Gathering baselining information to inform a local plan
Source: gov.uk (2025-11-27)

Draft information on how local planning authorities can collect, map and analyse baselining data, to inform local plans under the new plan-making system.

We have published this guidance now so that LPAs can see the direction of travel for the new plan making system. We will review the guidance and make any necessary revisions and updates as the new system is implemented, and related regulations and policy are confirmed.

For plans under the legacy plan-making system

If you are submitting your plan under the legacy system, use the create or update a local plan legacy system guidance (https://www.gov.uk/government/collections/create-or-update-a-local-plan-using-the-legacy-system).

The legacy system covers plans to be adopted under the Planning and Compulsory Purchase Act 2004, excluding the amendments made by the LURA, and The Town and Country Planning (Local Planning) (England) Regulations 2012.

Baselining involves gathering data and information, and carrying out analysis to inform the early stages of plan-making. This will give you information that contributes to:

shaping the direction of your early plan-making

drafting a vision

scoping and preparing your evidence base

scoping your environmental report for your Strategic Environmental Assessment (SEA), if required

Baselining will also help you meet the ‘survey of area’ requirement set out in section 13 of the Planning and Compulsory Purchase Act 2004 (https://www.legislation.gov.uk/ukpga/2004/5/section/13).

This guidance sets out our recommended approach to baselining. It is not exhaustive, and it is for you to decide what data, analysis and mapping will be most useful to inform the evidence you gather for your plan.

The guidance is aimed at local planning authorities (LPAs).

When to carry out baselining

You should carry out baselining before passing through Gateway 1 (https://www.gov.uk/guidance/gateway-1-what-you-need-to-do) and starting the 30-month plan-making process.

It would naturally be carried out in tandem with activities such as monitoring your existing local plan and the process of drafting a vision for your new local plan.

There are also overlaps with the gathering of data to inform your SEA.

See the 30-month process overview (https://www.gov.uk/guidance/30-month-local-plan-process-an-overview) to see more detail about where baselining fits into the wider plan-making process.

Collect data and analyse trends

The first step in baselining is collecting data. You should collect and analyse data that shows the:

current picture of your area, informed partly by the data you will have collected through monitoring your existing local plan

potential future picture of your area (for example, data on future development needs and proposed infrastructure developments)

The current picture of your area

The potential future picture of your area

Where national datasets are not available, you should draw on any locally or sub-nationally produced data. For example, you may have local data about economic needs, retail needs and gypsy and traveller needs, which will also help develop a picture for the future of your area. If there is a spatial development strategy in place for the area, this may include data and evidence on future development needs and requirements, and on other planning matters relevant to your plan.

MHCLG is also gradually adding more data to the planning data platform (https://www.planning.data.gov.uk/), which you could use to support baselining.

Map your area

Once you’ve gathered the data you need, begin mapping your area. If you can, use Geographic Information Systems (GIS) to do so.

Depending on the context and scale of your area, not all of the items below may be relevant.

We recommend that you map:

settlement boundaries - taking account of both existing allocations and planning permissions where either is on the urban edge

existing broad locations and opportunity area boundaries from your previous plan - including those in the urban area

any relevant planning constraints

key local infrastructure that may include public transport connections, key roads and junctions, airports, GP practices, hospitals, primary and secondary schools, key energy facilities and key utilities

planned projects for transport, infrastructure, or other key investments

Example from an LPA

South West Hertfordshire authorities mapped data about their area in a digital tool: the digital place portrait (https://storymaps.arcgis.com/stories/87cb7f79e6174513950fb2d8b8eaa70f).

Users can access layers of information, data and narratives to develop insights on topics like the environment, economy and infrastructure.

This is an illustration of one approach. It is not an endorsement or instruction to follow this exact method – you should do what works best for your authority.

This project was funded by MHCLG’s Proptech Innovation Fund (https://www.localdigital.gov.uk/digital-planning/proptech/funding/).

Review relevant wider priorities and strategies

Alongside these activities, you should also gather and review:

your wider corporate priorities, values and objectives and the implications of these spatially

other relevant strategies including local transport plans, housing and economic development strategies, as well as wider corporate strategies for each tier of local government as relevant

Sometimes those strategies may be prepared on different timeframes and might not always recognise current community priorities and views. Balance these strategies within the context of the wider baseline information.

Carry out a critical analysis using these prompts

Drawing on the data analysis and mapping, the final stage of baselining is to carry out a critical analysis.

Use the questions below to help prompt what direction your emerging plan may need to go in. Answering these questions with a realistic assessment of the baseline and the development needs that the plan will need to address will help you:

develop the emerging plan

engage more effectively on the plan with elected members, the public, and stakeholders

The answers should be informed by your review of your own priorities, values, and objectives as well as any relevant local strategies.

The purpose of baselining is to inform your early plan-making - you will not have comprehensive answers to all these questions at this stage. Your understanding will develop as you gather more evidence and prepare your plan. We suggest you answer the questions below as best you can with the information you have now.

Prompts

Are any changes to the settlement hierarchy necessary?

Has the current spatial strategy been successful in terms of achieving the local plan vision to date?

Have or will existing allocations come forward in the timeframes originally expected? If not, why not?

What are the likely local and sub-regional strategic challenges that the emerging plan will need to address (housing, employment, infrastructure, and environmental)?

Would providing new allocations that generally maintain the current spatial strategy likely address the strategic challenges?

Might known investments, known constraints, or new growth opportunities require a change to the current spatial strategy?

Use baselining information to inform your plan vision, strategy and evidence

You should use the information you gathered and analysed during the baselining process to prepare your vision (https://www.gov.uk/guidance/preparing-a-local-plan-vision), inform your emerging spatial strategy and scope and prepare your evidence base.