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CAIRNGORMS NATIONAL PARK AUTHORITY 
Planning Paper 3 24 March 2005 

 
CAIRNGORMS NATIONAL PARK AUTHORITY 

Title: REPORT ON CALLED-IN PLANNING 
APPLICATION 

Prepared by: ANDREW TAIT, PLANNING OFFICER 
(DEVELOPMENT CONTROL) 

DEVELOPMENT PROPOSED: CONSTRUCTION OF MOUNTAIN BIKE 
TRAIL AT GLENMORE LODGE 
NATIONAL OUTDOOR TRAINING 
CENTRE, GLENMORE 

REFERENCE: 05/033/CP 

APPLICANT: TIM WALKER, GLENMORE LODGE 

DATE CALLED-IN: 11 FEBRUARY 2005 

Fig. 1 - Map showing location of proposed mountain bike trail at Glenmore Lodge
National Outdoor Training Centre, Glenmore. 
(not available in text format) 


SITE DESCRIPTION AND PROPOSAL 

1. The site is essentially the western side of the grounds of Glenmore Lodge 
National Outdoor Training Centre, to the west of the main group of 
buildings and entirely within the Lodge grounds. The area for the trail is 
relatively small and largely through heathland and pine forest, which rises 
to the Glenmore Road. The area for the mountain bike trail is partly within 
the existing loop of a tarmaced roller ski track. The trail also takes in part 
of the rifle range. 

2. The trail would be laid out on a loop circuit with many curves and changes 
of direction to challenge trail riders. A series of differing surfaces for the 
trail would be used including a boulder field and a raised timber boardwalk 
and crushed stone/sand surfacing through the forested area. The trail 
would be approximately 0.7 of a metre wide. A section of stone pitching 
would also be included adjacent to the Glenmore Road. This range of 
surfaces are intended so that users can experience a range of riding 
surfaces in a small managed area. It is important to note that this area 
could be used for mountain bike training without planning permission, 
given the existing recreational use of the site and there has been some 
debate as to whether this proposal as a whole actually requires planning 
permission. However, my view is that some elements such as the raised 
boardwalk in combination with the other elements constitute an 
engineering operation requiring planning permission. 

3. The purpose of the application is to provide a purpose built mountain biketraining 
track. Glenmore Lodge runs Mountain Bike Leader Training 
courses during which students are coached in a range of skills to tackle 
particular surfaces and obstacles. The use of the trail would generally be 
for Glenmore students and the track would not be open to the public. Such 
courses also involve educating students to appreciate the potential 
environmental impacts of their activity. The route for the trail has been 
designed with the local environment in mind and no trees, or stands of 
juniper are to be removed to accommodate the trail. Scottish Natural 
Heritage had been consulted on this proposal and visited the site prior to 
the application being submitted. 


DEVELOPMENT PLAN CONTEXT 

4. In the Highland Structure Plan 2001, General Policy G2 (Design for 
Sustainability) states that proposed developments will be assessed 
against certain criteria, including the extent to which they, contribute to the 
economic and social development of the community and impact on 
resources such as habitats, species, landscape, scenery, freshwater 
systems and cultural heritage. The Structure Plan’s Indicative Forestry 
Strategy states that there will be encouragement given to the development 
of a diverse, multi-purpose forest resource which creates lasting 
employment opportunities, and, amongst other things, enhances public 
access and recreational opportunities. Policy T2 (Tourism 
Developments) states that support will be given to high quality tourism 
development proposals, particularly those which extend the tourist season, 
spread economic benefits more widely and provide opportunities for the 
sustainable enjoyment and interpretation of the area’s heritage. Policy L4 
Landscape Character of the Structure Plan considers that the council will 
have regard to maintaining and enhancing present landscape character in 
the consideration of development proposals. 

5. In the Badenoch and Strathspey Local Plan, Policy 2.5.4 states that 
protection will be given to existing trees and established woodland areas, 
including small groups of trees or individual granny pines which are 
important landscape, wildlife and amenity features in the countryside. 
These should include significant areas of ancient and semi natural 
woodlands, incorporating important areas of remnant native forest as well 
as exotic specimens, notably associated with estate policies. Generally, 
development should not be sited within 20m of the trunks of large mature 
trees, and careful consideration will be given to the effect of related access 
and services on their stability. In addition, Policy 2.2.9 (Tourism and 
Recreation) states that tourist activities will continue to make a vital 
contribution to the economy. The priority is to ensure that broadening the 
range and quality of facilities is balanced with protecting the area’s 
exceptional scenic and heritage resources. The Local Plan also states that 
the more accessible intermediate lowland areas have potential for a broad 
range of activities and that provision should be made in the more robust 
locations better able to absorb visitor pressure, for upgrading facilities for 
recreation, tourism, interpretation and education/research. Multiple use of 
forest areas in particular is encouraged. 

6. The area is zoned by the Badenoch and Strathspey Local Plan as part 
of the “main area of existing settlement” at Glenmore and is subject to 
Policy 4.14.1 which considers that while reasonable consolidation and 
improvement of established businesses is acceptable in principle, the 
Council will maintain a strong presumption against further new 
development throughout the area except where development is considered 
essential for the proper management of visitors. 

7. In addition to these regional and local planning policies, National 
Planning Policy Guideline 11 (Sport, Physical Recreation and Open 
Space) recognises that mountain biking or off-road cycling is growing in 
popularity. However, it also states that intensive use of a trail or path can 
lead to a deterioration of the surface and eventually to erosion. In the 
management of their countryside facilities, the NPPG supports authorities, 
which encourage mountain biking by providing hire facilities and marked 
trails, which can help draw demand away from the more sensitive 
landscapes and areas. 

8. Latest Scottish Executive advice in the form of PAN 73 Rural 
Diversification considers that many rural businesses are expanding into 
new areas and diversification should be encouraged. Planning Authorities 
along with others can support diversification in ways that benefit the 
economy and lead to good development on the ground. Balanced against 
this the advice recognises that many areas are special in terms of natural 
and cultural heritage, particularly landscapes and natural heritage that is 
special in European terms. The advice goes on to consider that some 
parts of these valued environments can accommodate certain types of 
development, where it can be demonstrated that there will be no adverse 
environmental impact. 

9. The site has status as a Site of Community Importance (SCI) under EC 
Directive 92/43EEC on the conservation of the Natural Habitats and of 
Wild Flora and Fauna (the “Habitats Directive”) means that the 
Conservation (Natural Habitats&c) Regulations 1994 (the “Habitats 
Regulations) apply. 

10. “Regulation 48 requires that, where an authority concludes that a 
development proposal unconnected with the Nature Conservation 
management of a Natura 2000 site is likely to have a significant effect on 
that site, it must undertake an appropriate assessment of the implications 
for the conservation interests for which the area has been designated”. 

11. The above advice means that the competent authority must determine 
whether the proposal is directly connected with or necessary to site 
management for conservation; and if not, determine whether the proposal 
is likely to have a significant effect on the site either individually or in 
combination with other plans or projects; and if so, then make an 
appropriate assessment of the implications (of the proposal) for the site in 
view of that site’s conservation objectives. 


CONSULTATIONS 

12. The Forestry Commission (Scotland) have been consulted upon the 
proposal and given that it is entirely within the grounds of the Lodge and 
that it is for the use of Lodge students the Commission has no comment to 
make on the proposed development as it appears that there is little risk of 
increased use of the surrounding forests, which have important 
conservation designations. 

13. Scottish Natural Heritage note that the proposal lies within the 
Cairngorms National Scenic Area. In addition most of the development 
lies within Glenmore Forest SSSI, Cairngorms SPA and Cairngorms SCI. 
The interests in relation to the SCI and SPA include pine woodland, juniper 
on heath, bog woodland, capercaillie and Scottish Crossbill. 

14. Scottish Natural Heritage’s advice is that the effects of the proposal on 
the site are likely to be significant and recommend that an appropriate 
assessment is taken of the implications of the proposal for European 
conservation interests. This assessment should address the loss of pine 
woodland and the possible loss/extent of loss of juniper/heathland and 
disturbance to capercaillie and Scottish crossbill. SNH would advise that 
in undertaking this assessment the proposal if carried out strictly in 
accordance with the following conditions, then the proposal will not 
adversely affect the integrity of the features of interest. 

a. that juniper bushes are maintained 

b. that there is no removal of limbs from pine trees other than for health 
and safety reasons 

c. that individual trees/shrubs are protected where necessary from 
damage by mountain bike users where they accidentally diverge from 
the proposed trail 

d. that although SNH are not aware of any wood ants nests in the 
locations specified the area should nonetheless be surveyed for their 
presence. Should they occur in the proposed locations, they should be 
marked and avoided or relocated where this is not possible. 

e. That the proposal must be carried out in accordance with the submitted 
plan. 

15. With regard to the NSA designation SNH consider that the proposal will 
not have any significant landscape impacts as the site is sufficiently 
screened by woodland, individual trees and shrubs. 

16. SNH’s response notes that the application refers to environmental 
education, although this is not covered in any detail. SNH is supportive of 
the development of education opportunities in relation to the use of 
mountain bikes in areas of significance for natural heritage interests. 

17. The CNPA Natural Resource Group consider that the nature of the 
disturbance from the proposal can also be split into a) disturbance during 
construction of the cycleway and b) disturbance during operation of the 
cycleway. Crucial to this will be where the nearest lekking sites are, as 
these are the most sensitive areas, along with habitat used by breeding 
hens and their chicks. NRG do not have such detailed info to hand, but it 
is likely/possible that the operation of Glenmore itself will have created a 
level of disturbance around the site. NRG believe SNH would have raised 
concerns if there were breeding birds present at Glenmore. NRG are 
mindful that any assessment should take account of the Delphi report in 
relation the impact of recreational disturbance on Capercaillie. 

18. The CNPA Economic and Social Development Group consider that it 
makes sense to build on existing facilities at Glenmore and this approach 
will also help to make Glenmore Lodge more economically sustainable as 
an outdoor leisure centre. 


REPRESENTATIONS 

19. A letter of support for the proposal from Scottish Cycling is attached at the 
back of the report. 


APPRAISAL 

20. The key issues with regard to this proposal are the affects of the trail in 
landscape terms and secondly its effect upon the conservation 
designations at the site. 

21. In terms of Policy T2 of the Highland Structure Plan and Policy 2.29 of the 
Badenoch and Strathspey Local Plan the application is supportable in 
principle. However, an assessment of the proposal must take place 
against protective aspects of policies and L4 ‘Landscape Character’ and 
G2 ‘Design for Sustainability’ as well as an assessment against the various 
conservation designations at the site illustrated by SNH’s response. The 
proposal is not connected with the conservation management of the site, 
so an appropriate assessment must be made of the likely impacts of the 
proposal in line with SNH’s advice. 

22. With regard to landscape the development site is within the Cairngorms 
National Scenic Area. Scottish Natural Heritage have no objection to the 
proposal on landscape grounds and it is important to note that the proposal 
does not involve the felling of any trees or removal of shrubs. The nature 
of the development involves a ground based trail, within the existing 
grounds of the lodge and given this taken together with the nature of 
screening around the site (and in particular to the Glenmore Road) any 
significant landscape impact would be most unlikely to occur. 
Consequently, the proposal is considered to accord with Policy L4 
Landscape Character. 

23. There is little doubt that the proposal is positive in terms of social and 
economic development in the park and also in promoting understanding 
and enjoyment and it is noted that any mountain bike courses would 
emphasise responsible trail riding and respect for the environment in any 
course syllabus. However, the key issue with regard to the proposal is the 
potential impact upon the designated conservation interests. The 
mountain bike trail takes up a small area and would be sited on existing 
ground levels and the applicant has confirmed that no trees would be 
felled, so it can be considered that the application would not have 
significant impacts upon the scots pine around the site. There are stands 
of juniper evident but on walking the route of the trail with the applicant it is 
clear that the line has been designed to avoid the stands of juniper. The 
sections of trail proposed through the forest area are carefully designed 
and little excavation would take place beyond a scrape of 100mm with 
crushed stone from Alvie Quarry placed on top. Some larger rocks will be 
used to protect trees, and work close to trees will be carried out by hand. 
This would ensure that there is no damage to trees or tree roots. In 
addition, any works adjacent to trees would be carried out by hand. Given 
the above, it is considered that the proposal accords in principle with the 
development aspects of Policy G2 Design for Sustainability, as the 
proposal helps to reinforce an existing use at the site which would be likely 
to have negligible landscape impact. 

24. In relation to species of conservation importance the capercaillie and 
Scottish crossbill are the key protected birds in the area. In relation to 
capercaillie, the Delphi Report has provided information on likely 
disturbance from recreation activity and the impacts of mountain biking 
upon the birds was one area of consideration. The findings show that such 
an activity can cause disturbance, although activities such as walking a 
loose dog were found to have more significant impacts and it was found 
that biking may cause less disturbance than some other activities. 
However, one particular area of concern was the amount of ground that 
mountain bikers could cover and the range of disturbance that could be 
caused by this to wider and more remote areas. With regard to this it is 
noted that the site for the trail is contained within a relatively small area 
within the grounds of the lodge and also partly within an existing tarmaced 
loop that functions as a roller ski trail. In addition, it is to be noted that the 
primary intention of the trail is as a training feature for users to practice 
negotiating differing surfaces rather than it being regarded as a racing trail. 
Given the location of the roller ski track within the site, and the fact that a 
section of the trail would run parallel to the Glenmore Road the site is 
already subject to a level of disturbance that would be unlikely to be 
significantly increased by the addition of the mountain bike trail. 
Additionally, the applicant confirms that they have not seen any 
capercaillie within the grounds for many years. There is no evidence to 
suggest any lekking at the site and it must be recognised that this is 
Scotland’s national outdoor training facility with the associated and 
expected numbers of activities and comings and goings to/from the site. 
Particular disturbance at this site is also caused by helicopter activity, as 
this is a landing/fuelling point for mountain rescue helicopters. Because of 
the overall existing activity at this site it is considered most unlikely that 
any significant level of disturbance would occur to capercaillie, which are 
most unlikely to be in the immediate vicinity in the first instance. 

25. Scottish Natural Heritage raise no objection in principle to the proposal 
subject to a stringent range of conditions being applied to any consent 
including the need for a wood ant survey of the site and mitigation 
measures should they be in evidence. 

26. In conclusion, it is my view that this proposal would provide a range of 
positive benefits and contributes strongly to aims 2, 3 and 4 of the park 
without having any significant detrimental impact on the first aim as 
evidenced by the assessment of natural heritage interests and the 
response from SNH. It is also important to note that the activity proposed 
could be carried out in this area without planning permission and that this 
application allows the authority to ensure that natural heritage interests are 
protected by the conditions suggested at the end of the report. 


IMPLICATIONS FOR THE AIMS OF THE NATIONAL PARK 

Conserve and Enhance the Natural and Cultural Heritage of the Area 

27. The proposal is for a mountain bike trail in an area that is subject to a 
range of conservation designations and a sensitive environmental area. 
However, the nature of the proposal and the information supplied with 
conditions in the report should ensure that there is no significant level of 
impacts upon natural heritage interests at the site. The agent for the 
proposal is local and was involved in the construction of the much larger 
Strathsmashie cycle track. 

Promote Sustainable Use of Natural Resources 

28. There is no detailed information regarding exactly where materials for the 
trail would be sourced from. However, it is likely that the small amount of 
timber required would be sourced locally. In addition, local contractors are 
being considered for any works. 

Promote Understanding and Enjoyment of the Area 

29. The proposal would clearly promote the enjoyment of the area and with 
underlying environmental principles intended to inform the mountain bike 
training courses the proposal would be likely to foster greater 
understanding of the potential environmental impacts of mountain biking 
both within the Park and beyond. 

Promote Sustainable Economic and Social Development of the Area 

30. The proposal would help to promote the social and economic development 
of the area by providing work in the construction of the trail but also for 
instructors at the lodge, the proposal would help to reinforce the reputation 
of the site as a centre of excellence for outdoor training. 


RECOMMENDATION 

31. That Members of the Committee support a recommendation to: GRANT 
Planning Permission for a Mountain Bike Trail at Glenmore Lodge, 
Glenmore, subject to the following conditions:- 

1. The development to which this permission relates must be begun within 
five years from the date of this permission. 

2. All scots pine trees and juniper bushes at the site shall be retained and 
protected during construction, a detailed survey plan showing the location 
of juniper stands and trees and how they would be protected during the 
construction of the trail shall be submitted to and approved in writing by the 
Cairngorms National Park Authority acting as planning authority. 
Protective measures for all trees and juniper stands shall be in place prior 
to works starting at the site. 

3. A scheme to protect trees/shrubs from accidental collisions from trail users 
shall be submitted to and approved in writing by the Cairngorms National 
Park Authority acting as planning authority prior to the commencement of 
the development hereby approved. The agreed measures shall be in 
place prior to the trail being first brought into use. 

4. The proposal must be carried out strictly in accordance with the approved 
plans; any changes must be discussed with the Cairngorms National Park 
Authority and Scottish Natural Heritage prior to any development, or any 
changes being carried out. 

5. Prior to the commencement of development at the site a wood ant survey, 
shall be carried out at the site and submitted to the Cairngorms National 
Park Authority in consultation with Scottish Natural Heritage. Should wood 
ants be found to occur at the site they should be marked and avoided or 
relocated where this is not possible. Any proposals for their relocation 
shall be submitted to and approved in writing by the Cairngorms National 
Park Authority acting as planning authority in consultation with Scottish 
Natural Heritage. All measures shall be in place/completed prior to any 
construction works starting at the site. 

6. No trees shall be lopped topped or felled without the prior written 
permission of the Cairngorms National Park Authority acting as planning 
authority. 

Andrew Tait 

planning@cairngorms.co.uk 

16 March 2005