If you are considering a development project in Scotland, you may hear planners and planning officers refer to the “development hierarchy”. This system categorises development proposals as either Local, Major or National developments.
The category of development can influence how an application is processed, the level of information required, consultation requirements, determination timescales and the routes available to challenge a planning decision.
Understanding where a proposal sits within the hierarchy can help applicants better understand what to expect from the planning process.
Key Takeaway
Scotland’s development hierarchy categorises proposals as Local, Major or National developments. The category of development can influence consultation requirements, supporting information, determination timescales, processing agreements and the routes available to challenge planning decisions. Understanding which category your proposal falls within can help you better understand the planning process from the outset.
What is the Development Hierarchy?
Scotland’s planning system categorises development into three broad groups:
- Local Developments
- Major Developments
- National Developments
The hierarchy is established through planning legislation and associated regulations and is intended to ensure that planning procedures are proportionate to the scale and significance of a proposal.
The vast majority of planning applications submitted each year fall within the local development category.
What Determines Whether a Development is Local, Major or National?
The development hierarchy is not based on how controversial a proposal may be, how many objections it receives or how much it costs to build.
Instead, developments are categorised according to criteria set out in Scottish planning legislation and associated regulations.
National Developments are projects specifically identified within National Planning Framework 4 (NPF4) as being of national importance to Scotland.
Major Developments are defined by a range of thresholds which vary depending on the type of development proposed. For example, different thresholds apply to housing developments, business and industrial developments, waste management facilities and energy projects.
Any development that does not fall within the National or Major categories will generally be treated as a Local Development.
It is important to note that being classified as a Local Development does not necessarily mean a proposal is simple. Some local developments can involve significant technical issues and require extensive supporting information, while some major developments may benefit from existing site allocations or established planning principles.
The development category primarily determines the procedural framework that applies to an application, rather than whether planning permission will ultimately be granted.
Local Developments
Local developments include most smaller development proposals, such as:
- Householder developments
- Individual houses
- Small housing developments
- Agricultural buildings
- Small commercial developments
- Changes of use
- Smaller tourism developments
Pre-Application Stage
For local developments there is generally no statutory requirement for public consultation before an application is submitted, although informal discussions with neighbours, communities or the Planning Authority may often be beneficial.
Pre-application discussions with the Planning Authority are usually optional but can help identify potential issues at an early stage.
Application Requirements
The information required will vary depending on the proposal and its location, but commonly includes:
- Application forms
- Site location plans
- Site plans
- Existing and proposed drawings
- Ownership certificates
Some proposals may also require specialist information such as:
- Planning Statements
- Flood Risk Assessments
- Ecological Surveys
- Heritage Statements
- Arboricultural Reports
Determination Timescales
The statutory target for determining most local planning applications is two months, although more complex proposals can take longer.
It is also possible for applicants and planning authorities to agree extensions to the statutory determination period. This commonly occurs where additional information is required or where discussions are ongoing regarding amendments to a proposal.
As a result, the right to seek a review or appeal on the grounds of non-determination will not necessarily arise immediately after the expiry of the statutory period if an extension of time has been agreed.
Appeals and Reviews
Where a local development application is determined by planning officers under delegated powers, applicants generally have a right to seek a review by the Planning Authority’s Local Review Body.
Where a local development application is determined by the planning committee, appeals are generally made to Scottish Ministers through the Directorate for Planning and Environmental Appeals (DPEA).
If the Planning Authority fails to determine the application within the relevant statutory period, applicants may also have rights to seek a review or appeal on the grounds of non-determination.
Major Developments
Major developments are defined in legislation and include certain larger developments such as:
- Large housing developments
- Major business and industrial developments
- Significant waste management facilities
- Larger renewable energy projects
- Major tourism developments
Pre-Application Stage
Unlike local developments, major developments are normally subject to mandatory Pre-Application Consultation (PAC) requirements.
This typically includes:
- Consultation with the local community council
- Public consultation events
- Public notices
- Preparation of a Pre-Application Consultation Report
These requirements are intended to ensure that communities have an opportunity to engage with proposals before a formal application is submitted.
Application Requirements
Major developments generally require significantly more supporting information than local developments.
Depending on the nature of the proposal, this may include:
- Planning Statement
- Design and Access Statement
- Transport Assessment
- Travel Plan
- Flood Risk Assessment
- Drainage Assessment
- Landscape and Visual Impact Assessment
- Ecological Surveys
- Heritage Assessments
- Noise Assessments
- Air Quality Assessments
Some major developments may also require Environmental Impact Assessment (EIA).
Processing Agreements
Many major developments are subject to Processing Agreements.
A Processing Agreement is a project management tool agreed between the applicant and Planning Authority which establishes a timetable for handling the application and identifies key milestones throughout the determination process.
Processing Agreements can provide greater certainty for both applicants and planning authorities, particularly where complex technical issues are involved.
Determination Timescales
The statutory target for determining major applications is generally four months, although major developments frequently take longer due to their complexity and the volume of information requiring assessment.
Determination periods can also be extended by agreement between the applicant and Planning Authority, particularly where additional information is required or where a Processing Agreement is in place.
Where a Processing Agreement has been agreed, the timetable set out within that agreement will often become the principal project programme for determining the application.
Appeals
Most major developments are determined by the Planning Authority rather than by delegated officers.
Consequently, where permission is refused, appeals are generally made directly to Scottish Ministers through the Directorate for Planning and Environmental Appeals.
Rights of appeal may also arise in cases of non-determination.
National Developments
National Developments are identified in National Planning Framework 4 (NPF4) as developments of national importance to Scotland.
Examples include:
- Strategic electricity transmission infrastructure
- Major transport infrastructure
- National-scale renewable energy infrastructure
- Other projects specifically identified within NPF4
What Makes National Developments Different?
The key distinction is that the principle of a National Development has already been established through the parliamentary approval of NPF4.
However, this does not mean planning permission is automatic.
Applicants must still submit planning applications and demonstrate that the detailed impacts of the proposal are acceptable.
Information Requirements
National Developments often require extensive supporting information, including:
- Detailed planning submissions
- Technical assessments
- Environmental reports
- Community consultation material
- Environmental Impact Assessment where required
The information requirements are often similar to, and in many cases exceed, those required for major developments.
Pre-Application Consultation
Where required by legislation, National Developments are generally subject to the same Pre-Application Consultation requirements that apply to Major Developments. This typically involves consultation with the local community, public consultation events and the submission of a Pre-Application Consultation Report alongside the planning application.
Processing Agreements and Timescales
National Developments are frequently supported by Processing Agreements due to their complexity and scale.
Determination periods are often significantly longer than those associated with local developments, reflecting the scale of the proposal and the volume of technical information requiring assessment.
Pre-Determination Hearings
Applications for planning permission and planning permission in principle relating to National Developments are generally subject to a mandatory Pre-Determination Hearing before the Planning Authority reaches a decision.
These hearings provide an opportunity for elected members to hear representations from interested parties and to consider the issues raised before determining the application.
Appeals
The appeal arrangements for National Developments are generally similar to those for Major Developments, with appeals typically proceeding to Scottish Ministers where applicable.
Does the Development Category Determine Everything?
No. While the development hierarchy influences procedural requirements, it does not automatically determine how much information is required.
A relatively small development in a sensitive location may require substantial supporting information, while a larger development on an allocated site may require less.
The Planning Authority’s ability to properly assess the proposal remains the key consideration.
Further Information
The categories of development and the thresholds that define Major Developments are set out in Scottish planning legislation and guidance.
Further information can be found in:
- The Town and Country Planning (Hierarchy of Developments) (Scotland) Regulations 2009
- Scottish Government Planning Circular 5/2009: Hierarchy of Developments
- Scottish Government Planning Circular 3/2022: Development Management Procedures
These documents explain how developments are categorised within Scotland’s planning system and how the hierarchy influences consultation requirements, application procedures and decision-making processes.
Applicants should be aware that determining the correct category of development is not always straightforward, particularly where proposals involve multiple land uses, phased development or development close to statutory thresholds.
At Planning.scot, we can advise on how your proposal is likely to be categorised within Scotland’s development hierarchy and explain the implications this may have for consultation requirements, supporting information, determination timescales, processing agreements and potential routes of review or appeal.
Need Advice on a Planning Application?
At Planning.scot, we provide independent chartered town planning advice on development proposals across Scotland. Whether you are preparing a local planning application, considering a major development project or seeking advice on a nationally significant proposal, we can help you understand the requirements, identify potential constraints and navigate the planning process with confidence.
We can advise on how your proposal is likely to be categorised within Scotland’s development hierarchy and explain the implications this may have for pre-application consultation, supporting information requirements, determination timescales, processing agreements and potential routes of review or appeal.
Early planning advice can often help identify issues before significant costs are incurred and ensure that applications are submitted on a robust and informed basis. Contact us for more information and advice.