The revised National Planning Policy Framework (NPPF) was published by the Government this week. One of the most significant changes which has been brought forward from the consultation draft is the changes to the presumption in favour of sustainable development.

A press release issued by the Government with the publication of the revised NPPF stated that the changes will provide for ‘stronger in-principle support for development’, creating ‘a more explicit presumption in favour of development in sustainable locations, including development within settlements’.

The presumption in favour of sustainable development has been a cornerstone of national planning policy since the first National Planning Policy Framework (NPPF) was introduced in 2012.

Often referred to as the ‘tilted balance’, the principle establishes a starting point that where the presumption is engaged that planning permission should be granted unless the adverse impacts of a proposal outweigh the benefits of development. 

The Government published a substantially revised draft NPPF in December 2025. The draft introduced a new structure for the presumption in favour of sustainable development through policies S3, S4 and S5. These policies have now been carried forward into the revised NPPF. 

Policy S3 – The presumption in favour of sustainable development

Under policy S3, the longstanding principle remains that planning applications which accord with the development plan should be approved without delay. However, the revised framework distinguishes between development proposed within settlements and development located outside settlement boundaries.

Further Policy S3 provides that:

‘Where a development proposal falls partly within and partly outside a settlement, policies S4 and S5 should be applied to the relevant parts which are inside or outside of the settlement boundary (as appropriate), before coming to an overall view on the proposal.’

Policy S4 - Principle of development within settlements

Policy S4 provides that development proposals within settlements should be approved unless any adverse effects would substantially outweigh the benefits of granting permission. 

Policy S4 goes on to provide circumstances where the benefits of approving development are likely to be substantially outweighed by adverse effects. These include where the development proposal would have a substantial adverse impact in relation to: 

• The allocation or safeguarding of land or buildings for particular uses in the development plan, unless there is no reasonable prospect of an application coming forward for the allocated use, or there is evidence that the safeguarding is no longer appropriate; or
• The application of the policies in this Framework for existing recreational land and facilities (HC7), Local Green Space (HC8), areas of particular importance for biodiversity and geodiversity (N6), Protected Landscapes (N4) and development within residential curtilages (L2(1)(d)). 

Or where the development proposal would:

• Involve the whole or partial loss of undeveloped land which is used for a cemetery or burial ground; or for water storage and/or flood risk management (unless suitable compensatory provision is made that does not increase the risk of flooding either on or off-site); or
• fail to comply with one of the national decision-making policies which state that development proposals should be refused in specific circumstances. 

It should be noted that the circumstances in which the benefits of approving development are likely to be substantially outweighed by adverse effects are not restricted to the circumstances provided in policy S4. 

Policy S5 - Principle of development outside settlements

For proposals outside settlements, policy S5 identifies a range of development types that are considered acceptable in principle. Policy S5 provides that these should be approved, unless the benefits of doing so would be substantially outweighed by any adverse effects, when assessed against the national decision-making policies in this Framework.

The list in S5 includes:

• Development supporting rural land uses, infrastructure and public services, including agriculture, forestry, recreation, mineral extraction, transport and utilities infrastructure, defence, and environmental conservation or enhancement
• Rural businesses, services and tourism developments that require an out-of-settlement location.
• The reuse, extension, replacement or redevelopment of existing buildings and previously developed (brownfield) land.
• Limited infill development and certain community-led or exception-site schemes.
• Accommodation to meet identified needs for gypsies, travellers and travelling showpeople.
• Residential and mixed-use development near well-connected railway stations where it is supported by infrastructure and can be integrated with existing settlements.
• Development of land which is allocated in the development plan or addresses an identified unmet need which is well connected to an existing settlement, supported by available infrastructure, and appropriately scaled, or comprise major freight and logistics development that complies with national policy.

Policy S6 - Neighbourhood plans and the presumption

Policy S6 provides that where the development proposals involve the provision of housing, the benefits of approving development are likely to be substantially outweighed by the adverse effects where a proposal would conflict with a neighbourhood plan. This is subject to the caveat that the neighbourhood plan became part of the development plan five years or less before the date on which the decision is made and contains allocations to meet its identified housing requirement. 

Final word

Overall, it can be seen that the changes to the presumption represent a stronger policy presumption in favour of development in sustainable locations. The changes provide a ‘more explicit presumption in favour of development in sustainable locations’ which will make it easier to secure permission for suitable schemes within settlements and for development outside of settlements where the development is of a type that falls within the list set out in Policy S5.

For more information on the NPPF, please get in touch.