national park impacts report june 2006

8/8/2019 National Park Impacts Report June 2006

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POTENTIAL IMPACTS OF NATIONAL PARKS IN NORTHERN IRELAND

JUDITH A ANNETT COUNTRYSIDE CONSULTANCY , JOH N JOYCE AND PETER SCOTT PLANNING SERVI CES LTD . 1

NATIONAL PARKS

POTENTIAL IMPACTS OF NATIONAL PARK

DESIGNATION IN NORTHERN IRELAND

JUDITH AANNETT

COUNTRYSIDE CONSULTANCY

withJohn Joyce

and

Peter Scott Planning Services Ltd

June 2006


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NATIONAL PARKS

POTENTIAL IMPACTS OF NATIONAL PARK DESIGNATION IN

NORTHERN IRELAND

PREPARED BY JUDITH AANNETT COUNTRYSIDE CONSULTANCY

JOHN JOYCE

PETER SCOTT PETER SCOTT PLANNING SERVICES LTD .

JUDITH A ANNETT

COUNTRYSIDE CONSULTANCY

OLD FORGE-BALLYARDLE

KILKEEL COUNTY DOWN

NORTHERN IRELAND

BT 34 4JX

028 4176 3262

[email protected]


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GLOSSARY OF TERMS AND ABBREVIATIONS

ANPA Association for National Park Authorities Government supportednetwork and representative body for national park authorities in England,Wales and Scotland

AONB Area of Outstanding Natural Beauty a protected landscape designationused in England, Wales and Northern Ireland

ASSI Area of Special Scientific Interest a Northern Ireland level natureconservation designation

CNP Council for National Parks charity promoting the protection andenhancement of national parks and equivalent areas in England and Walesand promoting understanding and quiet enjoyment of such areas.

Defra Department for Environment, Food and Rural Affairs

Europarc European networking body for protected areas

LFA Less Favoured Area an EU agricultural designationNPA National park authority

PANParks

WWF sponsored network body for national parks on the continent ofEurope. Mainly national parks based on sizable wilderness and natureconservation areas.

Ramsar The town in Iran where an international convention on the conservation ofimportant wetlands was signed in 1971. The town gave its name to theconvention, and designated wetlands of international importanceespecially for wildfowl habitats are referred to as Ramsar sites.

SAC Special Area of Conservation designated under the terms of the ECHabitats Directive

SPA Special Protection Area for Birds - designated under the terms of the ECBird Directive

WANPA Welsh Association of National Park Authorities a formal part of theANPA listed above comprising a separate committee for Wales.


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TABLE OF CONTENTS

EXECUTIVE SUMMARY........................................................... ........................................................... ....................... 5CHAPTER 1-INTRODUCTION-THE PROPOSAL TO CREATE NATIONAL PARKS IN NORTHERN IRELAND .............9

CHAPTER 2-PROTECTED LANDSCAPES AND NATIONAL PARK AREAS .................................................... ........... 12Protection of landscapes ....................................................... ........................................................... ..................... 12 National Parks................................................... ........................................................... ......................................... 14National parks in England, Wales and Scotland .......................................................... ......................................... 14National park governance in England Wales and Scotland ................................................... ............................... 16Powers and functions of National Park Authorities in England Wales and Scotland............ ............................... 17

National and Regional Parks In Europe examples from France, Italy, Austria and Germany ......................... 21Protected Areas in France............................................................... ........................................................... ........... 22Protected areas in Italy ......................................................... ........................................................... ..................... 24Protected areas in Austria............. ............................................................ .......................................................... .. 25

National parks in Germany ................................................... ........................................................... ..................... 27CHAPTER 3 -IMPACTS OF NATIONAL PARKS DESIGNATION AND MANAGEMENT IN OTHER COUNTRIES...........29The Europarc report on Designations in Northern ireland 2002..................................................... ..................... 29

Government and local authority Investment in national Parks........................................................ ..................... 31Economic impacts of national parks ......................................................... ........................................................... . 34impacts on property prices .................................................... ........................................................... ..................... 41

Impacts on housing stock and house prices............................................................................ ............................... 41 Impacts on built heritage......................... ........................................................... ................................................... 46 Impacts on tourism ...................................................... ........................................................... ............................... 47 Impacts on access and recreation ................................................... ........................................................... ........... 50 Impacts on nature conservation interest ................................................... ........................................................... . 53 Impacts on agriculture .......................................................... ........................................................... ..................... 54 Impacts on traffic......................................................... ........................................................... ............................... 58 Influence on sustainable development..... ........................................................... ................................................... 61 Impacts on Planning...................... ............................................................ ......................................................... ... 64The value of national parks ................................................... ........................................................... ..................... 66

CHAPTER 4 POTENTIAL IMPACTS OF NATIONAL PARK DESIGNATION IN NORTHERN IRELAND ....................... 70The additionality of National Park designation ........................................................... ......................................... 73

Administration. .................................................. ........................................................... ......................................... 77Agriculture ........................................................ ........................................................... ......................................... 77Overseas tourism and visitor expenditure ........................................................... .................................................. 79

Impacts on natural heritage .................................................. ........................................................... ..................... 82The local economy......................... ............................................................ ......................................................... ... 84

Accountability.......................................... ........................................................... ................................................... 85Property prices and social housing........................................................... ........................................................... . 86

Access and recreation ........................................................... ........................................................... ..................... 87 Awareness and understanding............................................... ........................................................... ..................... 88Impacts on traffic and roads.................................................. ........................................................... ..................... 89Sustainable development ....................................................... ........................................................... ..................... 90

Planning .................................................. ........................................................... ................................................... 91CHAPTER 5MITIGATING AND MONITORING THE IMPACTS OF NATIONAL PARK DESIGNATIONS IN NORTHERN

IRELAND.................................................. ........................................................... ................................................... 93 Mitigating the impacts.......... ........................................................... ........................................................... ........... 94 Monitoring and review .......................................................... ........................................................... ..................... 95Relationship of monitoring activity to potential national park impacts. .................................................... ........... 97


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EXECUTIVE SUMMARY

1. The Department of the Environment for Northern Ireland (the Department)intends to introduce new national park legislation in Northern Ireland and toprocess proposals for a national park in the Mourne area of County Down

subject to local agreement and the necessary funding being made available.Public consultation has already taken place on the aims of national parks andon criteria for their designation.

2. A Mourne National Park Working Party has been established by the Departmentto formulate detailed proposals on the proposed national park in the Mournes.The Working Party plans to consult on a proposed boundary later this year.

3. This document is intended to provide an independent assessment of what theimpacts of national park legislation and designation might be on NorthernIreland as a region and on the Mournes and other areas that mightsubsequently be considered for national park status. It is designed to assistconsultation on the content of the primary legislation to be brought forward andthe process of considering the detail of the proposed national park in theMournes.

4. The report details the recorded impacts of national parks elsewhere in GreatBritain, Europe and further afield and examines what changes could comeabout as a result of national park designation in Northern Ireland. Theassessment of the potential impacts is based on the national park aims andcriteria that Government intends to apply and which will be subject to

consultation towards the end of 2007 at the earliest. The proposed aims fornational parks are:

1. To conserve and enhance the natural and cultural heritage of the area;12. To promote sustainable use of the natural resources of the area;3. To promote understanding and enjoyment (including enjoyment in the form

of recreation) of the special qualities of the area by the public, and4. To promote sustainable economic and social development of the areas

communities.

Proposed criteria for selecting national parks in Northern Ireland are:

1. That the area is extensive and is of outstanding national importancebecause of its natural heritage, or the combination of natural and culturalheritage;

2. That the area has a distinctive character and a coherent identity;

1Where the aims come into conflict, e.g. where there is a conflict between the first aim and any of the other three; the first aim will be given greater weight


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3. That designating the area as a national park would meet the special needsof the area and would be the best means of ensuring that the national parkaims are collectively achieved in relation to the area in a coordinated way,and

4. That the area offers opportunities for understanding, appreciation andenjoyment of the countryside by the public.

5. The major changes that would come about directly as a result of new legislationand at least one national park designation (Mournes) would be:

The appointment of a statutory national park authority (for eachdesignated area) to further the national park aims. Authorities wouldhave a range of statutory powers across the national park area;

Government funding would be awarded to the national park authority

to promote the aims, take forward a national park plan and runprogrammes. Work is in hand to establish the likely level of thisfunding. At this stage it is not possible to predict the outcome of thatwork; however, on the basis of earlier research and the GBexperience, it seems reasonable to expect that funding for anestablished national park in the Mournes may be in the range of 2m- 4m per annum;

The employment of staff in each national park area to carry the workof the national park authority (estimated 25-30 staff);

The development of a national park plan to set strategic objectives foreach area and to identify the roles of all public bodies in achieving

them; The removal of the development planning role of the designated area

from the Planning Service or local authorities (post 2009) and thedevelopment of a new area plan for each national park area. Existingdevelopment plans would continue to operate until such time as eachnew authority produces a national park plan and an area plan tocover its designated area, and

The introduction of a series of programmes and action plans toachieve national park aims. A typical set of national park programmeswould be likely to include: Landscape and nature conservation enhancement; Cultural and built heritage conservation and enhancement; Developing further opportunities for countryside enjoyment;

including access and recreation; Traffic management and sustainable transport; Sustainable tourism and visitor management, and Sustainable community and economic development including

addressing issues such as affordable housing.


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6. Based on an assessment of the impacts of national parks elsewhere and on thelikely activities of national park authorities in Northern Ireland, the benefits thatmight accrue from national park designation are:

2 - 4 million additional funding to the national park area, includingadditional funding for a range of nature conservation recreation, builtheritage, community and economic programmes;

25-30 jobs in the national park authority; Protection of the landscape; Slowing or stemming loss in biodiversity ; Protection of built heritage in the landscape; Increased opportunities for recreation; Increased numbers of visitors ; Higher visitor expenditure;

More jobs in tourism; More jobs in countryside management; Possible enhanced or top up funding for agri -environment schemes; Increased visitor management and landowner support; Higher property values;

Higher value of some land zoned for housing; More support for local services, and Possible use of the international brand national park for local

produce schemes.

7. In terms of disadvantages of national park designation to an area the report alsoexamines the situation elsewhere and relates this to Northern Ireland. Itconcludes that national park designation may lead to:

An increase in house prices, with a medium and long term effect thatlocal people may not be able to afford housing in their own area. Thismay cause significant out migration, particularly of young people;

An associated rise in rateable value of houses and property; A related change in the social mix towards the higher socio-economic

groups, and retirees; A change in land values with development land increasing in cost,

and land not zoned for development reverting to agriculturallyinfluenced prices;

An increase in the number of second homes ; More pressure for development of the undeveloped countryside; Increased wear and tear on sensitive recreation sites and particularly

the uplands; Possible negative effects on designated nature conservation sites

without careful management


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Potential conflicts between landowners and recreational users,particularly because of the scarcity of official access to thecountryside compared to national park areas elsewhere;

Increases in tourist related traffic, possibly leading to morecongestion;

Change in the balance of employment towards low paid seasonaljobs in tourism potential in migration of workers to tourism jobs;

Reduction in mineral extraction over time, and A possible cost to other policies and programmes elsewhere,

following the allocation of 2- 4 million to a national park.

8. Apart from the benefits of increased funding and direct jobs within the nationalpark authority, none of the benefits and disadvantages is inevitable. The impactof national park designation largely depends on the nature of both primary

legislation to enable the designation of national parks and to set up theirpurpose, and on subordinate legislation to establish each national park. Afurther key determining factor is the type of policies that national park authoritymembers choose to pursue, and the content of the national park plan. All ofthese elements will be subject to public consultation.


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CHAPTER 1.

INTRODUCTION- THE PROPOSAL TO CREATE NATIONAL PARKS IN NORTHERN IRELAND AND THE

PURPOSE OF THIS REPORT.

1.1 In 2002, The Department of the Environment Northern Ireland (the Department)announced its intention to process proposals for a national park in the Mourne area, andbegan to consult the public on the nature of national parks in Northern Ireland.

1.2 This report has been commissioned by the Department to provide an independent viewof the possible impacts of national park designation in Northern Ireland. It is intended toinform Government, the Mourne National Park Working Party and the public and toassist the process of consultation on the characteristics of the parks to be designated. Itis based on assessments of what aspects are likely to change as a result of designation,and what the potential benefits and costs disadvantages of these changes may be. The

assessment is based on research into the impacts of national park designation elsewhereand on close study of the situation in Northern Ireland in relation to potential impacts.

1.3 The report follows on from the Departments consultation paper on national parks inNorthern Ireland in 2004, and draws from a number of sources including the responsesto the consultation; published and unpublished literature on national parks in Britain andacross the world; and the output of two sister studies commissioned to accompany andinform this report. These companion reports (both in draft at the time of preparing thisreport) are:

A study on the changes to tourism numbers, patterns and income in Mourneas a result of national park designation - by Colin Buchanan; and

A study of socio-economic indicators for the proposed Mourne NationalPark - by the Rural Development Council.

1.4 The report also draws on the experiences of a group of Mourne farmers, who visitednational parks in Scotland and Wales in 20042.

1.5 National parks in Northern Ireland have been proposed for many years and could havebeen designated under the Amenity Lands Act (NI) 1965 which has been repealed.National Park designation is possible under current legislation (The Nature

Conservation and Amenity Lands (NI) Order 1985 (the 1985 Order) as amended by TheNature Conservation and Amenity Lands (Amendment) (NI) Order 1989 (the 1989Order))3 but this provides only for designation, with no accompanying statutory powersto establish a management mechanism for national parks, such as adopted in GreatBritain or elsewhere in Europe.

2 Report available to download at http://www.mournelive.com/aboutaonb/topics/viewdetails.asp?topicID=14

3 Full text available on http://www.opsi.gov.uk/legislation/northernireland/nisr/yeargroups/1980-1989/1985/1985oic/no170_000.htm#H16 or from The Stationery Office


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1.6 During 2004/05 consultation took place on the need for new primary legislation thatwould provide a framework for the designation of national parks generally in NorthernIreland. Policy issues are currently being progressed and the Department is committedto introducing the necessary enabling legislation as soon as Parliamentary time allows.

In parallel with this work a Mourne National Park Working Party has been establishedby the Department to formulate detailed proposals on the proposed national park in theMournes. The Working Party plans to consult on a proposed boundary later this year.It is envisaged that the new primary legislation will provide for national parks to bedesignated by means of separate pieces of subordinate legislation each of which wouldinvolve full public consultation. At the time of writing this report some detail of draftcontent of the primary legislation was emerging,4 with information for example on thedraft aims and the selection criteria. It is proposed that the aims of national parks inNorthern Ireland will replicate those contained in the Scottish legislation, including thesocio-economic aim. Aims have been proposed as follows:

1. To conserve and enhance the natural and cultural heritage of the area;2. To promote sustainable use of the natural resources of the area;3. To promote understanding and enjoyment (including enjoyment in the form of

recreation) of the special qualities of the area by the public; and4. To promote sustainable economic and social development of the areas

communities.

1.7 Some definitions of these terms were available including the intention that naturalheritage will include flora, fauna, geological and physiographical features, naturalbeauty and amenity; and that cultural heritage will include structures and other

remains resulting from human activity of all periods, language, traditions, ways of life,and the historic, literary and artistic associations of people, places and landscapes.

1.8 In the Scottish legislation, and in the proposed Northern Ireland legislation, each aimhas equal status. However, the legislation also provides that where the aims come intoconflict, e.g. where there is a conflict between the first aim and any of the other three;the first aim will be given greater weight. This principle is referred to as the Sandford 5principle. The original use of this principle placed nature conservation aims above thoseof recreational enjoyment when the twin aims of national parks in England and Walescame into conflict.

4 DoE Environmental Policy Group Dec 2005 Paper to the Mourne Working Group

5 after Lord Sandford who chaired the National Parks Policy Review Committee which reviewed national parks of England and Wales between 1971 and

1974. The relevant passage in the report states "National Park Authorities can do much to reconcile public enjoyment with the preservation of natural

beauty by good planning and management and the main emphasis must continue to be on this approach wherever possible. But even so, there will be

situations where the two purposes are irreconcilable... Where this happens, priority must be given to the conservation of natural beauty."(Lord Sandford,

1974)


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1.9 Detailed criteria for the selection of national park areas in Northern Ireland have alsobeen proposed as follows:

1. That the area is extensive and is of outstanding national importance because of itsnatural heritage, or the combination of natural and cultural heritage

2. That the area has a distinctive character and a coherent identity3. That designating the area as a national park would meet the special needs of the area

and would be the best means of ensuring that the national park aims are collectivelyachieved in relation to the area in a coordinated way

4. That the area offers opportunities for understanding, appreciation and enjoyment ofthe countryside by the public.

1.10 Other detail will be available as part of the Departments consultation on draftlegislation, but was not available at the time of this report.


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CHAPTER 2 - CONTEXT - PROTECTED LANDSCAPES AND NATIONAL PARK AREAS

2.1 Northern Ireland is fortunate to have an exceptional variety and quality of rurallandscapes. These are the result of the underlying geology, soils, and climatic influences

and of the way that people have settled and worked the land. The character of aparticular landscape is made up of its many features including wildlife habitats,archaeological sites, settlements, field patterns, watercourses and buildings.

2.2 Landscapes are an important social and economic resource - supporting people,farming, forestry and other land-based industries, and contributing to the tourismeconomy. Communities normally enjoy a sense of pride and belonging to their locallandscapes, and welcome visitors to them from throughout the island and from overseas.Landscapes can be enjoyed aesthetically for their views and atmosphere, or can beexplored actively.

2.3 Landscapes are ever changing and reflect the prosperity and priorities of the people wholive and work in them. Changes in needs and fashions for housing styles andrequirements, changes in leisure patterns, the development of new industries and thefactors that drive farming activity all have their impacts on the countryside, itsappearance and its function.

PROTECTION OF LANDSCAPES

2.4 Landscapes can be protected through various special policies, initiatives anddesignations. The most widespread of these is through the planning system where there

are regional planning policies aimed at protecting landscapes and recreation; and aseries of area development plans that identify specific areas where development willeither be restricted or be subject to particular scrutiny. The choice of these areas inNorthern Ireland has most recently been based on a comprehensive series of locallandscape character assessments6, which have identified 130 different and distinctLandscape Character Areas (LCA), along with their special characteristics andsensitivities. Depending on the nature of a landscape and the pressures on it, aCountryside Policy Area (CPA) may be designated within an area plan to restrict thetypes of development that can take place and to seek to protect its character.

2.5 In 1985, legislation7 was brought in to allow for the designation of Areas of Outstanding

Natural Beauty (AONBs) and National Parks in Northern Ireland. In 2006, at the timeof preparing this report, Northern Ireland has 9 AONBs. Although national parks can beestablished under the existing legislation, new or amended legislation will be required toprovide adequate protection and powers to achieve the proposed national park aims,which are generally similar to those adopted for national parks through the world.

6 Environment and Heritage Service 2000 Northern Ireland Landscape Character Assessment".

7 Nature Conservation and Amenity Lands (NI) Order 1985 Amended 1989


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2.6 Northern Ireland also has one international landscape designation: World Heritage Site(WHS) status for the Giants Causeway. This designation is by inscription on anUNESCO8 list and is afforded only to sites and landscapes of international interest thatexhibit outstanding or unique characteristics of landform, geology, or culture.

2.7 Most countries throughout the world identify and aim to protect the best areas of speciallandscape, wildlife and/or cultural heritage significance by some form of designation.Such designations are usually underpinned by legislation and supported by policies andpractical measures intended to protect, maintain and enhance the areas special qualities.Areas designated to protect their special landscape values are broadly termedprotectedlandscapes or protected areas. The Departments Environment and Heritage Serviceset out its policies for such landscapes in 20039 including the intention to take forward anational park designation in the Mournes.

2.8 The World Conservation Union (IUCN) has developed a definition of aprotected area

10

and provided a set of protected area management categories to clarify the objectives andto achieve an element of standardisation from country to country11. Categories rangefrom protection primarily for wilderness, nature conservation, and research, through toprotection that includes cultural and social systems, industry, and heritage within aworking landscape.

2.9 The Council of Europe has expressed an interest in landscape protection and itpublished the European Landscape Convention in 2000. The Convention defineslandscape as a zone or area [as perceived by local people or visitors], whose visual

features and character are the result of the action of natural or cultural (that is, human)

factors.12

The Convention reflects two key characteristics of landscape:

That landscapes evolve through time, through natural and human actions;and

That a landscape is an holistic entity, the natural and cultural components ofwhich are integral components.

The aim of the Landscape Convention is the protection, management and planning ofEuropean landscapes by means of national measures and European cooperation. TheConvention applies to all landscapes, rather than to the special protected areas addressedin the IUCN categories. The UK is a signatory to the Convention. The implication of the

8 United Nations Education, Scientific and Cultural Organisation

9 Shared Horizons - S tatement of Policy on Protected Landscapes in Northern Ireland (EHS, 2003)

10 An area of land and/or sea especially dedicated to the protection and maintenance of biological diversity, and of natural and associated cultural resources, and

managed through legal or other effective means.

11 Guidelines for Protected Areas Management Categories, IUCN, 1994 ( see Appendix I)

12 European Landscape Convention: Florence 20.X.2000, European Treaty Series No. 176, Council for Europe, 2000


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Significantly, the livelihoods of many of the inhabitants are dependent on the landscapeand natural resources of the area. National parks in Great Britain have been recognisedas category V landscapes by the IUCN13.

2.14 There are 12 national parks in England and Wales, mainly designated in the 1950sfollowing the 1949 Act. These are:Peak District, Lake District, Snowdonia, Dartmoor,Pembrokeshire Coast, North York Moors, Yorkshire Dales, Exmoor, Northumberland,and the Brecon Beacons. The Norfolk Broads has an equivalent status to a nationalpark. The New Forest National Park, Englands most recent and smallest national parkwas designated in March 2005. The South Downs area is being considered for NationalPark status with some remaining consultation on boundaries and on the legal feasibilityof including a marine area.

2.15 National parks in England and Wales have a two-fold purpose:

conserving and enhancing the natural beauty, wildlife and cultural heritage;and

promoting opportunities for the understanding and enjoyment of the specialqualities of those areas by the public.

Since the Environment Act 1995, the national park authorities must also

seek to foster the economic and social well being of local communitieswithin the NationalPark, in their pursuit of national park purposes.

Initially this activity was to be carried out without incurring significant expenditure, butin recent times more expenditure has been allowed to this end, following the NaturalEnvironment and Rural Communities Act 2006 (the NERC Bill).

2.16 In cases of conflict between the aims, the legislation requires that the national parkauthority should attach greater weight to the purpose of conserving and enhancing thenatural beauty, wildlife, and cultural heritage. This is referred to as the Sandfordprinciple, following the Sandford Committees recommendation in 1974 thatenjoyment of national parks shall be in a manner and by such means as to leave theirnatural beauty unimpaired for the enjoyment of this and future generations.

2.17 In Scotland, the National Parks (Scotland) Act 2000 provided for the first time for theestablishment of national parks in Scotland. Scotland's two national parks are LochLomond and the Trossachs (1,865 km2), established in July 2002, and Cairngorms(3,800 km2), established in March 2003. The Cairngorms National Park is the largest

13 More can be read about the 6IUCN protected landscape categories on the world wide web at http://www.unep-wcmc.org/index.html?http://www.unep-

wcmc.org/protected_areas/categories/index.html~main


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national park in the UK and one of the biggest in Western Europe. The aims ofScotlands national parks are:

to conserve and enhance the natural and cultural heritage of the area; to promote sustainable use of the natural resources of the area; to promote understanding and enjoyment (including enjoyment in the form

of recreation) of the special qualities of the area by the public; and to promote sustainable economic and social development of the areas

communities.

NATIONAL PARK GOVERNANCE IN ENGLAND, WALES AND SCOTLAND

2.18 Designation of a national park in England, Scotland and Wales is accompanied by theestablishment of a statutory national park authority. National park authorities consist of

a board of appointed members, who appoint a staff team to carry out the work of theauthority. There are differences between one national park and another in the nature andnumber of appointments. In general terms an authority normally consists of memberswho represent the local interests of the national park area, and members appointed bythe relevant Government minister to represent the national interest.

2.19 The Natural Environment and Rural Communities Act 2006 requires that, in England,the local authority and parish members representing local interests - must comprise amajority of the membership of each park authority.

2.20 The current range of systems can be summarised as follows:

Welsh National Park Authorities have two-thirds local authority members(i.e. county council, county borough council and/or parish council members),and one-third members appointed by the National Assembly for Wales. Inline with this14, the Brecon Beacons National Park Authority has 16 localauthority members and 8 members appointed by the National Assembly forWales; the Pembrokeshire Coast National Park Authority has 10 localauthority members and 5 appointed by the National Assembly; and theSnowdonia National Park Authority has 12 local authority members and 6appointed by the National Assembly. Local authorities are encouraged toappoint representatives of wards within the national park area to the park

authority. The National Assembly for Wales is currently consulting onarrangements for appointments to national park authorities in Wales15.

14 under Schedule 2 to the National Park Authorities (Wales) Order 1995 no. 2803

15 Welsh Assembly Government 2006 Consultation on the process for appointing Members to the Welsh National Park Authorities - Consultation ends in May 2006


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In Scotland the two national park authorities each have 25 members: 10appointed by Scottish Ministers from nominees from local authorities in theareas, 10 appointed by Ministers through the public appointments proceduresto represent the national interest; and five elected by a postal ballot of thelocal electorate. 58% of the Loch Lomond and the Trossachs electorate votedin the elections which were held by the lead council in each area of thenational park.

In Englands eight national parks membership numbers varies. There arethree different types of member. These are: local authority appointees; thoseappointed by the Secretary of State to represent the national interest; andthose nominated by parish councils within the park and appointed by theSecretary of State to represent the local interest. Every local authority withland in a park at county and district level is entitled to appoint at least onemember to the respective park authority unless it chooses to opt out. The

number of local authority members is one half plus one of the totalmemberships of an Authority and the number of Secretary of State membersis two fewer than the number of local authority members. Of the Secretary ofState appointed members, one half minus one are parish members and theremainder are national members.

Following a review of national park authorities, from 1 April 2007, all theEnglish national park authorities will have 22 members, except for the PeakDistrict, which will have 30. The reduction, which has been endorsedthrough public consultation, is subject to Parliamentary approval. Changesare also expected to include the introduction of measures to ensure effectiveconsultation with local and regional stakeholders.

POWERS AND FUNCTIONS OF NATIONAL PARK AUTHORITIES IN ENGLAND, WALES AND

SCOTLAND

2.21 The main purpose of a national park authority is to provide for the integratedmanagement for the designated area. The primary tool to achieve this is the preparationand implementation of a National Park Plan working in close partnership with the manystakeholders in achieving designation objectives. The plan is a statutory document.Other statutory bodies must have due regard to national park plans in their work, and inmost cases, work in close partnership with the national park authority. The topiccoverage within national park plans is broad and can range across mineral extraction,

housing, and access to services, tourism, water quality, recreation and natureconservation.

Case study 1 The scope of national park plansLOCH LOMOND AND THE TROSSACHS NATIONAL PARKLoch Lomond and the Trossachs National Park Plan (draft) and State of the Parkreport took three years to prepare but provide both a comprehensive and detailedlook at the situation in the park and a detailed set of objectives and actions to achievethe designation objectives. The main topics covered in the plan are:

- Perspectives and guiding principles


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- The special qualities of Loch Lomond and the Trossachs

- Managing natural and cultural resources

- The national park experience

- Communities and livelihoods

- Working together to deliver the plan

The natural and cultural resources section of the plan takes in landscape, culturalheritage, biodiversity and geology, integrated land management, water and fisheriesmanagement and using resources wisely.

The community and livelihoods theme covers strengthening the parks economy,promoting balanced communities, developing quality and local character anddelivering the social and economic benefits of the park.

The national park plan is a statutory document which all statutory bodies working inthe area must take account of. The plan is a means of setting a vision, objectives, andfor the national park area; of securing integrated management; and of providing the

focus of partnership actions.The spatial implementation of national park plans is achieved through separate area,subject or structure plans; and through development control measures. In the case ofthe Loch Lomond and the Trossachs area the National Park Authority is also theplanning authority.

.22 Ways whereby the national park authorities protect, manage and enhance national parkareas include using their range of functions and powers to, for example:

Enter into management agreements with landowners and others, make

ilities such as toilets, car parks, campsites and picnic

mprovements to inland waterways and manage recreational and other

vide access infrastructure, and

2.23 rnment agencies and park authorities haveincreasingly recognised a need to address rural development and socio-economic issuesas a part of national park management. Park authorities in England and Wales inparticular have been enabled to allocate more of their resources than previously to this

2

Employ staff to take forward national park programmes;

bylaws and establish management rules;

Provide advice and assistance and undertake or fund research;Provide grant aid for activities that promote the objectives of the park;

Purchase land;

Create nature reserves; Provide information and education, visitor centres etc. Provide countryside fac

areas;

Provide sport, recreation and leisure facilities and services;Make iuses of waterways;

Protect and maintain rights of way; develop new public paths and accessagreements; and pro

Request traffic management schemes

Since the Foot and Mouth crisis, Gove


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type of activity. As part of their countryside enjoyment and recreation functions, parkauthorities have taken an increased interest in rural tourism with the following types ofintervention and programmes being typical:

Arrangements for countryside interpretation for visitors; Provision of walks, talks and information; Development and management of access to the countryside; Visitor management interventions;

ting the specialpaths, congestion of traffic, over use of

dlife;

r residents and visitors within an

rsification programmes to promote

2.24 aft of its

Balancing recreation opportunity with sustainability;

Participating in the park;

destinations;

ve involvement

Monitoring of visitor impacts; Grant aid for sustainable tourism projects;

Influencing tourism activity where it is deemed to be affecqualities of the area e.g. erosion ofspecial sites, disturbance of wil

Arrangements for sustainable transport fo

area;Provision of visitor centres, gateway centres and national park centres, and

Development of job and farm diveindustries that are in keeping with the objectives of the park.

The Loch Lomond and the Trossachs National Park Authoritys consultation drfirst national park plan, covers the following topics with relevance to tourism:

Providing a valued, quality experience;

Raising awareness and understanding of the Park;

Strengthening the Parks economy ; Sustainable tourism;

Increasing the benefits of tourism; Developing quality visitor

Water quality and recreation, and

Opportunities for acti

Case study 2 - National Park influence on the planning policies of other bodies

SCOTLANDS NEW NATIONAL PARKS


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In Scotland, where national parks were first designated in 2002 and 2003, the variouslocal plans already in place continue to drive planning policy until such times as thenational park plans and new local plans can be prepared. Loch Lomond and the

Trossachs National Park Authority and The Cairngorms National Park Authority haveboth brought forward state of the park reports and draft national park plans16with LochLomond having completed its consultation phase on a published draft and theCairngorms having embarked on public consultation in April 2006.

After assuming its powers in 2003 the Cairngorms National Park Authority (CNPA)prepared several interim policy papers where it considered that there were eitherinconsistencies between the treatment of specific issues and topics between localplans or that there were gaps in policy. Interim policy papers were prepared on

- Renewable energy

- Telecoms structures

- Hill tracks

- Mineral extraction.

These were published as draft policies for consultation with a wide range of interestsin the area, and provide a basis for the park authoritys responses to planningapplications and decisions on whether or not to call in planning applications.

Other policies that CNPA consider needed urgent or medium term review included

- Housing in the countryside

- Development affecting local national and international conservation sites, andlocal biodiversity action plans

- Development affecting scenic areas

- Industrial development including mineral extraction and forestry

- Residential caravans and sites

- Waste management policies

- Electricity lines

- Rural shops

- Advertisements

- Control of road access.

2.25 National park authorities in England, Wales and Scotland are normally the planningauthority for an area. Planning roles include preparing area development plans (settingout spatial strategies and planning policies for the area) and undertaking developmentcontrol functions (receiving and making decisions on planning applications). TheCairngorms National Park Authority differs from this in that it has the development

planning (area planning) role, but instead the development control responsibilities havebeen retained by the respective local authorities. The Cairngorms National ParkAuthority has the power, however, to call in planning applications where it considersthat there may be an impact (positive or negative) on the objectives of the park. Thepark authority has 21 days following the submission of a planning application to decide

16 http://www.lochlomond-trossachs.org/park/default.asp?p=110 and http://www.cairngorms.co.uk/parkauthority/papers/board/


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if it wishes to call in that application. On calling in an application it assumes the fullrole as the planning authority, making the decision on whether or not the applicant maygo ahead with the development. In the first year of operation the park authority called insome 12.5% of planning applications.

2.26 National Park Authorities may also comment on planning issues outside theirdesignated boundaries, where the authority feels that the interests of the national parkmay be affected. For example the Cairngorms National Park Authority has objected to 3wind farm developments outside the park boundary on the grounds of visual impact andin the interest of protecting nature conservation interests. The CNPA considers that thefour aims of the park should not be considered as stopping at the boundary but shouldextend beyond the invisible line17. Examples include the visual and cumulative impactsof windfarm developments, impacts on bird foraging areas and river catchment andhydrology issues.

2.27 National park authorities and the local development plans they produce, all operatewithin, and are guided by, a wider planning framework which includes nationalplanning policies, regional planning policies and frameworks, strategic developmentplans, and structure plans; some of which may themselves make specific reference tonational parks.

NATIONAL AND REGIONAL PARKS IN EUROPE EXAMPLES FROM FRANCE, ITALY ,

AUSTRIA AND GERMANY

2.28 Northern Ireland no longer has areas that could be classed as wilderness, and has few

areas that could be considered as uninhabited or unaffected by the actions of humans.For this reason national park designations primarily based on conserving wildernessareas are not considered relevant to this study and therefore designations, objectives andactions of countries such as the USA, Canada, and New Zealand for example, have notbeen presented.

2.29 All areas of Northern Ireland that have been identified as special landscapes, haveindigenous communities whose livelihoods rely at least in part on the natural resourcesof the area. There are, however, widespread areas, particularly but not exclusivelyuplands, that are sparsely populated and have a wildness18 which appeals to visitorsand local people19.

17 CNPA Planning Paper 3 Meeting 16th Dec 2005

18 Scotlands planning policy guidance NPPG 14 defineswildness

as 'uninhabited and often relatively inaccessible countryside where the influence of human activity

on the character and quality of the environment has been minimal'.

19 Scottish Natural Heritage policy statement 02/03 identifies the ways in which people valuewildness

,including solitude and sanctuary, closeness to nature,

wildness as a quality in its own right, and engagement with the environment in a physical way through activities, work or special interests


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2.30 A number of countries in Europe have designated populated landscapes like those inNorthern Ireland. Three are presented below to illustrate the type of impacts protectedarea management can have. Both national parks and regional parks are included for thereason that regional parks in Europe, share many characteristics with landscape areas in

the UK, indeed often more so than their national park counterparts.

PROTECTED AREAS IN FRANCE

2.31 France has 7 national parks. The law establishing national parks in 1960 stated thatnational park can be designated "when there is a special interest in the preservation ofits fauna, flora, waters and - more generally - of some natural environment, and it istherefore important to protect such an environment against natural deterioration as wellas against any artificial action which may alter its aspect, composition and evolution".National Parks in France have a central zone and a peripheral or buffer zone. In thecentral zone, some human activities are regulated to prevent change in fauna, flora,natural environment and landscape. Some parts of the central zones may be subject tofurther restrictions (reserves intgrales), with entrance allowed for scientific purposesonly. The buffer areas are not subject to any specific regulations and carry the tourismfacilities, visitor exhibitions and information centres for the parks and the visitoraccommodation.

2.32 The aim of Frances 42 Regional Nature Parks, known as Parc Naturels Regionaux(PNR) is the protection, management and development of smaller areas, which have arich natural and cultural heritage considered to be threatened. All of the municipalitiesconcerned in the administration of such parks adhere to a charter for their management

and develop a set of agreed management actions. The main objective of the Frenchregional parks is to protect the areas heritage through mechanisms which include:

Contributing to planning; Enhancing social, economic and cultural development and quality of life; Welcoming visitors and providing information and education, and Undertaking research and studies.

2.33 French regional parks are similar to the national park models in England, Wales andScotland, due to their populated nature, the importance of the socio-economicdimension, and the influence of humans on the landscape. Whilst only around 1,000

people live permanently within the French national parks some 2.4 million people livewithin the 34 PNR.20

20 Buller, H. 2000 The French Parcs Naturels Regionaux Socio-economic impact and rural development actions. Working Paper no 52 Centre for Rural Economy

Working Paper Series University of Newcastle upon Tyne.


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2.34 Whilst PNRs in France now have balanced objectives that include a social, cultural andeconomic theme, designations have not always been popular, and in many cases havebeen delayed through local opposition. This has been for two main reasons - resistanceto a mainly conservation focused, preservationist, agenda with the pressure for

designation coming from interests from outside the area; and the perceived restrictionsthat would come about as a result of designation, particularly on small towns andsettlements. PNR designation is now more welcome for the proven benefits to marginalrural economies.

Case study 3 French Regional Parks

ISSUES AND INTERVENTIONS IN FRANCES PARCS NATURELS REGIONAUX(REGIONAL PARKS)

Parc Naturels Regionaux in France face a number of pressures, some which haveparallels within UK national parks, and some of which are shared with other

peripheral areas in France without designations.. Chief amongst these are:

-Rural depopulation and the linked issues of socio-economic decline and a reductionin local services

-Loss of local traditions, heritage and traditional expertise which leads in part to aloss of identity for some communities based on traditional artisan skills and foodspecialities.

-Agricultural decline including the difficulty of competing in agricultural markets fromperipheral areas, with marginal enterprises in difficult farming circumstances createdby altitude or other geographical influence

-Visitor provision and pressures on regional park areas and the issues of access

-The them and us situation created by designation which to some local peopleseems to place them in an Indian reserve being visited predominantly by city people.

Responses to these issues by the regional parks have included

-Actions to sustain support local economic activities particularly those that giveidentity to the region and its people. Such actions have typically included coordinationand marketing, renewal and extension of the economic infrastructure, productlabelling and market development and extension.

-Actions to support agriculture, through agri-environment funding schemes, throughreanimation and organisation of traditional French produce, and through farm tourismschemes. Maintaining farmers and traditional farm practices is seen as a vital elementin maintaining the nature conservation interest of the parks.

-Actions to support services for local people focussing on maintaining service levelsin transport, health care, local shops, etc.; on providing local affordable housing toretain workers within traditional industries and agriculture; and providing affordable

economic units to enable services such as bakeries, etc. to remain in the area

-Actions to create new socio-economic benefits, particularly through the developmentof tourism products and services, but also through business diversification and newenterprise start-ups


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Many of the development actions in Frances regional parks are similar to mainstreamrural development initiatives in Northern Ireland, to projects funded via EU LEADERprogrammes and to NRRTI21 programmes and the interventions of Councils or AONB

management groups. PNRs appear to be strongest and most effective in the areas oflocal produce labelling and marketing; maintaining rural services; and providing localfirst stop shop arrangements to assist access by local people to other schemes totheir benefit.

PROTECTED AREAS IN ITALY

2.35 Italy has both national and regional parks with national parks being established andoverseen by the Minister for the Environment and regional parks being managed atregional administrative levels. Both designations recognise cultural landscapes and therole and relevance of the communities that live there. There are currently 23 national

parks in Italy with one further park in development. These parks cover around 5% of thecountry. There are some 127 regional parks. Like France, the two tiers of designation,national and regional, reflect the levels of population of the parks and the extent towhich the joint aims of nature and landscape conservation and socio-economicdevelopment are pursued.

2.36 Regional parks in Italy typically protect nature as heritage and as a basis for the future.They also facilitate sustainable tourism, provide education facilities, maintain traditionalindustries, promote local traditional, sustainable produce, and maintain distinctive localbreeds and local cultivars.

Case study 4 Italys Regional Parks

THE PARCO NATURALE CAPPANE DI MARCAROLO PROMOTING THESPECIAL INTEREST OF THE REGIONAL PARK AREA

The Parco Natural Cappane di Marcarolo in Alessandria near Genova providesresources to assist in understanding, study and enjoyment of the park. Resourcesinclude flora and fauna lists including separate listings of birds and mammals, guidedwalks and special booklets detailing the ecosystems of the park. The park alsoprovides information for visitors such as accommodation, features of interest andrecreational walking, cycling and horse riding routes through the park.

Special local produce is also featured in promotions including the Quarantina potato,Gavi and Dolcetto di Ovada Doc wines, and Amaretti, canestrelli, and baci di

dama sweets. The park runs a series of events designed to provide visitors withenjoyable events and experiences of the park and to deepen their knowledge of localcustoms such as cattle fairs and husbandry, fungi collection, and traditional produce,and of the ecology and recreational opportunities to be found there.

21 Natural Resource Rural Tourism Initiative a special Northern Ireland based programme which operated in Northern Ireland between 2000-2006 as part of the EU

Programme for Peace and Reconciliation. The programme was delivered mainly within AONB areas and in County Fermanagh, prioritised towards areas of high

deprivation which had suffered from suppressed tourism levels as a result of the NI conflict.


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Regional park activities include the production of special maps, maintaining a websitewithin the www.parcs.it family, and a range of environmental and socio-economicinterventions

PROT

2.37 Arou tionalparks and approximately one-quarter of the country is covered by various categories ofprotected areas. The development of the national park system in Austria started in 1971with the establishment of the Hohe Tauern National Park.

2.38 National parks in Austria fall into category II of the IUCN protected area categories,

is the case. Compensation ispaid to landowners for the income foregone from former land uses of the park.

2.39

s a wellorganised programme of voluntary work projects in the parks.

2.40

verage a day longer thanfor other parts of Austria and that the national park areas were more likely to retain their

2.41

of water supplies to cities.

ECTED AREAS IN AUSTRIA

nd 3% of Austrias land area or 2,350 km2 is strictly protected within its 6 na

which means that they are primarily managed for the protection of nature. The IUCN

guidelines mean that at least three-quarters of the park must comprise a strict protectionzone without any economic use or intervention, and that there must be bindingcontractual agreements with landowners to ensure that this

The national parks welcome and facilitate visitors for active and passive enjoyment onthe basis that what people value they will protect. Significant effort is directed towardsnational park visitor and information centres with over 220,000 visiting thenationalparkhauser in 2005. The 300+ national park employees lead guided walks,hold holiday camps and host school and group visits to the parks. There i

An economic study of national parks in Austria in 200522 found that staying touristrevenue within the six park areas totalled 450 million (310 million) with one-third ofthis revenue arising from visitors who had visited in part or wholly because of thenational park. Day visitors contributed a further 29 million (20 million). Otherfindings were that the length of stay in national parks was on a

visitor levels during periods of economic downturn than other tourist areas in Austria.

National park staff work with local municipalities to coordinate park visits,accommodation, and events and the parks form part of Austrias wider rural policy toreduce the rural exodus and to support the development of disadvantaged regions(Austria has a rural population of 56% compared to an EU average of 20%). Some ofthe parks also play a role in Austrias water protection programmes to ensure continuity

222005 Institute of Tourist Land Use Planning for the Austrian Ministry for Life.


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2.42 In the mountain regions of Austria there are concerns that farmers will cease to maintainthe mountain pastures, and the forest clearings that produce such high biodiversity. Forthis reason incentives are in place to retain sustainable farming activity through organicsubsidies and Less Favoured Area payments. These payments also reflect concerns that

the agricultural community provides the structure around which rural communitiesdevelop. Farms in national park areas are also helped to develop agri-tourism businessthrough the long-standing Farm Holidays in Austria marketing and booking scheme.

2.43

In Austria as a whole some 10% of all farms are in agri-tourism schemes.

Farms participating in national parks voluntarily enter into long-term bindingagreements to protect the natural interests of the park. Agreements includecompensatory payments for income foregone in changing farming and landmanagement practices.

Case study 5 National Parks in Austria

LEGAL ARRANGEMENTS IN GESAEUSE NATIONAL PARK (IUCN CATEGORYII)

Gesaeuse National Park was established in 2002 through the enactment of a nationalpark law. This law gives priority to the protection of largely unspoilt virginlandscapes. The law also includes protection of the important man-made landscapeof Alpine pastures, the people and their traditional way of life. The national park lawfor Gesaeuse NP also contains the IUCN Category II criteria as a legal appendix,raising them to legal enactments.

The national park law set out the boundaries of the park and established two zones a natural zone and a protection zone. It also gave legal protection to the commerciallyvaluable trademarks Nationalpark Gesaeuse and Gesaeuse National Park

There is a very large set of legal stakeholders in the park all of whom were consultedprior to enactment. The Alpine pasture farmers for example have the same legalentitlements whether they use their traditional rights or gain a lease from the nationalpark authority. Selling land is prohibited in the national park, and a simple rule:everything that is not expressly allowed is prohibited, is applied. However,participation in the park cannot be made compulsory and all landowners within thepark have made an application to be involved. People using the park commerciallymust first apply for a permit, and new sporting events are prohibited. Traditionalevents or well established sporting events are allowed to continue with national parkguidance on minimising the impact.

The administration of the park is entrusted to Gesaeuse National Park Ltd. which issubject in the same way as any company to civil law. However ultimate responsibilityfor the park lies with the public authorities for the region. The mayor of a national parkmunicipality can convene the National Park Forum which provides a link between thepeople of the region and the national park administration.

The first priority of the national park law is to promote education and environmentalawareness.

All state laws also apply to national park areas with the exception of general natureconservation laws which are replaced by a more tailored, detailed and thorough set ofclauses within the national park law.


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Case study 6 - Austrian National Parks

A TYPICAL (20 YEARS) MANAGEMENT CONTRACT IN THE KALKALPENNATIONAL PARK (IUCN CATEGORY II)

The Kalkalpen National Park (184 km2) was established in 1997 in the AustrianCentral Alps. 80% of the park is forests and it is subdivided into a natural zone (91%)and a conservation zone (9%). Contracts between the owners of land and the parkmanagement regulate the details of agricultural production and forestry management.Annual compensation is paid to landowners depending on the type of zone. Whereland is transferred to another owner, the new owner is bound by the terms of thecontract. The park staff and those acting on its behalf may access any land within theboundaries of the park. In the conservation zone, 20 alpine pastures are mainly usedfor grazing cattle. Regulations in this zone include:

Requirements to adopt organic farming practices including restrictions on fertiliserand chemicals and the promotion of animal welfare

Stocking rates and pasture rotation, and restrictions on damage to soil andvegetation.

Drainage and land improvement is forbidden

Sowing seeds, weed control, clearing of shrubs, tree cutting and disposing materialsare either forbidden or restricted

Special management is required for slopes steeper than 30%

Solid manure and urine can only be spread only on meadows that have been mown(not on pasture) and there are restrictions on the use of liquid manures.

A daily maximum of 2 kg fodder per livestock unit not produced in the area isallowed.

Existing houses may only be used for agricultural activities; they may not be leasedfor recreational use or used for other tourist activities. Additional houses orconstructions must be planned in co-ordination with the park management and theirsole purpose must be related to agriculture.

Source: Moser A. 199923

NATIO KS IN GERMANY

2.44 Germ Alps.The p fromtidal flats to alpine m s and major tracts of ancient broadleaved

woodland. The parks are protected both as refuges for nature and places for relaxationand rejuvenation, but with the main attraction seen as the nature they contain.

2.45 German national parks are very important to the tourism industry as 72% of Germansprefer to take their holidays in a region which has been chosen for national park status.

NAL PAR

any has 13 national parks ranging from parks on the North Sea coast to thearks are very different in character and protect a variety of habitats ranging

eadowountains and m

23 Moser, A., 1999, Almbewirtschaftung im Nationalpark (Alpine grassland management in a National Park), Diplomarbeit, Universitt fr Bodenkultur Wien, Wien.


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This is reflected in the way that parks are managed and promoted, with national parkliterature providing itineraries for day trips and promoting activities available during a

2.46

ndustriesbut believe that the long-term benefits are greater than the cash value of former resource

weeks stay in the area.

Parts of most German national parks are in a transitional stage between their formereconomic uses and a new policy of minimum intervention. The authorities recognisethat the creating of national parks has led to income foregone for a number of i

exploitation.

Case study 7 National parks in Germany - The VorpommerscheBoddenlandschaft National Park

NATIONAL PARK AUTHORITIES AS TOURISM FACILITATORS

The Vorpommerche Boddenlandschaft National Park is one of 13 national parks inGermany, which take a similar approach to ensuring visitor appreciation andenjoyment of their park. The park authority recognises that visitors need to be able tovisualise how they may enjoy their holiday and it provides the following itinerary toentice visitors, promote a longer stay and encourage access to the food, craft andactivities of the region.

Saturday: Bed and breakfast in an ideal location near the Bodden, the shallow watersand inlets more or less separated from the Baltic Sea. Check out the area. Eat freshBaltic Sea cod in the evening.

Sunday: Sleep in. After breakfast rent some bicycles, ride to the beach and swim inthe Baltic Sea.

Monday: Off to the tourist information to get some brochures, visit the Darss Ark inWieck then go for another swim.

Tuesday: Long bicycle tour on good paths to the Sundischen Wiese. In Zingst, book anational park tour for Thursday. Eat fresh fish in the evening.

Wednesday: Rain, visit the Amber Museum in Ribnitz-Damgarten, then visit the Birdpark in Marlow. On the way back visit a gallery in Ahrenshoop.

Thursday: Guided tour in the national park, ride in a horse and wagon and observeanimals. An organ concert in the evening.

Friday: Day trip to Hiddensee by tour boat a uniquely beautiful landscape. Candlelight dinner in the evening.


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CHAPTER 3

A LITERATURE REVIEW ON THE IMPACTS OF NATIONAL PARKS DESIGNATION AND

MANAGEMENT IN OTHER COUNTRIES

3.1 Aspects of national parks have been widely researched across the world and it isimportant for this study to draw together the conclusions of this research, in order toapply it to the emerging situation in Northern Ireland. After providing a generalintroduction to the findings, we have summarised the research topic-by-topic as relevantto the major types of predicted impacts and the expressed concerns of people inNorthern Ireland following the first consultation. We refer mainly to impact studies,with a final comment on valuation studies.

3.2 The impacts of a national park can only truly be determined where there is a baselinestudy prior to designation; a series of follow-up studies; and a determination that there

is a cause-and-effect relationship established between any change in the situation andthe designation of the national park. It needs to be emphasised, in introducing thischapter, that very few studies of this type exist and in many cases there is an inference,rather than an established link, that the national park designation is responsible for thechange observed.

3.3 This chapter therefore addresses literature that directly identifies impacts, or whichdiscusses impacts more generally, which result from national park designation.

THE EUROPARC REPORT ON DESIGNATIONS IN NORTHERN IRELAND 2002

3.4 The report Special Places Need Special Care24 confirmed that the Mournes AONB25would meet the criteria to be designated as a national park. This judgement was basedon a comparison with national parks around the world, and particularly with nationalpark models in Europe.

3.5 A principal benefit identified in the study was that there would be greater recognition ofthe national values of the area as a natural and cultural heritage and visitor resource, anda consequent focus of attention and resources towards its sustainable management. Itwas assumed that the mechanism for focussing practical attention would be a nationalpark authority, with funding employ staff, and to take forward programmes with a

greater level of resources than would otherwise be available. One of the benefits withinthis structure would be that it would provide a local driving force towards landscapeconservation, with a balance of local and national objectives in managing the landscape.A national park plan would provide a mechanism of giving a lead to and engaging awide range of bodies in achieving the aims of the designation, and might be expected to

24 Bungay, Clarke, et al 2002 'Special Places need Special Care - . Europarc 2002)

25 Area of Outstanding Natural Beauty


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influence other types of plan. This focal point approach would allow the national parkauthority to become a one- stop shop or first-stop shop for local people to accessinformation or assistance from a range of Government agencies. It would also assist theformation of partnerships between stakeholders, such as foresters, farmers, recreational

users and tourism operators to create opportunities both for visitors and for economicgain.

3.6 The report identified that some national parks have become pioneering organisations inbringing forward new initiatives and visions. Examples include new forest practices inthe Bayerische Wald National Park; the Test Beds for Rural Revival initiative inEngland and Wales, and sense of place landscape branding for rural produce toachieve premium prices, through for example the Countryside Agencys Eat the Viewproject.

3.7 The Special Places Need Special Care report points to positive economic impacts as aresult of national park designations in Northern Ireland. These benefits accrue mainly tofarmers through the local produce schemes mentioned above, and to farmers and othersproviding visitor accommodation, campsites, eating places, recreation and entertainmentopportunities. The report also identifies the long-term importance of national parkdesignations in maintaining the intrinsic environmental capital of an area and inpromoting sustainable development, particularly in terms of exploiting naturalresources.

3.8 What is not expressed in the report, or in much of the literature, is the idea that thedesignation of national parks may also bring disadvantages either at a local or a national

scale. Disadvantages from designation are possible and have been documented26, ,27 28

.Disadvantages have included: the non-affordability of housing due to planningconstraints creating scarcity of land for new houses, and raising the cost of land forbuilding; resultant changes in social structure; constraints on opportunities for farmdiversification; traffic problems during peak holiday periods; and the need for localpeople to seek jobs outside their home area.

3.9 The following sections of the chapter deal with both advantages and disadvantages ofnational parks in more detail and draw on both academic and other literature andreports.

26 Department of the Environment Environmental Policy Group (2004). National Parks and other Protected Landscape Areas. A discussion of options for establishing

national parks and managing other outstanding landscapes in Northern Ireland.

27 Department for the Environment, F. a. R. A. (July 2002). "Review of English National Park Authorities."

28 Mourne Farmers (2004). "Study Visit to the National Parks: Snowdonia,Wales; and Cairngorms, Scotland."


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GOVERNMENT AND LOCAL AUTHORITY INVESTMENT IN NATIONAL PARKS

3.10 The English National Park Authorities and the Broads Authority are funded by Defra.The Welsh Park Authorities are funded by the Welsh Assembly Government, and the

Scottish Parks by the Scottish Executive. This funding is one of the most direct andobvious benefits to areas that are designated as national parks and enables theemployment of staff, expenditure on local support services, and the implementation ofprogrammes locally.

3.11 The proposed budgets of Englands 8 well-established national parks for 2006/07amount to just over 43 million per year, to be provided through Central Governmentand local community charges. The three Welsh national parks receive around 16m infunding from the Welsh Assembly Government and local authorities. Hence, averagefunding in England and Wales is just over 5m per park per year. In Scotland, nationalpark funding totalled 10.8 million/year in 2004/05, with 6.4m/year (3-year total:20m) allocated to the Loch Lomond and the Trossachs National Park and 4.3m to theCairngorms (3-year total: 13.1m).

3.12 Government funding of the park authorities generally increases year on year as theexample below for the Lake District National Park shows:

Lake District National Park Budget ( m illion)

0

1

2

3

4

5

6

7

million 3.78 3.78 4.08 4.18 4.64 5.46 5.91 6.05 6.29

199798 199899 19992000 200001 200102 200203 200304 200405 200506

Source: Hansard 21 Feb 2005

3.13 A proportion of national funding, and special additional funding initiatives to addressidentified issues, may go into grant aid schemes to local people for activities in supportof national park aims. For example, in England each national park has a SustainableDevelopment Fund which encourages community-based sustainable developmentprojects. National park authorities are encouraged by Government to supplement theirstatutory funding through other income sources including lottery and EU grants, visitor


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payback schemes, car park charging, etc. In addition, most operate business enterprisessuch as the sale of souvenirs from visitor centres.

3.14 The Association of National Park Authorities (ANPA) has expressed the view, onbehalf of its members, that national park authorities in England and Wales are notsufficiently resourced to achieve their statutory objectives.29

Case study 8 - Englands National Parks

NATIONAL PARK SUSTAINABLE DEVELOPMENT FUND

The Sustainable Development Fund (SDF) was a pilot funding stream for Englishnational park authorities and the Broads Authority, launched in 2002, to provide aflexible and non-bureaucratic means of funding projects which aid the achievement ofnational park purposes, through encouraging partnerships between business,community and individuals towards sustainable development. The fund is intended to

support innovative projects and is relatively small with a total of some 1.6 million

30

available annually to the national parks.

The sustainable development fund in the Yorkshire Dales National Park has leveredfurther funding and has delivered a total of 2.7 million of projects since 2002.Projects supported included:

- Im a city dweller get me out of here programme to attract urban dwellers who donot normally visit national parks. This programme reached ethnic minorities, youngpeople, and people with disabilities

- Go cars a not-for-profit car club in part of the national park, which reduces theneed for individual car ownership and establishes a local membership schemesfor a car pool

- a mobile sawmill, to improve the economic returns on the use of local timber

- Grass routes countryside skills training for local young people leading to nationalqualifications

- youth music action zone project leading to the composition of a symphonyinspired by the landscapes of the national park

- community composting scheme reducing the amount of waste to landfill andproviding compost for community planting schemes.

The sustainable development fund in the Lakes District National Park has supportedprojects which include:

- installing solar panels in 40 homes in the Lake District

- working with the British Mountaineering Council to improve the relationshipbetween visitors and residents in Langdale

- funding towards building an Eco-Centre

- educating communities about the benefits of composting

29 ANPA National Parks Financial and Policy Review

30 Sum available in 2003/4


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- project to bring young people from outside of the National Park into the LakeDistrict to give them a better understanding of the environment and how thisaffects their lives.

- fell farming traineeships covering animal husbandry and hill farm management,countryside management and environmental interpretation. The trainees gainedwork-experience and qualifications relating to the sustainable management of theLake District, with the aim of providing the area with more self-employedcountryside workers.

- development and sale of a natural insulating material made from sheep fleeces increasing the value to Lake District farmers of sheep fleeces and providing aprofessional marketing operation

3.15 Some national parks may in turn use elements of their funding to provide match fundingto draw-down financial support from other grant making bodies, such as the HeritageLottery Fund (HLF). For example, Exmoor National Park Authority has secured

funding from HLF towards the planning of a major Landscape Partnership scheme. Theaim is to further moorland conservation including initiatives to monitor public use,provide a flexible agri-environment scheme, a Moorkeeper scheme to provide locallybased management and a Moorland Challenge Fund to encourage the restoration ofmoorland areas improved for agriculture since the 1950s. Friends of the Lake Districthas also received HLF funding to celebrate and enhance the heritage, cultural,environmental and social value of green spaces in the Lake District. Other fundingmechanisms that national parks have been able to attract include EU LIFE and theEuropean Social Fund.

Case Study 9 National Parks in Romania

EU LIFE FUNDING FOR RETEZAT NATIONAL PARK, ROMANIA

Retezat NP in Romania has secured EU LIFE funding for a major new initiative for theconservation of alpine habitats. The Retezat Mountains are one of the most speciesrich areas dedicated to nature protection in Romania and are listed as a UNESCOBiosphere reserve because of their importance internationally. On-site activities tohalt habitat destruction will be implemented along with an education campaign onlong-term preservation of the alpine habitats.


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A key aim of the project is to bring Retezat into the Natura 2000 31 network whenRomania joins the EU. Approximately 130 ha of valuable alpine habitats will berestored, including dwarf mountain pine (Pinus mugo) habitats and alpine wetlands.

Work to prevent soil erosion will be carried out at several locations. An informationcentre will be established to encourage an improved and durable use of alpineresources, targeting long-term and intelligent use of existing natural resources andthe development of controlled tourism. The centre

national park impacts report june 2006

Documents