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Orkney Islands Council

The Heart of Neolithic Orkney World Heritage Site

Supplementary Planning Guidance

7 December 2010

Image courtesy of Craig Taylor

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THE HEART OF NEOLITHIC ORKNEY WORLD HERITAGE SITE SPG • 7 DECEMBER 2010

SECTION 1

The Purpose of the Supplementary Planning Guidance

The purpose of this Supplementary Planning Guidance(SPG) is to establish a detailed policy context formanaging the impact of land use planning decisionson the Outstanding Universal Value of the Heart ofNeolithic Orkney World Heritage Site. The scope ofthe SPG includes issues associated with the componentsites themselves and their wider setting.

The SPG will deliver a key Aim of the Heart ofNeolithic Orkney World Heritage Site ManagementPlan 2008-13 in terms of updating the existingdevelopment plan policy to improve clarity at an earlystage taking cognisance of the Management Plan andrecent expert studies. A Main Issues Report has beenpublished as part of the Orkney Local DevelopmentPlan Review process (20 November 2009). This notifiesof the intention to establish a fresh policy within thenew Local Development Plan relating to the WorldHeritage Site (WHS). This policy will establish ageneral commitment to preserving the integrity andauthenticity of the WHS. It will also seek to managethe impact of development on the wider setting ofthe WHS, and prevent development which wouldhave a significant adverse impact on its OutstandingUniversal Value.

The Main Issues Report specifies that SupplementaryGuidance will be prepared as part of the LocalDevelopment Plan to provide greater detail on thepolicy issues. This SPG is intended to be the first stagein this process. It is intended that this SPG willultimately be adopted as statutory supplementaryguidance and become part of the Local DevelopmentPlan in due course.

The overall objective of this SPG is twofold:

1) To ensure that high quality development, which issympathetic and appropriate to the WHS and itssetting can occur.

2) To ensure that development which will have asignificant adverse impact on the OutstandingUniversal Value of the World Heritage Site or itssetting does not occur.

ORKNEY ISLANDS COUNCIL

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SECTION 2

Background

Sites are inscribed onto the WorldHeritage List by UNESCOfollowing their successfulnomination by a state party underthe auspices of the ConventionConcerning the Protection of theWorld Cultural and NaturalHeritage 1972 (World HeritageConvention), ratified by the UKGovernment in 1984. To be successful, a nominationdossier must demonstrate that a particular site is ofOutstanding Universal Value.

Although the UK Government is responsible forensuring that the terms of the Convention are met,both the Scottish Government and Local Authoritieshave key roles to play in realising the Convention’saims. No additional statutory controls result fromWorld Heritage designation. However, nationalguidance requires that specific policy, for example

through a Local DevelopmentPlan or Supplementary PlanningGuidance, should be establishedto assist Planning Authorities tofulfil their roll in managingdevelopment both within thesites themselves and also withinthe wider setting of the sites.

Scottish Ministers have identified the historicenvironment as one of Scotland’s greatest economic,cultural and social assets and stress the importancethat they place upon this finite resource as part of thenation’s identity. Whilst this SPG seeks to safeguardthe Outstanding Universal Value of the Heart ofNeolithic Orkney World Heritage Site, it does not seekto stifle change or to restrict progress unnecessarily.Rather, it is the aim of this document to ensure thathigh quality development is delivered in asympathetic and appropriate manner.



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SECTION 3

The Heart of Neolithic Orkney World Heritage Site

The Heart of Neolithic Orkney World Heritage Sitecomprises six individual component sites, each ofwhich are Scheduled Monuments: the settlement ofSkara Brae, Maeshowe, the Stones of Stenness, theWatch Stone, the Barnhouse Stone, and the Ring ofBrodgar and its associated ritual and funerarymonuments. The Heart of Neolithic Orkney WorldHeritage Site was formally inscribed onto the WorldHeritage List on 2 December 1999 as a group of sites

deemed to be an outstanding testimony to thecultural achievements of the Neolithic peoples ofNorthern Europe, fulfilling four of the six criteria ofOutstanding Universal Value for cultural sites asoutlined below:

Criterion (i): represent a masterpiece of humancreative genius

Maeshowe is an exceptionallyearly architecturalaccomplishment, which, togetherwith the visually interconnectedStones of Stenness and the Ringof Brodgar, represent amasterpiece of human creativegenius. The major monumentsthat make up the World HeritageSite display the highestsophistication in conception,design and execution.

Criterion (ii): exhibit animportant interchange of humanvalues, over a span of time orwithin a cultural area of theworld, on developments inarchitecture or technology,monumental arts, town-planning or landscape design

The World Heritage Site exhibitsan important interchange ofhuman values during thedevelopment of the architectureof major ceremonial complexesin the British Isles, Ireland andnorth-west Europe

Criterion (iii): bear a unique or atleast exceptional testimony to acultural tradition or to acivilization which is living orwhich has disappeared

Through the combination ofceremonial, funerary anddomestic sites, the WorldHeritage Site bears a uniquetestimony to a cultural traditionwhich flourished between about3000 BC and 2000 BC. The stateof preservation of Skara Brae iswithout parallel amongstNeolithic settlement sites


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Criterion (iv): be an outstanding example of a typeof building or architectural or technologicalensemble or landscape which illustrates (a)significant stage(s) in human history

The World Heritage Site is an outstanding exampleof an architectural ensemble and archaeologicallandscape which illustrate a significant stage ofhuman history, that is, when the first largeceremonial monuments were built.

The Neolithic represents arguably the mostfundamental period of change to occur within thehistory of human society, it marks the end ofhumanity’s reliance upon solely hunting andgathering foodstuffs and sees the origins offarming. The period is characterised by the firstmajor instances of land clearance, the demarcationof distinct territories, fixed settlements andmonumental architecture.

The Heart of Neolithic Orkney World Heritage Site isthe smallest and most closely defined WHS in the UK.The WHS is concentrated in two distinct geographicalcentres with Skara Brae located on the northwest

coast of the West Mainland and the remainingmonuments sited some five miles to the southeast.

The WHS does not exist in isolation and studies haveshown that one of the defining aspects of the Heartof Neolithic Orkney World Heritage Site is itstopographical, archaeological, perceptual andexperiential relationships with the surroundingphysical and archaeological landscapes. With theexception of Skara Brae, the WHS lies within a large,open, loch basin. This landscape is one of the mostsensitive in Scotland, forming part of a NationalScenic Area and comprising the setting for thiscollection of internationally significant monuments.Further explanation of this issue can be found inSection 4 (below).

The scope of this SPG is therefore intentionally widerthan the actual extent of the formal WHS boundary.It encompasses the wider setting which evidencesuggests is critically significant to the OutstandingUniversal Value of the WHS. It is therefore alegitimate concern of the land use planning systemto seek to manage the impact of new developmentwithin this wider setting/land area.


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SECTION 4

The Setting of the World Heritage Site

Though no additional statutory controls result fromWorld Heritage designation, Scottish PlanningPolicy requires that planning authorities protectWHS and their settings from inappropriatedevelopment by including relevant policies in theDevelopment Plan, which set out the factors thatwill be taken into account when decidingapplications for development proposals which mayimpact on a WHS. These policies must ensure thatthe immediate setting of a WHS, important views,and other areas which are important to the site andits protection, be protected from inappropriatedevelopment. In addition to this, the setting of allscheduled monuments is a material considerationfor local authorities when determining applicationsfor planning permission and in all cases where aproposed development may impact upon thesetting of a scheduled monument, Historic Scotlandmust be consulted.

Scottish Planning Policy and the Scottish HistoricEnvironment Policy emphasise that setting is morethan simply the immediate surroundings of a site. Itcan also relate to how the site was intended to fitinto the landscape, the views from it and how thesite is seen from the surrounding area.

The Statement of Outstanding Universal Value setout in the Heart of Neolithic Orkney World HeritageSite Management Plan, as submitted to the WorldHeritage Committee for approval in 2008, states that:

“The relationships between the World HeritageSite and the wider physilandscape are critical tounderstanding themonuments and theintentions of theirbuilders; and hence formpart of the OutstandingUniversal Value of theWorld Heritage Site.”

With the exception of SkaraBrae, it appears to be clearthat the wider setting of themonuments comprising theWHS was indeed integral totheir construction, it beinginconceivable that theirpositioning was eitheraccidental or incidental.Henge monumentsthroughout the UK areoften located in largenatural topographical

bowls and are generally sited between rivers, lakesor lochs. Furthermore, Maeshowe is intentionallyaligned in such a manner that on midwinter, thesunlight from the setting sun shines directly alongthe entrance passage to light the main chamberwithin. Not only does this phenomenon suggest that

considerable thought andplanning went into the sitingof the monument, the factthat the midwinter sun setsbehind the imposing Hoy hillsto the southwest demonstratesthat the surrounding landscapewas also a consideration of thearchitects.

Whilst it is accepted that thesiting of Skara Brae and its linksto the wider landscape are notas fundamentally important asat Brodgar, and that its ‘InnerSensitive Zone’ has a differingalues and characteristics thanhat at its counterpart,pplications for planningermission will be assessedtilising the same methodology

o determine whether theutstanding Universal Value of

he site will be adversely affected.

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SECTION 5

Outstanding Universal Value

UNESCO states that cultural heritage is a pricelessand irreplaceable asset, not only of a particularnation, but of humanity as a whole. Particularelements of that heritage, where it can bedemonstrated that the exceptional qualities ofwhich are of Outstanding Universal Value, areinscribed upon the World Heritage List. OutstandingUniversal Value is defined by UNESCO within theirOperational Guidelines for the Implementation ofthe World Heritage Convention as:

“Cultural significance which is so exceptional asto transcend national boundaries and to be ofcommon importance for present and futuregenerations of all humanity. As such, thepermanent protection of this heritage is of thehighest importance to theinternational communityas a whole.”

The current Statement ofOutstanding Universal Valuecan be found within theHeart of Neolithic OrkneyWorld Heritage SiteManagement Plan 2008 -13, a copy of which can be foundat Appendix 1 of thisdocument. This SPG seeks topreserve the OutstandingUniversal Value of the Heart

of Neolithic Orkney World Heritage Site and toensure that any proposed developments are carriedout in a sympathetic and appropriate manner.

UNESCO emphasise that the authenticity andintegrity of a WHS is critical to its OutstandingUniversal Value and that the values evident at thetime of inscription should be maintained orenhanced in the future. In assessing whether or nota potential development will have a significantadverse impact upon the Outstanding UniversalValue of the WHS, as defined within the criteriondetailed at Section 3 above and the most up to dateStatement of Outstanding Universal Value, it mustbe established whether or not the proposalcompromises the authenticity or integrity of theWHS or its setting.



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SECTION 6

The Policy

OIC World Heritage Site Planning PolicyIn considering applications for planning permission, thePlanning Authority will apply the following policies to ensurethat developments which have the potential to have animpact upon the Outstanding Universal Value of the WHS aredelivered in a sympathetic and appropriate manner:

World Heritage Site Policy AInner Sensitive Zones:

The immediate setting of each of the two geographicalcentres of the World Heritage Site will be demarked by ‘Inner Sensitive Zones’ (fig.1).

All proposed development within the ‘Inner Sensitive Zones’,identified within figure 1, must preserve or enhance theOutstanding Universal Value of the World Heritage Site.

In order to be granted planning permission within the ‘InnerSensitive Zones’, it must be demonstrated that developmentwill not have a significant negative impact upon either theOutstanding Universal Value or the setting of the WorldHeritage Site.

World Heritage Site Policy B The Wider Landscape Setting:

The wider setting of the World Heritage Site contributesdirectly to its Outstanding Universal Value. Certaindevelopments outwith the ‘Inner Sensitive Zones’ thereforehave the potential to have a significant negative impact uponthe Outstanding Universal Value of the World Heritage Site,especially where large scale developments are proposed. Ofparticular significance are the ridgelines which frame thetopographical landscape bowl of the West Mainland (fig.2).

Where a proposed development either:

a) breaks the skyline at the sensitive ridgelines (fig.2) whenviewed from any of the component parts of the WorldHeritage Site; or

b) is to be sited in any other location where, in the opinion ofthe Planning Authority, it has the potential to impact uponthe World Heritage Site,

it will only be granted planning permission when it isdemonstrated that the development will not have asignificant negative impact upon either the OutstandingUniversal Value or the setting of the World Heritage Site.


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SECTION 7

Design Statements

Sympathetic design is a requirement of all proposedbuildings and extensions within the Inner SensitiveZones of the WHS. Applications for new buildingswhich fall to be considered under ‘World HeritageSite Policy A’ must demonstrate through a DesignStatement that they will preserve or enhance thecharacter and appearance of the area and that theywill not have a significant adverse impact upon theOutstanding Universal Value of the WHS. In the caseof applications seeking planning permission toextend existing properties, or seeking to change theuse of building or area of land, a Design Statementmay also be required. The following generalprinciples apply to the Planning Authority’sconsideration of development proposals throughoutOrkney but are particularly pertinent within theInner Sensitive Zones:

Conversion/Adaptation of an existing propertywhich enhances the setting of the WHS is in all casespreferable to the demolition and replacement of anexisting building. Traditional/vernacular buildings

can often be successfully adapted to new uses andconversion enables the existing settlement patternto be effectively retained;

New Buildings; ; must have regard to the continuity ofrhythm, scale, mass and outline of the existingsettlement pattern and its details, materials, textureand colour. Where appropriate, development ofpreviously developed land and buildings should beinstigated before green field sites;

Extensions/Alterations; must in all cases complementthe existing building. The extension should besubordinate in scale and in a form, which allows theidentity and character of the original structure to beretained, and the impact on the WHS to remain unchanged.

The Design Statement allows applicants to explaintheir scheme in a structured way. It is an opportunityto demonstrate what has been done to appraise thedevelopment in the context of the ‘Inner SensitiveZones’, and how the design takes account of thissensitively. For the majority of applications, the


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Design Statement does not need to be unnecessarilyelaborate and may be relatively short. In all cases, itshould be a concise document, which sets out theprinciples upon which the development is based,explains how the design preserves or enhances thecharacter and appearance of the ‘Inner SensitiveZones’ and shows the consideration that has beengiven to any potential impact upon the OutstandingUniversal Value of the WHS. Irrespective of the scaleof the development, the Design Statement shouldbe supplemented by supporting graphics in the formof photographs, sketches, architectural drawings,diagrams, computer-based images, photomontagesor artists impressions where appropriate.

It is likely that a visual interpretation of the proposalwill be required in the case of new developmentsoutwith established settlements in the form of anaccurately scaled montage. Key viewpoints forconsideration should be agreed at an early stagewith the Planning Authority and particular attentionshould be paid to the focal points of view and visuallinks between the monuments which are detailedwithin Appendix 2 of this document. It is essentialthat photomontages are produced to recommendedstandards in terms of quality and the type ofvisualisations used to ensure they are appropriate toinform an assessment and the decision makingprocess. To help ensure consistency of visualisations,the processes outlined within SNH’s Good PracticeGuidance on the ‘Visual Representation ofWindfarms’ should be followed. Although thisguidance relates to windfarms, the technical adviceand guidance is appropriate for visualisations ofother types of development. Further details can befound at Section 10 below.

The required complexity and detail of the DesignStatement will be reflected in the scale and locationof the proposed development. Design Statementsfor those developments proposed within the ‘InnerSensitive Zones’ of the WHS should have due regardto the relevant OIC design guidance documents andmust consider the following issues:

Access, parking & circulation Landmarks

Adjacent land uses & consents Location of the site

Appearance – details & Orientationmaterials Planning historyArchaeology Proximity to WHS

Boundary treatments

Cumulative impact

General description of thesurroundings

Scale• (height & massing)Servicing arrangements Settlement pattern

Is the site within the Topography & contours

Conservation Area? • (including site sections)

Key views between WHSmonuments

UtilitiesViews to/from/over site

• (including photomontage) Vistas

A Design Statement will also be required on alloccasions where the Planning Authority identifies aproposed development, which lies outwith the ‘InnerSensitive Zones’, that has the potential to impactupon the WHS and its wider setting (World HeritageSite Policy B). In these cases where an applicant seeksto demonstrate to the Planning Authority that aproposal will not have a significant negative impactupon the Outstanding Universal Value of the WHS amore thorough and comprehensive DesignStatement is likely to be required.

In all cases, early consultation with the PlanningAuthority will be beneficial to agree upon the scopeof supporting information which it will be requiredto include within the Design Statement. Furtherdetail is provided in Section 8 (below).


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SECTION 8

Development Management Procedure

When considering applications for planningpermission that have the potential to impact uponthe WHS and its setting, the following procedurewill be followed:

1. Applicants will be encouraged to enter into pre-application discussions with the DevelopmentManagement team and to refer to this SPG at anearly stage in the design and development processwhere it is anticipated that a proposal has thepotential to impact upon the setting of the WHS.Individuals will be informed during any pre-application discussion of the need to submit aDesign Statement, as outlined within Part 7 of thisdocument, as part of any application for planningpermission. Historic Scotland has advised that itwould welcome inclusion within such discussionswhere this is considered appropriate by theDevelopment Management Officer, the CountyArchaeologist or the Conservation and HeritagePlanning Policy Officer.

2. In all cases where Development Managementidentifies an application that will have an impacton the WHS or its setting, Historic Scotland shallbe formally consulted.

3. Upon receipt of a valid planning application that lieswithin the ‘Inner Sensitive Zones’ of the WHS (fig.1),Development Management will consult the CountyArchaeologist and the Conservation and HeritagePlanning Policy Officer and, if it is judged to be arequirement of the application, a Design Statementwill also be requested from the applicant. The aimof which it should be to demonstrate that theproposal will not have a negative impact upon theOutstanding Universal Value of the WHS as outlinedin Part 7 of this document.

4. In those cases where Development Managementidentifies an application outwith the ‘InnerSensitive Zones’ that has the potential to impact

upon the setting of the WHS, the same procedurewill be followed as outlined in stage 3 above. Theaides that shall be utilised by DevelopmentManagement to establish those proposals thatmay affect the WHS and its landscape settingoutwith the ‘Inner Sensitive Zones’, which arebased upon the figures within the 2008 AtkinsSetting Study and informed the production of therevised WHS Management Plan, can be found atAppendix 2 of this document.

5. Upon receipt of a consultation regarding thoseproposals outlined in stages 3 and 4 above, theCounty Archaeologist and the Conservation andHeritage Planning Policy Officer shall respond toDevelopment Management within a period of 21days to offer a formal comment; to request furtherinformation from the applicant; or to request thatHistoric Scotland be consulted (in those caseswhere Historic Scotland have not already beenconsulted due to a proposal having an impactupon the setting of a scheduled monument).

6. In order to respond effectively to the policy, theapplicant must submit a Design Statement whereit is requested in order to sufficiently demonstrateto Development Management that the proposalwill not have a significant negative impact uponthe Outstanding Universal Value of the WHS.Upon receipt of a Design Statement, DevelopmentManagement will strive to provide feedbackwithin 14 days.

7. In making recommendations to the Council, thedetermination as to whether an application willhave a significant negative impact will be basedupon the professional judgement of DevelopmentManagement Planning Officials in consultationwith the County Archaeologist, the Conservationand Heritage Planning Policy Officer and HistoricScotland where appropriate.


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SECTION 9

Figures

Figure 1 – Inner Sensitive Zones


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Figure 2 – Sensitive Ridgelines


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SECTION 10

Further Information

The reports and guidance below provide further information which

may assist individuals in the preparation of planning applications:

The Heart of Neolithic Orkney World Heritage Site Setting Project

a Historic Scotland Commissioned Report. Atkins. 2008.

Heart of Neolithic Orkney World Heritage Site

Management Plan 2008-13

Historic Scotland. 2008.

Managing Change in the Historic Environment: Setting

Historic Scotland.

Advice Note 01/04: Use of Photography and Photomontage in

Landscape and Visual Assessment

Landscape Institute. 2004.

Orkney Landscape Character Assessment

Land Use Consultants. 1998.

Onshore Wind Energy Development

Orkney Islands Council. 2008.

Visual Representation of Windfarms Good Practice Guidance

Scottish Natural Heritage. 2006.

Landscape Studies of the Heart of Neolithic Orkney

World Heritage Site.

a Scottish Natural Heritage Report Number F00LA01A

Tydesley, David. 2001.

Operational Guidelines for the Implementation of the World

Heritage Convention

UNESCO. 2008.


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APPENDIX 1

Statement of Outstanding Universal Value (Heart of Neolithic Orkney World Heritage Site Management Plan 2008–13)

The group of two major ceremonial sites, the Ring ofBrodgar and the Stones of Stenness, a largechambered cairn, Maeshowe, and a sophisticatedcontemporary settlement, Skara Brae, serve as aparadigm of the Neolithic and Early Bronze Agecultures of north-west Europe that is without parallel.

The four main sites , together with the BarnhouseStone, the Watch Stone, and thirteen mounds and astone setting around the Ring of Brodgar, thatmake up the World Heritage Site areunquestionably among the most importantNeolithic sites in north-west Europe. They arecharacteristic of the farming culture prevalent frombefore 4000BC. They provide exceptional evidenceof the material standards, social structures and waysof life of this dynamic period of prehistory whichgave rise to the World Heritage Sites of Aveburyand Stonehenge (England), Bend of Boyne (Ireland)and Carnac (France).

The inscribed property, carefully and deliberatelysited within the local topography, forms afundamental part of a wider highly complexarchaeological landscape which stretches overmuch of Orkney. The World Heritage Site and itsimmediate locality contain a notable concentrationof related archaeological monuments and sites.The group constitutes a major relict culturallandscape graphically depicting life 5000 years agoin this archipelago.

The relationships between the World Heritage Siteand the wider physical landscape are critical tounderstanding the monuments and the intentions oftheir builders; and hence form part of theOutstanding Universal Value of the World HeritageSite. The monuments on the Brodgar and Stenness

peninsulas were deliberately situated within a vasttopographic bowl formed by a series of visuallyinterconnecting ridgelines stretching from Hoy toGreeny Hill and back. They are also visually linked toother contemporary and later monuments aroundthe lochs. These connections all contribute to thefeeling that these monuments are situated at thecentre of a highly significant cultural landscape.

The scale of Maeshowe, the refinement of its design,and the quality of its masonary makes it one of themost outstanding architectural achievements ofprehistoric northern Europe. Its passageway and theBarnhouse Stone align with the setting of themidwinter sun. It is a striking example of a solaralignment and indicates that seasonal change wassignificant to Neolithic builders. Maeshowe alsocontains rare examples of Neolithic art; its form linksit to Grooved Ware pottery and thus to settlementswhere this has been found, such as Skara Brae.

The Stones of Stenness are an early expression of aceremonial site and were erected on an ellipticalplan around 3100 – 2900 BC. A specific relationshipbetween this and the nearby settlement atBarnhouse is suggested by similarities in the layoutof internal features. This is evidence of a societywhose domestic architecture and ceremonial siteswere inextricably linked.

The Ring of Brodgar is one of the best preserved andfinest truly circular Late Neolithic or Early BronzeAge henges known in the British Isles. It representsthe architectural culmination of the dense andextended use of this part of Orkney for earlyprehistoric ceremonial and funerary purposes. Itsconstruction involved considerable manpower andcoherent organisation to excavate a massive rock-cutditch, and quarry, transport and erect the, up to,sixty stones. The monument was carefully sitedwhere it could be visible from many directions andover a considerable distance.

For a prehistoric settlement, the state ofpreservation at Skara Brae is unparalleled innorthern Europe. The plans of the houses link themwith contemporary tombs like Maeshowe. Theoutstanding preservation of the architecture and therange of domestic and ritual artefacts from SkaraBrae enable us to gain a unique insight into therealities of living in a Neolithic village.

Together, Skara Brae, the Stones of Stenness,Maeshowe, the Ring of Brodgar and the monumentsassociated with them demonstrate with exceptionalcompleteness the domestic, ceremonial, and burialpractices of a now vanished 5000-year-old culture.


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APPENDIX 2

The following figures are based upon the maps andimages produced within the 2008 Atkins Setting Studyand will act as aides to both applicants and PlanningOfficials from pre-application discussions and the initial

submission of an application, through the validationand consideration phase to final determination. Thislist is neither definitive nor exhaustive and all availableinformation shall be utilised.


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THE HEART OF NEOLITHIC ORKNEY WORLD HERITAGE SITE SPG • 7 DECEMBER 2010 ORKNEY ISLANDS COUNCIL

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telephone 01856 873535 • email [email protected]

Orkney Islands Council

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