SUSTAINING LIVING UPLANDS: THE ROLE OF THE NORTHUMBERLAND NATIONAL PARK AUTHORITY IN RURAL DEVELOPMENT Terry Carroll Jeremy Phillipson Centre for Rural Economy Research Report SUSTAINING LIVING UPLANDS: THE ROLE OF THE NORTHUMBERLAND NATIONAL PARK AUTHORITY IN RURAL DEVELOPMENT Terry Carroll 1 Jeremy Phillipson August 2002 1 Research Consultant Preface The research for this study was carried out between January and April 2001 and this report of the findings was duly compiled and presented to the NNPA at the end of that period. The work coincided with the start of the Foot and Mouth epidemic. This had profound consequences for the rural economy of Northumberland and other areas similarly affected. One positive consequence, amidst the crisis, has perhaps been a better understanding of the interdependencies between farming and other sectors of the rural economy and the particular support needs of rural micro-businesses. Rural issues, albeit perhaps temporarily, were catapulted higher up the political agenda. In the aftermath of the FMD crisis three Government Inquiries have reported. In response to Sir Don Curry’s report a new strategy for sustainable food and farming will appear in the Autumn and a radical review of agri-environment schemes has been signalled. At the local level Northumberland County Council held its own FMD Inquiry chaired by Michael Dower and a recovery plan for the rural economy is now being progressed. The Regional Development Agency, ONE North East, has also published a Rural Action Plan. Finally, the results of DEFRA’s review of English National Park Authorities appeared in July of 2002 and a number of the recommendations are intended to relax the present constraints on rural development activity. Much has clearly happened therefore since the CRE conducted this research and which could not have been anticipated. It is hoped however that despite such unprecedented policy review and change the findings of the research and messages for the NNPA retain their validity. Contents Preface 1 Introduction 1 2 The Policy Context 4 3 The Focus of Rural Development: The Environment and Culture Economy 9 4 Profile of Northumberland National Park 12 5 Role and Influence of NNPA in Rural Development 19 6 Institutional Issues 26 7 Primary Land Use and Agriculture 31 8 Branding and Marketing 33 9 Tourism 35 10 Conclusions 38 References 45 Annexes 1 INTRODUCTION ‘A research project to explore new approaches for supporting rural jobs and communities based on the conservation and sustainable exploitation of the special environmental qualities and cultural distinctiveness of the Northumberland National Park and its surrounding area’. Aims of study The overall aim of the study was to reflect on the role of the Northumberland National Park Authority in rural development through an exploration of its remit, current initiatives and external relations. There were three broad objectives within the research: • to provide a local definition and profile of the environment/culture economy; • to appraise the current role of the National Park Authority in rural development and the relationship of its work to other players in the public, private and voluntary sectors; • to consider the scope for new initiatives, focussed on the National Park, for supporting and promoting sustainable rural development based on sensitive exploitation of its environmental and cultural assets. The project was conceived in collaboration between the Northumberland National Park Authority (NNPA) and the Centre for Rural Economy (CRE) and carried out between January and April 2001. It was funded by the NNPA and the Countryside Agency. Methodology The methodology adopted for the study was primarily based on a series of visioning seminars on different aspects of the environment/culture economy, led by members of the Centre for Rural Economy and engaging staff from the National Park Authority and key external agencies. Four seminars were held in total, as follows: • The Culture Economy and Theories of Rural Development • Context and Institutional Issues • The Primary Land Use Economy • Branding, Marketing, Tourism and Hospitality In addition, semi-structured interviews were undertaken with 10 members of the National Park staff and 11 external agencies and organisations, together with an analysis of available survey information. This represented a stocktaking exercise for the seminar series. The following key elements were included: an overview of the rural development initiatives and organisations in and around the study area; discussion of the Park Authority’s engagement in existing rural development projects; a review of the business profile within the study area based on an analysis of CRE’s rural microbusinesses database; an analysis of the NNPA farm survey; and a broad commentary on the role of NNPA as a planning authority. The project involved the following staff of the Centre for Rural Economy at the University of Newcastle: Terry Carroll Philip Lowe Jeremy Phillipson Marian Raley Christopher Ray Angela Tregear Neil Ward Terry Carroll and Jeremy Phillipson were responsible for editing the final report. 2 THE POLICY CONTEXT Section 61 of the Environment Act 1995 clearly specifies two statutory purposes for the National Park: • to conserve and enhance the natural beauty, wildlife and cultural heritage of the National Park; and • to promote opportunities for the understanding and enjoyment of the special qualities of those areas by the public. It is a central argument of this study that rural development - in its widest sense and, therefore, covering environmental, social and economic aspects - is fundamental to the fulfilment of these twin purposes. It is difficult to envisage how the environment and cultural heritage of the Park could be conserved or enhanced without the pro-active engagement of the managers of the land, the owners of its physical heritage and the local communities, whose culture and livelihoods sustain the vitality of the Park. Equally, the promotion of the amenity and inspirational value of the National Park requires suitable activity and organisation in the fields of tourism and recreation, which depend upon and may benefit local facilities, businesses and employment. Thus, the National Park Authority can only realise its core purposes by achieving sustainable rural development which entails acting in concert with its key social and occupational communities. This logically follows from the fact that the Park is a set of living and functioning places rather than a museum, theme park or wilderness area. A rural development objective for the National Park is actually specified in what has come to be referred to as the ‘third purpose’. This states that, in pursuit of its core responsibilities, the National Park Authority should seek to foster the economic and social well-being of local communities within the Park. However, in pursuing this broader objective, the Authority is required to avoid incurring significant additional expenditure and to co-operate with local authorities and public bodies whose functions include the promotion of economic and social development. There are thus two distinct formal rationales for the National Park Authority to engage in rural development: • The pursuit of sustainable development as the implicit means of achieving the Park’s core conservation and recreational purposes. This entails working with and through its key social and occupational communities which include the land based sector, the owners/managers of the physical heritage, the distinct cultural and geographical communities of the Park, the tourism and leisure sector and the educational and interpretative sector. • The fostering of the economic and social well-being of local communities in the Park as an explicit end in itself. While this must be subsidiary to the core purposes (and incur no significant extra costs and be done in partnership), it is nevertheless an obligation. It therefore requires the Park Authority to scrutinise its methods of working, to ensure that, where possible, they do foster local well- being. In considering rural development activity, and the role of the National Park Authority in this, it is important to consider the wider policy context. The Rural White Paper (2000), for example, expresses contemporary thinking about how the countryside must adapt to changing times and the role that is expected of public institutions in this process. It identifies several overarching priorities, including social exclusion and rural services, rural transport, affordable housing, market town regeneration, business support and environmental protection. A strong rural development agenda is presented. The White Paper argues for the building of “prosperous, sustainable and inclusive rural communities” (p.11) and promises to “help rural communities make the character of the countryside an economic as well as an environmental asset” (p.11). Furthermore, it suggests that the planning framework should “continue to safeguard our countryside while allowing rural communities to thrive” (p.103). A number of cross-cutting themes are raised within the Rural White Paper relating to processes of governance, including a commitment to the “empowerment of local communities” (p.11) and joined-up rural policy delivery. There is a major programme, for example, to strengthen parish councils and to assist them in producing community strategies. The White Paper also looks for more joint planning of resource allocation and the delivery of services for rural areas