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The Draft Regional Spatial Strategyfor the South West 2006 - 2026

STRATEGIC SUSTAINABILITY ASSESSMENT

NON-TECHNICAL SUMMARY

RSS update

1SSA of the Draft SW RSS Non-Technical Summary March 2006

When preparing the South West Regional SpatialStrategy (RSS), the South West Regional Assembly(SWRA) is required by law to carry out a SustainabilityAppraisal and a Strategic Environmental Assessment.The Government recommends that these tworequirements are met through one integrated process,which in the South West has been termed the ‘StrategicSustainability Assessment’ (or SSA), with the aim ofachieving the goal of sustainable development.

“The goal of sustainable development is to enable all people throughout the world to satisfy their

basic needs and enjoy a better quality of life, without compromising the quality of life of future

generations.That goal will be pursued in an integrated way through a sustainable, innovative and

productive economy that delivers high levels of employment, and a just society that promotes social

inclusion, sustainable communities and personal wellbeing.This will be done in ways that protect and

enhance the physical and natural environment, and use resources and energy as efficiently as

possible.”

‘Securing the Future’.The UK Sustainable Development Strategy. Cm 6467.

The purpose of the SSA was to assist the SWRA preparethe Draft RSS by identifying the key sustainability issuesfacing the region, to determine what would be the likelyeffects of the Draft RSS on these issues, and put forwardrecommendations to improve it.The aim was to ensure thatthe Draft RSS has as many positive effects as possible, andthat any negative effects are avoided when the policies inthe Draft RSS are turned into development on the ground.

What is the purpose of Strategic Sustainability Assessment?

SSA of the Draft SW RSS Non-Technical Summary March 2006

The SSA was undertaken independently by Land UseConsultants in association with CollingwoodEnvironmental Planning and Levett-TherivelSustainability Consultants. Appointed in February 2004,the SSA consultants provided advice to the SWRAthroughout the preparation of the Draft RSS.

The work undertaken by the consultants was overseen byan SSA Steering Group, representing various stakeholders,including officers from the SWRA, South West RegionalDevelopment Agency, the Government Office, statutoryagencies, and representatives of other regional bodies andlocal authorities.

The SSA comprised three main phases of work:

Phase 1: Deciding the scope of the SSA

The consultants decided what the SSA should cover byreviewing a wide range of policy documents (includingGovernment policies) and other plans and programmes(such as the Regional Economic Strategy, Regional HousingStrategy, and Regional Environment Strategy), and byexamining data and information to help identify what thekey sustainability issues are

in the region. Particular reference was made to theRegional Sustainable Development Framework (adoptedby the SWRA in 2001 to provide an over-archingdocument on sustainable development in the region toguide and influence decisions-makers in business,government and the voluntary and community sectors).

This resulted in a Scoping Report, which was issued forconsultation in September 2004. Comments on the ScopingReport were taken on board during the SSA process.Guidance was also provided to the strategic planningauthorities in nine Joint Study Areas to help them do theirown SSAs of the work they carried out to inform the sub-regional strategy statements in Section 4 of the Draft RSS.

Phase 2: SSA of possible development strategies

In the Autumn of 2004, the SSA was used to identify thesustainability advantages and disadvantages of fivedifferent options for the spatial distribution ofdevelopment, and of two different options for the level ofgrowth to be accommodated by the region.The findingswere used to inform the public consultation exercise onthese possible development strategies.

Phase 3: SSA of the Draft RSS

Having taken on board consultation responses and thefindings of the SSA of the possible development strategies,the SWRA began to prepare the Draft RSS for submissionto the Secretary of State.The SSA consultants commented

on early versions of the Draft RSS and gave presentationsto officers and members on their findings and

recommendations, many of which have been takenon board as the Draft RSS neared completion.Thefinal SSA Report reflects the final submitted versionof the Draft RSS (March 2006).

INTEGRATEDINTEGRATEDREGIONALREGIONALSTRATEGYSTRATEGY

How was the SSA Carried Out?

2

South WestRegional Strategies


The South West offers a high quality of life for mostpeople in the region. Its natural and built environment isgenerally very attractive, and its economy is strongparticularly in the north and east of the region.Theregion has also been experiencing some very positivetrends. For example, economic performance in Cornwallhas improved markedly in recent years.The condition ofnationally important wildlife sites has been getting better.The quality of rivers and coastal waters is now generallyexcellent. But some unsustainable trends, often not alwaysvery noticeable, continue to exist:

• People’s incomes, educational qualifications andskills, and the wealth that the economy generates, alltend to reduce significantly as distances fromLondon and the South East increase

• Levels of deprivation and social exclusion that affectcertain communities in both rural and urban areasare proving very persistent, even in the moreprosperous north and eastern parts of the region

• There are many people who cannot afford to buy ahome on the open market, and there is a backlog ofresidents whose housing needs arenot being met

• Traffic continues to increase as car ownership rises,and because people are using their cars to travelmore frequently and often over longer distances

• Despite being rich in wildlife, the region continuesto experience loss and fragmentation of habitats andspecies

• Some of the historic assets of the region are at risk,either from development or from a general lack ofcare and attention

• Parts of the region, particularly in the north andeast, are becoming more urbanised in character, as aresult of increased development, infrastructure, withan increase in noise and light pollution leading to aloss of tranquillity and dark skies

• The amount of materials consumed in the regioncontinues to increase, as does the amount of waste,despite improvements in recycling

• The region’s greenhouse gas emissions are too high,and climate change is likely to lead to a range ofchallenges, such as increased risk of flooding fromrivers and along the coast, especially where sea levelis rising, and there may be issues in some parts ofthe region over the amount of water available tomeet the needs of homes, business and farming

Many of these sustainability issues are common to allparts of the UK. But because the South West is seen bymany to offer a high quality of life relative to many otherparts of the country, it has experienced the highest rateof population growth of all regions.This trend of highgrowth is forecast to continue, which makes it all themore important that the RSS tries to grapple with thesustainability issues for the benefit of the region as awhole. One of the key challenges for the RSS is todecide how much and what sort of development isneeded and where this should be located, in order forpeople to feel that their quality of life is being improvedin the years to come.

What are the key sustainability issues facing the South West?


Each headline objective was supported by a set of moredetailed questions that were used to decide whetherthe Draft RSS would be likely to achieve the headlineobjective.The SSA headline objectives and supportingcriteria proved to be a very useful tool for determiningthe sustainability strengths and weaknesses of the DraftRSS, and for making recommendations for improvement.

SSA Headline Objectives

1 Will the RSS improve health?

2 Will the RSS support communities that meetpeople’s needs?

3 Will the RSS develop the economy in ways that meet people’s needs?

4 Will the RSS provide access to meet people’s needs with least damageto the environment?

5 Will the RSS maintain and improve environmental quality and assets?

6 Will the RSS minimise consumption of natural resources?

SSA objectives

The review of other policies, plans, strategies andprogrammes, and the identification of sustainability issuesduring Phase 1 of the SSA, provided the basis for a set ofsustainability objectives to be developed by the SSAconsultants.The sustainability objectives provided themain tool for assessing the Draft RSS, and comprised sixheadline objectives in the form of questions:

How did the SSA influence what the Draft RSS says?

The SSA has had a significant influence on thepreparation of the Draft RSS. This was mainly becausethe SWRA used the SSA right from the very beginningof the process, and because the SSA team had directaccess to both those preparing the Draft RSS and alsoto the members and other stakeholders appointed toagree the version of the Draft RSS to be submitted tothe Secretary of State.This meant that the SSA had ahigh profile and that the findings and recommendationsreceived good and thorough consideration.

There are a number of areas where the Draft RSS wasimproved in sustainability terms as a result of the SSAprocess.The most significant influence was with respect tocarbon dioxide emissions (one of the principal greenhousegases causing climate change). The need to reduce carbondioxide emissions generated by the region was rightlyrecognised as perhaps the most pressing sustainabilityissue facing not only the South West, but the world as awhole. All of the other positive sustainability advantagesof the Draft RSS could pale into insignificance if this majorissue is not addressed. As a result of the SSA process, theDraft RSS now includes some very ambitious andchallenging policies that, if implemented, mean that theSouth West will be taking a huge step towards grapplingwith climate change.

Although most of the recommendations of the SSA arereflected in the final version of the Draft RSS, not all ofthem were taken on board. The key outstandingrecommendations are listed at the end of thisNon-Technical Summary.



There is much to welcome in the Draft RSS in sustainability terms, and the version of the RSS to be submitted to theSecretary of State is much improved on earlier versions. A summary of the sustainability strengths and weaknesses ofthe Draft RSS are provided in Table 1.

Table 1: Summary of sustainability strengths and weaknesses of the Draft RSS

Sustainability strengths of the Draft RSS

Strong overarching sustainable development principlesin Policies SD1 to SD4, and in particular the emphasison reducing the region’s ecological footprint includingits contribution to climate change, and theacknowledgement of environmental limits.

The emphasis on achieving sustainable communities,based on settlement role and function, and improvingthe quality of, and access to, jobs, homes, facilities,services, and green space.

The focus on directing the majority of development toexisting urban areas where more jobs are likely to becreated, and where some of the biggest sustainability‘wins’ are likely to be made.

The emphasis on ‘quality of development’, which iscrucial to achieving sustainability outcomes, in particularthe attractiveness of urban areas as places in which toboth live and work.

The recognition that different parts of the region,different settlements, and the rural areas have differentcharacteristics, constraints and opportunities.

The overall aim to improve the alignment of homes withjobs, which should help to reduce the need to travel.

The strong attempt to deal with issues of housing needand affordability, although this has been weakened as aresult of the reduction in overall housing numbers inthe final Draft of the RSS.

The emphasis on well-being and reducing inequality, andthe recognition that ‘gross value added’ (a measure ofeconomic performance) is not the only measure ofeconomic well-being.

The recognition that the economy needs to be mademore environmentally sustainable.

The support given to the improvement of workforce skills.

The acknowledgement that there needs to be significantimprovements in public transport, coupled with demandmanagement measures (eg congestion charging).

The aim to improve environmental infrastructure withinthe region.

Sustainability weaknesses of the Draft RSS

The many strong policies in support of energyefficiency are likely to be offset by growth in traffic tobe accommodated by increases in road capacity(despite demand management measures and publictransport improvements), and from airportdevelopment, which will make it difficult for the regionto achieve its targets for reducing carbon dioxideemissions.

Overall levels of growth are likely to lead toincreased pressure on the environment and characterof the South West, plus increased consumption ofnatural resources, further increasing the region’s‘ecological footprint’ (the amount of naturalresources consumed by an area, such as energy, waterand construction materials) although there are strongpolicies in the Draft RSS that aim to reduce negativeimpacts to a minimum.

The emphasis on economic growth (in GVA terms),competitiveness and productivity rather than types ofeconomic activity may not always benefit those most in need.

It is not clear how potential conflicts in many of thesub-regional policies between realising economicpotential and the emphasis in the Draft RSS onenvironmental limits will be reconciled (eg with respectto road and airport development).

Despite improvements in the Draft RSS, the guidancefor those parts of the region outside the SSCTs, whichinclude many of the more rural areas, is not perhaps asclear as it might be because so much of the strategy isfocused on the urban areas.

What are the sustainability effects of the Draft RSS likely to be?


The potential sustainability effects of the Draft RSS werepredicted using the SSA headline objectives.A ‘traffic light’ summary of the likely effects is set out in Table 2.

Likely positive effects

Many positive effects of the Draft RSS have been identified by the SSA.These areshown in green in Table 2.The Strategically Significant Cities and Towns (SSCTs) willbenefit in particular, which is where some of the most significant sustainability ‘wins’are likely to be achieved.The effects on more rural parts of the region are less clear.

Uncertain or mixed effects

There are also a considerable number of uncertain or mixed effects of the Draft RSSacross a range of sustainability criteria.These are shown in amber in Table 2.

Potential negative effects

A number of potential negative effects have also been identified, the most significantof which are shown in red in Table 2.

Table 2 may appear to be a long list of uncertain and mixedeffects.This is not surprising given that many of the effectswill be local and will be dependent upon the specificcharacteristics of individual locations. In practice, the effectscould go either way. If the policies (eg Policies SD1 to SD4)in the Draft RSS that aim to make development in theregion sustainable are applied with rigour, then it is likely thatmany of these mixed or uncertain effects will becomepositive. Conversely, if these policies are not applied withrigour then negative effects could easily result.

It may well be difficult to hold firm to these policies when thepressure to build is so high. For example, housingdevelopment is planned to be faster in the first half of theperiod covered by the Draft RSS, which could conflict withthe aim of the Draft RSS not to exceed the capacity ofwater resource and sewage treatment systems to copesince investment in water infrastructure takes time to deliver.

The Draft RSS sets out a pattern of development that goeswell beyond 2026, and which will be a legacy for futuregenerations.The Implementation Plan with the Draft RSSshould therefore stress the importance of meeting therequirements of the policies that aim to create a ‘step-change’ in delivering sustainable development, andpreventing development that does not do so.


Likely positive effects

Table 2: Summary of likely sustainability effects of the Draft RSS

Valuing and protecting the diversity anddistinctiveness of the region including rural ways oflife (which is stronger than in earlier versions of theDraft RSS, although there are still some concerns thatthe urban focus of the RSS could undermine thisobjective, with the rural areas generally receiving lessattention and clarity of guidance).

Maintenance and enhancement of cultural andhistorical assets (although some losses may still be inevitable).

A significant reduction in the region’s contribution togreenhouse gas emissions from built development,and renewable energy targets (although this is likelyto be offset by other elements of the RSS asdescribed below).

Reduced amounts of waste being sent to landfill sites.

Improvements to the health of the population of the region.

Making suitable housing available and more affordable(although the numbers of affordable housing to beprovided in the region could be difficult to achieve dueto the lower overall housing provision in thesubmission version of the Draft RSS).

Giving everyone access to learning, training, skills andknowledge, particularly in the SSCTs.

Reduced crime and fear of crime (although the scale ofdevelopment and numbers of new people could placesome communities under stress).

Increased access to cultural activities.

Giving everyone in the region access to satisfying workopportunities (although these benefits are most likelyto be delivered in the SSCTs, and it is not clear howmuch the more deprived communities will benefitcompared to new people coming to live in the SouthWest).

A reduced need to travel by car, particularly in theSSCTs. Improved access to basic services, particularly inthe SSCTs.

Public transport, cycling and walking made moreattractive, particularly in the SSCTs.

Protection and enhancement of townscapes withinurban areas.


Likely negative effectsUncertain or mixed effects (ie it is difficult to judge whether…)

Despite the reduced need to travel by car, particularly inthe SSCTs, the actual amount of travel by car is likely toincrease, especially outside of the SSCTs.

An increase in air travel, which is the mostunsustainable form of travel.

An increase in greenhouse gas emissions, despitestrong policies on energy efficiency, as a result ofincreased traffic and air travel.

A potential increase in the vulnerability of theeconomy as a result of climate change.

A change in landscape character, especially wheredevelopment is likely to be most concentrated (althoughthe Draft RSS does aim for a high standard of design,delivering this may be difficult).

A gradual increase in light and noise pollution, andpossibly air pollution (outside the SSCTs), fromdevelopment and traffic.

Stronger and more vibrant communities will result from the development proposals.

Everyone will be able to afford a comfortable standard of living.

Poverty and income equality will be reduced.

Local needs will be met locally.

The circulation of wealth in the region will be increased.

The economic potential of the coast will be harnessed in a sustainable way.

A (significant) switch from transporting freight by roadto rail or water will occur.

Habitats and species will be protected and enhanced,taking into account climate change.

The conservation and wise use of land will be promoted.

Vulnerability to flooding, sea level rise, taking intoaccount climate change, will be reduced.

Water consumption will be kept within local carryingcapacity limits, taking into account climate change.

The consumption and extraction of minerals will be minimised.

Water pollution will be minimised.


The Draft RSS is the outcome of a large amount of research,a series of consultations with key stakeholders, and a numberof refinements to both the amount of development(particularly housing) and the way that development isplanned to be distributed across the region. Changes werealso made to the wording of some of the policies that setout the criteria that need to be met by development inorder to be permitted.

In the view of the SWRA the Draft RSS represents the mostappropriate approach to accommodating growth in the SouthWest over the period 2006-2026, taking into account a widerange of economic, environmental and social factors. Inparticular, the SWRA have sought to accommodate a level ofhousing, economic and service development that also allowsfor the protection and enhancement of the environment, andthat can be supported by existing and planned infrastructure(eg transport networks, sewage treatment works, schools andhospitals, etc).

However, during the course of the SSA, it became apparent thata key assumption underlying the preparation of the Draft RSSwas that the region should continue to increase its economicinterdependency with and exposure to trade and competitionfrom the rest of the UK (especially London and the South East)and the rest of the world.The SSA questioned whether thiswould be compatible with reducing greenhouse gas emissions,increasing the circulation of wealth within the region, andreducing the vulnerability of the economy to external shocksand international markets.The SSA recommended that agreater emphasis on local distinctiveness, local circulation ofwealth, and diverse local economies in order to meet localneeds, economic security and continuity, and a reduction invulnerability to international markets should be explored todetermine whether this would be better for quality of life, theenvironment and resilience to future threats. Although this wasthe subject of some discussion, given the stage of preparation ofthe Draft RSS, it was not examined in any detail.

What alternatives to the Draft RSS were considered?


A high level of development would be sustainable if itcould be delivered so that it benefited those most inneed, helped to reduce traffic and greenhouse gasemissions, and did not result in a loss of biodiversity oraccess to amenity land, etc. In essence, this is what theSustainability Principles in Section 1 (Policies SD1 toSD4) of the Draft RSS aim to achieve. If these areapplied with rigour then the growth in the South Westwill be sustainable. However, the SSA has shown thatthis is unlikely to happen.

This then raises the question whether there is any morethat the Draft RSS could do to increase the likelihood ofsustainable outcomes arising.The Draft RSS alreadypushes at the boundaries of what it can or cannot do.However, it needs to be supported by a mechanism forimplementation (through local authorities’ LocalDevelopment Frameworks and decisions ondevelopment proposals) that gives Policies SD1 to SD4‘teeth’, so that development proposals that comply withthese policies are welcomed by the region, whilstdevelopment proposals that conflict with them are not.This is a key recommendation of the SSA.

Other specific recommendations that would help toimprove the Draft RSS include:

• Aim to reduce traffic as a whole rather than justreducing the rate at which traffic is increasing

• Review the need for road improvements that runcounter to the aim of reducing the need/desire totravel by car

• Reverse the support given to airport and relateddevelopment - even though it is national policy toaccommodate increased demand in air travel,expanding airports and supporting airport relateddevelopment will help to fuel this demand ratherthan dampen it down

• Give clearer guidance on how those parts of theregion that will be most affected by climate changeshould adapt (eg those coastal settlements that willbe affected by sea level rise)

• Consider whether and how the RSS could give clearerguidance on how to deliver more sustainable patternsof development and activity outside of the SSCTs

In addition, it is essential that central Governmentprovides the right policy and regulatory frameworkacross all departments to support what the Draft RSSaims to achieve to make development in the regionmore sustainable.The SSA Report includes a list ofrecommendations directed towards central Governmentthat address this issue. Once all the various influences ondecision-making are aligned and going in the samedirection, then there is a real opportunity for thesustainability weaknesses identified by the SSA in theDraft RSS to be addressed and resolved.

What could be done to make the Draft RSS even more sustainable?


Where can I find out more about the SSA?

The full SSA Report, including all recommendations forimprovements to the Draft RSS, is available on theSWRA’s website: www.southwest-ra.gov.uk

Land Use Consultants

Collingwood Environmental Planning

Levett-Therivel Sustainability Consultants

March 2006

South West Regional AssemblyDennett House11 Middle StreetTauntonSomerset TA1 1SH

Tel: 01823 270101Fax: 01823 425200email: [email protected]: www.southwest-ra.gov.uk

Designed by Peter Poland Design Ltd, Bristol. www.poland.co.ukPrinted on 100% Post Consumer Waste.

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