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CAIRNGORMS NATIONAL PARK AUTHORITY

FOR DECISION

Title: 		Core Paths Planning
Prepared by: 	Bob Grant, Senior Outdoor Access Officer

Purpose
This paper seeks the Board’s formal adoption of the Core Paths Plan and highlights the next
steps towards implementation and monitoring. Related work in how communities might
wish to publicise path networks is also detailed.

Recommendations

That the Board:
	a) Adopt the Core Paths Plan for the Cairngorms National Park;
	b) Notes how the Plan will be implemented and monitored; and
	c) Notes the development of guidance for community path leaflets.

Executive Summary

The Minister for the Environment has directed the Cairngorms National Park Authority to
adopt the Core Paths Plan which was modified in light of the Reporter’s recommendations
and other advice received. The Board has to formally adopt the Plan as directed by the
Minister. Implementation of the Plan forms a key part of the priority programme of work
on the development high quality opportunities for outdoor access and the paper highlights
how this work will be taken forwards and progress monitored. The paper also summaries
new guidance for community path groups which will promote best practice and incorporate
prominent use of the National Park brand.

CORE PATHS PLANNING - FOR DECISION

Core Paths Plan Approval

1. The formal, statutory process involved in Core Paths Planning is over once the
Board adopts the Plan. However, rather than the end of the process, it should be
seen as the beginning as the Plan moves from development to implementation. The
next phase will be both exciting and challenging as community aspirations for paths in
their area are starting to be met.

2. The process involved in reaching this stage has been both extensive and rewarding.
The Land Reform (Scotland) Act placed a duty on the Cairngorms National Park
Authority to develop a Core Paths Plan. Over the last three years the Board has
provided direction to staff on how this duty should be taken forward. At the Board
meeting of 31 October 2008 the Board approved the Draft Plan together with a
delegation of authority for any further minor changes to be ratified by the Convenor
and Vice Convenor. The Draft Plan was submitted to Ministers on 18 March 2009.

3. The formal consultation resulted in 58 objections of which 35 were resolved through
negotiation. There were 23 outstanding objections relating to 51 paths that were
not possible to resolve through negotiation and resulted in a Local Inquiry being
held. The Reporter agreed with CNPA on all but one of the objections and his
recommendation was supported by the Minister in approving the Plan. The only
proposed core path that was removed from the network by the Minister was a
section of minor road between Nethy Bridge and Dorback Road end. This had been
included at a late stage in an attempt to ameliorate two objections – one of which
had been withdrawn during final negotiations and the second withdrawn in
correspondence between the Reporter and the objector.

4. Two paths on Balmoral Estate were included in the Interim Draft Plan as they were
popular and provided links to the wider path network. However on advice received
relating to security, CNPA removed these paths prior to the formal consultation.
An objection was submitted on their exclusion and the Reporter recommended
their inclusion unless the Scottish Ministers consider that the interests of security
raised by the Balmoral Estate justify their exclusion. Having taken advice on security
the Minister excluded the two paths from the plan. It should be noted that Balmoral
Estate have a very positive approach to access management and the two paths can
still be used by members of the public.

5. The resulting network now totals 932 kilometres (km) of core path with 844 km on
land and 88km on water, 98% of the network already exists leaving 2% still to be
constructed. Annex 1 contains a map showing all core paths in the National Park.

6. The Minister has now directed CNPA to adopt the Plan as approved. The plan will
be available in CNPA offices, through the website and a notice will be included in the
local press advertising its availability. All land managers who have a core path on
their ground will be notified together with the associated implications. In addition,
all who corresponded during the consultations will be notified of its adoption and
where copies can be viewed.

7. The adoption of the Core Paths Plan will achieve one of the targets set in the
Corporate Plan.

Recommendation

8. It is recommended that:
	a) The Board adopt the Core Paths Plan for the Cairngorms National
	Park

Implementation of the Plan

9. The real gain from the Core Paths Planning process has been developing an
understanding of the wishes and aspirations of communities, and communities of
interest, about the importance of particular paths in the National Park. The open
process and the various rounds of consultation, combined with Ministerial approval
provide a very sound basis on which to move forwards. Now the challenge is to
undertake a programme of works which meets the aspirations expressed for the
paths. Much of the previous work approved by the Board, for example on
directional path sign design, will assist with this process.

10. Park Authority staff will continue discussions with the Cairngorms Outdoor Access
Trust colleagues in refining the programme of works that will result in a high quality
network of path in, around and between communities so that everyone can enjoy
the special qualities of the National Park. For communities such as Dulnain Bridge
where the existing network is fragmented implementing the Plan will result in a well
promoted, signposted and waymarked network of routes. This will be mirrored
across communities in the National Park over the next two years.

11. There are a number of means by which improvements to the core paths network
will come about.
	a) Cairngorms Outdoor Access Trust - Staff have been working closely with
	colleagues in the Cairngorms Outdoor Access Trust in shaping a programme
	of works over this and the next financial year. For example the bridge
	planned in Strathdon is an aspiration that emerged through the core paths
	planning process.
	b) Scottish Rural Development Programme – this has not proved as effective as
	hoped in delivering path improvements but one large estate has included path
	maintenance in a forest management plan and staff will continue to press for
	the Programme to better channel funding to access related works.
	c) Community led initiatives – Nethy Bridge have been a very effective
	community in securing sponsorship to maintain their existing path network.
	d) Guiding national programmes of expenditure – improvements to trunk and
	other roads provide opportunities to secure better routes for walkers and
	cyclists. Such an improvement is programmed for the A86 at Laggan where it
	coincides with a core path.

12. Delivered collectively through these different mechanisms will ensure the following
National Park outcomes are achieved:
	a) A wider range of people will have the opportunity to enjoy the outdoors; and
	b) There will be a more extensive, high quality, well maintained and clearly
	promoted path network so that everyone can enjoy the outdoors and move
	around the Park in a way that minimises reliance on motor vehicles

Monitoring Progress

13. An essential component of meeting these objectives is finding a suitable mechanism
with which to measure progress. A methodology has been developed (following
consultation with the Local Outdoor Access Forum, the Delivery Team and through
a workshop with interested parties) to identify those paths that are “Fit for
Purpose”. Periodic reports will be prepared at least annually based on each path in
the network passing three key tests:
	a) Barriers and obstructions – the path should be the least restrictive
	possible.
	b) Path surface condition – the overall path surface condition should cater
	for likely and potential users.
	c) Directional path signs – the path should have appropriate fingerposts and
	intermediate waymarking.

14. Annex 2 provides further detail on what is likely to constitute a pass or failure in
each of the three tests. This assessment process will enable progress in improving
the network to be charted against the indicator of “increasing the proportion of paths
in the network that are fit for purpose to 90% by 2012.

Recommendation

15. It is recommended that:
	a) The Board note how the Plan will be implemented and monitored.

Community Path Leaflets

16. Many different community path leaflets are produced within the National Park to
meet the demand from visitors and promote paths. However:
	a) many are old and do not meet current best practice in making the
	information accessible to all;
	b) many of the maps used are complex and difficult to understand;
	c) few leaflets reflect core path planning;
	d) few leaflets reflect changes in access legislation;
	e) there is no consistent approach to presenting information; and
	f) few of the leaflets make the most of their location in the National Park or
	promote neighbouring communities.

17. To address these shortcomings staff have been working with David Warnock and
Stirling Surveys (experienced cartographers and leaflet designers) to develop design
guidance. Their work has been assisted through the following engagement process:
	a) Two workshops with community path groups across the National Park on
	the attributes of a ‘good’ path leaflet;
	b) Consultation with Inclusive Cairngorms;
	c) Discussion with Royal National Institute for the Blind over specific legibility
	issues; and
	d) Review of existing leaflets and research data.

18. This guidance follows national best practice in presentation of text, images and maps.
It also aims to produce a consistent template that will allow the development of a
recognisable family of branded ‘Cairngorms Community Path Leaflets’, allowing each
community to promote its identity within the National Park.

19. The draft guidance has been piloted in three communities (Nethy Bridge, Kingussie
and Ballater) and endorsed by the Local Outdoor Access Forum. The new guidance
will be promoted widely and compliance will be a condition of future grant aid.

Recommendation

20. It is recommended that:
	a) The Board notes the development of guidance for community path
	leaflets.

Policy Context

21. Providing high quality opportunities for access is a Priority for Action in the National
Park Plan. Implementing the Core Paths Plan will therefore significantly assist in
delivering this priority and, in addition, the adoption of the Core Paths Plan will
achieve one of the 46 targets set in the Corporate Plan. Providing more accessible
walking and cycling opportunities will also deliver Scottish Government’s outcomes
on improving the nation’s health and wellbeing.

Delivering Sustainability
22. Implementing the Core Paths Plan will help provide the physical resource which can
be used to promote active and healthy lifestyles and will provide accessible networks
that can be utilised for recreational or functional purposes. The network will help
mitigate against climate change by encouraging people to holiday close to home and
reducing car dependency. An excellent range of quality paths will be of value to
visitors and so contribute to the local economy. A well planned system of core
paths will also help land managers to integrate outdoor access with their operations.

Delivering A Park for All
23. Core paths must meet the needs of residents and visitors. As such those selected
will cater for all types of users and, wherever possible, be barrier free. Providing
facilities that enable access for all will encourage greater use of the network and
demonstrate that the network is for all to use and enjoy. Effective promotion
through signage and encouragement of the template for community path leaflets will
provide further reassurance for those unsure about where to go and what to expect.

Delivering Economy, Effectiveness and Efficiency
24. A Park-wide Core Paths Plan will ensure that there is collective recognition of the
most important paths. This will provide an excellent basis for a range of future work
– for example by ensuring that any new repair or maintenance work will be
prioritised (and resources targeted accordingly) or as work to be undertaken
through planning gain. As formally designated paths there will be a significant degree
of protection from consequences of development in the future.

Implications

Financial Implications
25. The bulk of implementation will be financed and delivered through the agreed work
programme with the Cairngorms Outdoor Access Trust. The Board has already
committed £365,000 for the agreed work programme over the current and 2010/11
financial years. Encouraging revenue streams to ensure capital works are maintained
will continue and opportunities from car parking charges and sales from panoramas
are two such ways that this is being addressed. Funding COAT’s next Business Plan
will be coming to the Board later this year.

26. The staff resources required to undertake the full fit for purpose assessment, based
on the pilot study already completed, is estimated to be around 10 days.

27. Costs of supporting community path leaflets will be in the vicinity of £500 to £1000
per community depending on the size of the print run.

Presentational Implications
28. Progress on implementation will continue to be highlighted through the website,
newsletters and the east and west access groups who both have a representative on
the Cairngorms Outdoor Access Trust’s Management Group.

Implications for Stakeholders
29. The main stakeholders are the land managers, the residents and visitors who will use
the core paths network. It will be a necessity to continue to work closely with land
managers, communities and communities of interest in the development and upgrade
of the network.

Next Steps
30. Progress towards the full implementation of the Core Paths Plan will feature in the 4
monthly update to the Board on National Park Plan monitoring.

Bob Grant
19 March 2010
bobgrant@cairngorms.co.uk

Annex 2: Criteria for each of the three key tests which comprise the “Fit for Purpose” 
assessment (paths on land)

Note: Copy in this section forms part of a table and cannot be laid out in text. 
Please see original PDF for reference. 

Key test Likely reasons for passing Likely reasons for failing
a) Barriers and
obstructions – the
path should be the least
restrictive possible
• No barriers
• Location of any barriers does not preclude use
of most of the path
• Type of barrier is unlikely to preclude most
likely use
• Location of route means users’ expectations
are to encounter some barriers
• Barriers are obstructing many users
• Multiple barriers along the route
• Proximity to settlements means greater expectation
that route is barrier free (subject to the nature of the
route)
• Poor design of gates and stiles precludes expected use
b) Path surface
condition – the overall
path surface condition
should cater for likely
and potential users
• Surface robust for expected use (e.g. free
draining)
• Comfortable for most users
• Appropriate width for expected use and
location
• Wet and muddy sections of route are likely to preclude
expected users
• Surface material is excluding some users (e.g.
unconsolidated ballast on old railway line which makes
walking difficult)
• Too narrow for expected use (e.g. pushchairs and
cyclists)
c) Directional paths
signs – the path should
have appropriate
fingerposts and
intermediate
waymarking.
• Signage is in line with the National Park Policy
• Signage is appropriate to location and likely
users
• Signage is legible and in good condition
• Signage is inadequate, in poor condition or absent
• Significant junctions lack appropriate signage
• Proliferation or location of signs causes confusion or
spoils user experience

ENDS