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Introduction
The way we manage land in England shapes our future. Decisions on land use directly influence food security, biodiversity, infrastructure resilience, and climate adaptation, all crucial for managing risks and fostering sustainable communities.
In an article I wrote for the National Preparedness Commission last September, I explored why the National Planning Policy Framework matters for national preparedness. This spotlighted the importance of the National Planning Policy Framework (NPPF) and the fundamental need for an integrated approach to planning. An approach that considers systemic risks such as inequality, vulnerability, and adaptive capacity from the outset when making town planning and development decisions.
Building on that discussion, this article examines the government’s consultation announcement on a proposed Land Use Framework (LUF) for England. This framework would, in theory, guide land use decisions to address environmental challenges, economic needs, and population growth. However, unlike Scotland and Wales, which have statutory spatial plans, England lacks a legally binding framework, raising concerns about the LUF’s potential impact.
The Land Use Framework builds on ongoing efforts that began when the previous government committed to publishing a Land Use Framework for England. In 2023, the policy paper "Finding Common Ground: Integrating Data, Science, and Innovation for Better Use of Land." highlighted the necessity of a cross-functional approach to interconnected national challenges.
By engaging with this consultation, resilience professionals, planners, and stakeholders can shape an approach that balances sustainable development, economic security, and climate resilience.
The Land Use Framework in Context
Governance/Framework | Description |
National Planning Policy Framework (NPPF) | Outlines the government’s planning policies for England, providing a framework for local plans related to housing, development, and landscape conservation, including National Parks. |
National Policy Statements | Government-produced statements that define objectives for nationally significant infrastructure projects. |
Local Development Plans | Created by local planning authorities, these plans outline the vision, growth strategy, and strategic policies for a local area. |
Local Nature Recovery Strategies (LNRS) | A system of spatial strategies across England to establish priorities and map proposals for nature recovery and environmental benefits. |
Environmental Land Management Scheme | Agricultural policy reforms designed to enhance England’s countryside and environment. |
Devolved Administrations | Policies vary by region: Northern Ireland has the Strategic Planning Policy Statement, Wales follows Planning Policy Wales, and Scotland emphasizes land use with its Third Land Use Strategy (2021) and the Scottish Land Commission, which addresses land system challenges and land reform. |
The Land Use Framework (LUF) for England and the National Planning Policy Framework (NPPF) are inherently interrelated but will ultimately have different and distinct purposes in land use decision-making. Here’s how they might interact:
Relationship Between the Land Use Framework and the NPPF
The NPPF is statutory guidance that directly influences local planning policies and development decisions under the Town and Country Planning Act.
The Land Use Framework is not a statutory document. Still, it aims to provide strategic guidance, spatial analysis, and decision-support tools to align land use with environmental, agricultural, and infrastructure priorities.
While the NPPF mainly focuses on housing and development planning, the LUF takes a broader perspective, integrating land use considerations across food security, climate adaptation, biodiversity, and infrastructure.
Will the Land Use Framework Have Statutory Weight?
No, the LUF itself will not have direct statutory weight in planning decisions as the NPPF does.
However, it is expected to inform government policy and influence future revisions of the NPPF, environmental regulations, and agricultural incentives. It appears the government intends for the LUF to be part of the overarching strategic package that brings together and binds various plans, policies and initiatives. Creating a universal system of strategic planning throughout England through Spatial Development Strategies (SDS).
Could this represent the initial step towards a comprehensive approach that balances top-down and bottom-up strategies, prioritising holistic risk reduction from the beginning of development?
The framework could bring new opportunities to shape and integrate spatial strategies and funding priorities, which could be leveraged to guide local authorities and developers in aligning with national land use objectives while enabling the growth of sustainable and resilient communities.
However, in areas lacking Local Plans, there is a concern that this might inadvertently diminish local governance and override the principles of subsidiarity. Even in instances where community support is strong, the impact of such support on planning decisions can often remain uncertain, and the extent to which this new framework has weight in planning decisions remains ambiguous.
How Might the Land Use Framework Influence Planning Decisions?
Local Planning Authorities may reference the LUF when updating Local Plans, particularly on climate resilience, nature recovery, and food security.
It could play a role in shaping land use incentives and directing funding toward sustainable practices.
The government may incorporate its principles into future planning policies, giving it more weight over time.
The NPPF will remain the primary statutory framework for planning decisions. At the same time, the Land Use Framework serves as a complementary, strategic guide to influence policy development, funding priorities, and cross-sector collaboration in land management.
The risk, however, is that an overarching long-term strategy sits above the NPPF, which is well-meaning but has no weight as a ‘vision’. Meanwhile, planning regulations that serve as the day-to-day delivery mechanism do not, in reality, support this vision and continue contributing to ongoing risk creation and maladaptation, as discussed in the previous article, in key reports like the London Climate Resilience Review, and in commentary by leading organisations such as the Town & Country Planning Association.
A strategic overview
The LUF aims to integrate land use considerations across food security, climate adaptation, biodiversity, and infrastructure. However, unlike the NPPF, which operates under the Town and Country Planning Act, it does not hold statutory weight in planning decisions. The risk is that we end up with a strategic vision that lacks enforcement while day-to-day planning regulations continue contributing to risk creation and maladaptation.
To understand England’s approach, it is helpful to compare it with Scotland and Wales:
Scotland has a statutory National Planning Framework (NPF) that aligns spatial planning with national outcomes, including climate resilience and sustainable development.
Wales has the National Development Framework (Future Wales), which provides a spatial strategy for development and climate adaptation.
Scotland and Wales integrate land use planning with statutory mechanisms ensuring policy implementation. In contrast, England’s approach remains fragmented, with separate frameworks and strategies lacking legal coherence.
Potential Strengths and Limitations of the LUF
Strengths | Limitations |
Encourages a holistic, cross-sectoral approach to land use. | Lacks statutory authority, meaning implementation is not guaranteed. |
Aims to integrate sustainability, food security, and resilience into land management. | Risks are being ignored in planning decisions if they conflict with local development priorities. |
Could inform future revisions of the NPPF and environmental regulations. | Without alignment with the NPPF, its influence may remain limited. |
Overview of the Land Use Consultation
Consultation Themes and Key Considerations
The government is seeking input on balancing competing land use demands across several key areas:
Food Security & Agricultural Land Protection – How can land use changes support domestic food production while promoting nature recovery?
Climate Adaptation and Risk Management: How can planning systems enhance resilience to flooding, heat waves, and extreme weather?
Biodiversity & Nature Recovery – What strategies ensure habitat protection while meeting housing and infrastructure needs?
Infrastructure & Development – How can sustainable planning align housing, transport, and energy infrastructure?
Data & Decision-Making – What role should land use data play in shaping policy?
Responding to the Consultation: Key Questions and Considerations
The consultation itself consists of ten questions and is straightforward to engage with. Responders don’t have to answer all questions and can choose to engage only with those most relevant to their area(s) of interest.
To submit your consultation response, you can complete the questionnaire through the DEFRA website's online portal or follow the instructions provided in the consultation document. It is also worth noting that you can save your progress and return later to complete your consultation response.
Thoughtful, evidence-based responses can help ensure that England’s land is managed effectively and sustainably for future generations. Please note that the consultation closes at 11:59 p.m. on 25 April 2025.
Below are some key questions, please use the dropdown to view the considerations.
Do you agree with the scale and type of land use change proposed?
Does the framework address climate resilience and extreme weather mitigation?
Are the right land types prioritised for change?
Do you agree with the land use principles proposed?
Which decision-makers should apply these principles?
How can policies support farmers in balancing land use change with food security?
How can more land managers implement multifunctional land use?
What should be considered when targeting spatial incentives?
How can government help farmers steer land use change toward greater benefits and fewer trade-offs?
How can the UK prevent displacing food production and environmental harm abroad?
How can private investment in land use change be increased?
What changes are needed to accelerate the “30by30” nature recovery target?
Final Thought: Why Your Engagement Matters
Land use planning is at the core of national resilience and sustainability. The consultation presents an opportunity to shape policies that will define how England adapts to climate change, food security risks, and growing infrastructure needs.
By engaging in this consultation, you help ensure that the framework:
Protects communities from climate risks (floods, droughts, heatwaves).
Ensures food security while restoring nature.
Supports sustainable economic growth.
Empower communities to lead resilience initiatives.
This is your chance to influence policies that will determine how land is used for generations. Engage, respond, and help build a framework that ensures England’s land is managed effectively and equitably for a more resilient future.
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