Development planning: the backbone of the planning system

Last updated: 2 July 2025

The development plan is a key part of the planning system. It contains planning policies and maps showing what different areas should, and shouldn’t, be used for. The development plan is made up of the Fourth National Planning Framework (NPF4) and the local development plan (or plans) for the local area. Planning decision-makers must take into account national and local planning policies set out in these plans when deciding whether to approve or refuse planning permission.    

The NPF is the national spatial strategy, produced by Scottish Ministers, and sets out the spatial planning principles, regional priorities, national developments and national planning policy. The Fourth National Planning Framework, NPF4, was adopted by Scottish Ministers in February 2023. It now forms part of the statutory development plan for all planning authority areas across Scotland and so must be considered when planning applications are being determined by planning authorities or Scottish Ministers. 

Improving biodiversity is one of NPF4’s six statutory outcomes and is a ‘cross-cutting theme’ which runs throughout the strategy, alongside climate change. 

Every planning authority in Scotland must produce a local development plan (LDP). An LDP sets out a spatial strategy for its area containing policies and proposals as to the development and use of land. A local development plan must include targets for meeting the housing needs of people living in the area. 

There are also a number of other policy-type documents that either must or may be prepared to inform or support the development plan.  

Planning authorities must also produce an open space strategy for their area. This sets out a strategic framework of policies and proposals for the development, maintenance and use of green infrastructure, including open spaces and green networks. ‘Green infrastructure’ means features of the natural and built environments that provide a range of ecosystem and social benefits. 

A planning authority, or two or more authorities acting jointly, must prepare and adopt a regional spatial strategy (RSS) to identify priorities for the delivery of strategic development in a specified area. Although legislation requiring RSSs is not yet in place, planning authorities are encouraged to develop an indicative RSS for their area. 

Local place plans add another element to the planning process. They give the community councils and other community-controlled bodies the opportunity to prepare ‘a proposal as to the development and use of land’ in their local area. The purpose of a local place plan, where one is prepared (they are not compulsory), is to influence local development by reference to the principles and policies of the local development plan. Local place plans can provide really important opportunities for local people and communities to have a say in how their area is planned and are supposed to encourage participation in the planning system. A local place plan must have regard to the policies of any local development plan for the area. 

The Scottish Government, or other organisations such as NatureScot, can produce guidance and policy documents on a range of issues. This could be to clarify or expand on policies set out in NPF4 or address a specific issue which has come up since the main documents were written.  

Planning authorities can produce their own planning guidance to provide context and detail on local development plan policies on matters such as climate change and biodiversity. Planning guidance on how to make planning applications more nature-friendly can be an important consideration in determining planning applications. 

Your local development plan: what is it and when can you get involved

Community involvement in planning