A report on the methodology for developing options for the geographical area of the proposed National Park in southwest Scotland

https://nnr.nature.scot/doc/report-methodology-developing-options-geographical-area-proposed-national-park-southwest-scotland

This report outlines the methodology used by NatureScot to consider the potential options for the area that the proposed National Park could cover. To do this, we have adapted the method we had previously developed for determining the areas of the existing two National Parks in Scotland which had been informed at the time from commissioned research and discussion with key partners. At its core is a simple, structured approach based on desk-based review and field work that helps to identify possible options for the geographical area of the proposed National Park.

Background

In making its proposal for a Galloway National Park, Scottish Government asked NatureScot to investigate and consult on possible options for the Park area. It also indicated that it could be smaller or larger than the area outlined in the bid.

The indicative area in the bid provided the starting point for consideration of the possible area of the proposed National Park, together with additional information provided by Scottish Government’s appraisal of the bid. While the Galloway National Park Association had previously undertaken some detailed investigation of the area against the conditions for National Park status set out in the Act, the logic for parts of their bid area was not explained fully in the bid itself leading to some discussion about the basis for the indicative area during the pre-consultation phase of the reporting work.

At this reporting stage, we are only considering broad areas for potential inclusion or exclusion, not a detailed boundary which would be identified and consulted on as a later part of the designation order process. While we are consulting on the principles that could inform the identification of a detailed boundary, further investigation would only be undertaken if the Scottish Government decided to proceed towards designation of a National Park.

Approach

Experience in establishing the existing National Parks has shown the identification of a proposed Park area is a matter of judgement rather than a precise science. Community considerations are also important, which means that proposals can and should change as a result of consultation. Nevertheless, a structured approach is essential. In particular, this needs to:

differentiate between consideration of the broad geographic area (reporting phase) and the detailed consideration of its boundary (designation order phase),
develop a set of criteria to help make, and explain, judgements about the area being investigated; and
prepare an explanation of the methodology and justification for the options being consulted on.

The approach we have adopted for this is summarised here, with more detail below.

Step 1 - Division of bid area and slightly beyond into sub-areas

Step 2 - Table of indicators to assist interpretation of the conditions

Step 3 - Consideration of each sub-area against each condition using agreed indicators

Step 4 - Assessment of case for inclusion or exclusion of each sub-area into geographic options for the proposed National Park

Step 5 – Consultation on these geographic options for the proposed National Park

Step 6 – Refinement of options in light of consultation responses as part of our advice to Scottish Ministers

The first step was to develop a set of indicators to help the detailed consideration of the three conditions for National Park status set out in Section 2(2) of the National Parks (Scotland) Act. Our starting point for this were the indicators previously developed for this purpose for the designation of the existing National Parks. Table 1 illustrates the finalised indicators together with notes on how they could be applied to Galloway.

The second step was a desk-based review of the indicative area to divide it into a number of coherent sub-areas shown in Figure 1. Divisions were based mostly on landscape character, using the national dataset, as this provided appropriate elements and a suitable scale for this stage of the work. To ensure the work was comprehensive, the sub-areas extended beyond the indicative area identified in the bid. 18 sub-areas were initially identified which is in line with the level of detail used for assessing the existing National Parks areas (20 sub-areas were identified for Loch Lomond & the Trossachs and 29 for the Cairngorms). A provisional name for each sub-area was identified.

The third step was fieldwork, conducted over two weeks in late September and early October 2024, to assess each sub-area for its contribution to the three conditions of the Act. The fieldwork team of seven members of NatureScot staff was divided into four groups of at least two staff per fieldwork session, with a landscape architect involved throughout for consistency. The fieldwork also enabled a check on the validity of the draft sub-areas. As a result, 3 areas were amalgamated and 2 divided, reducing the number of sub-areas by one, to 17.

The fourth step was to consider the case for inclusion of each sub-area to provide the basis for identifying options for consultation using a five-fold ranking system from low to high as follows.

Minimal
Minor
Partial
Significant
Extensive

The results of this exercise are shown in Table 2.

Several options could be produced from this exercise. After review, we decided to consult on three which showed the strongest overall fit with the legislative conditions and made sense in broad geographic terms. In Table 4-1 of the consultation paper we provide a short overview description of each of these options against the conditions of the Act.

Options table
Option	Sub-areas
Hills and coasts	7,8,9, 10,13
Hills and extended coast	1,5 7,8,9, 10,13, 14 and 15
Hills, extended coast and countryside.	1-15

All the options include the “hill” and “coastal” sub-areas we judge to be of highest natural heritage quality because of their current designation for nature conservation or landscape. The extent to which land is included beyond these sub-areas is a judgement about the character and coherence of the area and the scope to include sub-areas which collectively have the potential to deliver each of the National Park aims. The potential for nature recovery and the consideration of cultural heritage factors across these larger options is an important consideration too. There could be variations on the three main options in terms of the inclusion or exclusion of individual sub-areas or through the detailed consideration of the best boundaries for these options. Alongside views on the three options, we are therefore seeking comments on possible variations to them as part of the consultation.

As well as the knowledge of NatureScot staff, Historic Environment Scotland contributed information and expertise for the cultural heritage aspects which helped inform our assessment. Comments gathered from the discussions with stakeholders and the interactive map on the Information Hub during the engagement phase were also used to gather local opinions of special qualities and prominent issues across the bid area. Table 3 summaries these.

The fifth step is the consultation on the possible geographic options for the proposed National Park. This forms part of the overall formal consultation.

In the sixth step, we will review this assessment following comments received from the formal consultation and further discussion with Historic Environment Scotland and others. We will also undertake more detailed assessment of its natural systems and processes. This will inform preparation of finalised options for presentation to Scottish Government as part of our advice, due to be submitted in spring 2025.

Table 1 - Evaluation Framework
Legislative conditions	Components	Indicators	Notes for proposal for a National Park in south west Scotland
Outstanding national importance	Does the area contain nature conservation, landscape or cultural heritage interests of the highest national significance, extent and quality?	Presence and extent of international, national and local designations for biodiversity and geodiversity (European Sites; Sites of Special Scientific Interest, National and Local Nature Reserves) landscape (National Scenic Areas, Wild Land Areas, and Local Landscape Designations) historic environment (scheduled monuments, gardens and designed landscapes, historic battlefields, conservation areas)	Compared to their natural heritage equivalents, historic environment designations tend to be much smaller and/or point features. Further discussion with Historic Environment Scotland will be needed to consider how these can be best be used in the assessment process alongside historic land-use assessment
Outstanding national importance	Natural systems and processes – are they predominant in the sub-area?	Extensive areas of semi-natural habitat, dynamic river systems and processes.	Much of the area is highly modified, though it will be important to look at river catchments and coastal systems in refining a preferred area and its boundary.
Outstanding national importance	Do the special qualities of the area provide opportunities of national importance for enjoyment and understanding of the natural and cultural heritage?	Range, scale and significance of outdoor recreation resources dependent on the special qualities of the area. Range, scale and significance of opportunities for the understanding of the natural and / or cultural heritage.	Key features include national paths and trails (e.g. Scotland’s Great Trails, National Cyle Network); recreational facilities (e.g. Forest Park, Dark Sky Park, 7Stanes, etc.) and visitor attractions (e.g. HES, NTS, RSPB Logan RBGE outstation etc).
Distinctive character and coherent identity	What is the contribution to the distinctive character of the area?	Relative contribution of each sub-area to the overall character of Galloway or southwest Scotland.	Judged from bid, information available from landscape character assessment and historic land-use assessment and fieldwork.
Distinctive character and coherent identity	What is the contribution to the coherent identity of the area?	Relative contribution of each sub-area in terms of local traditions, sense of community identity and historical and artistic associations.	Judged from bid, information available from landscape character assessment and historic land-use assessment and fieldwork.
Special needs of the area	Are the threats to the natural, cultural heritage and recreational qualities of the area, or opportunities for their enhancement, sufficient to merit national effort and enhanced resources?	Loss or deterioration of natural and cultural heritage interests, or potential for their enhancement. Nature of opportunities for enhancing the quality of the area. Scale and significance of the need for more management of outdoor recreation, overcrowding, and traffic congestion.	Judged on information available and provided through the contributions received during pre-consultation phase.
Special needs of the area	Does the management of the natural resources of the area require the more integrated and specialised approach of a National Park?	Scale and significance of conflicts between different land uses, between land management activities and recreation use, and between different recreational uses.	Judged on information available and provided through the contributions received during pre-consultation phase.
Special needs of the area	Are there likely to be specific social and economic benefits for the area of designation as a National Park?	Dependence of the local economy on the sustainable use of its natural resources, and the natural and cultural heritage of the area. Social and economic factors arising from the current pressures on the area Opportunities for marketing of products and services derived from the special qualities of the area.	Judged on information available and provided through the contributions received during pre-consultation phase.

Map — Figure 1 - Finalised Sub-divisions for investigating the indicative area.

Click for a full description

Open large version of map.

Table 2 - **Indicative judgement on the contribution of each sub-area to the legislative conditions for Park status**
Sub area	Provisional name	Outstanding national importance	Distinctive character and coherent identity of the area	Designation would meet special needs of the sub-area
1	The Rhins	Minor	Significant	Minor
2	Cairnryan to Ballantrae	Minor	Partial	Minor
3	Ayrshire coast	Partial	Minor	Minor
4	Wigtown and southern Ayrshire moors	Minor	Minor	Minor
5	The Machars	Minor	Significant	Minor
6	Ayrshire dales and foothills	Minor	Minor	Partial
7	Galloway Hills	Extensive	Extensive	Significant
8	Glen Trool, Cree valley	Significant	Significant	Significant
9	Cairnsmore of Fleet, Creetown	Extensive	Extensive	Extensive
10	Glenkens	Partial	Significant	Significant
11	Cairnsmore of Carsphairn	Partial	Partial	Minor
12	Dee Lowlands	Minor	Partial	Partial
13	East Solway Coast	Extensive	Extensive	Extensive
14	Coastal Hills	Significant	Extensive	Significant
15	Nith Estuary	Extensive	Extensive	Partial
16	Water of Girvan	Minor	Minor	Minor
17	East of Glenkens	Minor	Minor	Minor

Table 3 - **Overview of comments received by members of the public on the reporter information hub on the special qualities and issues presented by sub-area**
Sub area	Provisional name	Valued most	Top issues raised
1	The Rhins	High value wildlife, particularly sea birds Beautiful scenery (particularly coastline) Rock climbing / recreation The quietness of the area Sense of ‘end of an adventure’ at southern-most point Low tourism Island-feel Stranraer – gateway to Galloway hills / rest of Galloway	Single track roads with few passing places – transport is challenging Dwindling economy Lack of well-paid employment Lack of prospects for young people Farmland making lots of it inaccessible Campervans and campers staying several nights Distance to facilities and services – i.e. hospitals Second homes / holiday lets reducing housing availability Issues with slurry pollution due to intensive dairy farming Poor state of coastal paths
2	Cairnryan to Ballantrae	Scenery Peace and quiet Being able to farm in peace Coastal landscape and species	Tourists often arrive at Cairnryan then immediately leave the area to go north Unsuitable roads, large number of accidents Lack of facilities for visitors to eat and drink Poor transport links
3	Ayrshire coast	Being able to farm peacefully The beach, shops, harbour Views of Ailsa Craig Quietness Scenery	Any boundary line must either include or exclude Girvan, not split it in two Girvan town centre Infrastructure and too much traffic and accidents Irresponsible access takers, e.g. gates left open, litter
4	Wigtown and southern Ayrshire moors	Archaeology – cultural heart of ancient Galloway Important agricultural production Red squirrels, river Bladnoch and tributaries are stunning Glenluce area – forestry area great for recreation – Foresty Land Scotland have removed Sitka and included broadleaf, improving biodiversity Three lochs and open wilderness	Wind farms negative impact on natural world Concern that upper area is currently outside indicative boundary, it should be in because of goshawks and other rare wildlife present there Large potential for promoting sustainable farming and forestry Rejuvenating business Retaining younger population and supporting businesses services, concern that services are shutting due to lack of demand and therefore money Development threatening dark skies and biodiversity Concern that a national park would block upgrades to A75 and A77 Suggestion that the whole biosphere should be included in any new National Park People arriving from the ferry and not staying – there is opportunity for them to stay and do more in the area Opportunity to regulate renewable development in a better way. Concern that current proposed boundary excludes several areas with designations – while there are renewables in these areas it is felt that there is still a lot of ecological value that should be protected.
5	The Machars	Beautiful renewable energy facility set into Galloway hills Beautiful coastline Dotted woodland Drystane dykes Biodiversity Cultural resource Community spirit, peace, quiet, no parking charges Little interference / bureaucracy Diversity of landscape and recreational opportunities Beautiful and non-commercial Book festival and other cultural events Wigtown bay local nature reserve Peace and tranquillity Lack of people and tourism Open views of hills and birdlife Historical site of martyrdom Incredible geology Good wild swimming and marine / coastal wildlife	A National Park should promote religious history of the area Potential interference with agriculture Wind farms destroying the area Lack of local fresh fruit and vegetables Not enough diversification in the farming sector – too much focus on one model Needs more profile and visibility The core path network and ranger service could be improved Camper vans and tents using areas with no chemical disposal facilities Irresponsible camping and caravanning Need funding for cultural events like the book festival Underfunded infrastructure especially roads Facilities are lacking Protecting picturesque farmland Too many holiday lets / second homes Lack of opportunities for young people Too much Sitka spruce Creeping loss of access and privatisation of coastal access
6	Ayrshire dales and foothills	Beautiful nature and trails Dalmellington is gateway to great outdoor facilities – Ness Glen, Craigengillan, Loch Doon. Colmonell – diverse upland habitat popular for wildlife and walking Quiet peaceful location Currently low rates of visitors and undisturbed wildlife	Concern about animal welfare Lack of investment in surrounding areas / towns – Girvan/Stranraer Concern about wind farms Needs more investment in natural environment Suggestion that Barhill should be included in any new National Park as there are some good examples of sustainable tourism. Some question why the indicative area boundary skirts round Barrhill Lack of affordable housing – concerns of this being exacerbated Irresponsible camping Local designations should not be intersected by the boundary and that all should be included Diversion of traffic through the village from A77 causing safety issues
7	Galloway Hills	Walks and viewpoints That it’s a relatively unknown spot Loch Trool, commercial forestry and wildlife, habitat, nature Never overcrowded The chance to share the ‘gifts’ of the region with others Peatlands Rugged feel Public ownership The geological story of the landscape (unchanged since ice age) Attempts at replanting native broadleaves The way of life Unspoiled beauty Montane project on Ben Yellary	Much is overgrazed and heavily managed monocultures which is damaging Erosion from plantation is more of an impact than visitors Infrastructure and roads not coping While many think this area is ‘wild’ and ‘natural’ it is not – it’s been altered a lot, and a National Park status would strengthen the view that this is ‘natural’ Lack of affordable rental accommodation Climate change, forestry, intensive farming Risk of wind farms encroaching on the region (Glenvernoch and Blair Hill are mentioned) Fear of losing local access or that permits would be introduced like LLTNP Pylon project due to go through Galloway forest Preserving dark skies Aging population and second homes E-biking
8	Glen Trool, Cree valley	Freedom to run business Beauty of the town Community Walks / recreation Balance of nature and agriculture Friendly people Low crime / safe Peace and quiet Dark skies Peatland Wildlife Ancient woodland	Lack of affordable housing Improving job market and opportunities Closure of hospitals and cottage hospitals Narrow roads Closure of businesses and services Declining population Wind turbines Bureaucracy Anti-social behaviour Biosphere needs more funding Deterioration of Newton Stewart – a National Park could give it new life Attracting young people to stay
9	Cairnsmore of Fleet, Creetown	Being in middle of the hills Wildlife and landscape Historical sites Diversity of the area Community feel Safety Low population Air quality Picturesque drives Quiet and serene	Too many motorhomes overnight parking Littering Lack of medical and social care Holiday homes Conservative mind set Lack of affordable housing Too many retirement homes pushing up house prices Area is becoming geared to a more affluent population Threat of wind farms Lack of education facilities Crumbling infrastructure Opportunity to revive sites like the Mill on the Fleet Uncontrolled parking Currently no hope for development without some kind of intervention – i.e. National Park Underdeveloped and ignored by government for years Farmers dominating Dumfries &Galloway
10	Glenkens	Biodiversity and nature Peace and tranquillity Low population Red kites The land and job opportunities Tight knit community Commercially unspoilt	Lack of affordable housing / too many second homes Demographic decline Bad roads / infrastructure (closest train is Dumfries) Not enough tourists Risk of too many tourists Protecting land from developers, Sitka plantations Losing businesses Wind farms threatening bird species e.g. curlew Feeling they have more than their fair share of wind farms Tourists and retirees moving in Too much wild camping / irresponsible camping
11	Cairnsmore of Carsphairn	Rich in archaeological sites Iron age hill fort Biodiversity, wilderness, views Wild moorland	Needs protection from commercial forestry and wind farms Protection of glacial valley and views Vital wildlife at headwaters of one of Galloway’s biggest rivers Protecting community assets (carpet bowls hut that unite Carsphairn and Moniaive)
12	Dee Lowlands	Scenery Open peaceful countryside Food production Low crime Not too many tourists	Risk of forests being destroyed by ‘investment lodges’ Lack of affordable housing Roads Public transport Inability to cope with tourism Youth being driven away Castle Douglas already too busy Threat of windfarms, power lines, solar farms, energy parks
13	East Solway Coast	Local beaches Lively high street Good farming Balance of visitors and locals and activities and businesses Beautiful coast and estuaries Nature Coastal woodlands Strong identity Core path and SSSI status, well farmed maintaining biodiversity and rare species Sense of history Quietness Rugged beauty	Over-camping and motorhomes Fear of parking restrictions Potential for better visitor management (with a National Park). Care for the elderly Lack of affordable housing Inconsistent farming – removal of rocky outcrops, over grazing and degradation of grassland Risk of Wind farms and solar farms Demographic shifts Buying up of local farms taking opportunities away from small businesses. Lack of well-paid jobs Risk of commodification due to a National Park School closures Irresponsible dog ownership / walking MOD area – concern about new people to the area not adhering to occasional restrictions
14	Coastal Hills	Quiet and affordable town Woodland, hills Minimal light pollution Natural beauty and biodiversity	Dalbeattie should be all in or all out any boundary of a potential new National Park Lack of infrastructure Not enough opportunities for young people Access to/from Criffell is eroding – more tourists would make it worse Not enough parking No facilities close to hills Coastline needs more protection from development – it doesn’t attract the same number of visitors
15	Nith Estuary	Good current balance of natural beauty, agriculture and tourism Views and habitat over Solway Historic town Scenic coastal strip	Proposed boundary should align with Nith National Scenic Area or Solway Coast Regional Scenic Area Conservative views and traditional farming hindering biodiversity Deprivation Rising house prices Historic buildings being depleted Public transport issues Managing inappropriate coastal development Traffic/road issues
16	Water of Girvan	Peace, calm, serenity	Concerns about road infrastructure and litter
17	East of Glenkens	Including highest point in the area – Mochrum Hill Peace Nature, biodiversity, views Wildlife returning	Protecting glacial valley with views of Beninner and Cairnsmore Concern about the disregard of visitors

A report on the methodology for developing options for the geographical area of the proposed National Park in southwest Scotland

Background

Approach

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