Landscape and Landscape Assessment

Consultation Draft of Guidelines for Planning Authorities

June, 2000 INTRODUCTION Against the background of increasing development pressure, the National Development Plan and the preparations being made for the production of a national spatial strategy, the centrality of landscape considerations is becoming more apparent. There is an urgent need to approach landscape appraisal in a systematic way – a way which will enable us to take a proactive view of development while maintaining that respect for the environment and heritage generally which is required by sustainability. We have inherited our present landscapes. Many of them are the result of sustainable practices down through the centuries. The principles of sustainability which underpin current planning practice and legislation require us to so deal with our landscapes that we do not hand them on to future generations in a degraded condition.

BROADER DEFINITION OF LANDSCAPE The only available, quasi-official, document providing guidance on landscapes at a national level is Outstanding Landscapes, An Foras Forbartha, 1976. More recent approaches to landscape – appraisals which have been done extensively in Britain and Northern Ireland - are based on a different understanding and use a different method. In the first place landscape embraces all that is visible when one looks across an area of land. Equally the Draft Convention on Landscape proposed by the Council of Europe examines all landscapes. This new approach has several effects, two of which are of immediate relevance to these Guidelines:

1. As well as being an important part of people’s lives - giving individuals and communities a sense of identity and belonging and bestowing a sense of place on our surroundings - landscape is the context in which all change takes place. No development can take place which does not change the landscape. As has happened right through history, the landscape is constantly changing both through the actions of nature and human intervention. The challenge to our generation is to bring about change in a way that is respectful and creative. Our landscapes are therefore a resource which is to be used prudently and sustainably; they are the matrix through which, with our design skills and ingenuity, we can accommodate development.

2 2. A second consideration that follows is the need to look afresh at appraisal systems which will take this broader, more proactive view into account. We need a system which is more factual, a system which will essentially describe the distinctness of one landscape type from another and which will avoid an evaluation which tends to rank one landscape as better than another.

LANDSCAPE CHARACTER ASSESSMENT These Guidelines recommend the assessment method known as Landscape Character Assessment. The method, which is explained fully in the text and appendices, moves away from concepts such as sublime, beautiful, outstanding, etc. as criteria or as a means of categorisation. These are the very categories which gave rise to a view of the landscape which was unnecessarily restrictive, protectionist and conservationist.

The new method favours characterisation i.e. the discernment of the character of the landscape based initially on landcover – trees, vegetation, settlements, water etc. and landform which results from geological and geomorphological history. Added to this first level of assessment is a second layer (which in fact will be represented by an overlay on the character map). This second layer, described in the Guidelines as values, takes historical, cultural, religious and other understandings of the landscape into account.

PROACTIVE APPROACH This method of assessment allows for a much more proactive approach to landscape. It allows us to view landscape for its ability to accommodate developments, gives indicators as to which developments might be most suited, under what conditions and using what design criteria. It shall, therefore, be possible for local authorities to indicate particular landscape areas which would be suitable for one kind of development while not being considered suitable for another. These policy responses will correspond to the degree of sensitivity of a particular landscape.

Table of Contents

3 1.0 CONTEXT...... 5

1.1 SCOPE...... 5

1.2 NATIONAL POLICY ISSUES...... 6

1.3 AIM OF LANDSCAPE GUIDELINES...... 7

2.0 A SYSTEMATIC APPROACH...... 8

2.1 LANDSCAPE CHARACTER...... 9

Stage 1: Identification of Physical Units...... 9 Stage 2: Identification of Visual Units...... 10 Stage 3: Identification of Image Units...... 11

2.2 LANDSCAPE VALUES...... 11

2.3 SENSITIVITY...... 13

2.4 POLICY RESPONSES...... 15

3.0 DEVELOPMENT PLAN...... 15

4.0 DEVELOPMENT CONTROL...... 16

5.0 CONCLUSION...... 18

1.0 Context 1.1 Scope

4 In these Guidelines landscape is taken that are a feature of many of our to embrace all that is visible when landscapes are essentially the results of looking across areas of land. It may such utilitarian needs as boundaries, therefore include a number of elements enclosures and drainage. such as mountains, hills, coastline, 'In long and closely settled areas woodlands, buildings and settlements. such as Ireland, the human In these guidelines “Landscape” does impression is so pervasive that it not ‘per se’ include the notion is appropriate to speak of a streetscapes and therefore the cultural landscape... A rigid Guidelines do not directly address distinction between natural and specific considerations of streetscape cultural landscapes is, however, in towns and cities whether of layout, misleading, since natural height, design or other. Historically the processes operate in both…' term landscape came into use in the (Aalen) context of art and painting. Earlier publications on landscape Landscape is a precious national asset. favoured methods of classification The Irish countryside comprises great which included categories such as diversity resulting in an extraordinary sublime or beautiful. These older variety. It is important for individuals methods gave rise to a tendency to and communities in that it gives a concentrate only on 'outstanding sense both of place and of belonging. landscapes'. In that context planning It provides the setting for many policies tended to be reactive, and, in activities and the context in which general, to deal almost exclusively development takes place. There is a with 'special' landscapes and then by growing appreciation of the importance way of strict conservation which of landscape for development in prohibited any intervention. general, for recreational activity and for tourism. In the considerations that follow, all landscapes, that is 'ordinary' No Irish Landscapes are 'natural' in the landscapes and not just so-called sense that all have been touched or special landscapes, will be treated. The moulded by human activity. For Guidelines will propose that all Local example, the attractive field patterns Authorities classify the landscape(s) in

5 their area according to the character of 1.2 National Policy Issues these landscapes (see para 2.2). The National policy recognises the character, which is a product of centrality of social and economic landform and landcover, including development. The unprecedented rate vegetation and landuse, can be of economic growth over the past established for an area where there is decade has advanced the need for visual distinctiveness and identity. housing, infrastructural and In summary, the complexity of communications installations. With landscape can be expressed as follows: equal urgency, The National

 A context which is nature based Sustainable Development Strategy but which also is typically aims to carry consideration for the modified by humans environment into all aspects of development.  It comprises:

- physical elements and The approach that is suggested, processes therefore, stems from the fact that every act of development changes a - visually perceived landscape. It is important to bear in compositions mind, however, that the change can be  Landscape is at once physical and positive, neutral or negative. It is symbolic Government policy that in deciding for  It is never static, but always or against development that the dynamically changing appropriateness of that development within the given landscape context be  It includes all landscapes and not considered. only the scenic and important

prospects Planning authorities have a duty under the Local Government Act, 1991, in These Guidelines will propose that all the performance of their functions Local Authorities classify the under any enactment, to have regard to landscape in their area according to policies and objectives of the character, values and sensitivity. Government or any Minister in so far as they may affect or relate to their functions. Planning authorities must

6 have regard to the policy implications consistency nationwide in all of these Guidelines in planning and authorities, ensuring compatibility of promoting development which is decision making along boundaries sustainable and, therefore, respectful of between adjoining authorities. As a the environment. These Guidelines are result of the process, it is foreseen that addressed to all planning authorities in time a national map which will and An Bord Pleanála. illustrate landscape character areas, values and sensitivity will result. 1.3 Aim of Landscape This approach should also provide an input to Guidelines  Regional planning policies While it is national policy to respect  Studies of development potential each landscape as the context in which  Strategies for new forms of development takes place, issues of development, e.g. mobile phone balance will have to be decided locally. masts and base stations, windfarms The aim of these Guidelines is to etc. heighten awareness of the importance  Capacity studies (and therefore a of landscape in all aspects of physical sustainability indicator) planning, to provide guidance to  Housing and roads planners and to others as to how  Forestry and development on urban landscape considerations should be edge dealt with and to indicate specific  Agri-environmental schemes requirements for Development Plans  National Spatial Strategy and for development control.

It is acknowledged that planning law 2.0 A Systematic on its own is not sufficient to ensure Approach the management, development and conservation of our landscapes and that The planning and management of other inputs from local and national development requires a thorough and agencies are required. systematic approach to landscape. The method or framework which is By proposing the same approach for advocated in these Guidelines provides each planning authority, there will be

7 for the classification of landscapes which might be drumlins, rolling according to the following: farmland, mountain moorland…

(1) CHARACTER,  areas are geographically specific (2) VALUES examples of types, examples of (3) SENSITIVITY which might be south Leitrim low As a basis for providing an overview drumlins, west Limerick rolling of the many issues involved in farmland, and Wicklow mountain ‘landscape’, summary definitions of moorland… key concepts and terms are outlined below. Landscape Assessment

Landscape Landscape Assessment Character Landscape Character can be established for an area Character where there is visual distinctiveness and identity through a continuity of similar characteristics.

Values Landscape Values Values can be described as the environment or cultural benefits that are derived from various landscape resources. These resources may include physical and visual components as well as ‘image’elements. Landscape Sensitivity

Landscape Sensitivity  Policy Responses The extent to which a landscape can accommodate change without - Local Authority unacceptable loss of existing character or Landscape interference with values. Planning The above aspects of landscape may be Key Concepts It is essential to taken separately for the purposes of distinguish character types and analysis. This analysis should, character areas within the overall however, result in the production, for concept of landscape character. each Planning Authority area, of a  types are generic expressions of practical, planning tool comprising the distinctive character, examples of following:

8  A map, or series of maps and Landform

photographic and written Landform is concerned with the spatial descriptions which represent and formal arrangement of landscape landscape character areas components as a natural product of  Overlay of values geological and geomorphological history. This level of categorisation can  Overlay of sensitivity. be achieved planimetrically by using available O.S. contoured maps, geological and geo-morphological 2.1 Landscape Character studies, water catchment and drainage The process of establishing pattern. landscape character areas will Landcover correspond to the following three stages: Landcover is concerned with the more  Stage 1 – Identification of detailed constituent parts as manifested Physical Units (desk-study on the surface, both natural and man- mapping exercise) made, and comprises vegetation, water bodies or rivers and includes buildings  Stage 2 - Identification of Visual and human settlements. Satellite Units (verify physical units imagery together with Corine landuse involving on-site landscape maps and aerial photographs as well as assessment) other studies of field enclosure  Stage 3 - Image Units patterns, soils, forestry, other vegetation and settlements will inform The above three stages are described in the development of a landcover map. the following paragraphs.

StageStage 1: 1 :Identification Identification of of Physical Physical Units When both these maps are overlaid the Units result is a physical unit map. This simply means that the result of this initial investigation, both in map form The first stage concerns physical and in written or photographic elements and components that result descriptions, is an objective statement from the combination of landform and of 'what is there' physically on the landcover. surface resulting from geology, soils,

9 hydrology, topography, vegetation and  Physical limits of a view or landuse. It thus provides an initial, but prospect, such as defined in as yet incomplete, understanding of mountainous areas by ridges landscape. This will be verified in the enclosing, for example, steep-sided field as part of Stage 2. glaciated valleys.

Appendix 1 provides greater detail  Physical limits of a water on the method of creating physical catchment as would be relevant in a units. lower rolling hill landscape.

 The ‘gateway’ between areas contrasting in their degree of Stage 2: Identification of Visual Units spatial containment, such as at the mouth of a steep sided valley The landscape that is of most interest which flows out towards more to planners is that which is perceived open country below. three-dimensionally from the ground, While these visual units will constitute rather than viewed from the air. Visual the basic units within which units are described as areas defined by development proposals will be spatial enclosure and pattern which are considered, it will also be necessary to determined by landform and landcover. consider links between them. It is important to appreciate that, however complex in composition, it is Appendix 2 outlines in greater detail within visually perceived units that the method of identifying visual different kinds of development will units. take place and against which their Stage 3: Identification of Image Units compatibility will be evaluated. A

single visual unit may comprise a In certain landscapes a physical feature number of physical units. is of such dominance that it acts as a

The boundaries of visual units can major focal point. In such cases, a typically be identified through field visual ‘field’ results from the verification by one, or a combination, association of part of the landscape of the following: character as established under Stage 1 and/or Stage 2 with that feature. This,

10 therefore, creates an image or place values. Situations of this nature will identity which is distinct from that generally give rise to conflict and their derived simply from the physical or resolution may require the intervention visual. An example might be the visual of third party facilitators. field created by such landmarks in Co. Thus as an addition to the character of Sligo as Benbulben and Classybawn a landscape, communities or Castle. individuals will attach certain values to Appendix 3 gives greater details of that landscape. This attribution will the method of identifying image often be the result of consensus, units. national or local, popular or academic.

Appendix 4 outlines how each of the Landscape values can be described as three stages of landscape character the environmental or cultural benefits, assessment combine to identify including services and functions, that character areas. are derived from various landscape attributes. These attributes will, in many instances, be the components and 2.2 Landscape Values image of the landscape as already established in the assessment of Landscape values are the second major landscape character. component of these Guidelines. Values are those realities which satisfy human In some instances a particular landform needs and desires. Not all values are may itself be considered a value. It understood to be of equal importance. may be that the character of a given Frequently communities or societies landscape makes it a particularly subscribe to a particular hierarchy or striking representative of its kind, prioritisation of values. This results in providing identity based on uniqueness a generally accepted value system or or rarity. code of practice. Some of the more frequent values With almost equal frequency an (singly or in combination) which will individual or group may so prize a be attributed to a landscape are the value that they will pursue its following: attainment to the exclusion of all other

11  aesthetic - most frequently visual, development in many cases is vistas, scenic areas, Outstanding necessary to ensure socio-economic Landscapes, Areas of Special progress and environmental Amenity enhancement, the identification of values and the resulting sensitivity of  ecological - habitats, biotopes, the landscape is an important counter- wildlife sanctuary, Special Areas of balancing force indicating the need for Conservation, Natural Heritage careful planning and sensitive design. Areas and Special Protection Areas

 historical - archaeological heritage, Values are sometimes less than artefacts, field patterns accurately described as subjective. The systematic approach suggested here  socio-cultural - buildings, implies that values attributed to settlements, monuments, social landscapes, the value judgements history or social geography involved in the resolution of conflicts  religious - shrines, wells, burial or the establishment of priorities, can places, pilgrimages be rationally debated and can be  mythological - ancient Celtic defended with arguments based on stories.... evidence, reasons, precedents and consensus. All of these values are real but not everyone will agree as to their relative It should be noted that for this stage importance. This becomes particularly great care will be taken to consult clear when weighed against those other widely. It will be important to achieve socio-economic values such as local consensus. National authorities housing, employment, leisure facilities, with responsibility or expertise in the etc. The provision of these is often a field should also be consulted as in pressing social need and therefore a some instances it may not be fully value. appreciated locally that certain values may be of national or international Landscape values introduce a importance. qualifying and potentially constraining influence upon development which The assessment of values attaching to would involve landscape change. various landscapes, together with the While a proactive approach to necessary consultation process

12 involved in this part of the assessment, character or interfere with or eliminate will be the responsibility of each a value, such a landscape is deemed to planning authority. be of low sensitivity.

Appendix 5 outlines in greater detail On the other hand where any proposed the method of arriving at values. development would seriously damage a character or eliminate or seriously damage an irreplaceable value, such a 2.3 Sensitivity landscape would be considered to be The sensitivity of a landscape to highly sensitive. development and therefore to change will vary according to its character and to the importance which is attached to While sensitivity will be evaluated any single value or combinations of principally in relation to values, values which are attributed to that considerations of the character of the landscape. The sensitivity of a landscape sometimes will enter the landscape is the measure of its ability equation. Put another way, the to accommodate change or intervention character of the landscape – because of without suffering unacceptable effects its uniqueness or because it is a to its character and values. particularly good representative of a particular character type, may make Evaluation of sensitivity is ultimately that landscape highly sensitive. concerned with providing a basis for Additional values attaching would decision making in order to achieve increase the sensitivity. environmental sustainability. While ready formulae to achieve this are not available, it is possible to Some or all of the following indicators systematically identify, examine and should be taken into account compare the factors that ultimately will  Quality: Is the particular prioritise certain values for character type degraded or environmental sustainability. unspoiled…?

Where a wide range of developments  Integrity: Have rare elements would sit comfortably in a particular been changed, removed, landscape and not interfere with a

13 interfered with by unsympathetic  Tourist maps

structures.  Products of the arts, including  Distinctiveness: Very striking paintings, literature…

example of the value or character  Landscape Conservation Areas type. (Planning and Development  Popularity: Where the feature is Bill, 1999) widely recognised or Where values are deemed to be appreciated. important a strong conservation  Rarity: Very few examples exist. oriented approach might be adopted.  Cultural Meaning: Either Conversely, where it is agreed that explains, represents or inspires value(s) are of low importance, cultural values. plentiful and easily replaceable, a more

 Sense of Public Ownership: proactive stance on development Either because of the would be appropriate.

accessibility, visibility or the It will be the function of the planning widely shared meaning. authority to categorise landscapes  Social Importance: May range according to their sensitivity. From from local importance to such categorisation will flow the national; maybe economic or planning authority's policy responses tourist interest. to various developments. Landscape sensitivity will always be related to the type and scale of proposed Areas of sensitivity will often be developments. For example, a recorded or represented in the moderately sensitive landscape may following documents: accommodate a well designed small scale development while a large scale,  Designations (eg. SPAs, ASAs, more intrusive development would not SA, SAAOs) be suitable.  Earlier County Development Plans Appendix 6 gives in greater detail the method of classifying landscape  Area reports sensitivity

14 Each plan should contain a general statement to the effect that landscape 2.4 Policy Responses considerations will be an important The task of the authority will be to factor in all land use policy for the establish a policy response in relation area. to the various identified degrees of The plan should map and describe sensitivity in its area. As has been character areas (together with pointed out, the sensitivity will derive associated values) and the degree of from values and character. The sensitivity associated with each responses, which will be grounded in character area or specific locations in the principles and practice of that area. sustainability, will range from encouragement of certain types of It should describe the authority’s development in some landscapes to, at policy in relation to each landscape the other end of the scale, prohibition area and formulate appropriate of any development, in order to ensure objectives. the total preservation and conservation of the particular landscape. See further Among the many possible examples in paragraph 3. On Development Plan the following might be considered: and in Appendix 6.  Confining development to the midslopes of drumlins or at the 3.0 Development Plan foot of ridges.

The development plan will be the  House builders might be means by which each authority will encouraged to integrate with spell out its policies and objectives in their surroundings and to choose relation to the landscape of its area. At less intrusive locations rather the earliest possible time within the than maximising their views review framework of the development outwards; this would apply plan, authorities should set in train the equally to estates on the fringes measures necessary to categorise their of settlements and to single landscapes according to the methods houses in the countryside. outlined in these Guidelines.

15  Consider policies and objectives which would seek to guarantee 4.1.1 Such decisions will the patterns of fields and predominantly relate to rural settings. woodlands which contribute to It should however be borne in mind the scenic value of certain that development on those areas of landscape character areas. interface between town and country - Require that special treatment be on the outskirts of settlements and afforded to landscapes of a along the entrance and exit routes - “semi-natural” character; these may have a profound effect on the are very often important natural landscape. It should also be borne in habitats. They would include mind that settlements themselves are ancient woodlands, sand dunes, part of the landscape. Therefore, in mudflats, marshes, heather relation to views and prospects, views covered hills and bogs. outwards from a settlement may be of considerable importance in linking the Policies may range from conservation, settlement with its broader context. which may be achieved through designation, e.g. as Landscape Conservation Areas under the Planning 4.1.2 Authorities should consider and Development Bill, to proactive prohibiting as far as possible ribbon encouragement of certain development. Such development which developments or activities. is of a piecemeal, unplanned and haphazard manner is destructive of the rural character and environment. 4.0 Development Control Ribbon development is wasteful and 4.1 In those decisions where landscape non-sustainable with regard to the considerations are relevant, and this provision and extension of services and will be in the majority of cases, regard the generation of traffic patterns and should be had to the policy and volumes for which rural roads were not objectives of the Development Plan for designed, and can also endanger the particular landscape character, ground water quality. values and sensitivity in question.

16 4.1.3 Equally the contextual colours, To discourage: shapes, textures and forms of the  Use of suburban type walls, landscape will have to be considered in entrance gates and suburban the overall design of buildings and building vernacular in the other developments. countryside

 Indiscriminate use of exotic plant 4.2 Where conditions are attached species especially on road sides which relate to landscape character and around rural gardens / sites and areas, this should be explicit. Apart where possible the limiting of such from the general considerations in para species to more formal or specialist 4.1 above some of the following may gardens be useful:  Use of brightly coloured or multicoloured brick or panel paving which is out of character with rural areas

4.2.1 To encourage:

 On all buildings the use of local materials and techniques and in the 5.0 Conclusion associated paving the use of Change brought about by development subdued paviors and, where is inevitable. Such change should be feasible and warranted, the use of planned and designed in response to stone the character of the particular area

 The effective reinstatement and concerned. Landscapes are not meant landscaping of areas affected by to be fossilised; they must however be quarrying or other extractive respected. What is now necessary is activities, or the installation in the that we have an evenness of approach countryside of telecommunications and method by all planning authorities. or other masts