Introduction
Protected sites comprise a defined area of land, water, or sea that has legal protection to conserve important wildlife (species and habitats), landforms and/or geological interest. Protected sites are defined in the Environment Act (2021) under paragraph 110 as European sites (including Ramsar sites), Sites of Special Scientific Interest (SSSI) and Marine Conservation Zones (MCZ). Guidance on the legislative framework for protected sites is available here.
The Environment Act 2021 introduced Protected Site Strategies (PSS) in recognition of the complex environmental issues that are impacting these areas and the requirement for strategic responses from a range of stakeholders. Natural England has a discretionary power to prepare and publish PSSs. The legislation is explicit that where a PSS is applied it is to be prepared through consultation and partnership with relevant public authorities. In practice, Local Planning Authorities (LPAs) will play a central role in shaping, applying and delivering PSSs.
LPAs are required to conserve and enhance protected sites as part of their statutory duties. Protected sites also function as important local assets, delivering economic, social and environmental benefits.
A range of approaches and strategies have emerged through the plan-making process and development management to address impacts at protected sites and ensure compliance with environmental legislation and planning policy. Existing LPA experience of implementing these strategic mitigation approaches will help inform the development of PSS and good practice towards the protection of sites.
This guide sets out current LPA approaches to protecting designated sites from development-related impacts. It supports efficient and effective decision-making, helping LPAs to apply consistent approaches and make best use of resources. It also highlights good practice to enable LPAs to engage constructively and confidently with the emerging PSS framework led by Natural England. This guide provides practical advice on the following topics:
- Existing strategic mitigation approaches for protected sites
- Protected site policies in Local Plans
- Good practice examples of dealing with protected sites through development management process and effective implementation of policy
- Consideration of emerging national policy and legislation relating to protected sites
- Opportunities for LPAs to inform and be involved in the future delivery of PSS
A number of LPA led strategies currently exist to address the cumulative impacts of land use planning upon protected sites. These strategies focus on issues such as Public access and disturbance (recreational pressure and urbanisation effects)
- Nutrient pollution (nutrient neutrality schemes)
- Air quality
- Coastal squeeze
Land use planning also has the potential to result in impacts upon the features of a protected site when located outside a designation boundary, known as functionally linked land.
Adopting strategic approaches to address these issues is beneficial as it enables a coordinated response across LPAs, improving consistency and transparency in decision-making and stakeholder messaging. Strategic mitigation frameworks also allow cumulative impacts to be addressed comprehensively, reducing the need for developers to identify and secure bespoke mitigation for individual planning applications. This can minimise delays and negotiation at the project level, thereby facilitating more efficient decision-making and supporting the timely delivery of sustainable development.
Existing LPA led strategies provide a mechanism to balance housing growth against the need to mitigate the impacts of development upon protected sites and ensure legislative and policy compliance.
A range of existing LPA led strategic approaches to the protection of sites have been evaluated to inform this guide. These have been selected across a range of regional areas and local settings and contexts.
These case studies demonstrate examples of best practice in protecting designated sites from development related impacts through the planning system.
The case studies highlight the following best practice principles that should be considered when developing strategic approaches for the protection of designated sites to ensure effectiveness:
- Mitigation solutions should be based on a robust and defensible evidence base.
- A partnership approach could be used to enable mitigation delivery across administrative boundaries and land ownerships at a landscape scale.
- Governance structures and decision-making processes should be clearly defined to ensure transparency and accountability.
- Clear funding mechanisms should be established to enable the delivery and long-term management of mitigation measures in perpetuity.
- Clear, consistent, and recognisable branding, supported by positive messaging, could be used to help influence behavioural change.
- Planning policy mechanisms (“policy hooks”) could be incorporated to ensure site protection measures are embedded within Local Plan policy wording.
- Detailed supporting planning guidance could be prepared to assist development management processes and provide clear guidance for applicants and developers, written in accessible plain English.
- A landscape-scale approach to site protection could be adopted, integrating with wider initiatives such as the Nature Recovery Network and Biodiversity Net Gain.
Mitigation measures should be supported by a monitoring programme to enable adaptive management in response to development-related impacts and changing site conditions.
- Where possible site protection initiatives could be aligned with wider environmental and social benefits wherever possible.
The following case studies demonstrate how best practice principles have been implemented in practice.
- Cannock Chase Special Area of Conservation (SAC) – recreation mitigation
- Epping Forest SAC – air quality mitigation
- North Kent Bird Wise – recreation mitigation
- Solent Bird Aware – recreation mitigation
- South East Devon – recreation mitigation
- Sussex Bat protocol – Special Area of Conservation – qualifying species mitigation (bats)
Effective Local Plan Policy
Local development plans play a key role in protecting designated sites by translating national and statutory requirements into locally specific policy for development management.
A review of local plan policies indicates that effective protected site policies are:
- Underpinned by a robust, proportionate and up-to-date evidence base
- Clearly drafted and easy to understand
- Tailored to local circumstances and site-specific sensitivities
Clear policy wording supports consistent decision-making and provides certainty for applicants and developers. Government good practice guidance on policy preparation is available.
Effective policy should clearly set out:
- The characteristics and reasons for designation of protected sites
- Key vulnerabilities and impact pathways
- When mitigation is required
- The mitigation measures expected
- How mitigation will be secured and monitored
- Links to wider environmental initiatives where relevant
Policies should include measurable standards where appropriate (e.g. buffer distances, thresholds, or Zones of Influence) and avoid ambiguous terminology unless clearly defined.
To ensure legal robustness, policies should align with and reference the technical evidence underpinning mitigation strategies, including Habitats Regulations Assessment (HRA) outputs and supporting evidence such as visitor surveys or recreational impact assessments.
Policies should also be future-proofed to reflect the relationship between Local Plan policy, HRA requirements, and the potential role of Environmental Delivery Plans (EDPs), which may provide strategic mitigation frameworks and funding mechanisms to support sustainable development.
Case Studies
The following case studies demonstrate how the above best practice principles have been implemented in local plan policy.
Supporting Guidance for Local Plan Policy
Local Plan policy is often supported by additional guidance that translates adopted policy into practical, and where appropriate site-specific, advice to ensure consistent decision-making and effective mitigation delivery. This helps:
- Development management officers apply policy consistently
- Applicants and developers understand policy requirements
- Ensure mitigation measures are implemented effectively
Supporting guidance may take the form of:
- Supplementary Planning Documents (SPDs)
- Strategic mitigation strategies
- Protected site guidance, protocols, or advisory notes
While SPDs are expected to be replaced by Supplementary Plans under the emerging planning system, they remain an important mechanism for detailed implementation guidance until planning authorities transition to the new style Local Plan system.
Best Practice Principles for Supporting Guidance
Supporting guidance should:
- Be underpinned by a robust, proportionate, and up-to-date evidence base
- Use clear, concise, and unambiguous wording
- Reflect local environmental conditions, site sensitivities, and development pressures
- Clearly explain:
- Its purpose and objectives
- Relevant site/context-specific sensitivities and vulnerabilities
- Mitigation requirements and their relationship to Local Plan policy
Include measurable standards where appropriate (e.g. thresholds, buffer distances, mitigation triggers)
- Avoid ambiguous terminology or provide clear definitions where needed
- Clearly set out:
- When mitigation is required
- What mitigation measures are required
- How mitigation will be secured
- How mitigation will be monitored and adaptively managed
- Cross-reference the technical evidence base and supporting documents
- Provide clear, step-by-step guidance for developers to support consistent application across the relevant area
Case Studies
Recent legislative and policy changes provide opportunities for more strategic, coordinated approaches to protected site mitigation and nature recovery.
Protected Site Strategies (PSS), Environmental Delivery Plans (EDPs) and the Nature Restoration Fund (NRF)
PSS will provide overarching, evidence-led plans to improve the conservation status of protected sites across a range of issues
Under the Planning and Infrastructure Act (2025), Natural England is responsible for preparing EDPs which will:
- Set out strategic, large-scale conservation measures for specific areas and/or impact pathways
- Enable developers to discharge environmental obligations through contributions to the NRF
- Provide the delivery mechanism to fund measures required to achieve PSS objectives
Strategic and Cross-Boundary Planning Opportunities
Spatial Development Strategies (SDS), introduced through the Planning and Infrastructure Act (2025), provide opportunities for more effective sub-regional and cross-boundary approaches to addressing development impacts on protected sites.
Local Government Reorganisation (LGR) may further support landscape-scale approaches by:
- Enabling planning across wider geographic areas
- Reducing fragmentation caused by administrative boundaries
- Supporting more efficient and proactive management of protected sites
- Improving alignment with Local Nature Recovery Strategies (LNRS) objectives
Implications for Local Plan Policy
National Development Management Policies (NDMPs), introduced under the
Levelling Up and Regeneration Act (2023), provide LPAs with greater scope to focus Local Plan policy on locally specific issues, including place-based approaches to protected site management and mitigation.
PSSs present a significant opportunity for LPAs to work collaboratively with Natural England to address development impacts on protected habitats in a strategic and coordinated manner.
Early Engagement and Plan Alignment
LPAs should engage early in the PSS process to ensure alignment between:
- PSS preparation
- Local Plan growth strategies
- HRA processes
Early collaboration helps ensure mitigation requirements are identified at planmaking stage and reflected in Local Plan policy.
Evidence and Strategy Development
LPAs can support PSS preparation by contributing local evidence on:
- Planned growth and housing delivery
- Recreation pressure and visitor behaviour
- Development-related impact pathways affecting protected sites
This evidence helps ensure PSS mitigation measures are proportionate and aligned with planned development.
Mitigation Design and Delivery
LPAs may play a key role in delivering mitigation identified through PSS, including:
- Alternative natural greenspace provision and management
- Visitor management measures
- Habitat creation and enhancement projects
- Monitoring programmes
LPAs are particularly well placed to support delivery where mitigation involves land use planning, green infrastructure, or long-term land management.
Funding and Implementation
LPAs may assist with implementation by:
- Securing developer contributions through planning obligations or other mechanisms
- Administering strategic mitigation funds where required
- Coordinating mitigation delivery across development sites
This supports strategic, timely mitigation delivery rather than fragmented site-by-site approaches.
Governance and Cross-Boundary Coordination
LPAs may also contribute to PSS governance through involvement in:
- Partnership arrangements and steering groups
- Monitoring and reporting frameworks
- Cross-boundary coordination where impacts extend across administrative areas
Key Opportunities
Overall, PSS provide an opportunity for LPAs to move towards a more strategic, landscape-scale approach to mitigating impacts on protected sites, helping to:
- Improve mitigation efficiency and coordination
- Streamline development management processes
- Support sustainable growth through clear strategic mitigation frameworks
Existing LPA Expertise
LPAs already possess substantial experience in strategic mitigation, Local Plan policy, and supporting guidance for protected sites. This expertise should inform PSS preparation to help ensure frameworks are:
- Effective and evidence-based
- Proportionate and deliverable
- Enforceable in practice
- Integrated with local planning strategies
Proactive LPA involvement will help secure positive outcomes for biodiversity while supporting efficient development management and sustainable growth.
Gov.uk (2023). Complying with the biodiversity duty. Available at: https://www.gov.uk/guidance/complying-with-the-biodiversity-duty
Gov.uk (2025). Environmental Improvement Plan (EIP) 2025. Available at: https://www.gov.uk/government/publications/environmental-improvement-plan-
2025/environmental-improvement-plan-eip-2025
Gov.uk (2025). Natural England’s Strategy: Recovering Nature for Growth, Health and Security. Available at: https://www.gov.uk/government/publications/naturalenglands-strategy-recovering-nature-for-growth-health-and-security/naturalenglands-strategy-recovering-nature-for-growth-health-and-security
Gov.uk (2025). Natural England’s Strategy: Recovering Nature for Growth, Health and Security. Available at: https://www.gov.uk/government/publications/naturalenglands-strategy-recovering-nature-for-growth-health-and-security/naturalenglands-strategy-recovering-nature-for-growth-health-and-security
Legislation.gov.uk (2022). Environment Act 2021. Available at: https://www.legislation.gov.uk/ukpga/2021/30/section/110
Natural England (2025). Protected Site Strategies Advisory Guidance 1.0. Available at: https://publications.naturalengland.org.uk/publication/5232810435280896
PAS. Background information on Protected Sites. Available at: https://www.local.gov.uk/pas/environment/protected-sites-strategies/backgroundinformation-protected-sites
PAS. Protected Sites Strategies (PSS). Available at: https://www.local.gov.uk/pas/environment/protected-site-strategies-pss
PAS. Protected Sites and Local Planning Authorities. Available at: https://www.local.gov.uk/pas/environment/protected-sites-strategies/protected-sitesand-local-planning-authorities
PAS. Protected Sites Strategies for Local Authorities. Available at: https://www.local.gov.uk/pas/environment/protected-sites-strategies/protected-sitesstrategies-local-authorities
PAS. Environmental Delivery Plans. Available at: https://www.local.gov.uk/pas/environment/environmental-delivery-plans
PAS. Green Commerce and Green Finance – the Basics. Available at:
https://www.local.gov.uk/pas/environment/green-commerce-and-green-financebasics
This guidance has been produced by Lepus Consulting with thanks to the following for their help and input: