Landscape and Landscape Assessment
Consultation Draft of Guidelines for Planning Authorities
June, 2000
INTRODUCTION
Against the background of increasing development pressure, the National
Development Plan and the preparations being made for the production of a national
spatial strategy, the centrality of landscape considerations is becoming more apparent.
There is an urgent need to approach landscape appraisal in a systematic way – a way
which will enable us to take a proactive view of development while maintaining that
respect for the environment and heritage generally which is required by sustainability.
We have inherited our present landscapes. Many of them are the result of sustainable
practices down through the centuries. The principles of sustainability which underpin
current planning practice and legislation require us to so deal with our landscapes that
we do not hand them on to future generations in a degraded condition.
BROADER DEFINITION OF LANDSCAPE
The only available, quasi-official, document providing guidance on landscapes at a
national level is Outstanding Landscapes, An Foras Forbartha, 1976. More recent
approaches to landscape – appraisals which have been done extensively in Britain and
Northern Ireland - are based on a different understanding and use a different method.
In the first place landscape embraces all that is visible when one looks across an area
of land. Equally the Draft Convention on Landscape proposed by the Council of
Europe examines all landscapes. This new approach has several effects, two of which
are of immediate relevance to these Guidelines:
1.
As well as being an important part of people’s lives - giving individuals and
communities a sense of identity and belonging and bestowing a sense of place
on our surroundings - landscape is the context in which all change takes place.
No development can take place which does not change the landscape. As has
happened right through history, the landscape is constantly changing both
through the actions of nature and human intervention. The challenge to our
generation is to bring about change in a way that is respectful and creative.
Our landscapes are therefore a resource which is to be used prudently and
sustainably; they are the matrix through which, with our design skills and
ingenuity, we can accommodate development.
2
2.
A second consideration that follows is the need to look afresh at appraisal
systems which will take this broader, more proactive view into account. We
need a system which is more factual, a system which will essentially describe
the distinctness of one landscape type from another and which will avoid an
evaluation which tends to rank one landscape as better than another.
LANDSCAPE CHARACTER ASSESSMENT
These Guidelines recommend the assessment method known as Landscape Character
Assessment. The method, which is explained fully in the text and appendices, moves
away from concepts such as sublime, beautiful, outstanding, etc. as criteria or as a
means of categorisation. These are the very categories which gave rise to a view of
the landscape which was unnecessarily restrictive, protectionist and conservationist.
The new method favours characterisation i.e. the discernment of the character of the
landscape based initially on landcover – trees, vegetation, settlements, water etc. and
landform which results from geological and geomorphological history. Added to this
first level of assessment is a second layer (which in fact will be represented by an
overlay on the character map). This second layer, described in the Guidelines as
values, takes historical, cultural, religious and other understandings of the landscape
into account.
PROACTIVE APPROACH
This method of assessment allows for a much more proactive approach to landscape.
It allows us to view landscape for its ability to accommodate developments, gives
indicators as to which developments might be most suited, under what conditions and
using what design criteria. It shall, therefore, be possible for local authorities to
indicate particular landscape areas which would be suitable for one kind of
development while not being considered suitable for another. These policy responses
will correspond to the degree of sensitivity of a particular landscape.
3
Table of Contents
1.0
CONTEXT ............................................................................................................................. 5
1.1
SCOPE ............................................................................................................................. 5
1.2
NATIONAL POLICY ISSUES .................................................................................................. 6
1.3
AIM OF LANDSCAPE GUIDELINES ....................................................................................... 7
2.0
A SYSTEMATIC APPROACH........................................................................................... 8
2.1
LANDSCAPE CHARACTER .................................................................................................. 9
Stage 1: Identification of Physical Units .................................................................................. 9
Stage 2: Identification of Visual Units .................................................................................... 10
Stage 3: Identification of Image Units .................................................................................... 11
2.2
LANDSCAPE VALUES ......................................................................................................... 11
2.3
SENSITIVITY ..................................................................................................................... 13
2.4
POLICY RESPONSES ......................................................................................................... 15
3.0
DEVELOPMENT PLAN ................................................................................................... 15
4.0
DEVELOPMENT CONTROL .......................................................................................... 16
5.0
CONCLUSION ................................................................................................................... 18
4
No Irish Landscapes are 'natural' in the
1.0 Context
sense that all have been touched or
moulded
1.1
Scope
by human activity. For
example, the attractive field patterns
In these Guidelines landscape is taken
that are a feature of many of our
to embrace all that is visible when
landscapes are essentially the results of
looking across areas of land. It may
such utilitarian needs as boundaries,
therefore include a number of elements
enclosures and drainage.
such as mountains, hills, coastline,
'In long and closely settled areas
woodlands, buildings and settlements.
such as Ireland, the human
In these guidelines “Landscape” does
not
‘per
streetscapes
impression is so pervasive that it
se’ include the notion
and
therefore
is appropriate to speak of a
the
cultural landscape... A rigid
Guidelines do not directly address
distinction between natural and
specific considerations of streetscape
cultural landscapes is, however,
in towns and cities whether of layout,
misleading,
height, design or other. Historically the
since
natural
processes operate in both…'
term landscape came into use in the
(Aalen)
context of art and painting.
Earlier
Landscape is a precious national asset.
publications
on
landscape
favoured methods of classification
The Irish countryside comprises great
which included categories such as
diversity resulting in an extraordinary
sublime or beautiful. These older
variety. It is important for individuals
methods gave rise to a tendency to
and communities in that it gives a
concentrate
sense both of place and of belonging.
only
on
'outstanding
landscapes'. In that context planning
It provides the setting for many
policies tended to be reactive, and, in
activities and the context in which
general, to deal almost exclusively
development takes place. There is a
with 'special' landscapes and then by
growing appreciation of the importance
way of strict conservation which
of landscape for development in
prohibited any intervention.
general, for recreational activity and
for tourism.
5
In the considerations that follow, all
These Guidelines will propose that all
landscapes,
Local
that
is
'ordinary'
Authorities
classify
the
landscapes and not just so-called
landscape in their area according to
special landscapes, will be treated. The
character, values and sensitivity.
Guidelines will propose that all Local
Authorities classify the landscape(s) in
1.2 National Policy Issues
their area according to the character of
these landscapes (see para 2.2). The
National
character, which is a product of
and
landuse,
can
of economic growth over the past
decade has advanced the need for
visual distinctiveness and identity.
summary,
the
complexity
housing,
infrastructural
communications
of
landscape can be expressed as follows:
equal
 A context which is nature based
Sustainable
but
which
also
is
the
development. The unprecedented rate
be
established for an area where there is
In
recognises
centrality of social and economic
landform and landcover, including
vegetation
policy
and
installations.
urgency,
The
With
National
Development
Strategy
aims to carry consideration for the
typically
environment
modified by humans
into
all
aspects
of
development.
 It comprises:
-
physical
elements
The
and
approach
that
is
suggested,
therefore, stems from the fact that
processes
every act of development changes a
-
visually
perceived
landscape. It is important to bear in
compositions
mind, however, that the change can be
 Landscape is at once physical and
positive, neutral or negative. It is
symbolic
Government policy that in deciding for
or
 It is never static, but always
against
development
that
the
appropriateness of that development
dynamically changing
within the given landscape context be
 It includes all landscapes and not
considered.
only the scenic and important
prospects
6
Planning authorities have a duty under
It is acknowledged that planning law
the Local Government Act, 1991, in
on its own is not sufficient to ensure
the performance of their functions
the management, development and
under any enactment, to have regard to
conservation of our landscapes and that
policies
other inputs from local and national
and
objectives
of
the
Government or any Minister in so far
agencies are required.
as they may affect or relate to their
By proposing the same approach for
functions. Planning authorities must
each planning authority, there will be
have regard to the policy implications
consistency
of these Guidelines in planning and
promoting
development
which
nationwide
in
all
authorities, ensuring compatibility of
is
decision making along boundaries
sustainable and, therefore, respectful of
between adjoining authorities. As a
the environment. These Guidelines are
result of the process, it is foreseen that
addressed to all planning authorities
in time a national map which will
and An Bord Pleanála.
illustrate landscape character areas,
values and sensitivity will result.
1.3
Aim
of
Landscape
This approach should also provide an
Guidelines
input to
While it is national policy to respect
each landscape as the context in which
development takes place, issues of

Regional planning policies

Studies of development potential

Strategies
for
new
forms
of
balance will have to be decided locally.
development, e.g. mobile phone
The aim of these Guidelines is to
masts and base stations, windfarms
heighten awareness of the importance
etc.

of landscape in all aspects of physical
Capacity studies (and therefore a
sustainability indicator)
planning, to provide guidance to
planners and to others as to how

Housing and roads
landscape considerations should be

Forestry and development on urban
edge
dealt with and to indicate specific
requirements for Development Plans

Agri-environmental schemes
and for development control.

National Spatial Strategy
7
2.0
Key Concepts It is essential to
A Systematic
distinguish
Approach
character
types
and
character areas within the overall
The planning and management of
concept of landscape character.
development requires a thorough and
 types are generic expressions of
systematic approach to landscape. The
is
distinctive character, examples of
advocated in these Guidelines provides
which might be drumlins, rolling
for the classification of landscapes
farmland, mountain moorland…
method
or
framework
which
according to the following:
 areas are geographically specific
(1)
CHARACTER,
examples of types, examples of
(2)
VALUES
which might be south Leitrim low
(3)
SENSITIVITY
drumlins, west Limerick rolling
As a basis for providing an overview
farmland, and Wicklow mountain
of the many issues involved in
moorland…
‘landscape’, summary definitions of
Landscape Assessment
key concepts and terms are outlined
below.
Landscape Character
Character can be established for an area
where there is visual distinctiveness and
identity through a continuity of similar
characteristics.
Landscape Assessment
Landscape
Character
Values
Values can be described as the
environment or cultural benefits that are
derived from various landscape
resources. These resources may include
physical and visual components as well
as ‘image’elements.
Landscape Values
Landscape Sensitivity
Landscape Sensitivity

The extent to which a landscape can
accommodate change without
unacceptable loss of existing character or
interference with values.
Policy Responses
Local Authority
Landscape
Planning
8
The above aspects of landscape may be
Stage1:1:Identification
IdentificationofofPhysical
PhysicalUnits
Stage
Units
taken separately for the purposes of
analysis.
This
analysis
should,
however, result in the production, for
The first stage concerns physical
each Planning Authority area, of a
elements and components that result
practical, planning tool comprising the
from the combination of landform and
following:
landcover.

A map, or series of maps and
Landform
photographic
descriptions
and
written
Landform is concerned with the spatial
which
represent
and formal arrangement of landscape
landscape character areas
components as a natural product of

Overlay of values
geological

Overlay of sensitivity.
and
geomorphological
history. This level of categorisation can
be achieved planimetrically by using
available
geological
2.1 Landscape Character
The
process
landscape
of
character
Landcover
Landcover is concerned with the more
of
detailed constituent parts as manifested
(desk-study
on the surface, both natural and man-
Stage 1 – Identification
Physical
Units
made, and comprises vegetation, water
mapping exercise)
bodies or rivers and includes buildings
Stage 2 - Identification of Visual
Units
(verify
involving
physical
on-site
and
units
human
settlements.
Satellite
imagery together with Corine landuse
landscape
maps and aerial photographs as well as
assessment)
other

geo-morphological
pattern.
stages:

and
maps,
will
correspond to the following three

contoured
studies, water catchment and drainage
establishing
areas
O.S.
Stage 3 - Image Units
studies
patterns,
of
soils,
field
enclosure
forestry,
other
vegetation and settlements will inform
The above three stages are described in
the development of a landcover map.
the following paragraphs.
9
When both these maps are overlaid the
take place and against which their
result is a physical unit map. This
compatibility will be evaluated. A
simply means that the result of this
single visual unit may comprise a
initial investigation, both in map form
number of physical units.
and
in
written
or
photographic
The boundaries of visual units can
descriptions, is an objective statement
typically be identified through field
of 'what is there' physically on the
verification by one, or a combination,
surface resulting from geology, soils,
of the following:
hydrology, topography, vegetation and

landuse. It thus provides an initial, but
Physical limits of a view or
as yet incomplete, understanding of
prospect,
landscape. This will be verified in the
mountainous
field as part of Stage 2.
enclosing, for example, steep-sided
such
as
areas
defined
by
in
ridges
glaciated valleys.
Appendix 1 provides greater detail
on the method of creating physical

units.
Physical
limits
of
a
water
catchment as would be relevant in a
lower rolling hill landscape.

Stage 2: Identification of Visual Units
The
‘gateway’
between
areas
contrasting in their degree of
spatial containment, such as at the
The landscape that is of most interest
mouth of a steep sided valley
to planners is that which is perceived
which flows out towards more
three-dimensionally from the ground,
open country below.
rather than viewed from the air. Visual
While these visual units will constitute
units are described as areas defined by
the
spatial enclosure and pattern which are
basic
development
determined by landform and landcover.
units
within
proposals
which
will
be
considered, it will also be necessary to
It is important to appreciate that,
consider links between them.
however complex in composition, it is
within visually perceived units that
different kinds of development will
10
Appendix 2 outlines in greater detail
are those realities which satisfy human
the method of identifying visual
needs and desires. Not all values are
units.
understood to be of equal importance.
Stage 3: Identification of Image Units
Frequently
communities or societies
subscribe to a particular hierarchy or
In certain landscapes a physical feature
prioritisation of values. This results in
is of such dominance that it acts as a
a generally accepted value system or
major focal point. In such cases, a
code of practice.
visual
‘field’
results
from
the
With
association of part of the landscape
almost
equal
frequency an
individual or group may so prize a
character as established under Stage 1
value
and/or Stage 2 with that feature. This,
that
they
will
pursue
its
attainment to the exclusion of all other
therefore, creates an image or place
values. Situations of this nature will
identity which is distinct from that
generally give rise to conflict and their
derived simply from the physical or
resolution may require the intervention
visual. An example might be the visual
of third party facilitators.
field created by such landmarks in Co.
Sligo as Benbulben and Classybawn
Thus as an addition to the character of
Castle.
a
landscape,
communities
or
individuals will attach certain values to
Appendix 3 gives greater details of
that landscape. This attribution will
the method of identifying image
often be the result of consensus,
units.
national or local, popular or academic.
Appendix 4 outlines how each of the
Landscape values can be described as
three stages of landscape character
assessment
combine
to
the environmental or cultural benefits,
identify
including services and functions, that
character areas.
are derived from various landscape
attributes. These attributes will, in
many instances, be the components and
2.2 Landscape Values
image of the landscape as already
Landscape values are the second major
established
component of these Guidelines. Values
landscape character.
11
in
the
assessment
of
In some instances a particular landform
importance. This becomes particularly
may itself be considered a value. It
clear when weighed against those other
may be that the character of a given
socio-economic
landscape makes it a particularly
housing, employment, leisure facilities,
striking representative of its kind,
etc. The provision of these is often a
providing identity based on uniqueness
pressing social need and therefore a
or rarity.
value.
Some of the more frequent values
Landscape
(singly or in combination) which will
qualifying and potentially constraining
be attributed to a landscape are the
influence upon development which
following:
would
involve
While
a

aesthetic - most frequently visual,

to
cases
is
and
environmental
ecological - habitats, biotopes,
values and the resulting sensitivity of
wildlife sanctuary, Special Areas of
the landscape is an important counter-
Conservation, Natural Heritage
balancing force indicating the need for
Areas and Special Protection Areas
careful planning and sensitive design.
historical - archaeological heritage,
Values
are
sometimes
less
than
accurately described as subjective. The
socio-cultural - buildings,
systematic approach suggested here
settlements, monuments, social
implies
history or social geography
landscapes,
that
values
the
value
attributed
to
judgements
involved in the resolution of conflicts
religious - shrines, wells, burial
or the establishment of priorities, can
places, pilgrimages

change.
approach
many
a
enhancement, the identification of
artefacts, field patterns

landscape
in
as
introduce
proactive
progress
Amenity

such
necessary to ensure socio-economic
Landscapes, Areas of Special

values
development
vistas, scenic areas, Outstanding
values
be rationally debated and can be
mythological - ancient Celtic
defended with arguments based on
stories....
evidence,
consensus.
All of these values are real but not
everyone will agree as to their relative
12
reasons,
precedents
and
It should be noted that for this stage
Evaluation of sensitivity is ultimately
great care will be taken to consult
concerned with providing a basis for
widely. It will be important to achieve
decision making in order to achieve
local consensus. National authorities
environmental
with responsibility or expertise in the
ready formulae to achieve this are not
field should also be consulted as in
available,
some instances it may not be fully
systematically identify, examine and
appreciated locally that certain values
compare the factors that ultimately will
may be of national or international
prioritise
importance.
environmental sustainability.
The assessment of values attaching to
Where a wide range of developments
various landscapes, together with the
would sit comfortably in a particular
necessary
process
landscape and not interfere with a
involved in this part of the assessment,
character or interfere with or eliminate
will be the responsibility of each
a value, such a landscape is deemed to
planning authority.
be of low sensitivity.
Appendix 5 outlines in greater detail
On the other hand where any proposed
the method of arriving at values.
development would seriously damage a
consultation
it
sustainability.
is
certain
While
possible
values
to
for
character or eliminate or seriously
2.3
damage an irreplaceable value, such a
Sensitivity
landscape would be considered to be
The sensitivity of a landscape to
highly sensitive.
development and therefore to change
will vary according to its character and
to the importance which is attached to
While sensitivity will be evaluated
any single value or combinations of
principally
values which are attributed to that
considerations of the character of the
landscape.
landscape sometimes will enter the
The
sensitivity
of
a
in
relation
to
values,
landscape is the measure of its ability
equation.
to accommodate change or intervention
character of the landscape – because of
without suffering unacceptable effects
its uniqueness or because it is a
to its character and values.
particularly good representative of a
13
Put another way, the
particular character type, may make
national; maybe economic or
that
tourist interest.
landscape
highly
sensitive.
Additional values attaching would
increase the sensitivity.
Areas of sensitivity will often be
recorded
Some or all of the following indicators
Quality:
Is
character
type
the
degraded
 Earlier County Development
Plans
changed,
 Area reports
removed,
interfered with by unsympathetic
 Tourist maps
structures.

 Products of the arts, including
Distinctiveness:
Very striking
paintings, literature…
example of the value or character
 Landscape Conservation Areas
type.

the
SA, SAAOs)
or
Integrity: Have rare elements
been
in
 Designations (eg. SPAs, ASAs,
particular
unspoiled…?

represented
following documents:
should be taken into account

or
(Planning and Development
Popularity: Where the feature is
Bill, 1999)
widely recognised or appreciated.
Where values are deemed to be

Rarity: Very few examples exist.

Cultural

strong
conservation
oriented approach might be adopted.
explains, represents or inspires
Conversely, where it is agreed that
cultural values.
value(s)
Either
of
Public
because
of
proactive
the
from
local
low
importance,
stance
on
development
It will be the function of the planning
May range
importance
of
would be appropriate.
widely shared meaning.
Social Importance:
are
plentiful and easily replaceable, a more
Ownership:
accessibility, visibility or the

a
Either
Sense
Meaning:
important
authority
to
to
categorise
landscapes
according to their sensitivity. From
such categorisation will flow the
14
planning authority's policy responses to
in paragraph 3. On Development Plan
various developments.
and in Appendix 6.
Landscape
sensitivity will always be related to the
type
and
scale
developments.
of
For
proposed
example,
3.0
a
Development Plan
moderately sensitive landscape may
The development plan will be the
accommodate a well designed small
means by which each authority will
scale development while a large scale,
spell out its policies and objectives in
more intrusive development would not
relation to the landscape of its area. At
be suitable.
the earliest possible time within the
review framework of the development
Appendix 6 gives in greater detail
plan, authorities should set in train the
the method of classifying landscape
measures necessary to categorise their
sensitivity
landscapes according to the methods
outlined in these Guidelines.
2.4
Policy Responses
Each plan should contain a general
The task of the authority will be to
statement to the effect that landscape
establish a policy response in relation
considerations will be an important
to the various identified degrees of
factor in all land use policy for the
sensitivity in its area. As has been
area.
pointed out, the sensitivity will derive
from
values
and
character.
The plan should map and describe
The
character
responses, which will be grounded in
the
principles
sustainability,
and
will
practice
range
areas
(together
with
associated values) and the degree of
of
sensitivity
from
associated
with
each
character area or specific locations in
encouragement of certain types of
that area.
development in some landscapes to, at
the other end of the scale, prohibition
It should describe the authority’s
of any development, in order to ensure
policy in relation to each landscape
the total preservation and conservation
area
of the particular landscape. See further
objectives.
15
and
formulate
appropriate
Among the many possible examples
designation,
the following might be considered:
Conservation Areas under the Planning

e.g.
as
Landscape
and Development Bill, to proactive
Confining development to the
encouragement
midslopes of drumlins or at the
of
certain
developments or activities.
foot of ridges.

House
builders
might
be
4.0
encouraged to integrate with
their surroundings and to choose
4.1 In those decisions where landscape
less intrusive locations rather
considerations are relevant, and this
than maximising their views
outwards;
this
would
will be in the majority of cases, regard
apply
should be had to the policy and
equally to estates on the fringes
objectives of the Development Plan for
of settlements and to single
the particular landscape character,
houses in the countryside.

Development Control
values and sensitivity in question.
Consider policies and objectives
which would seek to guarantee
the
patterns
of
fields
4.1.1
and
Such
decisions
will
woodlands which contribute to
predominantly relate to rural settings.
the
It should however be borne in mind
scenic value of certain
that development on those areas of
landscape character areas.
interface between town and country Require that special treatment be
on the outskirts of settlements and
afforded to landscapes of a
along the entrance and exit routes -
“semi-natural” character; these
may have a profound effect on the
are very often important natural
landscape. It should also be borne in
habitats. They would include
mind that settlements themselves are
ancient woodlands, sand dunes,
mudflats,
marshes,
part of the landscape. Therefore, in
heather
relation to views and prospects, views
covered hills and bogs.
outwards from a settlement may be of
Policies may range from conservation,
considerable importance in linking the
which
settlement with its broader context.
may be
achieved
through
16
4.1.2 Authorities
should
consider
4.2.1
prohibiting as far as possible ribbon

development. Such development which
associated
haphazard manner is destructive of the
character
and
On all buildings the use of local
materials and techniques and in the
is of a piecemeal, unplanned and
rural
To encourage:
paving
subdued
environment.
the
paviors
use
and,
of
where
feasible and warranted, the use of
Ribbon development is wasteful and
stone
non-sustainable with regard to the
provision and extension of services and

The effective reinstatement and
the generation of traffic patterns and
landscaping of areas affected by
volumes for which rural roads were not
quarrying
designed, and can also endanger
activities, or the installation in the
ground water quality.
countryside of telecommunications
or
other
extractive
or other masts
To discourage:
4.1.3 Equally the contextual colours,
shapes, textures and forms of the

Use
of
suburban
type
landscape will have to be considered in
entrance
gates
the overall design of buildings and
building
vernacular
other developments.
countryside

and
walls,
suburban
in
the
Indiscriminate use of exotic plant
species especially on road sides and
4.2 Where conditions are attached
around rural gardens / sites and
which relate to landscape character
where possible the limiting of such
areas, this should be explicit. Apart
species to more formal or specialist
from the general considerations in para
gardens
4.1 above some of the following may
be useful:

Use
of
brightly
multicoloured
coloured
brick
or
or
panel
paving which is out of character
with rural areas
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5.0
Conclusion
Change brought about by development
is inevitable. Such change should be
planned and designed in response to
the character of the particular area
concerned. Landscapes are not meant
to be fossilised; they must however be
respected. What is now necessary is
that we have an evenness of approach
and method by all planning authorities.
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