Landscape Character Assessment - Guidance for England and Scotland - Italia Nostra Educazione
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Landscape
Character
Assessment
Guidance for England and Scotland
Landscape Character Assessment
Guidance for England and Scotland
The Countryside Agency Scottish Natural Heritage
John Dower House, 2 Anderson Place
Crescent Place, Cheltenham, Edinburgh EH6 5NP
Gloucestershire GL50 3RA Tel: 0131 446200
Tel: 01242 521381 Fax: 0131 4462405
Fax: 01242 584270 www.snh.org.uk
www.countryside.gov.uk
CAX 84
This document is printed on recycled paper.
April 2002
LANDSCAPE CHARACTER ASSESSMENT
GUIDANCE FOR ENGLAND AND SCOTLAND
Prepared on behalf of
The Countryside Agency
and
Scottish Natural Heritage
by
Carys Swanwick
Department of Landscape
University of Sheffield
and
Land Use Consultants
2002
ACKNOWLEDGMENTS This guidance has been supported by a working group comprising Liz Bingham, Rick Minter and Carol Somper of the Countryside Agency, and Rebecca Hughes of Scottish Natural Heritage. Further advice has been provided by a wider steering group of officers from each agency. We are indebted to input from the Scottish Natural Heritage Landscape Group, the Countryside Agency’s Countryside Character Advisory group, and the many practitioners who contributed comments on the Interim Landscape Character Assessment Guidance.
FOREWORD The landscape determines the character of the British countryside and influences our daily life. However, landscape is not a static thing. It has always been changing and will continue to do so - in some places suddenly and dramati- cally, in others, gradually and subtly. Most of us welcome progressive change, but do not want to see development running amok. We applaud new woodland to enhance the landscape, but know that planting and management must be sensitive to the locality. We can be excited by bold regeneration for places in need of improvement, but recognise that the new development must work around the best of the old, rather than sweep it away. Policy makers and practitioners need techniques to identify what gives a locality its own sense of place and makes it different from other areas, and which conditions should be set for any new development and change. Landscape Character Assessment has been used for these purposes for many years now, especially in England and Scotland. This document consolidates latest thinking on the subject and sets out updated advice. Policy makers and practition- ers will continue to have to make tough decisions on development and change. We believe this document, and the topic papers which follow, can help inform those decisions, underpin planning policies, and ensure positive change in the landscape. Richard Wakeford Chief Executive,The Countryside Agency Roger Crofts Chief Executive, Scottish Natural Heritage
CONTENTS
Part 1 A practical guide to Landscape Character Assessment
page
1 Introduction 1
2 Principles and process 8
3 Defining the scope (step 1) 17
4 Desk study (step 2) 21
5 Field survey (step 3) 30
6 Classification and description (step 4) 37
7 Making judgements based on landscape character 52
Part 2 Landscape Character Assessment in practice
8 Applications in planning 61
9 Applications in landscape conservation and management 74
References 82
PART 1
A PRACTICAL GUIDE TO
LANDSCAPE CHARACTER ASSESSMENT
Promotional artwork for countryside character area 103 Malvern Hills.
Reproduced by kind permission of Herefordshire Council Parks & Countryside Service.
Original artwork by Clive McWilliam.CHAPTER 1
INTRODUCTION
WHAT THIS GUIDANCE value, but are likely to focus on the issued to respond to the evolv-
IS ABOUT principles rather than the details, ing needs of practitioners.
1.1 This guidance provides and the separate summary may be
updated advice on Landscape useful for this purpose. We envis- Look at the ‘Finding your way around’
Character Assessment, an impor- age this audience including those section at the end of this introduction
tant tool for all those involved in people: to see which parts of the guidance
influencing the landscape. The meet your needs and to find out more
guidance reflects how methods and • who need to consider how about the contents of different
techniques for Landscape Landscape Character sections.
Character Assessment have devel- Assessment can inform
oped in recent years and builds decision-making at central, THE CONTEXT
upon interim guidance which was regional, and local government OF SUSTAINABLE
the subject of consultation in 1999 level, and in the private and DEVELOPMENT
[1]. This new guidance has been voluntary sectors; 1.6 The need to incorporate
prepared for England and Scotland, • who influence the character of landscape considerations into
although aspects may have the landscape and need to know decision-making is not new, but has
relevance to other parts of the what such assessments mean grown in importance as the empha-
British Isles (para 2.2). for them, for example farmers, sis on sustainable development has
foresters, highway engineers and increased. The Government’s
1.2 This document sets out the those responsible for develop- Sustainable Development Strategy A
full scope of activity potentially ment activity; Better Quality of Life [2], sets out
involved in a Landscape Character • who may become involved in the following definition of sustain-
Assessment, but it may well be Landscape Character able development:
possible to undertake a more Assessment because they are a
modest exercise that will still stakeholder - that is, with a “It means meeting four objectives
inform decision-making. particular interest in the at the same time in the UK and the
landscape which they wish to world as a whole:
WHO THE GUIDANCE express.
IS AIMED AT • social progress that recognises
1.3 The guidance is aimed at all 1.5 The guidance has been organ- the needs of everyone;
those individuals and organisations ised to meet the needs of these • effective protection of the
whose activities affect the different audiences. It has two environment;
landscape. Its main audience parts: • prudent use of natural
includes those involved in commis- resources; and
sioning, carrying out, and using • a basic guide to the approach • maintenance of high and stable
results from a Landscape Character and methods of Landscape levels of economic growth and
Assessment, including practitioners Character Assessment (this employment.”
in local authorities, government document);
departments and agencies, develop- • a separate series of topic 1.7 Landscape Character
ment companies, utilities and papers, which offer more detail Assessment is a tool which can
private practice. on particular uses and policy make a significant contribution to
contexts for Landscape the objectives that relate to
1.4 Other people and organisa- Character Assessment.These ‘environmental protection’ and
tions may find the guidance of topic papers will continue to be ‘prudent resource use’ as corner-
1stones of sustainable development. 1.9 This guidance defines • Environmental Impact
In England this is recognised in the Landscape Character Assessment as Assessment;
Government’s Rural White Paper addressing both the characterisa- • Identification of landscape
[3], which endorses the use of tion process, involving identifying, indicators;
Landscape Character Assessment as mapping, classifying and describing • Natural Heritage Futures.
a way of informing decisions. In landscape character, and the
Scotland various elements of process of making judgements WHY FOCUS
planning legislation now recognise based on landscape character to ON LANDSCAPE ?
the importance of landscape inform a range of different 1.11 Landscape is about the
character, such as NPPG 14 [4]. In decisions. This distinction is the relationship between people and
particular, Landscape Character most important principle of the place. It provides the setting for
Assessment can help in processes approach and is stressed through- our day-to-day lives. The term
which: out this guidance. does not mean just special or
designated landscapes and it does
• identify what environmental and 1.10 Landscape Character not only apply to the countryside.
cultural features are present in a Assessment is one of a growing Landscape can mean a small patch
locality; number of tools which can be used of urban wasteland as much as a
• monitor change in the environ- in planning for sustainable develop- mountain range, and an urban park
ment; ment. Among the most relevant as much as an expanse of lowland
• understand a location’s sensitiv- are those in which character plain. It results from the way that
ity to development and change; assessment has a part to play along- different components of our
• inform the conditions for any side assessments of other environment - both natural (the
development and change. environmental resources. Further influences of geology, soils, climate,
details of this wider range of tools flora and fauna) and cultural (the
1.8 For many years, and especially are contained in Topic Paper 2, historical and current impact of
in the 1970s, the emphasis in which also briefly discusses where land use, settlement, enclosure and
dealing with landscape as a consid- Landscape Character Assessment other human interventions) -
eration in land use planning and fits into these wider initiatives. It interact together and are perceived
management was on landscape deals with: by us (Figure 1.1). People’s
evaluation - what makes one area • Environmental Impact perceptions turn land into the
‘better’ than another. Landscape • Quality of Life Capital; concept of landscape. This is not
assessment emerged in the mid-80s
as a tool to separate the classifica- Figure 1.1: What is landscape?
tion and description of landscape
character (i.e. what makes one
area ‘different’ or ‘distinct’ from
another) from landscape evaluation.
FAU A &
During recent years yet more
NA
R
SOIL
FLO
emphasis has been placed on the
AI
SE
R
S
U
&
D
CL
LA
N
I
ND
role of landscape character and the
LA
M
T
AT
FO N
ME
E
RM LE
TT
process has become described as GEO
SE
LOG
Y RE
Landscape Character Assessment ENCLOSU
LANDSCAPE
to reflect this. In Scotland this COLOUR
MEM
E O RIES
TUR
term has been used to describe the TEX
N
T ER AS
T
national programme of assessment. PA
RM
SO
CI
AT
FO IO
The concept of landscape character
PRE
S
NS
/ FEEL
D
UN
S
FER
ELL
SO
is also central to the Countryside
ENC
TOUCH
SM
ES
Agency’s Countryside Character
initiative and national framework of
character areas in England.
2Introduction
just about visual perception, or how 1.14 Landscape Character both at the level of plans and
we see the land, but also how we Assessment is not a tool designed policies, and at the level of
hear, smell and feel our surround- to resist changes that may influence individual development
ings, and the feelings, memories or the landscape. Rather it is an aid to proposals.
associations that they evoke. decision-making - a tool to help
Landscape character, which is the understand what the landscape is Landscape conservation,
pattern that arises from particular like today, how it came to be like management and
combinations of the different that, and how it may change in the enhancement
components, can provide a sense of future. Its role is to help ensure • providing a basis for the prepa-
place to our surroundings. that change and development does ration of landscape management
not undermine whatever is charac- strategies;
1.12 People value landscape for teristic or valued about any • informing work on special areas,
many different reasons, not all of particular landscape, and that ways including identification of areas
them related to traditional of improving the character of a for designation, mapping of
concepts of aesthetics and beauty. place can be considered. It can be boundaries, justifications for
It can provide habitats for wildlife a powerful tool to aid the planning, special application of policies,
and a cultural record of how design and management of justification for special treat-
people have lived on the land and landscapes. ment by designation, and input
harnessed its resources. Landscape to management plans and other
can have social and community 1.15 Landscape Character management initiatives;
value, as an important part of Assessment has been used in a • helping to guide land use change
people’s day-to-day lives. It can wide range of situations throughout in positive and sustainable ways,
contribute to a sense of identity, England, Scotland and further afield, for example programmes of
well-being, enjoyment and inspira- and its role is likely to increase in woodland expansion, and new
tion. It has economic value, the future. The main applications uses for disturbed and degraded
providing the context for economic are summarised below to illustrate land;
activity and often being a central the range: • informing the targeting of agri-
factor in attracting business and environment schemes;
tourism. Landscape Character Planning • contributing to wider environ-
Assessment has emerged as an • informing development plan mental initiatives such as Local
appropriate way to look at policies at strategic (regional Agenda 21, Biodiversity Action
landscape because it provides a and structure plan) and local Plans, State of the Environment
structured approach to identifying level; Reports and, in Scotland,
character and distinctiveness as • studies of development poten- Natural Heritage Futures.
well as value. tial, for example to help in
finding sites for new develop- 1.16 Examples of the use of
USES OF LANDSCAPE ment, especially in or on the Landscape Character Assessment in
CHARACTER edge of towns, and in the wider this range of applications can be
ASSESSMENT countryside; found in Chapters 8 and 9. The
1.13 Landscape Character • informing the siting, spacing, growing importance of Landscape
Assessment recognises the funda- scale, and design conditions for Character Assessment, particularly
mental role played by farming and particular forms of development in the planning arena, is emphasised
forestry and by different forms of such as housing, minerals and in several of the current series of
development in fashioning the wind energy; Planning Policy Guidance notes
landscape. Virtually the whole of • contributing to landscape capac- issued by central government
the British landscape owes its ity studies relating to the supply (PPGs in England, NPPGs in
character as much to the influence of land for housing, minerals, Scotland), and in the Government’s
of these activities as to understand- renewable energy or other land Rural White Paper [3]. Key aspects
ing the influences of geology, soils, uses; of these references are summarised
landform, climate, and flora and • providing an input to in Box 1.1.
fauna. Environmental Assessment,
3Introduction
Box 1.1: References to Landscape Character Assessment in Planning Policy Guidance
PPG 1 General Policy and Principles (England) 1997
Annex A on the handling of design issues states that “Policies should be based on a proper assessment of the
character of the surrounding built and natural environment, and should take account of the defining characteris-
tics of each local area”.
PPG 7 The Countryside - Environmental Quality and Economic and Social
Development (England) (1997)
Contains a specific section on the character of the countryside and makes reference to The Character of England
map. It states that the character approach “should help in accommodating necessary change without sacrificing
local character. It can help ensure that development respects or enhances the distinctive character of the land
and the built environment”.
PPG 15 Planning and the Historic Environment (England) (1994)
States that “The physical survivals of our past are to be valued and protected for their own sake, as a central
part of our cultural heritage and our sense of national identity…Their presence adds to the quality of our lives,
by enhancing the familiar and cherished local scene and sustaining the sense of local distinctiveness which is so
important an aspect of the character and appearance of our towns, villages and countryside.”
It goes on to note that “in the countryside, the detailed patterns of fields and farms, of hedgerows and walls, and
of hamlets and villages, are among the most highly valued aspects of our environment.” Registers of historic
parks and gardens and of battlefields are referred to and work on the identification and components of the
wider historic landscape are described. It notes that “The whole of the landscape, to varying degrees…is an
archaeological and historic artefact…much of its value lies in its complexity, regional diversity and local distinc-
tiveness”.
NPPG 1 (Revised) The Planning System (Scotland) (2000)
In this revised NPPG there is explicit reference to the character approach in relation to design in paragraphs
15-17 where it states “Development Plans should include broad design parameters based on a sound analysis of
the character of an area.”
NPPG 14 Natural Heritage (Scotland) (1998)
In December 1998, the Scottish Office issued National Planning Policy Guideline 14 on the Natural Heritage. In
its introduction, the NPPG stresses the complex nature of the natural heritage and the close links with
Scotland’s culture and economy. It notes that “Natural heritage embraces the combination and interrelationship
of landform, habitat, wildlife and landscape and their capacity to provide enjoyment and inspiration. It therefore
encompasses both physical attributes and aesthetic values and, given the long interaction between human
communities and the land in Scotland, has important cultural and economic dimensions.” Focusing on landscape
protection and enhancement, the guidelines describe the wide variety of landscapes found in Scotland, and their
role in shaping regional identities and contributing to the quality of life. The guidelines describe the interaction
of the natural environment with buildings and other cultural features in creating identity and character. The
NPPG makes explicit reference to Scottish Natural Heritage’s programme of landscape character assessments
and notes that these now cover the whole of Scotland. It describes the use of these assessments in the
planning process, highlighting their role in providing guidance on the capacity of the landscape to accommodate
development, and informing policy development and development control processes. Turning to the ‘action
required’ of planning authorities, NPPG 14 states that Structure Plans should “include policies for protecting and
enhancing the character of landscapes of regional importance, including any areas of importance for their wild
land character” and that Local Plans should “include policies for the conservation and/or enhancement of
landscape character”. /...contd.
4Introduction
Box 1.1 (contd.)
NPPG 18 Planning and the Historic Environment (Scotland) (1999)
The relationship between historic buildings, cultural features and the natural environment can help give an area its
particular identity and character. The spaces between buildings, the settings of historic buildings and areas,
historic landscapes, urban parks, historic street patterns, historic battlefields and memorials are particularly signifi-
cant in this respect.
PAN 60 Planning for the Natural Heritage (Scotland) (2000)
This Planning Advice Note furthers the statements made in NPPG 14 by stating that “Safeguarding and enhancing
landscape character is an important planning objective.” It goes on to state how the national Landscape Character
Assessment programme covers the whole of Scotland and how different planning authorities are making use of
the information. “Planning authorities are finding landscape character assessment to be of value in informing devel-
opment plan policies; preparing locational strategies for mineral extraction, renewable energy developments and
forestry; determining environmental and settlement capacity; reviewing Green Belt boundaries; designing land
renewal schemes; determining individual planning applications; and responding to Woodland Grant Scheme consul-
tations.”
Rural White Paper (England) (2000)
Section 9.3 of the Government’s Rural White Paper Our Countryside:The Future - A Fair Deal for Rural England [2]
deals with the importance of understanding, evaluating and protecting countryside diversity and character. In
particular, it stresses the need to find ways of “ensuring that the valued features and attributes of the whole
countryside are conserved and enhanced.” It cites this guidance as a means “to help those interested in carrying
out character assessment at sub-regional level” using the national character map as a starting point and guide, and
as a tool for local authorities “to seek ways to enrich the countryside as a whole...and maintain its distinctive
local features.”
RELATIONSHIP TO • Interim Landscape Character the Countryside Agency in collabo-
PREVIOUS GUIDANCE Assessment Guidance. ration with English Nature and
1.17 This advice supersedes Countryside Agency/Scottish English Heritage. Local authorities
several earlier documents that gave Natural Heritage (1999) [1] have been increasingly active,
guidance on landscape assessment although the quality of Landscape
in England and Scotland, namely: All these documents served a Character Assessments varies
purpose at different stages in the considerably. In the same period
• Landscape Assessment: a evolution of Landscape Character the major Scottish national
Countryside Commission approach. Assessment (see Topic Paper 1) programme of Landscape Character
Countryside Commission. CCD but they are no longer up-to-date. Assessment has been completed,
18 (1987) [5] which involved all Scottish local
• Landscape Assessment: Principles 1.18 Since the last main guidance authorities and some other organi-
and Practice. Countryside of 1993 there has been a major sations such as the Forestry
Commission for Scotland. increase in Landscape Character Commission. The experience
(1991) [6] Assessment work. The Character of gained, and the lessons learnt from
• Assessment and conservation of England map [9], jointly published in all this work, has informed this
landscape character:The England by the former Countryside guidance. Further details of the
Warwickshire Landscapes Project Commission and English Nature, national initiatives in England and
approach. Countryside provides a national framework for Scotland, and their relevance to
Commission. CCP332 (1991) more detailed assessments by local more detailed assessments about
[7] authorities and others. This frame- to start or be planned, are given in
• Landscape Assessment Guidance. work has recently been Chapter 6 and Topic Paper 1.
Countryside Commission. CCP strengthened by the development
423 (1993) [8] of a national landscape typology by
5Introduction
FINDING YOUR aspects of Landscape Character information. There is a less
WAY AROUND Assessment. In addition, this formalised Scottish network as well
1.19 If you are new to Landscape guidance is accessible through the with the relevant local authority
Character Assessment you should web pages of the Countryside officers, which meets with the SNH
concentrate on this main document. Agency and Scottish Natural Landscape Group with occasional
After this introductory section it is Heritage (SNH)1. Further case seminars on landscape character
divided into two parts. The first studies and topic papers will be assessment and applications under
provides a basic practical guide to added in future. In Scotland the full SNH’s ‘Sharing Good Practice’
what Landscape Character Assessment set of assessments produced programme. Also, the Countryside
means and how it is carried out. The through the national programme is Agency is funding a small number
second demonstrates the wide range of published and available from of Landscape Character
different uses for such an assessment. Scottish Natural Heritage [10-38]. Assessments to show how
The contents of the two parts in more A Countryside Character Landscape Character Assessment
detail are shown in Box 1.2 Network has been established and can be undertaken and applied at
provides a forum for exchanging each level in the hierarchy, from
NEED MORE experience on the use of Landscape regional to local, all with particular
INFORMATION ? Character Assessments2. Its emphasis on stakeholder
1.20 The references provide newsletters and workshop reports participation.
further information on various provide a useful range of relevant
1 View the guidance, and related topic papers, at www.countryside.gov.uk/cci/guidance and www.snh.org.uk/strategy/LCA
2 Formore information on the Countryside Character Network see the Countryside Agency’s website at www.countryside.gov.uk/cci/character_network
For more detail on Landscape Character Assessment in Scotland, see the SNH website at www.snh.org.uk
Box 1.2: Organisation and content of main guidance
PART 1 A PRACTICAL GUIDE TO LANDSCAPE CHARACTER ASSESSMENT
Chapter 1 Introduction
Chapter 2 Principles and process
Introduces the principles of the approach and gives an overview of the process. Identifies a series of key steps,
which are then described in detail in the following chapters.
Chapter 3 Defining the scope (step 1)
Stresses the importance of establishing the scope of an assessment before embarking on the work and deals
with issues such as purpose and aims, scale and level of detail, resources required, approaches to making judge-
ments, and decisions about outputs from the work.
Chapter 4 Desk study (step 2)
Describes the important preparatory work that must be done before embarking on field survey, reviews sources
of map information on a range of different topics, and describes the preparation of map overlays as a basis for
preliminary identification of landscape types.
Chapter 5 Field survey (step 3)
Outlines the important contribution of field survey and ways of carrying out this work comprehensively and
effectively.
/...contd.
6Introduction
Box 1.2 (contd.)
Chapter 6 Classification and description (step 4)
Looks at the principles and practice of landscape characterisation, including approaches to classification, consis-
tency in terminology, dealing with boundaries and descriptions of character.
Chapter 7 Making judgements based on landscape character
Examines the way that Landscape Character Assessment can inform decisions and the range of approaches to
making judgements about the landscape.
PART 2 LANDSCAPE CHARACTER ASSESSMENT IN PRACTICE
Chapter 8 Applications in planning
Reviews the way that Landscape Character Assessment is being applied in work relating to the planning system,
including development plan policies, studies of development potential, and design of new development.
Chapter 9 Applications in landscape conservation and management
Reviews the way that Landscape Character Assessment is being used in relation to the development of landscape
management strategies, work on particular designated areas, and in guiding major landscape change, for example
arising from woodland expansion or agricultural change.
Topic Paper 1 Recent practice and the evolution of Landscape Character
Assessment
Topic Paper 2 Links to other sustainability tools
Topic Paper 3 Landscape Character Assessment - how stakeholders can help
Forthcoming Papers
Available Summer/Autumn 2002
Topic Paper 4 Use of GIS and other computer methods
Topic Paper 5 Historic landscape characterisation
Topic Paper 6 Techniques and criteria for judging capacity and sensitivity
Topic Paper 7 Development and new landscape character
Topic Paper 8 Landscape character and wind energy developments
Available early 2003
Topic Paper 9 Climate change and natural forces - the consequences for
landscape character
7CHAPTER 2
PRINCIPLES AND PROCESS
INTRODUCTION 2.2 The approach described here and funds available to carry out the
2.1 This chapter sets out some of is common to both Scotland and work. The Agencies do not intend
the key principles which underpin England. Similar work is also carried that this advice should be overly
Landscape Character Assessment. out in Northern Ireland and in the prescriptive - practitioners must
It goes on to introduce the basic Republic of Ireland, and although have some flexibility to respond to
process which is used, identifying a Wales has taken a different local circumstance. The guidance is
series of steps which should be approach in its LANDMAP initia- intended to establish some basic
followed. The method which is tive, some of the principles set out ground rules, describing the
described here and which is being here chime with practice in Wales. essence of the approach, clarifying
widely used throughout the United The examples used are drawn some of the terminology, and point-
Kingdom has emerged over a predominantly from Scotland and ing to good practice.
period of some 15 to 20 years. It England, although reference is also
has been continuously developed made to work in Ireland. KEY PRINCIPLES
and refined in the light of experi- OF THE CURRENT
ence and will no doubt continue to 2.3 Landscape Character APPROACH
evolve in future. Aspects of the Assessment offers a framework for 2.4 Four key principles are central
development of Landscape techniques that can be used in to the understanding and appropri-
Character Assessment are combinations according to the ate use of Landscape Character
described in Topic Paper 1. situation, not least the resources Assessment. They are:
• the emphasis placed on
Box 2:1: Words relating to landscape character landscape character;
• the division between the
Character process of characterisation and
A distinct, recognisable and consistent pattern of elements in the the making of judgements to
landscape that makes one landscape different from another, rather than inform decisions;
better or worse. • the roles for both objectivity
and subjectivity in the process;
Characteristics • the potential for application at
Elements, or combinations of elements, which make a particular contri- different scales.
bution to distinctive character.
Emphasis on
Elements landscape character
Individual components which make up the landscape, such as trees and 2.5 Landscape Character
hedges. Assessment is concerned primarily
with landscape character, rather
Features than with landscape quality or
Particularly prominent or eye-catching elements, like tree clumps, value. These latter factors are
church towers, or wooded skylines. nevertheless still relevant when a
Landscape Character Assessment is
Characterisation used to inform decisions, when
The process of identifying areas of similar character, classifying and judgements must be made about
mapping them and describing their character. the implications of an assessment.
An understanding of the concept of
character is therefore vital.
8Principles and process
Landscape character (see Box appropriate to encourage land use moorland plateau and river valley,
2.1 for relationship to other terms) change such as the planting of new but landscape character areas take
is defined as a distinct and recog- woodland in an area? on the names of specific places.
nisable pattern of elements that Looking at a Scottish example, in
occur consistently in a particular 2.8 Characterisation: The first Dumfries and Galloway the narrow
type of landscape. Particular stage embraces the practical steps wooded valley landscape character
combinations of geology, landform, involved in identifying areas of type can be found. Within the area
soils, vegetation, land use, field distinctive character, classifying and there are several individual
patterns and human settlement mapping them, and describing their landscape character areas of this
create character. Character makes character. It concentrates on type, each distinct and unique, such
each part of the landscape distinct, making clear what makes one area as the Esk Valley, the Urr Water, the
and gives each its particular sense different or distinctive from Water of Kan, the Big Water of
of place. Whether we value certain another. It normally results in the Fleet and the River Cree character
landscapes for their distinctiveness, identification of one or both of the units.
or for other reasons, is a separate following:
question. Landscape character areas and
• Landscape character types: types rarely conform to administra-
2.6 Exploring and understanding These are distinct types of tive boundaries (Figure 2.1).
the landscape character of any area landscape that are relatively
requires systematic investigation of homogeneous in character. They 2.9 The end product of
the many different factors that have are generic in nature in that they characterisation will usually be a
helped to create and influence that may occur in different areas in map of landscape types and/or
location. They include geology and different parts of the country, but areas, together with relatively
landform, the natural attributes of wherever they occur they share value-free descriptions of their
soils and the vegetation associated broadly similar combinations of character and identification of the
with them, and both the historical geology, topography, drainage key characteristics which are most
and current influences of human patterns, vegetation and historical important in creating this character.
land use and settlement. The inter- land use and settlement pattern. ‘Forces for change’ or ‘key
actions between all these factors For example, chalk river valleys or issues’ will often be identified as
create the character of the rocky moorlands are recognisable well, such as ongoing land use
landscape. and distinct landscape character change and types of development
types. pressures. The characterisation
Distinction between • Landscape character areas: process is discussed in detail in
characterisation and the By comparison, these are single Chapter 6.
making of judgements unique areas and are the discrete
2.7 Landscape Character geographical areas of a particular
Assessment draws an important landscape type. So, taking the
distinction between two stages: chalk river example, the Itchen Figure 2.1: Landscape
Valley, the Test Valley and the character areas/types and
• the relatively value-free process Avon Valley (all chalk rivers) administrative boundaries
of characterisation; would be separate landscape
• the subsequent making of character areas, of the chalk river
judgements based on knowl- valley landscape character type. TYPE A
edge of landscape character. Each has its own individual
character and identity, even
The judgements made can then though it shares the same
TYPE B
contribute to informing the generic characteristics with other
decision-making processes - for areas of the same chalk river
example: should a particular devel- valley type. This distinction is
opment proposal be allowed to reflected in the naming of types administrative
proceed (and with what condi- and areas: landscape character boundary
tions)? Or where would it be types have generic names such as
9Principles and process
2.10 Making judgements: This decisions involves an element of ments at different scales should fit
stage is based on the results of the subjectivity which can be clarified together as a nested series or a
characterisation process and by using criteria agreed beforehand. hierarchy of landscape character
involves making judgements about types and/or areas so that assess-
landscape character to inform 2.12 Surveying the elements that ment at each level adds more detail
particular decisions related to the make up a landscape, mapping and to the one above. The analogy of
type of application. Different types describing landscape types, which Russian Dolls is often used to
of judgement may need to be used many might consider to be wholly describe this hierarchical relation-
to inform different types of objective matters, can still involve ship, but the idea of a camera
decision (see Chapter 7 for subjective judgements. This can zooming in, from a distant broad
further information). Thus this only be avoided if the whole task view, to a detailed small-scale
stage may result in a range of differ- were to be reduced to one of portrait, also makes the point
ent outputs, involving different measuring attributes from maps (Figures 2.2 and 2.3). The three
types of judgement, each aimed at a and analysing the data quantitatively main levels at which Landscape
particular need. These outputs may (but this approach would not tease Character Assessment are carried
either: out all aspects of character and out are:
sense of place). To illustrate this
• directly inform decisions about point, a surveyor could record that • National and regional scale:
landscape through, for example, there are 20 hectares of woodland Work at this level is to a small
the preparation of planning in a landscape as an objective fact; scale (typically at 1:250,000) and
policies, and strategies for the to then record that this woodland may cover the whole of a
conservation and enhancement is a dominant feature or a key country or a large region (as
of landscape character; or characteristic of the landscape has been done for both England
• feed into broader decision- necessarily introduces an element and Scotland) to identify broad
making tools (such as of subjectivity into the characterisa- patterns of variation in
Environmental Impact tion. landscape character. These
Assessment or Quality of Life patterns result from the under-
Capital) and strategies (such as 2.13 Nevertheless, this is still a lying geology and landform
Regeneration Strategies or very different type of subjectivity to overlaid with the influence of
Woodland Strategies) where one which judges that one broad ecological associations
landscape is only one of a broad landscape is better than another in and key aspects of settlement
range of environmental issues some way. The important thing is and enclosure history. This
under consideration. that everyone involved in the results in the identification of
process, or in the use of an assess- distinct landscape types and
The role of objectivity ment, understands which elements areas at this broad scale, for
and subjectivity of it are relatively objective and example chalk downland or
2.11 There has been long-standing unlikely to be disputed, and which montane plateau, as well as the
debate about the role of objectivity ones are more likely to be viewed character areas where they
and subjectivity in dealing with differently by different stakeholders. occur, which are distinct
landscape. The search for suppos- There is also scope for a wide geographical areas such as the
edly objective approaches has range of stakeholders to contribute South Downs or the
reflected a desire, in some quarters, to characterisation, each contribut- Cairngorms.
to remove the element of personal ing their own judgements about
judgement from the process. In variations in character. • Local authority scale: Within
Landscape Character Assessment it these broad patterns of
is accepted that there is a role for Application at landscape character it is possi-
subjective inputs, but these must be different scales ble to identify a finer grain
made in a systematic and transpar- 2.14 Landscape Character which can be mapped and
ent way. The process of Assessment can be applied at a described through Landscape
characterisation should be an number of different scales from the Character Assessment applied
objective process in the main, while national or indeed European level at the county, district or unitary
making judgements to inform to the parish level. Ideally assess- authority level in England or at
10Principles and process
Figure 2.2: The Landscape Character Assessment spatial hierarchy - an example of the
relationship between the different levels [1]
LANDSCAPE
Examples of where
NATIONAL/REGIONAL
CHARACTER GRANITE UPLANDS existing assessments
TYPES fit into the hierarchy
LANDSCAPE
CHARACTER
Shropshire Hills ESA
DARTMOOR BODMIN MOOR
Cairngorm ESA/
AREAS
Warwickshire County
1
LEVEL 1
Dumfries & Galloway Council
LANDSCAPE
LOCAL AUTHORITY
CHARACTER
(e.g. county/district)
PLATEAU TOP RIVER VALLEYS
Loch Lommond & Trossachs proposed National Park
TYPES
Staffordshire County
LANDSCAPE
CHARACTER EXE VALLEY TAVY VALLEY
AREAS
1
LEVEL 2
LANDSCAPE
CHARACTER VALLEY SIDE VALLEY BOTTOM
TYPES
LOCAL
1
LANDSCAPE
LEVEL 3
CHARACTER BIDDLECOMBE EDGE CHUDLEIGH FRINGE
AREAS
1
Some practitioners use this parallel system in parts of England but it is not used in Scotland
the council area level in an individual parish, or an 2.15 Assessments can also be
Scotland. The appropriate scale estate or farm, a country park carried out at intermediate levels
of working is normally 1:50,000 or a proposed development between those noted above but the
or 1:25,000 scale. This results site. At this local scale it is same general principles should apply:
in the definition of landscape important to set the area
types, which have unity of firmly in the context of a • there should be a clear distinc-
character due to particular wider character assessment, to tion between landscape
combinations of landform and show which landscape character types and landscape
land cover, and a distinct pattern type/area it falls within. A character areas whatever the
of elements. They might include detailed assessment may then scale (although at smaller scales
river floodplains, plateau either map landscape types it is often appropriate to deal
moorlands or enclosed and/or areas at an even finer only with local character areas);
farmland. Once again, character scale, or add detail by mapping • the assessment should relate to
areas at this scale are the and describing the individual landscape character types
discrete geographical areas elements which contribute to and/or areas established at
where each type occurs, the character of the area, such higher and lower order levels
conveying a sense of place. as hedges, arable fields and and should form a seamless
farm buildings. Local assess- connection with assessments on
• Local scale: Sometimes it ments may also consider the either side of administrative
may be necessary or appropri- contribution made by the site boundaries;
ate to carry out an assessment to the character of the • the more local the scale, the
of a smaller area at 1:10,000 surrounding area as well as greater the level of detail
or even larger scales, such as views into and out of it. required.
11Principles and process
Figure 2.3: The Landscape Character Assessment spatial hierarchy - an example of the relation-
ship between the different levels [2]
Character Area
(National/Regional Level)
Joint Character Area 36 - The South Pennines
(from The Character of England)
J2
Character Type Character Types
(County /District Level) J1 H2
H1
(County/District Level)
B1
Moorland Hills KEIGHLEY South Pennines Landscape
A1 BINGLEY
E4
D8
F6 E5
D3
A1 K
A1
E4 G2
HEBDEN
C BRIDGE
G3 D1 G1
C F2
C TODMORDEN D1
B2 F2
HASLINGDEN BACUP
G4
DARWEN D5 I3 A1 D2
E3 RAWTENSTALL
F3
I5
F1 A1
B2 A1 F8 E2
B2 D4
I2
I4 RAMSBOTTOM
D4 A1 D7
E3
I1 F4
E1
E3 F5
D6
E1
F7 A2 D7 F5
Character Area H1
(County /District Level)
H2
B1
Rombalds Hills
KEIGHLEY
Character Types (Hypothetical) Character Area
(Local Level) (Hypothetical)
1. High Moorland Tops (Local Level)
2. Grassy Moorland Fringes Rombalds Top
3. Complex Moorland Mosaic
Source: Derived from LUC (1999) South Peninnes Landscape Character Assessment. For SCOSPA, Bradford.
12Principles and process
Figure 2.4: Flow diagram of Landscape Character Assessment methodology
STEP 1 DEFINE SCOPE
Purpose Scale and People and Scope for
and Aims Level of Detail Resources Required Stakeholder Input
STAGE 1
POSSIBLE
STEP 2 DESK STUDY STAKEHOLDER
INPUT
Natural Factors Cultural/Social Factors
Landcover/
Geology Landform Drainage Soils Land Use Settlement Enclosure Time Depth
Vegetation
CHARACTERISATION
POSSIBLE
Draft Landscape Character Types and/or Areas STAKEHOLDER
INPUT
STEP 3 FIELD SURVEY
Aesthetic and Condition
Perceptual Perceived Sensitivity
Aspects Character Trends
POSSIBLE
STEP 4 CLASSIFICATION AND DESCRIPTION STAKEHOLDER
INPUT
Map of Descriptions of Identify
OUTPUTS Character Character Key
Types and Areas Types and Areas Characteristics
STAGE 2 MAKING JUDGEMENTS
POSSIBLE
DECIDING THE APPROACH STAKEHOLDER
STEP 5
TO JUDGEMENTS INPUT
Define Approach Research other Field Observations
and Criteria evidence
POSSIBLE
STEP 6 MAKING JUDGEMENTS STAKEHOLDER
INPUT
Landscape Information Special Landscape Proposals for
OUTPUTS Enhancement for Planning Recognition Strategies and Location and
e.g. Proposals Policies Guidelines Design of
Development
Footnote: Stakeholder contributions may be possible at all stages.
The whole process may be iterative.
13Principles and process
Box 2.2: Main steps in Landscape Character Assessment
STAGE 1: CHARACTERISATION
These are the practical steps involved in initiating a study, identifying areas of distinctive character, classifying and
mapping them and describing their character:
• Step 1: Defining the scope. All Landscape Character Assessments need a clearly defined purpose.This
will critically influence the scale and level of detail of the assessment, the resources required, those who
should be involved in its preparation, and the types of judgement that are needed to inform decisions. As
part of defining the scope, it is normally essential that a familiarisation visit is undertaken to allow those
involved in commissioning or carrying out the assessment to learn more about the character of the
location’s landscape.
• Step 2: Desk study. This involves review of relevant background reports, other data and mapped informa-
tion, and use of this information to develop a series of map overlays to assist in the identification of areas of
common character (usually draft landscape character types and/or areas).
• Step 3: Field survey. Field data is collected in a rigorous way to test and refine the draft landscape
character types/areas, to inform written descriptions of their character, to identify aesthetic and perceptual
qualities which are unlikely to be evident from desk information, and to identify the current condition of
landscape elements.
• Step 4: Classification and description. This step then refines and finalises the output of the characteri-
sation process by classifying the landscape into landscape character types and/or areas and mapping their
extent, based on all the information collected, followed by preparation of clear descriptions of their charac-
ter.These descriptions will often recognise ‘forces for change’, such as key development pressures and trends
in land management.
STAGE 2: MAKING JUDGEMENTS
• Step 5: Deciding the approach to judgements. Further work is usually needed to decide on the
approach to making the judgements that will be needed to meet the objectives of the assessment. This will
require thought to be given to the overall approach, the criteria to be used and the information needed to
support the judgements to be made. Decisions will be needed on the role to be played by the stakeholders.
Sometimes, especially if judgements are needed about landscape value, it may be necessary to look for
evidence about how others, such as artists and writers for example, have perceived the area. Additional field
work may be necessary, especially when additional applications of the assessment only emerge after the
original characterisation has been completed. Information from the field survey will need to be reviewed on
topics such as the condition of landscape elements and features and the sensitivity of the landscape to
change.
• Step 6: Making judgements. The nature of the judgements and the outputs that may result from the
process will vary according to the purpose of the assessment (see Chapter 7). The main approaches to
making judgements within the landscape assessment process are:
- landscape strategies;
- landscape guidelines;
- attaching status to landscapes;
- landscape capacity.
14Principles and process
process and will be made by politi- the process should be seen as an
SUMMARY OF THE cians, land managers and, ideally, a investment, resulting in more
PROCESS wide range of other stakeholders, informed assessments and greater
2.16 The sequence of work on the basis of the information ownership of the results and appli-
involved in carrying out a presented and the strength of the cations.
Landscape Character Assessment is supporting argument.
shown in Figure 2.4. This distin- 2.20 More detailed information
guishes between the relatively NEW EMPHASIS about approaches to stakeholder
value-free stage of characterisation ON STAKEHOLDER involvement, some of the methods
and the more value-laden stage of PARTICIPATION which may be used, and practical
making judgements to inform 2.18 To date the majority of examples of these approaches, can
decisions. There are six main steps Landscape Character Assessments be found in Topic Paper 3.
in the process, each of which is have been prepared by profession- Practitioners embarking on a
described in detail in the chapters als for use by professionals. But Landscape Character Assessment
that follow. The steps are there is growing recognition of the are urged to review this material
summarised in Box 2.2. It should need to find ways of involving the and consider how they can involve
be noted that in reality the steps much wider constituency of people the full constituency of stakehold-
relating to desk study and field who have a particular concern, ers in their work.
survey should be iterative. The involvement or stake in the
desk study must not be overly landscape. The term ‘stakeholder’ THE OUTPUTS
deterministic, recognising that there describes the whole range of FROM AN ASSESSMENT
may be real landscape differences individuals and groups who have an 2.21 All Landscape Character
that are not obvious from mapped interest in the landscape. This may Assessments must clearly state
information. Equally field survey be through their direct involvement their purpose. They should make a
may highlight questions that need in management of the land, through clear separation between the
to be checked via desk study and their knowledge of and interest in a outputs from the characterisation
therefore possibly require more particular subject, or because they process, and the outputs associated
than one stage of fieldwork to have an attachment to a particular with making judgements to meet
conclude the character areas place, as residents or visitors. This particular needs. This may be
identification. emphasis fits well with government achieved by producing two separate
requirements for local authorities reports or two parts of the same
2.17 Some assessments may stop to develop approaches to commu- report.
after completion of Stage 1, the nity planning, cultural strategies, and
characterisation of the landscape, Best Value performance plans and Outputs from characterisa-
with the map and accompanying indicators. tion (Stage 1) should:
descriptions of character types • summarise the brief and
and/or areas as the final product. 2.19 There is still some way to go indicate the scope of the study,
This then stands as a neutral state- in developing approaches to stake- including the role played by
ment of the current character of holder involvement in Landscape stakeholders and the intended
the landscape. This can be used to Character Assessment and there audience;
raise awareness of the distinctive- are still relatively few practical • explain the methodology
ness of the landscape and examples of good practice. Much followed;
encourage appreciation of the has still to be learnt about the • include a contextual description
differences between individual most appropriate stage of such of the study area;
areas. Where the assessment has work for stakeholders to • indicate how the assessment fits
been undertaken to inform a contribute - as Figure 2.4 shows it with other Landscape Character
particular decision or policy, is possible at virtually all stages. It Assessments at larger and
however, the assessment will move may though be more practical and smaller scales and in adjacent
on to make judgements about cost effective at some stages than administrative or geographical
landscape character. Ultimately the others. There are real resource areas;
decisions themselves lie beyond the costs of achieving worthwhile • include a clear map or maps, at
Landscape Character Assessment stakeholder involvement. However, an appropriate scale, showing
15Principles and process
the extent of the landscape Outputs associated with
character types and/or areas making judgements
identified; (Stage 2) should:
• include clear and accurate • make fully transparent the
descriptions of the landscape approach adopted to making
character of each type and/or judgements, including the
area identified, avoiding value specific criteria used;
judgements; • explain the reasons for adopting
• include photographs and illus- a particular approach to making
trations, as appropriate, to judgements;
illustrate the character being • state who made the judgements
described; and the role played by stake-
• identify the key characteristics holders;
of each landscape type and/or • ensure that the judgements
area i.e. those combinations of made are clearly linked to the
elements that make a particular results of the characterisation.
contribution to creating distinc-
tive character.
GOOD PRACTICE POINTERS
• Landscape Character Assessments should make a clear distinction between:
- characterisation, which is relatively value-free and is concerned with identifying, classifying and
describing areas of distinctive character; and
- making judgements to inform particular decisions, which may use one or a combination of
approaches depending on the purpose of the exercise.
• Determine the appropriate level in the hierarchy which will suit the application of the work and provide
the right scale and level of detail of information. Relate the findings to other levels in the hierarchy where
appropriate.
• All characterisation must make a clear distinction between landscape character types and landscape
character areas.
• Make clear at all stages the extent to which judgement (professional, stakeholder, political etc) is being
applied in the methods used.
• Ensure that some element of stakeholder involvement is included, with appropriate time and resources
identified early in the whole exercise. Stakeholder involvement is especially important at the local level
and in informing judgements based on landscape character.
16CHAPTER 3
DEFINING THE SCOPE (STEP 1)
ASKING THE
RIGHT QUESTIONS Box 3.1: Questions to ask in defining the scope of an
3.1 The scope of an assessment assessment
must be defined at the outset to
ensure that the work is effective. Purpose and aims
The checklist of questions in Box • What are the purpose and aims of the assessment?
3.1 should help those embarking
on an assessment, or those review- Scale and level of detail
ing or using an existing assessment, • How should this assessment relate to other assessments in the
to give proper consideration to its hierarchy?
scope. • At what scale should the assessment be carried out?
• What level of detail is required to meet the aims?
PURPOSE AND AIMS • Should landscape character types and/or areas be identified?
3.2 Landscape Character
Assessments are now being used Making judgements
for a wide range of purposes (para • What judgements need to be made to inform the purpose of the
1.15). It is essential that the assessment?
ultimate purpose be known as this
will influence many aspects of how People, resources and timing
the assessment is carried out and • Who are the stakeholders and how and when should they be
the results used and disseminated. involved?
An assessment may, however, be • What skills are needed?
undertaken for one specific • To what extent should GIS be used?
purpose, but then be used for a • How will the assessment reflect seasonal differences?
wider range of uses. In other cases
the initial purpose may simply be to Outputs
provide a baseline inventory and • What form of character description is required?
description of landscape character, • Will the description of character be kept separate from subsequent
and only later will the outcome be judgements about landscape character (to inform decisions)?
applied for particular purposes. • What form will the outputs take - report(s), CD Rom, video, inter-
This is why it is so important to active web site?
separate (value-free) characterisa- • How will the assessment be updated?
tion from subsequent evaluative
aspects where judgements are
made to inform decisions.
The Character of England map [9] the resources required and the
SCALE AND or SNH Level 3 map, as these do costs of such work.
LEVEL OF DETAIL not provide the level of detail
3.3 The purpose of the work will required. Several issues need to be Relationship to
determine the scale and level of addressed when making decisions existing assessments
detail that is appropriate. For about the appropriate scale and 3.4 All new assessments should
example, it would be entirely level of detail for an assessment. be designed to fit within the frame-
inappropriate to make detailed Careful thought is required as these works provided by the national
housing allocations on the basis of matters will have a major effect on landscape character programmes of
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