;

●●

provide for restoration and aftercare at the earliest opportunity to be
carried out to high environmental standards, through the application of
appropriate conditions, where necessary. Bonds or other financial
guarantees to underpin planning conditions should only be sought in
exceptional circumstances;

●●

not normally permit other development proposals in mineral safeguarding
areas where they might constrain potential future use for these purposes;

●●

consider how to meet any demand for small-scale extraction of building
stone at, or close to, relic quarries needed for the repair of heritage assets,
taking account of the need to protect designated sites; and

●●

recognise the small-scale nature and impact of building and roofing stone
quarries, and the need for a flexible approach to the potentially long
duration of planning permissions reflecting the intermittent or low rate of
working at many sites.

145. Minerals planning authorities should plan for a steady and adequate supply
of aggregates by:
●●

preparing an annual Local Aggregate Assessment, either individually or
jointly by agreement with another or other mineral planning authorities,
based on a rolling average of 10 years sales data and other relevant local
information, and an assessment of all supply options (including marine
dredged, secondary and recycled sources);

●●

participating in the operation of an Aggregate Working Party and taking
the advice of that Party into account when preparing their Local
Aggregate Assessment;

31 Technical guidance on minerals published alongside this Framework sets out how these policies should be implemented.

Achieving sustainable development | 35

●●

making provision for the land-won and other elements of their Local
Aggregate Assessment in their mineral plans taking account of the advice
of the Aggregate Working Parties and the National Aggregate Coordinating Group as appropriate. Such provision should take the form of
specific sites, preferred areas and/or areas of search and locational criteria
as appropriate;

●●

taking account of published National and Sub National Guidelines on
future provision which should be used as a guideline when planning for
the future demand for and supply of aggregates;

●●

using landbanks of aggregate minerals reserves principally as an indicator
of the security of aggregate minerals supply, and to indicate the additional
provision that needs to be made for new aggregate extraction and
alternative supplies in mineral plans;

●●

making provision for the maintenance of landbanks of at least 7 years for
sand and gravel and at least 10 years for crushed rock, whilst ensuring
that the capacity of operations to supply a wide range of materials is not
compromised. Longer periods may be appropriate to take account of the
need to supply a range of types of aggregates, locations of permitted
reserves relative to markets, and productive capacity of permitted sites;

●●

ensuring that large landbanks bound up in very few sites do not stifle
competition; and

●●

calculating and maintaining separate landbanks for any aggregate
materials of a specific type or quality which have a distinct and separate
market.

146. Minerals planning authorities should plan for a steady and adequate supply
of industrial minerals by:
●●

co-operating with neighbouring and more distant authorities to
co-ordinate the planning of industrial minerals to ensure adequate
provision is made to support their likely use in industrial and
manufacturing processes;

●●

encouraging safeguarding or stockpiling so that important minerals remain
available for use;

●●

providing a stock of permitted reserves to support the level of actual and
proposed investment required for new or existing plant and the
maintenance and improvement of existing plant and equipment, as
follows:

●●

––

at least 10 years for individual silica sand sites;

––

at least 15 years for cement primary (chalk and limestone) and
secondary (clay and shale) materials to maintain an existing plant, and
for silica sand sites where significant new capital is required; and

––

at least 25 years for brick clay, and for cement primary and secondary
materials to support a new kiln.

taking account of the need for provision of brick clay from a number
of different sources to enable appropriate blends to be made.

36 | National Planning Policy Framework

147. Minerals planning authorities should also:
●●

when planning for on-shore oil and gas development, including
unconventional hydrocarbons, clearly distinguish between the three
phases of development (exploration, appraisal and production) and
address constraints on production and processing within areas that
are licensed for oil and gas exploration or production;

●●

encourage underground gas and carbon storage and associated
infrastructure if local geological circumstances indicate its feasibility;

●●

indicate any areas where coal extraction and the disposal of colliery spoil
may be acceptable;

●●

encourage capture and use of methane from coal mines in active and
abandoned coalfield areas; and

●●

provide for coal producers to extract separately, and if necessary stockpile,
fireclay so that it remains available for use.

148. When determining planning applications, minerals planning authorities
should ensure that the integrity and safety of underground storage facilities
are appropriate, taking into account the maintenance of gas pressure,
prevention of leakage of gas and the avoidance of pollution.
149. Permission should not be given for the extraction of coal unless the proposal
is environmentally acceptable, or can be made so by planning conditions or
obligations; or if not, it provides national, local or community benefits which
clearly outweigh the likely impacts to justify the grant of planning permission.

Plan-making | 37

Plan-making
Local Plans
150. Local Plans are the key to delivering sustainable development that reflects the
vision and aspirations of local communities. Planning decisions must be taken
in accordance with the development plan unless material considerations
indicate otherwise.32
151. Local Plans must be prepared with the objective of contributing to the
achievement of sustainable development.33 To this end, they should be
consistent with the principles and policies set out in this Framework,
including the presumption in favour of sustainable development.
152. Local planning authorities should seek opportunities to achieve each of the
economic, social and environmental dimensions of sustainable development,
and net gains across all three. Significant adverse impacts on any of these
dimensions should be avoided and, wherever possible, alternative options
which reduce or eliminate such impacts should be pursued. Where adverse
impacts are unavoidable, measures to mitigate the impact should be
considered. Where adequate mitigation measures are not possible,
compensatory measures may be appropriate.
153. Each local planning authority should produce a Local Plan for its area.
This can be reviewed in whole or in part to respond flexibly to changing
circumstances. Any additional development plan documents should only be
used where clearly justified. Supplementary planning documents should be
used where they can help applicants make successful applications or aid
infrastructure delivery, and should not be used to add unnecessarily to the
financial burdens on development.
154. Local Plans should be aspirational but realistic. They should address the
spatial implications of economic, social and environmental change. Local
Plans should set out the opportunities for development and clear policies on
what will or will not be permitted and where. Only policies that provide a
clear indication of how a decision maker should react to a development
proposal should be included in the plan.
155. Early and meaningful engagement and collaboration with neighbourhoods,
local organisations and businesses is essential. A wide section of the
community should be proactively engaged, so that Local Plans, as far as
possible, reflect a collective vision and a set of agreed priorities for the
sustainable development of the area, including those contained in any
neighbourhood plans that have been made.
156. Local planning authorities should set out the strategic priorities for the area
in the Local Plan. This should include strategic policies to deliver:
●●

the homes and jobs needed in the area;

32 Section 38(6) of the Planning and Compulsory Purchase Act 2004.
33 Under section 39(2) of the Planning and Compulsory Purchase Act 2004 a local authority exercising their plan making
functions must do so with the objective of contributing to the achievement of sustainable development.

38 | National Planning Policy Framework

●●

the provision of retail, leisure and other commercial development;

●●

the provision of infrastructure for transport, telecommunications, waste
management, water supply, wastewater, flood risk and coastal change
management, and the provision of minerals and energy (including heat);

●●

the provision of health, security, community and cultural infrastructure and
other local facilities; and

●●

climate change mitigation and adaptation, conservation and enhancement
of the natural and historic environment, including landscape.

157. Crucially, Local Plans should:
●●

plan positively for the development and infrastructure required in the area
to meet the objectives, principles and policies of this Framework;

●●

be drawn up over an appropriate time scale, preferably a 15-year time
horizon, take account of longer term requirements, and be kept up to
date;

●●

be based on co-operation with neighbouring authorities, public, voluntary
and private sector organisations;

●●

indicate broad locations for strategic development on a key diagram and
land-use designations on a proposals map;

●●

allocate sites to promote development and flexible use of land, bringing
forward new land where necessary, and provide detail on form, scale,
access and quantum of development where appropriate;

●●

identify areas where it may be necessary to limit freedom to change the
uses of buildings, and support such restrictions with a clear explanation;

●●

identify land where development would be inappropriate, for instance
because of its environmental or historic significance; and

●●

contain a clear strategy for enhancing the natural, built and historic
environment, and supporting Nature Improvement Areas where they have
been identified.

Using a proportionate evidence base
158. Each local planning authority should ensure that the Local Plan is based on
adequate, up-to-date and relevant evidence about the economic, social and
environmental characteristics and prospects of the area. Local planning
authorities should ensure that their assessment of and strategies for housing,
employment and other uses are integrated, and that they take full account of
relevant market and economic signals.
Housing
159. Local planning authorities should have a clear understanding of housing
needs in their area. They should:
●●

prepare a Strategic Housing Market Assessment to assess their full housing
needs, working with neighbouring authorities where housing market areas
cross administrative boundaries. The Strategic Housing Market Assessment

Plan-making | 39

should identify the scale and mix of housing and the range of tenures that
the local population is likely to need over the plan period which:

●●

––

meets household and population projections, taking account of
migration and demographic change;

––

addresses the need for all types of housing, including affordable
housing and the needs of different groups in the community (such as,
but not limited to, families with children, older people, people with
disabilities, service families and people wishing to build their own
homes);34 and

––

caters for housing demand and the scale of housing supply necessary to
meet this demand;

prepare a Strategic Housing Land Availability Assessment to establish
realistic assumptions about the availability, suitability and the likely
economic viability of land to meet the identified need for housing over the
plan period.

Business
160. Local planning authorities should have a clear understanding of business
needs within the economic markets operating in and across their area. To
achieve this, they should:
●●

work together with county and neighbouring authorities and with Local
Enterprise Partnerships to prepare and maintain a robust evidence base to
understand both existing business needs and likely changes in the market;
and

●●

work closely with the business community to understand their changing
needs and identify and address barriers to investment, including a lack of
housing, infrastructure or viability.

161. Local planning authorities should use this evidence base to assess:
●●

the needs for land or floorspace for economic development, including
both the quantitative and qualitative needs for all foreseeable types of
economic activity over the plan period, including for retail and leisure
development;

●●

the existing and future supply of land available for economic development
and its sufficiency and suitability to meet the identified needs. Reviews of
land available for economic development should be undertaken at the
same time as, or combined with, Strategic Housing Land Availability
Assessments and should include a reappraisal of the suitability of
previously allocated land;

●●

the role and function of town centres and the relationship between them,
including any trends in the performance of centres;

●●

the capacity of existing centres to accommodate new town centre
development;

●●

locations of deprivation which may benefit from planned remedial action;
and

34 The planning policy for traveller sites sets out how travellers’ accommodation needs should also be assessed.

40 | National Planning Policy Framework

●●

the needs of the food production industry and any barriers to investment that
planning can resolve.

Infrastructure
162. Local planning authorities should work with other authorities and providers to:
●●

assess the quality and capacity of infrastructure for transport, water supply,
wastewater and its treatment, energy (including heat), telecommunications,
utilities, waste, health, social care, education, flood risk and coastal change
management, and its ability to meet forecast demands; and

●●

take account of the need for strategic infrastructure including nationally significant
infrastructure within their areas.

Minerals
163. Minerals planning authorities should work with other relevant organisations to use
the best available information to:
●●

develop and maintain an understanding of the extent and location of mineral
resource in their areas; and

●●

assess the projected demand for their use, taking full account of opportunities to
use materials from secondary and other sources which could provide suitable
alternatives to primary materials.

Defence, national security, counter-terrorism and resilience
164. Local planning authorities should:
●●

work with the Ministry of Defence’s Strategic Planning Team to ensure that they
have and take into account the most up-to-date information about defence and
security needs in their area; and

●●

work with local advisors and others to ensure that they have and take into account
the most up-to-date information about higher risk sites in their area for malicious
threats and natural hazards, including steps that can be taken to reduce
vulnerability and increase resilience.

Environment
165. Planning policies and decisions should be based on up-to‑date information about the
natural environment and other characteristics of the area including drawing, for
example, from River Basin Management Plans. Working with Local Nature
Partnerships where appropriate, this should include an assessment of existing and
potential components of ecological networks. A sustainability appraisal which meets
the requirements of the European Directive on strategic environmental assessment
should be an integral part of the plan preparation process, and should consider all the
likely significant effects on the environment, economic and social factors.
166. Local Plans may require a variety of other environmental assessments, including under
the Habitats Regulations where there is a likely significant effect on a European
wildlife site (which may not necessarily be within the same local authority area),
Strategic Flood Risk Assessment and assessments of the physical constraints on land
use.35 Wherever possible, assessments should share the same evidence base and be
35 Such as land instability, contamination and subsidence.

Plan-making | 41

conducted over similar timescales, but local authorities should take care to
ensure that the purposes and statutory requirements of different assessment
processes are respected.
167. Assessments should be proportionate, and should not repeat policy
assessment that has already been undertaken. Wherever possible the local
planning authority should consider how the preparation of any assessment
will contribute to the plan’s evidence base. The process should be started
early in the plan-making process and key stakeholders should be consulted in
identifying the issues that the assessment must cover.
168. Shoreline Management Plans should inform the evidence base for planning in
coastal areas. The prediction of future impacts should include the longer term
nature and inherent uncertainty of coastal processes (including coastal
landslip), and take account of climate change.
Historic environment
169. Local planning authorities should have up-to-date evidence about the historic
environment in their area and use it to assess the significance of heritage
assets and the contribution they make to their environment. They should also
use it to predict the likelihood that currently unidentified heritage assets,
particularly sites of historic and archaeological interest, will be discovered in
the future. Local planning authorities should either maintain or have access
to a historic environment record.
170. Where appropriate, landscape character assessments should also be prepared,
integrated with assessment of historic landscape character, and for areas
where there are major expansion options assessments of landscape sensitivity.
Health and well-being
171. Local planning authorities should work with public health leads and health
organisations to understand and take account of the health status and needs
of the local population (such as for sports, recreation and places of worship),
including expected future changes, and any information about relevant
barriers to improving health and well-being.
Public safety from major accidents
172. Planning policies should be based on up-to-date information on the location of
major hazards and on the mitigation of the consequences of major accidents.
Ensuring viability and deliverability
173. Pursuing sustainable development re­quires careful attention to viability and
costs in plan-making and decision-taking. Plans should be deliverable.
Therefore, the sites and the scale of development identified in the plan should
not be subject to such a scale of obligations and policy burdens that their
ability to be developed viably is threatened. To ensure viability, the costs of any
requirements likely to be applied to development, such as requirements for
affordable housing, standards, infrastructure contributions or other
requirements should, when taking account of the normal cost of development
and mitigation, provide competitive returns to a willing land owner and
willing developer to enable the development to be deliverable.

42 | National Planning Policy Framework

174. Local planning authorities should set out their policy on local standards in the
Local Plan, including requirements for affordable housing. They should assess
the likely cumulative impacts on development in their area of all existing and
proposed local standards, supplementary planning documents and policies
that support the development plan, when added to nationally required
standards. In order to be appropriate, the cumulative impact of these
standards and policies should not put implementation of the plan at serious
risk, and should facilitate development throughout the economic cycle.
Evidence supporting the assessment should be proportionate, using only
appropriate available evidence.
175. Where practical, Community Infrastructure Levy charges should be worked
up and tested alongside the Local Plan. The Community Infrastructure Levy
should support and incentivise new development, particularly by placing
control over a meaningful proportion of the funds raised with the
neighbourhoods where development takes place.
176. Where safeguards are necessary to make a particular development acceptable
in planning terms (such as environmental mitigation or compensation), the
development should not be approved if the measures required cannot be
secured through appropriate conditions or agreements. The need for such
safeguards should be clearly justified through discussions with the applicant,
and the options for keeping such costs to a minimum fully explored, so that
development is not inhibited unnecessarily.
177. It is equally important to ensure that there is a reasonable prospect that
planned infrastructure is deliverable in a timely fashion. To facilitate this, it is
important that local planning authorities understand district-wide
development costs at the time Local Plans are drawn up. For this reason,
infrastructure and development policies should be planned at the same time,
in the Local Plan. Any affordable housing or local standards requirements that
may be applied to development should be assessed at the plan-making stage,
where possible, and kept under review.

Planning strategically across local boundaries
178. Public bodies have a duty to cooperate on planning issues that cross
administrative boundaries, particularly those which relate to the strategic
priorities set out in paragraph 156. The Government expects joint working
on areas of common interest to be diligently undertaken for the mutual
benefit of neighbouring authorities.
179. Local planning authorities should work collaboratively with other bodies to
ensure that strategic priorities across local boundaries are properly coordinated and clearly reflected in individual Local Plans.36 Joint working
should enable local planning authorities to work together to meet
development requirements which cannot wholly be met within their own
areas – for instance, because of a lack of physical capacity or because to do
so would cause significant harm to the principles and policies of this
Framework. As part of this process, they should consider producing joint
36 In marine areas, local planning authorities should collaborate with the Marine Management Organisation to ensure that
policies across the land/sea boundary are integrated.

Plan-making | 43

planning policies on strategic matters and informal strategies such as joint
infrastructure and investment plans.
180. Local planning authorities should take account of different geographic areas,
including travel-to-work areas. In two tier areas, county and district
authorities should cooperate with each other on relevant issues. Local
planning authorities should work collaboratively on strategic planning
priorities to enable delivery of sustainable development in consultation with
Local Enterprise Partnerships and Local Nature Partnerships. Local planning
authorities should also work collaboratively with private sector bodies, utility
and infrastructure providers.
181. Local planning authorities will be expected to demonstrate evidence of
having effectively cooperated to plan for issues with cross-boundary impacts
when their Local Plans are submitted for examination. This could be by way
of plans or policies prepared as part of a joint committee, a memorandum of
understanding or a jointly prepared strategy which is presented as evidence
of an agreed position. Cooperation should be a continuous process of
engagement from initial thinking through to implementation, resulting in a
final position where plans are in place to provide the land and infrastructure
necessary to support current and projected future levels of development.

Examining Local Plans
182. The Local Plan will be examined by an independent inspector whose role is to
assess whether the plan has been prepared in accordance with the Duty to
Cooperate, legal and procedural requirements, and whether it is sound. A
local planning authority should submit a plan for examination which it
considers is “sound” – namely that it is:
●●

Positively prepared – the plan should be prepared based on a strategy
which seeks to meet objectively assessed development and infrastructure
requirements, including unmet requirements from neighbouring
authorities where it is reasonable to do so and consistent with achieving
sustainable development;

●●

Justified – the plan should be the most appropriate strategy, when
considered against the reasonable alternatives, based on proportionate
evidence;

●●

Effective – the plan should be deliverable over its period and based on
effective joint working on cross-boundary strategic priorities; and

●●

Consistent with national policy – the plan should enable the delivery of
sustainable development in accordance with the policies in the
Framework.

Neighbourhood plans
183. Neighbourhood planning gives communities direct power to develop
a shared vision for their neighbourhood and deliver the sustainable
development they need. Parishes and neighbourhood forums can use
neighbourhood planning to:

44 | National Planning Policy Framework

●●

set planning policies through neighbourhood plans to determine decisions
on planning applications; and

●●

grant planning permission through Neighbourhood Development Orders
and Community Right to Build Orders for specific development which
complies with the order.

184. Neighbourhood planning provides a powerful set of tools for local people
to ensure that they get the right types of development for their community.
The ambition of the neighbourhood should be aligned with the strategic
needs and priorities of the wider local area. Neighbourhood plans must be in
general conformity with the strategic policies of the Local Plan. To facilitate
this, local planning authorities should set out clearly their strategic policies
for the area and ensure that an up-to-date Local Plan is in place as quickly
as possible. Neighbourhood plans should reflect these policies and
neighbourhoods should plan positively to support them. Neighbourhood
plans and orders should not promote less development than set out in the
Local Plan or undermine its strategic policies.
185. Outside these strategic elements, neighbourhood plans will be able to shape
and direct sustainable development in their area. Once a neighbourhood plan
has demonstrated its general conformity with the strategic policies of the Local
Plan and is brought into force, the policies it contains take precedence over
existing non-strategic policies in the Local Plan for that neighbourhood, where
they are in conflict. Local planning authorities should avoid duplicating
planning processes for non-strategic policies where a neighbourhood plan
is in preparation.

Decision-taking | 45

Decision-taking
186. Local planning authorities should approach decision-taking in a positive way
to foster the delivery of sustainable development. The relationship between
decision-taking and plan-making should be seamless, translating plans into
high quality development on the ground.
187. Local planning authorities should look for solutions rather than problems,
and decision-takers at every level should seek to approve applications for
sustainable development where possible. Local planning authorities should
work proactively with applicants to secure developments that improve the
economic, social and environmental conditions of the area.

Pre-application engagement and front loading
188. Early engagement has significant potential to improve the efficiency and
effectiveness of the planning application system for all parties. Good quality
pre-application discussion enables better coordination between public and
private resources and improved outcomes for the community.
189. Local planning authorities have a key role to play in encouraging other parties
to take maximum advantage of the pre-application stage. They cannot
require that a developer engages with them before submitting a planning
application, but they should encourage take-up of any pre-application
services they do offer. They should also, where they think this would be
beneficial, encourage any applicants who are not already required to do so
by law to engage with the local community before submitting their
applications.
190. The more issues that can be resolved at pre-application stage, the greater the
benefits. For their role in the planning system to be effective and positive,
statutory planning consultees will need to take the same early, pro‑active
approach, and provide advice in a timely manner throughout the
development process. This assists local planning authorities in issuing timely
decisions, helping to ensure that applicants do not experience unnecessary
delays and costs.
191. The participation of other consenting bodies in pre-application discussions
should enable early consideration of all the fundamental issues relating to
whether a particular development will be acceptable in principle, even where
other consents relating to how a development is built or operated are needed
at a later stage. Wherever possible, parallel processing of other consents
should be encouraged to help speed up the process and resolve any issues as
early as possible.
192. The right information is crucial to good decision-taking, particularly where
formal assessments are required (such as Environmental Impact Assessment,
Habitats Regulations Assessment and Flood Risk Assessment). To avoid delay,
applicants should discuss what information is needed with the local planning
authority and expert bodies as early as possible.

46 | National Planning Policy Framework

193. Local planning authorities should publish a list of their information
requirements for applications, which should be proportionate to the nature
and scale of development proposals and reviewed on a frequent basis. Local
planning authorities should only request supporting information that is
relevant, necessary and material to the application in question.
194. Local planning authorities should consult the appropriate bodies when
planning, or determining applications, for development around major
hazards.
195. Applicants and local planning authorities should consider the potential of
entering into planning performance agreements, where this might achieve a
faster and more effective application process.

Determining applications
196. The planning system is plan-led. Planning law requires that applications
for planning permission must be determined in accordance with the
development plan,37 unless material considerations indicate otherwise.38
This Framework is a material consideration in planning decisions.
197. In assessing and determining development proposals, local planning
authorities should apply the presumption in favour of sustainable
development.
198. Where a Neighbourhood Development Order has been made, a planning
application is not required for development that is within the terms of the
order. Where a planning application conflicts with a neighbourhood plan that
has been brought into force, planning permission should not normally be
granted.

Tailoring planning controls to local circumstances
199. Local planning authorities should consider using Local Development Orders
to relax planning controls for particular areas or categories of development,
where the impacts would be acceptable, and in particular where this would
promote economic, social or environmental gains for the area, such as
boosting enterprise.
200. The use of Article 4 directions to remove national permitted development
rights should be limited to situations where this is necessary to protect local
amenity or the wellbeing of the area (this could include the use of Article 4
directions to require planning permission for the demolition of local facilities).
Similarly, planning conditions should not be used to restrict national
permitted development rights unless there is clear justification to do so.
201. Communities can use Neighbourhood Development Orders and Community
Right to Build Orders to grant planning permission. Where such an order is in
37 Section 38(1) of the Planning and Compulsory Purchase Act 2004: this includes adopted or approved development plan
documents i.e. the Local Plan and neighbourhood plans which have been made in relation to the area (and the London Plan).
38 Section 38(6) of the Planning and Compulsory Purchase Act 2004 and section 70(2) of the Town and Country Planning
Act 1990.

Decision-taking | 47

place, no further planning permission is required for development which falls
within its scope.
202. Neighbourhood Development Orders and Community Right to Build Orders
require the support of the local community through a referendum. Therefore,
local planning authorities should take a proactive and positive approach to
proposals, working collaboratively with community organisations to resolve
any issues before draft orders are submitted for examination. Policies in this
Framework that relate to decision-taking should be read as applying to the
consideration of proposed Neighbourhood Development Orders, wherever
this is appropriate given the context and relevant legislation.

Planning conditions and obligations
203. Local planning authorities should consider whether otherwise unacceptable
development could be made acceptable through the use of conditions or
planning obligations. Planning obligations should only be used where it is not
possible to address unacceptable impacts through a planning condition.
204. Planning obligations should only be sought where they meet all of the
following tests:
●●

necessary to make the development acceptable in planning terms;

●●

directly related to the development; and

●●

fairly and reasonably related in scale and kind to the development.

205. Where obligations are being sought or revised, local planning authorities
should take account of changes in market conditions over time and,
wherever appropriate, be sufficiently flexible to prevent planned development
being stalled.
206. Planning conditions should only be imposed where they are necessary,
relevant to planning and to the development to be permitted, enforceable,
precise and reasonable in all other respects.

Enforcement
207. Effective enforcement is important as a means of maintaining public
confidence in the planning system. Enforcement action is discretionary, and
local planning authorities should act proportionately in responding to
suspected breaches of planning control. Local planning authorities should
consider publishing a local enforcement plan to manage enforcement
proactively, in a way that is appropriate to their area. This should set out how
they will monitor the implementation of planning permissions, investigate
alleged cases of unauthorised development and take action where it is
appropriate to do so.

48 | National Planning Policy Framework

Annex 1: Implementation
208. The policies in this Framework apply from the day of publication.
209. The National Planning Policy Framework aims to strengthen local decision
making and reinforce the importance of up-to‑date plans.
210. Planning law requires that applications for planning permission must be
determined in accordance with the development plan unless material
considerations indicate otherwise.
211. For the purposes of decision-taking, the policies in the Local Plan (and the
London Plan) should not be considered out‑of‑date simply because they were
adopted prior to the publication of this Framework.
212. However, the policies contained in this Framework are material considerations
which local planning authorities should take into account from the day of its
publication. The Framework must also be taken into account in the
preparation of plans.
213. Plans may, therefore, need to be revised to take into account the policies in
this Framework. This should be progressed as quickly as possible, either
through a partial review or by preparing a new plan.
214. For 12 months from the day of publication, decision-takers may continue to
give full weight to relevant policies adopted since 200439 even if there is a
limited degree of conflict with this Framework.
215. In other cases and following this 12-month period, due weight should be
given to relevant policies in existing plans according to their degree of
consistency with this framework (the closer the policies in the plan to the
policies in the Framework, the greater the weight that may be given).
216. From the day of publication, decision-takers may also give weight40 to
relevant policies in emerging plans according to:
●●

the stage of preparation of the emerging plan (the more advanced the
preparation, the greater the weight that may be given);

●●

the extent to which there are unresolved objections to relevant policies
(the less significant the unresolved objections, the greater the weight that
may be given); and

●●

the degree of consistency of the relevant policies in the emerging plan to
the policies in this Framework (the closer the policies in the emerging plan
to the policies in the Framework, the greater the weight that may be
given).

217. Advice will be available immediately and free of charge from a support
service provided by the Local Government Association, the Planning
39 In development plan documents adopted in accordance with the Planning and Compulsory Purchase Act 2004 or
published in the London Plan.
40 Unless other material considerations indicate otherwise.

Annex 1: Implementation | 49

Inspectorate and the Department for Communities and Local Government.
This will assist local planning authorities in considering the need to update
their Local Plan and taking forward efficient and effective reviews.
218. Where it would be appropriate and assist the process of preparing or
amending Local Plans, regional strategy41 policies can be reflected in Local
Plans by undertaking a partial review focusing on the specific issues involved.
Local planning authorities may also continue to draw on evidence that
informed the preparation of regional strategies to support Local Plan policies,
supplemented as needed by up‑to‑date, robust local evidence.
219. This Framework has been drafted to reflect the law following the
implementation of the Localism Act 2011, so, where appropriate, policies will
apply only when the relevant legislation is in force.

41 Regional strategies remain part of the development plan until they are abolished by Order using powers taken in the
Localism Act. It is the government’s clear policy intention to revoke the regional strategies outside of London, subject to
the outcome of the environmental assessments that are currently being undertaken.

50 |

Annex 2: Glossary
Affordable housing: Social rented, affordable rented and intermediate housing,
provided to eligible households whose needs are not met by the market. Eligibility
is determined with regard to local incomes and local house prices. Affordable
housing should include provisions to remain at an affordable price for future
eligible households or for the subsidy to be recycled for alternative affordable
housing provision.
Social rented housing is owned by local authorities and private registered providers
(as defined in section 80 of the Housing and Regeneration Act 2008), for which
guideline target rents are determined through the national rent regime. It may also
be owned by other persons and provided under equivalent rental arrangements to
the above, as agreed with the local authority or with the Homes and Communities
Agency.
Affordable rented housing is let by local authorities or private registered providers
of social housing to households who are eligible for social rented housing.
Affordable Rent is subject to rent controls that require a rent of no more than 80%
of the local market rent (including service charges, where applicable).
Intermediate housing is homes for sale and rent provided at a cost above social
rent, but below market levels subject to the criteria in the Affordable Housing
definition above. These can include shared equity (shared ownership and equity
loans), other low cost homes for sale and intermediate rent, but not affordable
rented housing.
Homes that do not meet the above definition of affordable housing, such as “low
cost market” housing, may not be considered as affordable housing for planning
purposes.
Aged or veteran tree: A tree which, because of its great age, size or condition is
of exceptional value for wildlife, in the landscape, or culturally.
Air Quality Management Areas: Areas designated by local authorities because
they are not likely to achieve national air quality objectives by the relevant deadlines.
Ancient woodland: An area that has been wooded continuously since at least
1600 AD.
Archaeological interest: There will be archaeological interest in a heritage asset if
it holds, or potentially may hold, evidence of past human activity worthy of expert
investigation at some point. Heritage assets with archaeological interest are the
primary source of evidence about the substance and evolution of places, and of
the people and cultures that made them.
Article 4 direction: A direction which withdraws automatic planning permission
granted by the General Permitted Development Order.
Best and most versatile agricultural land: Land in grades 1, 2 and 3a of the
Agricultural Land Classification.

Annex 2: Glossary | 51

Birds and Habitats Directives: European Directives to conserve natural habitats
and wild fauna and flora.
Climate change adaptation: Adjustments to natural or human systems in
response to actual or expected climatic factors or their effects, including from
changes in rainfall and rising temperatures, which moderate harm or exploit
beneficial opportunitiClimate change mitigation: Action to reduce the impact of
human activity on the climate system, primarily through reducing greenhouse gas
emissions.
Coastal Change Management Area: An area identified in Local Plans as likely to
be affected by coastal change (physical change to the shoreline through erosion,
coastal landslip, permanent inundation or coastal accretion).
Conservation (for heritage policy): The process of maintaining and managing
change to a heritage asset in a way that sustains and, where appropriate,
enhances its significance.
Community Forest: An area identified through the England Community Forest
Programme to revitalise countryside and green space in and around major
conurbations.
Community Infrastructure Levy: A levy allowing local authorities to raise funds
from owners or developers of land undertaking new building projects in their area.
Community Right to Build Order: An Order made by the local planning
authority (under the Town and Country Planning Act 1990) that grants planning
permission for a site-specific development proposal or classes of development.
Competent person (to prepare site investigation information): A person with
a recognised relevant qualification, sufficient experience in dealing with the type(s) of
pollution or land instability, and membership of a relevant professional organisation.
Decentralised energy: Local renewable energy and local low-carbon energy
usually but not always on a relatively small scale encompassing a diverse range of
technologies.
Designated heritage asset: A World Heritage Site, Scheduled Monument, Listed
Building, Protected Wreck Site, Registered Park and Garden, Registered Battlefield
or Conservation Area designated under the relevant legislation.
Development plan: This includes adopted Local Plans, neighbourhood plans and
the London Plan, and is defined in section 38 of the Planning and Compulsory
Purchase Act 2004. (Regional strategies remain part of the development plan until
they are abolished by Order using powers taken in the Localism Act. It is the
government’s clear policy intention to revoke the regional strategies outside of
London, subject to the outcome of the environmental assessments that are
currently being undertaken.)
Economic development: Development, including those within the B Use Classes,
public and community uses and main town centre uses (but excluding housing
development).

52 |

Ecological networks: These link sites of biodiversity importance.
Ecosystem services: The benefits people obtain from ecosystems such as, food,
water, flood and disease control and recreation.
Edge of centre: For retail purposes, a location that is well connected and up to
300 metres of the primary shopping area. For all other main town centre uses, a
location within 300 metres of a town centre boundary. For office development,
this includes locations outside the town centre but within 500 metres of a public
transport interchange. In determining whether a site falls within the definition of
edge of centre, account should be taken of local circumstances.
Environmental Impact Assessment: A procedure to be followed for certain
types of project to ensure that decisions are made in full knowledge of any likely
significant effects on the environment.
European site: This includes candidate Special Areas of Conservation, Sites of
Community Importance, Special Areas of Conservation and Special Protection
Areas, and is defined in regulation 8 of the Conservation of Habitats and Species
Regulations 2010.
Geodiversity: The range of rocks, minerals, fossils, soils and landforms.
Green infrastructure: A network of multi-functional green space, urban and
rural, which is capable of delivering a wide range of environmental and quality of
life benefits for local communities.
Heritage asset: A building, monument, site, place, area or landscape identified as
having a degree of significance meriting consideration in planning decisions,
because of its heritage interest. Heritage asset includes designated heritage assets
and assets identified by the local planning authority (including local listing).
Heritage Coast: Areas of undeveloped coastline which are managed to conserve
their natural beauty and, where appropriate, to improve accessibility for visitors.
Historic environment: All aspects of the environment resulting from the
interaction between people and places through time, including all surviving
physical remains of past human activity, whether visible, buried or submerged, and
landscaped and planted or managed flora.
Historic environment record: Information services that seek to provide access to
comprehensive and dynamic resources relating to the historic environment of a
defined geographic area for public benefit and use.
Inclusive design: Designing the built environment, including buildings and their
surrounding spaces, to ensure that they can be accessed and used by everyone.
Instrumentation operated in the national interest: Includes meteorological
and climate monitoring installations, satellite and radio communication, defence
and national security sites and magnetic calibration facilities operated by or on
behalf of the Government, delegated authorities or for defence purposes.

Annex 2: Glossary | 53

International, national and locally designated sites of importance for
biodiversity: All international sites (Special Areas of Conservation, Special
Protection Areas, and Ramsar sites), national sites (Sites of Special Scientific
Interest) and locally designated sites including Local Wildlife Sites.
Local Development Order: An Order made by a local planning authority (under
the Town and Country Planning Act 1990) that grants planning permission for a
specific development proposal or classes of development.
Local Enterprise Partnership: A body, designated by the Secretary of State for
Communities and Local Government, established for the purpose of creating or
improving the conditions for economic growth in an area.
Local Nature Partnership: A body, designated by the Secretary of State for
Environment, Food and Rural Affairs, established for the purpose of protecting and
improving the natural environment in an area and the benefits derived from it.
Local planning authority: The public authority whose duty it is to carry out
specific planning functions for a particular area. All references to local planning
authority apply to the district council, London borough council, county council,
Broads Authority, National Park Authority and the Greater London Authority, to the
extent appropriate to their responsibilities.
Local Plan: The plan for the future development of the local area, drawn up by
the local planning authority in consultation with the community. In law this is
described as the development plan documents adopted under the Planning and
Compulsory Purchase Act 2004. Current core strategies or other planning policies,
which under the regulations would be considered to be development plan
documents, form part of the Local Plan. The term includes old policies which have
been saved under the 2004 Act.
Main town centre uses: Retail development (including warehouse clubs and
factory outlet centres); leisure, entertainment facilities the more intensive sport and
recreation uses (including cinemas, restaurants, drive-through restaurants, bars and
pubs, night-clubs, casinos, health and fitness centres, indoor bowling centres, and
bingo halls); offices; and arts, culture and tourism development (including theatres,
museums, galleries and concert halls, hotels and conference facilities).
Major Hazards: Major hazard installations and pipelines, licensed explosive sites
and nuclear installations, around which Health and Safety Executive (and Office for
Nuclear Regulation) consultation distances to mitigate the consequences to public
safety of major accidents may apply.
Minerals of local and national importance: Minerals which are necessary to
meet society’s needs, including aggregates, brickclay (especially Etruria Marl and
fireclay), silica sand (including high grade silica sands), cement raw materials,
gypsum, salt, fluorspar, shallow and deep-mined coal, oil and gas (including
hydrocarbons), tungsten, kaolin, ball clay, potash and local minerals of importance
to heritage assets and local distinctiveness.

54 | National Planning Policy Framework

Mineral Safeguarding Area: An area designated by Minerals Planning
Authorities which covers known deposits of minerals which are desired to be kept
safeguarded from unnecessary sterilisation by non-mineral development.
National Trails: Long distance routes for walking, cycling and horse riding.
Nature Improvement Areas: Inter-connected networks of wildlife habitats
intended to re-establish thriving wildlife populations and help species respond to
the challenges of climate change.
Neighbourhood Development Order: An Order made by a local planning
authority (under the Town and Country Planning Act 1990) through which Parish
Councils and neighbourhood forums can grant planning permission for a specific
development proposal or classes of development.
Neighbourhood plans: A plan prepared by a Parish Council or Neighbourhood
Forum for a particular neighbourhood area (made under the Planning and
Compulsory Purchase Act 2004).
Older people: People over retirement age, including the active, newly-retired
through to the very frail elderly, whose housing needs can encompass accessible,
adaptable general needs housing for those looking to downsize from family
housing and the full range of retirement and specialised housing for those with
support or care needs.
Open space: All open space of public value, including not just land, but also areas
of water (such as rivers, canals, lakes and reservoirs) which offer important
opportunities for sport and recreation and can act as a visual amenity.
Original building: A building as it existed on 1 July 1948 or, if constructed after
1 July 1948, as it was built originally.
Out of centre: A location which is not in or on the edge of a centre but not
necessarily outside the urban area.
Out of town: A location out of centre that is outside the existing urban area.
People with disabilities: People have a disability if they have a physical or mental
impairment, and that impairment has a substantial and long-term adverse effect
on their ability to carry out normal day-to-day activities. These persons include, but
are not limited to, people with ambulatory difficulties, blindness, learning
difficulties, autism and mental health needs.
Planning condition: A condition imposed on a grant of planning permission (in
accordance with the Town and Country Planning Act 1990) or a condition included
in a Local Development Order or Neighbourhood Development Order.
Planning obligation: A legally enforceable obligation entered into under section
106 of the Town and Country Planning Act 1990 to mitigate the impacts of a
development proposal.

Annex 2: Glossary | 55

Playing field: The whole of a site which encompasses at least one playing pitch as
defined in the Town and Country Planning (Development Management Procedure)
(England) Order 2010.
Pollution: Anything that affects the quality of land, air, water or soils, which might
lead to an adverse impact on human health, the natural environment or general
amenity. Pollution can arise from a range of emissions, including smoke, fumes,
gases, dust, steam, odour, noise and light.
Previously developed land: Land which is or was occupied by a permanent
structure, including the curtilage of the developed land (although it should not be
assumed that the whole of the curtilage should be developed) and any associated
fixed surface infrastructure. This excludes: land that is or has been occupied by
agricultural or forestry buildings; land that has been developed for minerals
extraction or waste disposal by landfill purposes where provision for restoration
has been made through development control procedures; land in built-up areas
such as private residential gardens, parks, recreation grounds and allotments; and
land that was previously-developed but where the remains of the permanent
structure or fixed surface structure have blended into the landscape in the process
of time.
Primary shopping area: Defined area where retail development is concentrated
(generally comprising the primary and those secondary frontages which are
adjoining and closely related to the primary shopping frontage).
Primary and secondary frontages: Primary frontages are likely to include a high
proportion of retail uses which may include food, drinks, clothing and household
goods. Secondary frontages provide greater opportunities for a diversity of uses
such as restaurants, cinemas and businesses.
Priority habitats and species: Species and Habitats of Principle Importance
included in the England Biodiversity List published by the Secretary of State under
section 41 of the Natural Environment and Rural Communities Act 2006.
Ramsar sites: Wetlands of international importance, designated under the 1971
Ramsar Convention.
Renewable and low carbon energy: Includes energy for heating and cooling as
well as generating electricity. Renewable energy covers those energy flows that
occur naturally and repeatedly in the environment – from the wind, the fall of
water, the movement of the oceans, from the sun and also from biomass and deep
geothermal heat. Low carbon technologies are those that can help reduce
emissions (compared to conventional use of fossil fuels).
Rural exception sites: Small sites used for affordable housing in perpetuity where
sites would not normally be used for housing. Rural exception sites seek to address
the needs of the local community by accommodating households who are either
current residents or have an existing family or employment connection. Small
numbers of market homes may be allowed at the local authority’s discretion, for
example where essential to enable the delivery of affordable units without grant
funding.

56 | National Planning Policy Framework

Safeguarding zone: An area defined in Circular 01/03: Safeguarding aerodromes,
technical sites and military explosives storage areas, to safeguard such sites.
Setting of a heritage asset: The surroundings in which a heritage asset is
experienced. Its extent is not fixed and may change as the asset and its
surroundings evolve. Elements of a setting may make a positive or negative
contribution to the significance of an asset, may affect the ability to appreciate
that significance or may be neutral.
Shoreline Management Plans: A plan providing a large-scale assessment of the
risk to people and to the developed, historic and natural environment associated
with coastal processes.
Significance (for heritage policy): The value of a heritage asset to this and
future generations because of its heritage interest. That interest may be
archaeological, architectural, artistic or historic. Significance derives not only from
a heritage asset’s physical presence, but also from its setting.
Special Areas of Conservation: Areas given special protection under the
European Union’s Habitats Directive, which is transposed into UK law by the
Habitats and Conservation of Species Regulations 2010.
Special Protection Areas: Areas which have been identified as being of
international importance for the breeding, feeding, wintering or the migration of
rare and vulnerable species of birds found within European Union countries. They
are European designated sites, classified under the Birds Directive.
Site investigation information: Includes a risk assessment of land potentially
affected by contamination, or ground stability and slope stability reports, as
appropriate. All investigations of land potentially affected by contamination should
be carried out in accordance with established procedures (such as BS10175 (2001)
Code of Practice for the Investigation of Potentially Contaminated Sites). The
minimum information that should be provided by an applicant is the report of a
desk study and site reconnaissance.
Site of Special Scientific Interest: Sites designated by Natural England under the
Wildlife and Countryside Act 1981.
Stepping stones: Pockets of habitat that, while not necessarily connected,
facilitate the movement of species across otherwise inhospitable landscapes.
Strategic Environmental Assessment: A procedure (set out in the Environmental
Assessment of Plans and Programmes Regulations 2004) which requires the formal
environmental assessment of certain plans and programmes which are likely to
have significant effects on the environment.
Supplementary planning documents: Documents which add further detail to
the policies in the Local Plan. They can be used to provide further guidance for
development on specific sites, or on particular issues, such as design.
Supplementary planning documents are capable of being a material consideration
in planning decisions but are not part of the development plan.

Annex 2: Glossary | 57

Sustainable transport modes: Any efficient, safe and accessible means of
transport with overall low impact on the environment, including walking and
cycling, low and ultra low emission vehicles, car sharing and public transport.
Town centre: Area defined on the local authority’s proposal map, including the
primary shopping area and areas predominantly occupied by main town centre
uses within or adjacent to the primary shopping area. References to town centres
or centres apply to city centres, town centres, district centres and local centres but
exclude small parades of shops of purely neighbourhood significance. Unless they
are identified as centres in Local Plans, existing out-of-centre developments,
comprising or including main town centre uses, do not constitute town centres.
Transport assessment: A comprehensive and systematic process that sets
out transport issues relating to a proposed development. It identifies what
measures will be required to improve accessibility and safety for all modes of travel,
particularly for alternatives to the car such as walking, cycling and public transport
and what measures will need to be taken to deal with the anticipated transport
impacts of the development.
Transport statement: A simplified version of a transport assessment where it is
agreed the transport issues arising out of development proposals are limited and a
full transport assessment is not required.
Travel plan: A long-term management strategy for an organisation or site that
seeks to deliver sustainable transport objectives through action and is articulated in
a document that is regularly reviewed.
Wildlife corridor: Areas of habitat connecting wildlife populations.
Windfall sites: Sites which have not been specifically identified as available in the
Local Plan process. They normally comprise previously-developed sites that have
unexpectedly become available.

58 | National Planning Policy Framework

Annex 3: Documents replaced by this
Framework
1. Planning Policy Statement: Delivering Sustainable Development
(31 January 2005)
2. Planning Policy Statement: Planning and Climate Change – Supplement to
Planning Policy Statement 1 (17 December 2007)
3. Planning Policy Guidance 2: Green Belts (24 January 1995)
4. Planning Policy Statement 3: Housing (9 June 2011)
5. Planning Policy Statement 4: Planning for Sustainable Economic Growth
(29 December 2009)
6. Planning Policy Statement 5: Planning for the Historic Environment
(23 March 2010)
7. Planning Policy Statement 7: Sustainable Development in Rural Areas
(3 August 2004)
8. Planning Policy Guidance 8: Telecommunications (23 August 2001)
9. Planning Policy Statement 9: Biodiversity and Geological Conservation
(16 August 2005)
10. Planning Policy Statement 12: Local Spatial Planning (4 June 2008)
11. Planning Policy Guidance 13: Transport (3 January 2011)
12. Planning Policy Guidance 14: Development on Unstable Land (30 April 1990)
13. Planning Policy Guidance 17: Planning for Open Space, Sport and Recreation
(24 July 2002)
14. Planning Policy Guidance 18: Enforcing Planning Control (20 December 1991)
15. Planning Policy Guidance 19: Outdoor Advertisement Control (23 March 1992)
16. Planning Policy Guidance 20: Coastal Planning (1 October 1992)
17. Planning Policy Statement 22: Renewable Energy (10 August 2004)
18. Planning Policy Statement 23: Planning and Pollution Control
(3 November 2004)
19. Planning Policy Guidance 24: Planning and Noise (3 October 1994)
20. Planning Policy Statement 25: Development and Flood Risk (29 March 2010)
21. Planning Policy Statement 25 Supplement: Development and Coastal Change
(9 March 2010)
22. Minerals Policy Statement 1: Planning and Minerals (13 November 2006)
23. Minerals Policy Statement 2: Controlling and Mitigating the Environmental
Effects of Minerals Extraction In England. This includes its Annex 1: Dust and
Annex 2: Noise (23 March 2005 - Annex 1: 23 March 2005 and Annex 2:
23 May 2005)
24. Minerals Planning Guidance 2: Applications, permissions and conditions
(10 July 1998)
25. Minerals Planning Guidance 3: Coal Mining and Colliery Spoil Disposal
(30 March 1999)
26. Minerals Planning Guidance 5: Stability in surface mineral workings and tips
(28 January 2000)
27. Minerals Planning Guidance 7: Reclamation of minerals workings
(29 November 1996)

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28. Minerals Planning Guidance 10: Provision of raw material for the cement
industry (20 November 1991)
29. Minerals Planning Guidance 13: Guidance for peat provision in England
(13 July 1995)
30. Minerals Planning Guidance 15: Provision of silica sand in England
(23 September 1996)
31. Circular 05/2005: Planning Obligations (18 July 2005)
32. Government Office London Circular 1/2008: Strategic Planning in London
(4 April 2008)
33. Letter to Chief Planning Officers: Town and Country Planning (Electronic
Communications) (England) Order 2003 (2 April 2003)
34. Letter to Chief Planning Officers: Planning Obligations and Planning Registers
(3 April 2002)
35. Letter to Chief Planning Officers: Model Planning Conditions for development
on land affected by contamination (30 May 2008)
36. Letter to Chief Planning Officers: Planning for Housing and Economic Recovery
(12 May 2009)
37. Letter to Chief Planning Officers: Development and Flood Risk – Update to the
Practice Guide to Planning Policy Statement 25 (14 December 2009)
38. Letter to Chief Planning Officers: Implementation of Planning Policy Statement
25 (PPS25) – Development and Flood Risk (7 May 2009)
39. Letter to Chief Planning Officers: The Planning Bill – delivering well designed
homes and high quality places (23 February 2009)
40. Letter to Chief Planning Officers: Planning and Climate Change – Update
(20 January 2009)
41. Letter to Chief Planning Officers: New powers for local authorities to stop
‘garden- grabbing’ (15 June 2010)
42. Letter to Chief Planning Officer: Area Based Grant: Climate Change New
Burdens (14 January 2010)
43. Letter to Chief Planning Officers: The Localism Bill (15 December 2010)
44. Letter to Chief Planning Officers: Planning policy on residential parking
standards, parking charges, and electric vehicle charging infrastructure
(14 January 2011)