DEVELOPMENT AND INFRASTRUCTURE SERVICES

PLANNING, PROTECTIVE SERVICES AND LICENSING COMMITTEE 22nd June 2016 ______

16/01206/MPLAN – RHUBODACH WOODLAND, :

NORTH BUTE POTENTIAL DEVELOPMENT AREA (PDA 1001) – POTENTIAL SITE FOR TOURISM/RECREATION STRATEGIC MASTERPLAN AREA (MAST 1/13) – MIXED USE FOR TOURISM/LEISURE/ACCESS/COMMUNITY USE (LOW IMPACT DEVELOPMENT) ______

1. SUMMARY

Within the adopted and Bute Local Development Plan (March 2015), the Council has designated a potential development area (PDA) for the development of tourism and recreational schemes within Rhubodach Woodland at the north end of Bute. In addition, a Strategic Masterplan Area (SMA) has been identified for a wider area with a view to providing a mixed use development including tourism, leisure, access and community use. Given the land’s location within the National Scenic Area and (partly) within the North End of Bute Site of Special Scientific Interest, it is expected that any proposed development would be of low impact.

These allocations are underpinned by the requirement that a Masterplan should be endorsed by the Council in advance of any development proceeding. The intention is that this would provide an overall framework for phased and co-ordinated development in response to the opportunities and constraints presented by the allocations.

A masterplan which identifies the landowner’s current aspirations for development of both the smaller PDA and the wider strategic area has been submitted and is considered below. The masterplan has three main objectives:

 To provide a document which presents the long terms aspirations and plans of the Bute Community Land Company for the forest:

 To provide a long term framework and strategy for the development of buildings, spaces, infrastructure and access within and related to the forest;

 To provide a document which outlines the context of, and supports, planning applications for buildings and other structures within the forest.

A separate application (ref: 16/01164/PP) for the erection of a café, formation of camping facilities, a communal dining area, installation of a sewage treatment plant and formation of new vehicular access appears elsewhere on the agenda.

2. RECOMMENDATION

The components of the mixed-use scheme envisaged in the submitted masterplan document and accompanying plans are considered to be compatible with the proposed LDP mixed-use PDA 1001 and SMA MAST 1/13. It is considered that there is sufficient detail to assess the merits of the overall development concept/vision.

It is recommended that the masterplan be approved and endorsed as a material consideration in the assessment of the current planning application (reference: 16/01164/PP) and in the determination of future planning applications within the masterplan boundary.

3. BACKGROUND

The Bute Community Land Company was formed in 2009 to enable the community in Bute to purchase Rhubodach Forest in the north of Bute under the provisions of the Land Reform () Act 2003. The purchase was completed in July 2010. During the ongoing process of formulating and adopting the Local Development, the group and their agents put forward land for consideration.

Potential Development Area 1001 is referred to as ‘North Bute’ in the Argyll and Bute Local Development Plan 2015. In the document, the proposed development is described as having the potential for tourism and recreation. Due to the ownership of a larger area of land, a wider Strategic Masterplan Area has been identified (MAST 1/13) which espouses proposals based upon tourism, leisure, access and community use (low impact development).

PDAs and SMAs are designations identified by the Council where they can contribute to economic development and environmental improvement, and where a comprehensive approach to prospective development is warranted in order to avoid unplanned piecemeal development. They are defined in the plan as areas of land where there is a realistic expectation that development can be delivered during the period of the Local Development Plan (5 to 10 years) but that there are some constraints to development that will need to be overcome. It is standard practice to require a masterplan approach when considering development within such designated areas. Masterplans help the Council assess at an early stage in the development process the interrelationships of layout, design, access, existing transport infrastructure and sustainable modes of travel, landscape and ecology, impact upon the historic environment, open space provision and integration of a proposed development with existing communities.

The Scottish Government most commonly refers to Masterplans as being, ‘a plan that describes and maps an overall development concept, including present and future land use, urban design and landscaping, built form, infrastructure, circulation and service provision. It is based upon an understanding of place and it is intended to provide a structured approach to creating a clear and consistent framework for development’ (PAN 83). The Scottish Government endorses the use of masterplanning in general, but considers that it is especially useful for large sites and in areas/sites which are going to undergo substantial change, have multiple uses, or are sensitive in environmental or landscape terms. At the meeting of the PPSL Committee on 23 November 2011, Members considered and agreed a policy paper on masterplans. This stated, inter alia, that:

“Proposals for development of PDAs should be accompanied by a Masterplan which demonstrates how the proposed development will relate to the wider area and any parts of the PDA which do not form part of the application site, and that the publicity and consultation arrangements for the masterplan and planning application run concurrently for a minimum period of 21 days.”

Given the associated planning application submitted by the Bute Community Land Company, which is being considered separately by Members, a masterplan has been required for prior consideration to help inform the determination of that application. This has now been submitted, has been the subject of consultation and publicity, and is assessed below.

4. CONSULTATIONS Comments have been received from the following consultees:

Development Policy Section (response dated 28th April 2016)

The masterplan proposals are consistent with the outline proposals that were submitted to the Council during the preparation of the Argyll and Bute Local Development Plan which formed the basis of the identification of the masterplan area and the associated PDA at Rhubodach. No objections in policy terms.

Scottish Natural Heritage (response dated 9th May 2016)

The land affected by this masterplan lies partly within the North End of Bute Site of Special Scientific Interest (SSSI) and wholly within the Kyles of Bute National Scenic Area (NSA). Given the sensitivity of the site, SNH has been working closely with the applicant in relation to the compilation of the masterplan. Whilst it is noted that the document is indicative only at this stage, SNH are content that the proposals detailed within the plan are not likely to adversely affect the natural features of the SSSI. Furthermore, it is advised that the proposals are unlikely to have an adverse effect on the integrity of the NSA or on the special qualities for which it is designated.

SNH would expect to receive further consultation on the individual proposals directly affecting the SSSI as and when they come to fruition and enter the formal planning process.

Forestry Commission Scotland (letter dated 16th May 2016)

It is noted that a number of the indicative proposals would likely impact on existing woodland and would advise that the ‘Scottish Government’s Control of Woodland Removal Policy’ would apply and that the UK Forest Standard should apply to the woodland activity. At present, there is no approved Long Term Forest Plan covering the woodlands in question and it is advised that the applicant should submit a plan for approval to FCS at the point of planning application submission. This would allow a more thorough assessment of the impact of the proposals on the wider woodland (including felling requirements, stand stability, etc.)

Area Roads Manager (response dated 20th May 2016)

There is no objection in terms of road safety but each proposal should ensure safe travel and adequate parking is available. Advice has been given on parking requirements; minimum width of road network; location of passing places on single track roads; and any new accesses onto the public road network.

Biodiversity Officer (Consultation issued 27th April 2016) – no comments.

Bute Community Council (Consultation issued 27th April 2016) – no comments.

5. PUBLICITY

The Masterplan has been advertised (expiry date 03.06.2016).

6. REPRESENTATIONS

No representations have been received at the time of writing. 7. ASSESSMENT

List of all Development Plan Policy considerations taken into account in assessment of the masterplan.

‘Argyll and Bute Local Development Plan’ 2015

LDP STRAT 1 – Sustainable Development LDP DM1 – Development within the Development Management Zones LDP 3 – Supporting the Protection, Conservation and Enhancement of our Environment LDP 5 – Supporting the Sustainable Growth of Our Economy LDP 8 – Supporting the Strength of Our Communities LDP 9 – Development Setting, Layout and Design LDP 11 – Improving our Connectivity and Infrastructure

PDA 1001 – North Bute (Potential for Tourism/Recreation) SMA MAST 1/13 – North Bute (Mixed Use Tourism/Leisure/Access/Community Use (Low Impact Development)

Argyll and Bute Local Development Plan - Supplementary Guidance

SG LDP ENV 1 - Development Impact on Habitats, Species and our Biodiversity (i.e. biological diversity) SG LDP ENV 4 - Development Impact on Sites of Special Scientific Interest (SSSIs) and National Nature Reserves SG LDP ENV 6 - Development Impact on Trees / Woodland SG LDP ENV 12 - Development Impact on National Scenic Areas (NSAs) SG LDP TOUR 1 - Tourist Facilities and Accommodation, including Static and Touring Caravans SG LDP REC/COM 1 – Sport, Recreation and Community Facilities SG LDP SERV 1 – Private Sewage Treatment Plants and Wastewater Systems SG LDP TRAN 1 – Access to the Outdoors SG LDP TRAN 2 – Development and Public Transport Accessibility SG LDP TRAN 4 – New and Existing, Public Roads and Private Access Regimes SG LDP TRAN 6 – Vehicle Parking Provision

List of all other material planning considerations taken into account in the assessment of the application, having due regard to Annex A of Circular 3/2013:

. Scottish Planning Policy (SPP), 2014 . PAN 83 – Master Planning . Designing Streets – A Policy Statement for Scotland . ABC Masterplan Process (Nov. 2011) . Statutory / Non-Statutory Consultee Comments

A. Development Plan Context

The SMA defines that the area is suitable for a mixture of:

 Tourism;  Leisure;

 Access;  Community use

The PDA is defined as being for a mixture of tourism and recreation. During the initial period of community ownership (2010 to 2015), the main physical focus of development has been the establishment of a forestry workshop area; the establishment of core paths and signage; e.g. the Balnakilly Loop Walk and the Painted Rock foot trail; and the establishment of the wilderness kayak campsite.

Phase 2 is expected to occur between 2017 and 2018 and will involve the erection of the forest centre (and associated infrastructure and landscaping); the provision of the glamping units (and associated infrastructure and landscaping); the creation of boat moorings; and the provision of improved signage.

Over the period 2019 to 2023, it is planned to develop a range of other facilities as and when funding allows, including: kayak haul-out; mountain bike trails; hydro schemes; Shalunt woodland shelter; Balnakilly woodland shelter and interpretation structures; Oak Wood community space; an interpretations structure at the World War 2 Bunker; and further accommodation.

These proposals are generally consistent with policies LDP STRAT 1, LDP 5, LDP 8 and LDP 9.

B. Settlement Strategy

The strategic masterplan MAST 1/13 comprises a large area of land that includes ‘Rural Opportunity Areas’, ‘Countryside’ and ‘Very Sensitive Countryside’. The Potential Development Area 1001 incorporates both ‘Rural Opportunity Area’ and ‘Countryside’.

The main elements of the built development (i.e. forest centre and glamping units) are contained within PDA 1001 where ‘Rural Opportunity Area’ status applies. Whilst the Argyll and Bute Local Development Plan 2015 does not normally encourage ‘medium scale’ tourist-related development of between 200 and 600 square metres in the ‘Rural Opportunity Area’ zone, given that the masterplan area has been identified as a Potential Development Area, this overrides the underlying ‘Rural Opportunity Area’ notation, with the PDA having been included in response to a particular development opportunity identified in the LDP schedule of PDA’s.

C. Land Ownership/Location, Nature and Design of Proposed Development

Bute Community Land Company (BCLC) was formed in 2009 to enable the community in Bute to purchase Rhubodach Forest in the north of Bute under the provisions of the Land Reform (Scotland) Act 2003. The purchase was completed in July 2010 and the community now own 161 hectares of woodland and, in addition, have access rights over a further 550 hectares of adjacent land.

Historically, there has been a very close relationship between people and woodland. This connection has broken down in Scotland and the rest of the compared with many other European countries. Notwithstanding this, over the last twenty to thirty years, about 100 community forest/woodland groups have been established. There is a great variety of different community woodlands in terms of location (adjacent or in villages, towns and cities; rural areas; and remote rural areas) and the size of woodlands owned or managed also varies. Bute Forest is one of the larger community-owned woodlands.

BCLC’s vision for the island of Bute is to make it widely regarded as the best Scottish island on which to live, work and visit; to have a strong, stable and generous community; to have first class facilities and excellent communications with the mainland; and to retain the island’s beauty and sense of remoteness. The main objectives for the Bute Forest in particular are to establish an economically sustainable community asset; to improve the environmental quality and biodiversity of the forest; to introduce an improved management regime for the forest which supports and creates a more sustainable woodland; to facilitate and encourage community access and use of the forest; to attract additional visitors to Bute and encourage economic growth through their spending; to create business, employment and training opportunities; and to set up renewable energy projects which contribute to sustainable development and contribute to BCLC’s financial viability.

The main development sites highlighted in the masterplan are as follows:

 In the northern site (referred to as the Oak Woodland), it is proposed to erect a timber building with both internal and external areas for use as a community space. There is also the opportunity of providing interpretation at the site of a World War 2 bunker which was built as part of a decoy village by the Royal Navy in an attempt to confuse enemy bombers and draw them away from Clydebank and Greenock. Finally, there is the possibility of some form of hydro scheme.

 In the northern part of Rhubodach plantation, there is the main core of the development incorporating the erection of a forest centre (incorporating a classroom and café); six glamping pods; a communal dining area, a children’s play park area; and associated parking spaces. This area will be the principal focal point for visitors, tourists and island residents. It will provide a range of orientation, catering, training, toilet and other facilities for people visiting the woodlands. Whilst the existing coniferous trees will be felled to facilitate the structures and parking, a broad range of indigenous species will be planted to improve the site’s biodiversity and scenic amenity.

 In the western part of Rhubodach plantation, it is indicated that a hydro scheme will be designed. However, details of this scheme are not known at this time.

 At the southern end of Rhubodach plantation, there is a proposal to erect a woodland shelter at Shalunt. This would be used to support volunteers who would be working in the woodland forming paths, collecting seeds, planting, etc.

The amount of detail on each of the above proposals varies at the present time but it is considered that sufficient information has been shown to illustrate that, as mentioned in the Local Development Plan, there will be a relatively low impact associated with the developments.

On the basis of the foregoing, the location and nature of the developments highlighted in the masterplan are considered to accord with the relevant Development Plan policies.

D. Natural Environment

The aim of Supplementary Guidance SG LDP ENV 1 of the Local Development Plan is to give stronger protection, and where appropriate seek enhancement, to habitats and species, even when they are not associated with specifically designated nature conservation sites. At the same time, it requires the early completion of a biodiversity checklist by developers, which includes invasive non-native species for medium and larger scale developments to help alert developers to potential biodiversity issues in an effort to avoid delay and unnecessary expense. The north western part of the SMA is located within the North End of Bute Site of Special Scientific Interest (SSSI) which is notable for its breeding birds assemblage; its upland oak woodland; and its upland habitat assemblage.

The woodland at the northern end of the SMA is ancient semi-natural comprising predominantly oak and oak/birch. Much of the wood consists of old coppice (last cut perhaps 100 years ago) with a few older maiden stems of oak about 135 years old. The western edge is predominantly more recent birch woodland. It was managed in the 19th century as a working woodland producing wood for charcoal making and bark for the tanning industry. The focus on oak diminished the diversity of species in the woodland and suppressed the development of the shrub layer.

The area of the site owned by BCLC is described by SNH as a “good example of a western oceanic oakwood. Oak and birch dominate with scattered rowan and hazel. Over 300 species of moss, liverworts and lichens have been recorded in the woodland”.

The Rhubodach Plantation (located in the southern part of the SMA) has supported woodland for a number of centuries in recent historical terms. The predominant coniferous species is Sitka Spruce (approximately 62%) whilst the oldest trees are Japanese Larch planted in 1920. The broad-leafed compartments were all planted in either 1987 or 1990.

The main objectives of the BCLC in terms of the forest are:

 The establishment of an economically sustainable community asset;

 The improvement in the environmental quality and biodiversity;

 The introduction of an improved management regime which supports and creates more sustainable woodlands.

As mentioned in Section above, SNH has been working closely with the applicant in relation to the compilation of the masterplan and, whilst acknowledging that the document is indicative only at this stage, it is content that the proposals detailed within the plan are not likely to adversely affect the natural features of the SSSI.

On the basis of the foregoing, the proposal will generally accord with the relevant Policies and Supplementary Guidance contained within the Local Development Plan.

E. Landscape Character

The overall masterplan area is located within the Kyles of Bute National Scenic Area which is one of forty areas in Scotland that have been designated for their “outstanding scenic value in a national context”.

The ‘special qualities’ of the NSA cited by SNH are as follows:

 The drama of the Kyles of Bute;

 The verdant woodland on the enclosing hills;

 The rocky outcrops punctuating the wooded slopes;

 The juxtaposition of human settlement and a wider developed landscape of sea and hills;  A peaceful landscape of constant movement;

 The gradual transition from land to sea in Loch Ruel.

There is recognition, in the designation of the Strategic Masterplan Area, that the various forms of built development should have a low impact. In this sense, the information presented in the masterplan follows this fundamental principle. The main centre of development within the Rhubodach Plantation is assessed in greater detail in the report on application 16/01164/PP which is also before Members for consideration.

On the basis of the foregoing, the proposal will generally accord with the relevant Policies and Supplementary Guidance contained within the Local Development Plan.

F. Historic/Built Environment

There is a long history of human habitation in the Bute Forest. There are approximately 25 sites within the forest noted in the West of Scotland Archaeology Service’s (WoSAS) Sites and Monument Record. These sites include settlements, fish traps, cup markings, buildings, dykes and platforms.

Habitation in recent centuries is evident from the remains of four settlements or farmsteads: Balnakilly, Tawnie, Bullochrig/Bullochreg and Rhudan. People lived in these places for probably around 400 years up until their abandonment during the 19th century.

There are at least 23 charcoal burning platforms dispersed throughout the southern end of Shalunt Wood. Typically, they comprise a levelled area, mostly measuring about 8 metres (but up to 12 metres in diameter), with a steep back-edge cut into the slope and a front that has been built up using quarried material. Man-made features of the forest also include the World War 2 bunkers.

The proposals recognise the sensitivity of the historic environment and there are no works that would impinge upon any of these features. However, one of the aims of the BCLC is to promote access to the forest for local residents and visitors to the island through the interpretation of the many different facets of the forest, including its woodland history, wildlife and economic/social history.

On the basis of the comments made by WoSAS in respect of application 16/01164/PP, it is anticipated that all recorded sites would be avoided in terms of development. The ground should be assessed for buried potential through an initial walkover survey which could be the first stage of a multi-phase investigation. The surveys would look for unrecorded archaeological sites within the ground concerned and would also check levels of ground disturbance and topography to come to a recommendation concerning the need for further intrusive archaeological investigations such as evaluation or watching brief that may subsequently be required. In order to carry such investigations forward, a professional archaeologist would require to be employed.

G. Road Network, Parking and Associated Transport Matters.

The main developments that will attract vehicles are the proposed café and glamping accommodation. It is proposed to form a new vehicular access onto the A886 public road and to provide 27 parking spaces behind the café building and 6 parking spaces adjacent to the glamping pods. The Area Roads Manager has no objections to the proposed arrangements subject to appropriate conditions that are addressed in the associated application 16/01164/PP.

The other types of development (i.e. community space and woodland shelter) are more likely to be accessed by foot with the consequence that the visual and physical impact of their construction is likely to be limited.

On the basis of the foregoing, the proposal will generally accord with the relevant Policies and Supplementary Guidance contained within the Local Development Plan.

H. Infrastructure and Services

The public water supply runs along the main public road and it is proposed to connect the main forest centre and visitor accommodation to this supply. There is no public sewerage system in this area with the consequence that any buildings developed within the forest will require their own independent sewage treatment and disposal systems.

On the basis of the foregoing, the proposal will generally accord with the relevant Policies and Supplementary Guidance contained within the Local Development Plan.

I. Conclusion

PDAs are defined in the adopted Local Development Plan as areas of land within which development opportunities may emerge during the period of the Local Development Plan (5 to 10 years). Such opportunities as were identified were not fully resolved at the time of the adoption of the plan, which requires constraints to be overcome in terms of the ‘mini development brief’ accompanying these PDAs before development opportunities within the PDA area can be realised and be supported by the Local Development Plan.

Strategic Masterplan Areas are larger tracts of land which are of strategic economic importance to Argyll and Bute. Their development can contribute to economic development and environmental improvement, and they warrant a comprehensive approach to prospective development in order to avoid unplanned piecemeal development. This masterplan gives all interested parties and statutory consultees sufficient detail to assess the approach to future development of the site. Assessed against Development Plan Policy, and other material considerations, the components of the scheme are considered to be compatible with SMA MAST 1/13 and PDA 1001.

IMPLICATIONS

Policy: None Financial: None Personnel: None Equal opportunities: None

Author of Report: Steven Gove Date: 6th June 2016 Reviewing Officer: Richard Kerr Date: 7th June 2016

Angus Gilmour Head of Planning and Regulatory Services