Chapter 3
THE LOCAL PLAN STRATEGY
INTRODUCTION AND PLANNING CONTEXT
3.1 The Government advises that development plans should have a clear strategy designed to realise the aims and objectivesof the plan and to provide a clear vision of what will be achieved. Thepolicies in this chapter, which together comprise the general strategy ofthe Local Plan, have three broad themes - to guide the location of development,to make the best use of land and buildings and to reduce the need to travel by car. The policies flow from, and seek to achieve, the aims set out for the Plan in Chapter 2. In particular they seek to maintain a thriving economy and enable social progress while protecting the environment and character of the area for future generations.
POLICIES AND PROPOSALS
The Location of Development
3.2 In deciding on a strategy for guiding the location of development inthe Vale, outside the Didcot area, up to 2011, the Council has looked ata number of alternatives to help it choose the most sustainable approach.Eight different options were evaluated, ranging from concentrating developmenton sites adjacent to the main towns on the edge of the district (includingOxford and Swindon) to dispersing it across the villages. The Council hasconcluded that locating most of the new development in the main settlementsof Abingdon, Botley, Faringdon, Grove and Wantage and limiting it elsewhereis the most sustainable strategy. It most closely accords with the Council'saims and with national, regional and structure plan guidance. The five mainsettlements of the Vale already play an important role as service centresfor surrounding rural communities. They contain a wide range of jobs, shops,leisure, education and other services and are relatively easily accessibleto most residents of the Vale by means other than the car. Focussing developmentin these locations, rather than spreading it more widely, will reduce theneed to travel, enhance the vitality and viability of the towns and protectthe rural character of the Vale. The locational strategy, with the implications for each part of the district, is set out more fully below.
Development in Existing Settlements
3.3 The Five Main Settlements The redevelopment of previouslyused land and buildings within the five main settlements will be promotedfor housing, employment and other uses. However, important areas of openland – such as public open space, playing fields, amenity space, allotmentsand environmental corridors – will be protectedfrom development. Proposals will be encouraged which make the best use ofland and reduce the need to travel by car. Only when the Council has takenaccount of the amount of development within the built-up areas of the townsand villages will the phased release of greenfield land on the edges ofthe five main settlements be permitted.
3.4 Planning Policy Guidance Note 13: Transport advise that awayfrom large urban areas local authorities should focus most development inor near local service centres such as market towns and that these shouldbe defined in the development plan as the preferredlocations for development. Accordingly in policy GS1 below the five mainsettlements in the Vale are defined as local service centres.
3.5 Didcot Didcot is identified in the Oxfordshire StructurePlan as one of the four preferred locations for development in the county.Didcot is in South Oxfordshire district but is close to the boundary withthe Vale. The Structure Plan has determined that 500 of the 5,500 dwellingsto be provided in the town between 1996 and 2011 will be built in the Valeas part of the town's western expansion area. In addition the Councilmust consider the future role of Milton Park, a large employment centreto the west of Didcot. These issues are discussed in more detail in thehousing and employment chapters.
3.6 The Villages Villages are generally not sustainablelocations for new development, in that most people will be likely to travelby car to jobs and services. The Council recognises, however, that somelimited development can be acceptable and can help to maintain lively villagecommunities and existing services. Using small sites within villages, particularlyareas of previously developed land, can alsohelp to reduce the need to build on greenfield sites elsewhere. For thesereasons the Council will allow small-scale development within the built-upareas of villages.
3.7 There are some 63 rural parishes in the Vale containing a number ofvillages which are very varied in terms of size, location, character andthe availability of services. The villages listed in policy H11 have a reasonablerange of services and facilities and, within these, small groups of dwellingsand small premises for business use may be permitted on land which is notimportant to keep open, either because it does not contribute to the ruralcharacter of the village or because it does not provide valuable recreationalspace. A significant change from the Local Plan to 2001 is that 'roundingoff' outside the existing built-up limits of such villages will not be permitted.In the smaller villages listed in policy H12, where services and facilitiesare much more limited, development of not more than four small dwellings,small extensions to existing business premises and the conversion of existingbuildings will be allowed. Detailed policies for the villages are set outin later sections of the Plan. Policy GS1 below establishes the generallocational strategy which underpins and provides the context for other keypolicies in the Plan.
THE GENERAL LOCATIONAL STRATEGY IS TO:
i) CONCENTRATE DEVELOPMENT AT THE FIVE MAIN SETTLEMENTS OF ABINGDON, BOTLEY, FARINGDON, GROVE AND WANTAGE, WHICH ARE DESIGNATED AS LOCAL SERVICE CENTRES AND ARE DEFINED BY THE DEVELOPMENT BOUNDARIES ON THE PROPOSALS MAP. IMPORTANT OPEN LAND WITHIN THESE SETTLEMENTS WILL BE PROTECTED FROM DEVELOPMENT;
ii) LOCATE DEVELOPMENT TO THE WEST OF DIDCOT, AS SHOWN ON THE PROPOSALS MAP, AS PART OF A COMPREHENSIVE WESTERN EXPANSION OF THE TOWN; AND
iii) ALLOW SMALL-SCALE DEVELOPMENT WITHIN THE BUILT-UP AREAS OF VILLAGES AS SET OUT IN POLICIES H11, H12 AND H13, PROVIDED THAT IMPORTANT AREAS OF OPEN LAND AND THEIR RURAL CHARACTER ARE PROTECTED.
DEVELOPMENT WHICH ACCORDS WITH THIS STRATEGY WILL BE PERMITTEDPROVIDED THERE IS NO CONFLICT WITH OTHER POLICIES IN THIS PLAN.
Development in the Countryside
3.8 The Government's policy, as expressed in Planning Policy Statement7: Sustainable Development in Rural Areas, is that planning authoritiesshould ensure that the quality and character of the wider countryside is protected and, where possible, enhanced and that natural resources shouldbe afforded protection. Both the national guidance and the Oxfordshire StructurePlan propose strict controls over building in the countrysideaway from existing settlements. This is to protect the character of thecountryside and to limit development in locationswhich would encourage the use of the private car. However, the Council recognisesthat some new housing to sustain social and economic activity in the ruralareas will be needed but considers that as far as possible this should occurwithin the towns and villages or through the re-use of existing appropriatebuildings. Sporadic and ribbon development, including that near major roadjunctions, will not be permitted. Policy GS2 below recognises that in somevery limited circumstances new building will be allowed outside the built-upareas of settlements to meet the needs of local communities (such as socialhousing and recreational facilities on the edge of a village), for small-scaleextensions to existing properties and to support activities which are basedon the land and which cannot be accommodated in a nearby settlement (forexample agriculture, forestry, outdoor recreation and leisure and equestriancentres). These circumstances are covered by other, more detailed policiesin this Plan (including policies GS3 ii), GS6, H13, H18, CF2, L9, L13 –L20, E9 iii), and E16 – E21).
POLICY GS2
OUTSIDE THE BUILT-UP AREAS OF EXISTING SETTLEMENTS (COVERED BY POLICIESGSI, GS3, H11, H12 AND H13) NEW BUILDING WILL NOT BE PERMITTED UNLESS ITIS ON LAND WHICH HAS BEEN IDENTIFIED FOR DEVELOPMENT IN THE LOCAL PLAN ORIS IN ACCORDANCE WITH OTHER SPECIFIC POLICIES BELOW.
Development in the Oxford Green Belt
3.9 In 1975 the Oxford Green Belt was approvedby the Secretary of State for the Environment as an amendment to the CountyDevelopment Plan. There were areas of land around Oxford and to the northof Abingdon where the Green Belt policy operatedon an interim basis to allow a detailed review of the boundaries to accommodate a limited amount of development to meet some of Oxford's housing andemployment needs. The inner boundaries of the GreenBelt were confirmed by the adoption of local plans: to the north ofAbingdon in 1983 and around Oxford in 1991. Successive structure plans haveconfirmed the commitment to the Green Belt.
3.10 The most recent government advice specifically on GreenBelts is contained in Planning Policy Guidance Note 2: Green Belts(PPG2). In brief this confirms that:
i) the fundamental aim of Green Belt policy is to prevent urban sprawl by keeping land permanently open and that the most important attribute of Green Belts is their openness;
ii) the purposes of including land in Green Belts are to
- check the unrestricted sprawl of large built-up areas
- prevent neighbouring towns from merging together
- safeguard the countryside from encroachment
- preserve the setting and special character of historic towns
- assist in urban regeneration;iii) the use of land in Green Belts has a positive role to play in fulfilling the following objectives
- providing access to the countryside and opportunities for outdoor sport and recreation near to where people live
- retaining and enhancing landscapes near to where people live
- improving damaged and derelict land
- securing nature conservation
- retaining land in agricultural, forestry and related uses;iv) an essential characteristic of Green Belts is their permanence and once the general extent of a Green Belt has been approved it should be altered only in exceptional circumstances;
v) there is a general presumption against inappropriate development which is harmful to the Green Belt;
vi) the appearance of the Green Belt should not be injured by proposals for development within or conspicuous from it; and
vii) land between the urban area and the Green Belt can be safeguarded to meet long-term development needs.
3.11 The Oxfordshire Structure Plan carries forward the advice in PPG2and establishes that the special character of Oxford and its landscape settingis not just the University and the views of the dreaming spires but is abroader concept including all the countrysidearound the city and the floodplains of the RiverThames. Its character also depends on the overall scale of activity withinthis area, since significant growth will generate more traffic and pressuresfor further development which are likely to threaten the nature, characterand setting of the city.
3.12 In approving the Structure Plan in 1992 the Secretary of State confirmedthat the unique historic character of Oxford and its setting in its naturalenvironment should be conserved and protected and that the growth of thecity should not continue indefinitely. The panel that conducted the examinationin public on the Structure Plan, approved in 1998, agreed that the GreenBelt should be seen as an important strategic element in terms of sustainabilityand there were no circumstances to justify a review of the GreenBelt so recently fully established. The District Council also takesthe view that there are no exceptional circumstances which necessitate arevision of the Green Belt boundaries in thisLocal Plan.
3.13 As the fundamental aim of Green Belt policyis to keep land permanently open it follows that new building will be severelyrestricted and only allowed for a limited number of purposes. PPG2: GreenBelts states that there is a general presumption against inappropriate developmentin Green Belts. Development in the GreenBelt is inappropriate unless it is for the purposes discussed in moredetail below.
i) Agriculture and Forestry. As much of the land in the Green Belt is used for farming and forestry it would be illogical to prevent development which is necessary to sustain these activities. Policy E16 later in the Plan sets out the criteria that will be a pplied when considering proposals for new buildings associated with agr iculture and forestry throughout the Vale. In the Green Belt the Council will take particular care over the siting, design, scale and visual impact of such buildings in order to maintain the openness of the Green Belt and safeguard its amenity against visually damaging development.
ii) Outdoor Sport, Recreation and Other Uses. Green Belts have a positive role to play in providing opportunities for people to have access to the countryside and participate in outdoor sport and recreation, much of which can be pursued without harm to the purposes of Green Belt policy. Other uses such as cemeteries and sewage works are found in Green Belts. New buildings which provide essential services and are ancillary to uses which preserve the openness of the Green Belt –such as small changing rooms for cricket, football or golf for example, or small stables – will generally be acceptable where they can be absorbed without detriment to the openness or visual amenity of the Green Belt. Particular care will be taken to ensure that the introduction of lighting, artificial surfaces and car parking associated with such facilities does not harm the openness or visual amenity of the Green Belt. New buildings which provide for indoor recreation or entertainment and stadia for football, athletics and other major sporting events will not be permitted.
iii) The Extension, Alteration or Replacement of Existing Dwellings. There are many existing dwellings in the Green Belt which, during the lifetime of this Local Plan, will be the subject of planning applications for some form of alteration, extension or replacement. These may be acceptable if the extension is in reasonable proportion to the size of the original building and provided the new dwelling is not materially larger than the one it is intended to replace. Care will also be taken to ensure that such proposals would not have an unacceptable impact on their surroundings and that the design of extension is compatible with the existing dwelling. The scale of extensions and increases in the size of replacement dwellings will be limited in order to safeguard the openness of the Green Belt and its visual amenities. As there are a number of small dwellings in the Green Belt, where a straight percentage increase would only enable a very small extension, the Council will operate a sliding scale so as to allow larger percentage increases of smaller dwellings as set out in policy GS3iii) below. This will give flexibility for people living in small dwellings and will help to prevent the increased erosion of the Green Belt as a result of over-large or unsympathetic extensions or replacement dwellings. The size of the existing dwellings will be taken as that at October 1995 (when the previous Local Plan was put on deposit). The measurements are to be made externally and will not include outbuildings.
iv) Infilling in Villages. Although there is an overall presumption against inappropriate development in the Green Belt, it has long been recognised that limited infilling on sites within some villages washed over by the Green Belt designation would not be inappropriate. This is recognised in PPG2, paragraphs 2.11 and 3.4, and Structure Plan (2011) policy EN5. The designated village areas where limited infilling will be allowed are shown on the proposals map at Farmoor, Shippon, South Hinksey, Sunningwell, Wootton Old Village and Wytham. Where infilling in these areas is for housing, it will be allowed provided the scheme is for no more than one or two dwellings or is for a small group of dwellings to provide low-cost housing to local people in perpetuity in accordance with policy H18 and provided that there is no harm to the openness and visual amenities of the Green Belt. Low-cost housing for local people will not be allowed outside the defined village boundaries unless it is through the conversion of an existing building in accordance with policy GS7 below.
v) Re-use of Buildings. Over time it is inevitable that some buildings in the Green Belt will become unsuited to, or redundant from, their present use. With suitable safeguards the re-use of existing buildings should not prejudice the openness of the Green Belt as the buildings are already there. In some cases an alternative use can help to secure the continuing stewardship of Green Belt land by helping farmers to diversify their enterprises. To be acceptable policy GS3 below makes it clear that the new use should not have a materially greater impact than the present use on the openness of the Green Belt and the purposes of including land in it. In addition proposals will be expected to meet the requirements set out in policies GS7 and GS8 below for the re-use of rural buildings.
vi) Changes in the Use of Land and Engineering Operations. Proposals involving the change of use of land and the carrying out of engineering and other operations will only be acceptable if they maintain the openness of the Green Belt and do not conflict with its purposes. Mineral working, according to Government advice, need not be regarded as inappropriate development. Policies for this type of development are contained in the Minerals and Waste Local Plan prepared by Oxfordshire County Council.
vii) Limited Infilling or Redevelopment at Existing Major Developed Sites. The Oxford Green Belt contains some major developed sites which pre-date the Green Belt designation. PPG2 recognises that limited infilling at such sites may help to secure jobs and prosperity without further prejudicing the Green Belt and that complete or partial redevelopment may offer the opportunity for environmental improvement. The Council has identified nine major developed sites in its part of the Oxford Green Belt: Dalton Barracks north-west of Abingdon; Farmoor and Swinford water treatment works and Oaken Holt Nursing Home in the parish of Cumnor; Radley College north of Abingdon; Templeton College and Westminster Institute of Education to the south and west of Oxford; Cothill School in Marcham parish and Chandlings Manor, a school in the parish of Kennington. These are shown on the proposals map. Limited infilling and the partial redevelopment of sites will be allowed at all of the major developed sites, subject to the criteria in policy GS4 below. Not all the land identified within the boundaries of the major developed sites will be suitable for new buildings. Within the boundaries, the setting of the existing buildings, sense of place and the character of a particular area must be taken into account. The Council considers there is no justification on environmental grounds for promoting the complete redevelopment of any of the major developed sites in its area. This is because, in the main, they are occupied by successful enterprises of long standing, which are housed in adequate buildings. No policy framework is advanced to deal with such developments and, although applications will be treated as departures from the development plan, policies GS3 and GS4 will be taken into account. Applications for infilling and the partial redevelopment of major developed sites should be put forward in the context of a comprehensive long-term plan for the site as a whole. They should seek to bring about environmental improvements both to the visual amenities of the Green Belt and its openness. The latter can be achieved by locating new buildings so as to avoid dispersal across the site and siting new buildings close to existing ones. In most cases the boundaries of the major developed sites have been drawn tightly around the present extent of existing buildings. However, in the case of Templeton College the boundary has been drawn to enable the extension of the college in accordance with a planning permission that has already been granted.
3.14 The policies below set out the Council's general presumptionagainst inappropriate development in the Green Belt, and the limited circumstancesunder which new buildings might be permitted, including infillingand the partial redevelopment of existing major developed sites. The Councilunderstands the aspirations of Oxford Brookes University who may wish toextend the built-up area outside the boundary of the major developed siteon land owned by the Westminster Institute at Harcourt Hill to cater foran increase in student numbers and enable the modernisation and improvementof the current facilities. However, plans for the development of the wholeuniversity are not yet at a stage when they can be fully justified or assessedin the context of the impact on the Green Belt or the purposes of includingland within it. The issue will be reassessed when the local plan is nextreviewed (as a local development document under the new arrangements) orthrough a planning application (using the departure procedures) if a soundcase can be made to extend the higher educational facilities at the sitein the meantime. The Council would oppose any new buildings to the northeast of the major developed site boundary as shown on the proposals map.
POLICY GS3
DEVELOPMENT (INCLUDING THE CHANGE OF USE OF LAND AND ENGINEERINGAND OTHER OPERATIONS) WILL ONLY BE PERMITTED IF IT DOES NOT CONFLICT WITHTHE PURPOSES OF INCLUDING LAND IN THE GREEN BELT AND IF IT PRESERVES ITSOPENNESS AND THE SPECIAL CHARACTER OF OXFORD AND ITS LANDSCAPE SETTING.
SUBJECT TO THE ABOVE CRITERIA NEW BUILDING WILL ONLY BE ALLOWEDFOR THE FOLLOWING PURPOSES:
i) AGRICULTURE OR FORESTRY;
ii) SMALL-SCALE FACILITIES ESSENTIAL FOR OUTDOOR SPORT, RECREATION, CEMETERIES AND OTHER USES OF LAND WHICH PRESERVE THE OPENNESS OF THE GREEN BELT;
iii) LIMITED EXTENSION, ALTERATION OR REPLACEMENT OF EXISTING DWELLINGS. AN EXTENSION TO OR THE REPLACEMENT OF A DWELLING WILL NOT BE PERMITTED IF IT EXCEEDS THE FOLLOWING LIMITS:
a) EXISTING DWELLINGS WITH A FLOORSPACE OF LESS THAN 80 SQUARE METRES – UP TO 50% OF THE ORIGINAL VOLUME OF THE DWELLING (EXCLUDING OUTBUILDINGS);
b) EXISTING DWELLINGS WITH A FLOORSPACE OF 81–120 SQUARE METRES – UP TO 40% OF THE ORIGINAL VOLUME OF THE DWELLING (EXCLUDING OUTBUILDINGS);
c) EXISTING DWELLINGS WITH A FLOORSPACE GREATER THAN 121 SQUARE METRES – UP TO 30% OF THE ORIGINAL VOLUME OF THE DWELLING (EXCLUDING OUTBUILDINGS); AND
iv) LIMITED INFILLING BETWEEN EXISTING BUILT DEVELOPMENT IN THE VILLAGES OF FARMOOR, SHIPPON, SOUTH HINKSEY, SUNNINGWELL, WOOTTON OLD VILLAGE AND WYTHAM, AS DEFINED ON THE PROPOSALS MAP. RESIDENTIAL INFILLING WILL BE LIMITED TO SCHEMES OF 1 OR 2 DWELLINGS UNLESS IT IS FOR SOCIAL HOUSING FOR THE LOCAL COMMUNITY IN ACCORDANCE WITH POLICY H18.
PROPOSALS FOR THE CONVERSION AND ADAPTATION OF EXISTING BUILDINGSSHOULD NOT HAVE A MATERIALLY GREATER IMPACT THAN THE EXISTING OR PREVIOUSUSE ON THE OPENNESS OF THE GREEN BELT OR THE PURPOSES OF INCLUDING LANDIN IT.
THE VISUAL AMENITIES OF THE GREEN BELT WILL BE PROTECTED FROM DEVELOPMENTWITHIN OR CONSPICUOUS FROM THE GREEN BELT WHICH MIGHT BE HARMFUL BY REASONOF ITS SITING, SCALE OR DESIGN.`
LIMITED INFILLING AND THE PARTIAL REDEVELOPMENTOF SITES WILL BE PERMITTED WITHIN THE BOUNDARIES OF THE NINE MAJOR DEVELOPEDSITES OF DALTON BARRACKS,FARMOOR AND SWINFORDWATER TREATMENT WORKS, RADLEYCOLLEGE, TEMPLETON COLLEGE,WESTMINSTER INSTITUTE OFEDUCATION, COTHILL SCHOOL,CHANDLINGS MANOR ANDOAKEN HOLT NURSING HOME,AS SHOWN ON THE PROPOSALS MAP, PROVIDED THAT:
i) THERE WOULD BE NO GREATER IMPACT ON THE OPENNESS OF THE GREEN BELT OR THE PURPOSES OF INCLUDING LAND WITHIN IT;
ii) ANY INFILLING RELATES TO THE CONTINUING USE OF THE SITE;
iii) ANY PARTIAL REDEVELOPMENT IS CONSISTENT WITH APPROPRIATE COMPREHENSIVE LONG TERM PLANS FOR THE SITE AS A WHOLE WHICH CONTRIBUTE TO THE ACHIEVEMENT OF THE OBJECTIVES FOR THE USE OF LAND IN GREEN BELTS;
iv) THE BUILDINGS WOULD NOT EXCEED THE HEIGHT OF EXISTING BUILDINGS;
v) IT WOULD NOT LEAD TO A MAJOR INCREASE IN THE DEVELOPED PROPORTION OF THE SITE; AND
vi) IT WOULD NOT HAVE AN ADVERSE IMPACT ON THE LANDSCAPE.
WHERE PROPOSALS FOR PARTIAL REDEVELOPMENT INVOLVE AN ISOLATED BUILDINGITS RE-SITING WITHIN THE MAIN GROUP OF BUILDINGS ON THE SITE WILL BE SOUGHTOR, FAILING THAT, IMMEDIATELY ALONGSIDE THEM. IN SUCH CASES IT WILL BE AREQUIREMENT THAT THE EXISTING ISOLATED BUILDING IS DEMOLISHED AND THAT ANYDEVELOPMENT RIGHTS ACCRUING TO IT ARE EXTINGUISHED.
Making Efficient Use of Land and Buildings
3.15 Two closely interlinking themes of Government policy in recent yearshave been to maximise the re-use of previously developedland and buildings and to avoid the inefficient use of land especiallyby promoting higher densities of development. These objectives are beingpursued to promote urban regeneration, help sustain local services and publictransport, conserve natural resources and minimise the amount of greenfieldand other open land being taken for development. Previouslydeveloped land is defined in Government advice as that which is occupiedby a permanent structure and associated fixed surface infrastructure.It excludes land and buildings used for agriculture or forestry; land suchas parks, recreation grounds and allotments; and land which was used previouslywhere the remains of a structure or activity have blended into the landscape.The advice acknowledges that it will not always be appropriate for the wholeof a previously developed site to be redeveloped, especially where thereis open land within the site.
Land and Buildings Within Settlements
3.16 The Council is concerned at the continued loss of countrysideto development in the district and is anxious to keep such loss to a minimum.Much housing development built in the Vale for example has been at densitiesof about 25 dwellings per hectare (10 to the acre) although in recent yearshigher densities have been achieved. The Government has pointed out thatmore than half of all new housing being built in England is at densitiesless than 20 dwellings per hectare. This represents a high level of landtake which cannot be sustained in the long term. Accordingly the Councilwill encourage developments which make the most efficient use of land especiallyin the five main settlements where there is good access to a range of jobs,services and public transport. Such development does not have to be crampedor high rise, but it does have to be to a high standard of design to achievegood quality environments for living, working and socialising. Where a siteis close to the town centre or on a good public transport route for exampleit may be possible to achieve higher density schemes by reducing normalcar parking requirements and by innovative designs. For housing schemesit may be possible to reduce the amount of private amenity space and increasethe number of small units within a scheme. However, to be acceptable, highdensity developments must not be harmful to the character or amenity ofthe surrounding areas.
3.17 In the rural areas development densities are unlikely to be as highas in the main settlements because respect for village character will oftenrule this out and the mechanisms for achieving higher densities, such asreduced car parking standards, are unlikely to be appropriate. Policy GS5 below seeks to promote the re-use of previously developed and unused landand buildings in the Vale's towns and villages. Care will be takento ensure that such development does not harm the site or its surroundings, including features of nature conservation value and historic interest.
WITHIN EXISTING SETTLEMENTS DEVELOPMENT WILL ONLY BE PERMITTEDIF IT MAKES EFFICIENT USE OF LAND AND BUILDINGS AND PROVIDED IT WOULD NOTRESULT IN:
i) THE LOSS OF AN IMPORTANT LOCAL FACILITY;
ii) HARM TO THE SITE OR ITS SURROUNDINGS; OR
iii) A POOR QUALITY ENVIRONMENT FOR THOSE WHO LIVE IN, WORK IN, OR VISIT THE VALE.
Redevelopment of Buildings Outside Settlements
3.18 While the Council is committed to developing previously developedland in the main settlements, it recognises the position is more complexfor such sites in the countryside. Generallythe Council will only allow new buildings on previously developed sitesin the countryside where they comply with policyGS2 (that is, they are allocated for development or are covered by specificpolicies in this Plan) or where they are currently occupied by permanentbuildings, provided they are not in agricultural or forestry use or areassociated with parks, recreation grounds and allotments. On sites in thecountryside which have been developed previouslybut do not contain any buildings, or where the remains of buildings haveblended into the landscape, new building will not be allowed. The only occasionswhere the fact that a site is previously developed can be used to justifythe construction of a new building is where it involves the redevelopmentof existing buildings which meet the criteria in policy GS6. This is consistentwith the approach to protect the landscape character of the Vale and preventa dispersal of development which would be difficult to serve by means otherthan the private car. It reflects long established planning policies whichsay that permission should not normally be given for isolated developmentin the countryside.
3.19 Policy GS6 below establishes that to be acceptable the redevelopmentof buildings in the countryside must involveexisting buildings of permanent and substantial construction. To preventthe loss of existing buildings which add to the understanding of the localhistory of the area and the landscape, the demolition of listed buildingswill not be permitted. The Council accepts that in some circumstances farmand forestry buildings can be re-used for other purposes by virtue of thefact that the buildings are already there. However, the Council believesthere is no justification to redevelop those buildings, either because theyhave come to the end of their life or for greater commercial profit, ifthey are not in locations where new buildings for non agricultural purposeswould normally be allowed. The exception to this will be where redevelopmentis needed for farm diversification in accordance with policy E17.
3.20 Dwellings are a scarce commodity in the countrysideand command high land values which tend to exclude other uses. They alsohave a significant impact on the landscape by virtue of gardens and ancillarybuildings. Given this context the construction of new dwellings on previouslydeveloped land in the countryside will only beallowed where they replace existing dwellings and then only on a one forone basis, or where the redevelopment of existing buildings is for a newuse where an additional dwelling is essential for the functioning of theproposed new use and is ancillary to it. In these cases the dwellings willbe tied to the overall development so they cannot be sold separately fromit. Replacement dwellings in the countrysidewill be considered in accordance with policies GS6 and GS3 where they arein the Green Belt.
3.21 The redevelopment should not have a materially greater visual impacton its surroundings than the current building and opportunities will betaken to improve the appearance of the land, especially by clearing awayunsightly structures and improving the landscape. Similarly the use proposedshould be no less sustainable than the current use, otherwise it could leadto a significant intensification of activity in an unsustainable location.Generally the new buildings should occupy the same position as the existingones unless an alternative location would have clear benefits in terms ofits effect on the landscape. For example this could be siting a replacementbuilding close to an existing building to be retained or in a less conspicuous,well-screened location.
OUTSIDE THE BUILT-UP AREA OF SETTLEMENTS, THE REDEVELOPMENT OFEXISTING BUILDINGS WILL ONLY BE PERMITTED WHERE:
i) THE EXISTING BUILDINGS ARE OF PERMANENT AND SUBSTANTIAL CONSTRUCTION AND ARE NOT THE SUBJECT OF A TEMPORARY PERMISSION;
ii) THE EXISTING BUILDINGS WERE NOT ORIGINALLY CONSTRUCTED FOR AGRICULTURE OR FORESTRY (UNLESS IT IS PART OF A GENUINE FARM DIVERSIFICATION SCHEME IN ACCORDANCE WITH POLICY E17);
iii) IT DOES NOT INVOLVE THE CREATION OF AN ADDITIONAL DWELLING UNLESS IT IS ESSENTIAL FOR THE FUNCTIONING OF THE PROPOSED REDEVELOPMENT AND IS ANCILLARY TO IT;
iv) IT IS FOR A NEW DWELLING WHICH REPLACES AN EXISTING DWELLING AND THEN ONLY ON A ONE-FOR-ONE BASIS, SUBJECT TO THE SIZE LIMITS SET OUT IN POLICY GS3 iii) ABOVE FOR DWELLINGS IN THE GREEN BELT, AND FOR DWELLINGS IN THE COUNTRYSIDE OUTSIDE THE GREEN BELT BY UP TO 50% OF THE VOLUME OF THE ORIGINAL DWELLING EXCLUDING OUTBUILDINGS;
v) THE REDEVELOPMENT WOULD NOT HAVE A MATERIALLY GREATER VISUAL IMPACT ON THE COUNTRYSIDE THAN THE CURRENT BUILDINGS, AND WHERE POSSIBLE WOULD HAVE LESS;
vi) THE NEW USE PROPOSED WOULD BE AT LEAST AS SUSTAINABLE AS THE CURRENT USE; AND
vii) IT IS ON THE SITE OF THE EXISTING BUILDINGS UNLESS AN ALTERNATIVE SITE WOULD HAVE CLEAR BENEFITS IN TERMS OF IMPACT ON THE LANDSCAPE.
Re-use of Buildings Outside Settlements
3.22 The countryside of the Vale away from settlementscontains many buildings, some of traditional vernacular construction andothers not. They include mills, schools, chapels, agricultural and industrialbuildings. Planning Policy Statement 7: Sustainable Development in RuralAreas (PPS7) advises that the re-use of appropriately located and suitablyconstructed rural buildings has an important role in meeting the needs ofrural areas where this would meet sustainable developmentobjectives. This can reduce demands for new building in the countrysideand avoid leaving existing buildings vacant and prone to vandalism and dereliction.However, balanced against this is the need to protect the countryside,which includes not perpetuating the use of existing buildings which detractfrom the landscape, and preventing activities which would be harmful tothe countryside. There is also concern that theconversion of buildings in the countryside may not be sustainable in terms of reducing the need to travel, as most people using the buildings are likelyto need to travel by car for all or most of their journeys.
3.23 There is general consensus that buildings in the countryside of traditional,vernacular construction tend to be in keeping with their surroundings andshould be retained and re-used. Vernacular buildings reflect local buildingstyles and materials and many make an important contribution to the landscapeand to understanding the history of the area. However, most modern buildings,including large portal frame or prefabricated buildings, or those builtusing unsympathetic materials, such as concrete blocks, asbestos sheetingor corrugated iron, cannot be said to make an important contribution tothe landscape or our understanding of it and it is questionable whetherthey can be regarded as in keeping with their surroundings. Developers oftenargue that because these types of building have been part of the rural scenefor some years they must be in keeping with the countryside. The Councildoes not accept this view and in deciding what is a suitably constructedrural building believes a more discerning approach is necessary.
3.24 To reflect these concerns the Council is proposing two policies forthe re-use of rural buildings in the countryside. The first is for vernacularbuildings where, subject to certain safeguards, new uses will generallybe allowed. The second is for non-vernacular buildings where additionaltests will have to be met before re-use will be permitted.
3.25 Proposals for the re-use of any building in the countryside whichis derelict, or in such poor structural condition that it could not be usedwithout substantial alteration or rebuilding, will not be permitted. Similarlyproposals involving substantial alterations and extensions that would betantamount to the erection of a new building will not be permitted. Suchdevelopment would be contrary to Government advice and to the policies inthe Oxfordshire Structure Plan. Where a derelict building has been substantiallyre-built, prior to a planning application being submitted for a change ofuse in an attempt to circumvent this policy, planningpermission is unlikely to be granted for the new use. To ensure thatproposals can be assessed properly and speedily, applications for the changeof use of buildings in the countryside should include detailed survey drawingsof the original building, clearly showing those elements to be replaced,altered or removed and the impact of any new work proposed. In some casesapplicants will need to submit a structural report to show that the buildingis capable of withstanding the alterations and the new use proposed. Governmentadvice indicates that new building is to be strictly controlled in the countrysideand consequently only small- scale extensions will be permitted where itis essential to achieve an appropriate conversion which would not otherwisebe possible. The change of use of listed buildings will also be consideredin the light of policy HE7 and policy GS3 will also be taken into accountin the Green Belt.
3.26 It is critical that the new uses proposed for vernacular buildingsin the countryside respect the character and appearance of both the buildingand the wider area. For this reason the policy does not seek to favour onetype of use over another as much will depend upon the impact of the useon the nature of the building and its setting. Conversion to residentialuse often involves major changes to the fabric of the building, its externalappearance and its setting in the landscape. Traditional barns for exampleare simple structures, enclosing large open spaces without windows or chimneys,and, if not handled carefully, changes of such buildings to residentialuse can radically alter their character and appearance. In addition a residentialuse often involves the enclosure of adjoining land to form a garden andthe erection of garden sheds, garages and other domestic structures whichcan have a harmful effect on the setting of the building and the characterof the countryside, especially in areas of high quality landscape. In somecases the conversion of such buildings for holiday accommodation may bemore acceptable as this may not require the same design standards or externalancillary facilities. The conversion of buildings to employment uses can,if handled with care, have less impact on the fabric and appearance of thebuildings and may benefit rural communities by providing job opportunitieslocally. However, control needs to be exercised to ensure that the use ofsuch buildings for business activities does not lead to a decline in thequality of the countryside through, for example, the scale of the activity,unsympathetic fencing, external storage and lighting, vehicle parking andnoise, or through an unacceptable increase in traffic on rural roads. TheCouncil will expect conversions for employment use to provide small-scalepremises of up to 500 square metres or to be for a firm whose linkages makethe particular location necessary in accordance with Structure Plan policyE4.
3.27 Whatever the use proposed it will be important to ensure that thenecessary services and facilities are available or can be provided withoutoverall harm to the environment. In particular a well established and adequateaccess road should be available from the building to the public highwaynetwork.
3.28 Buildings in the countryside are often used by barn owls and batswhich are protected species (see policy NE5). A survey should be made ofthe building and any necessary measures to protect important species duringand after the conversion work should be established before a planning applicationfor re-use is submitted. This will enable the application to be processedspeedily.
OUTSIDE THE BUILT-UP AREA OF SETTLEMENTS THE RE-USE AND ADAPTATIONOF VERNACULAR BUILDINGS WILL BE PERMITTED PROVIDED ALL THE FOLLOWING CRITERIAARE MET:
i) THE BUILDING IS OF PERMANENT AND SUBSTANTIAL CONSTRUCTION AND IS CAPABLE OF CONVERSION WITHOUT MAJOR REBUILDING, EXTENSION OR ALTERATION;
ii) THE RE-USE AND ADAPTATION WOULD NOT ADVERSELY AFFECT THE CHARACTER AND APPEARANCE OF THE BUILDING, ITS SETTING OR THE SURROUNDING AREA; AND
iii) ANY SERVICES AND FACILITIES, INCLUDING ACCESS ROADS, NECESSARY FOR THE DEVELOPMENT ARE AVAILABLE OR CAN BE PROVIDED WITHOUT OVERALL HARM TO THE RURAL CHARACTER OF THE AREA.
3.29 The re-use of non-vernacular buildings in the countryside must complywith the criteria in policy GS7 above and a number of additional tests discussedbelow. The buildings, although not vernacular, must be in keeping with thecharacter and appearance of the area. The buildings should be structurallysound and appropriate for the use proposed. The buildings should be fullyenclosed with walls and a roof and not require external cladding, otherwisethe Council will consider that the requirements of policy GS7 criterioni) cannot be met. The re-use of non-vernacular buildings will be allowedwhere it is part of a genuine farm diversification scheme which adds valueto the goods produced on the farm or where it is in association with a countrysideuse that cannot reasonably be located in a nearby settlement (e.g. a golfcourse, equestrian centre or other outdoor recreational use).
3.30 The majority of proposals to re-use non-vernacular buildings willbe for some form of business use and this raises concerns in three key respects.The first is the effect of the change of use on the character of the buildingand its setting in the countryside. When such buildings are seen in thecontext of a working farmyard they are part of the rural scene. However,when all or most of the buildings in a farm complex change to business usethey can take on the character and appearance of an industrial estate. Thesecond concern arises over the dispersal of activity into areas where accessby public transport, walking and cycling can be difficult. This encouragesthe use of the private car which is contrary to PPG13 and other governmentguidance on creating sustainable developments.The third concern relates to the scale of use. Given the number of farmcomplexes with large aggregate floor areas and the significant amount ofland and buildings already available for business use in the district asa whole, a proliferation of business uses in the countryside could leadto an overheating of the local economy and undermine the policies of restraintin the Oxfordshire Structure Plan. For these reasons the Council will limitthe floor space that can be re-used for business purposes in a group ofnon-vernacular buildings to 500 square metres in total. The conversion ofnon-vernacular isolated buildings will generally not be allowed as theyare not considered to be in keeping with their surroundings and their conversionis unlikely to produce sustainable developments.This is consistent with the approach of encouraging small businesses inrural areas while protecting the character and environment of the Vale.
3.31 The Council will also ensure that the conversion of a building wouldnot give rise to the need for additional buildings in the countryside toreplace it. Where a farm building proposed for re-use was constructed underpermitted development rights, applicants will be required to provide evidenceof the original agricultural justification for its construction and of itssubsequent agricultural use to demonstrate those rights are not being abused.Where the building was erected after 1 April 1997 and its agricultural useceases within 10 years, the Council is seldom likely to permit its re-use.
OUTSIDE THE BUILT-UP AREA OF SETTLEMENTS THE RE-USE AND ADAPTATIONOF NON-VERNACULAR BUILDINGS WILL ONLY BE PERMITTED IF THE CRITERIA IN POLICYGS7 CAN BE MET, AND:
i) THE FORM, BULK AND GENERAL DESIGN OF THE BUILDING IS IN KEEPING WITH THE CHARACTER AND APPEARANCE OF ITS SURROUNDINGS;
ii) IT IS SUSTAINABLY LOCATED FOR THE SCALE AND TYPE OF USE PROPOSED;
iii) IT WOULD NOT RESULT IN THE CREATION OF A DWELLING;
iv) WHERE CONVERSION TO BUSINESS USE IS PROPOSED THE TOTAL BUSINESS FLOORSPACE WOULD NOT EXCEED 500 SQUARE METRES IN THE GROUP OF BUILDINGS WITHIN WHICH IT IS LOCATED, UNLESS IT FORMS PART OF A FARM DIVERSIFICATION SCHEME IN ACCORDANCE WITH POLICY E17; AND
v) THE CONVERSION WOULD NOT GIVE RISE TO THE NEED FOR REPLACEMENT BUILDINGS IN THE COUNTRYSIDE.
3.32 To ensure that developments remain small scale and their visual impactis minimised the Council will consider imposing conditions or seeking planningobligations to restrict the future expansion of business premises and secureenvironmental improvements. The Council may also seek to prevent the fragmentationof a farm holding, when a diversification scheme is proposed, or the separationof a dwelling conversion from the enterprise upon which it was originallyjustified. There are areas of the Vale where the local landscape is particularlysensitive and where the impact of new buildings could be seriously detrimentalin visual terms. The North Wessex Downs Area of OutstandingNatural Beauty is a key area in this respect but there are other areasin the countryside where new building requires careful control. The Councilis concerned that the grant of planning permissionfor the re-use of an existing building should not be followed by an extensionof that building under permitted development rights or a replacement farmbuilding, as these could have a detrimental impact on the landscape. Toprevent this the Council may, in appropriate circumstances, seek to removepermitted development rights to extend a converted building in the countrysideor to erect new farm buildings elsewhere on the farm. Although it will seldombe necessary to restrict the permitted development rights on the whole ofa farm holding it may be appropriate on a small farm or where the re-useof a number of buildings is being sought. Permitted development rights mayalso be withdrawn where a change of use between one use class and anothercould have a harmful effect on the environment. This could arise, for example,if a building used as an office or for research and development changedto warehousing and distribution. The removal of permitted development rightsdoes not mean that buildings cannot be extended or new farm buildings erectedbut that planning permission has to be sought.The conditions set out in policy GS9 below will only be imposed where theyare justified and are fairly and reasonably related to the proposed development.
WHEN GRANTING PLANNING PERMISSION FORTHE RE-USE OF A BUILDING IN THE COUNTRYSIDE CONDITIONS MAY BE IMPOSED ORA PLANNING OBLIGATION SOUGHT TO COVER THE FOLLOWING:
i) TO TIE THE BUILDING TO THE HOLDING TO DISCOURAGE FRAGMENTATION WHERE IT IS PART OF A FARM DIVERSIFICATION SCHEME;
ii) IN A MIXED USE SCHEME, TO TIE A PROPOSED CONVERSION TO A DWELLING TO THE OTHER USE(S) ON THE SITE WHERE THE CONVERSION WOULD NOT OTHERWISE HAVE BEEN PERMITTED AND TO PREVENT ITS OCCUPATION BEFORE THE OTHER USE IS SECURED;
iii) WHERE BUSINESS USE IS PROPOSED, TO ENSURE THAT THE ACCOMMODATION REMAINS AVAILABLE FOR SMALL FIRMS (UP TO ABOUT 500 SQUARE METRES) OR FOR FIRMS WHOSE SOURCES OF SUPPLY, COMMERCIAL LINKAGES, LABOUR SUPPLY AND MARKETS MAKE THE SPECIFIC LOCATION NECESSARY FOR THEM;
iv) TO REMOVE PERMITTED DEVELOPMENT RIGHTS TO EXTEND THE BUILDING AND/OR CHANGE USES BETWEEN DIFFERENT CLASSES OF THE USE CLASSES ORDER;
v) TO WITHDRAW PERMITTED DEVELOPMENT RIGHTS FOR NEW FARM BUILDINGS ON THE HOLDING OR PART OF THE HOLDING WHERE THE SCHEME MAY LEAD TO A PROLIFERATION OF BUILDINGS WHICH WOULD HARM THE LANDSCAPE; AND
vi) TO SECURE IMPROVEMENTS TO THE APPEARANCE OF THE BUILDING AND ITS SURROUNDINGS.
Minimising the Need to Travel by Car and Reducing the Impact of Traffic
3.33 There is widespread concern that increased numbers of cars and goodsvehicles has led to congestion, noise and air pollution and has diminished the viability of some public transport services. The principal responsibilityfor transport matters rests with the Department for Transport, the CountyCouncil and the public transport providers. The District Council'sinvolvement extends to the provision and operation of public off-streetcar parks, influencing the location and nature of new developments and involvementin integrated transport studies for the main settlements. A fundamentalelement of the Council's local plan strategy will be to ensure thatnew developments occur in locations where the need to travel (in particularby car) can be reduced. It will also be important to ensure that new footpaths,cycleways and public transport facilities are, where possible, provided in association with new developments. Policy GS10 below reflects these aimsand further details are given in the transport chapter. The approach isconsistent with national guidance and structure plan policies and it underpinsmany of the policies guiding the location of development in this Local Plan.
NEW DEVELOPMENT WILL ONLY BE PERMITTED IN LOCATIONS WHERE THE NEEDTO TRAVEL, PARTICULARLY BY CAR, CAN BE MINIMISED OR WHERE IT IS SPECIFICALLYPROVIDED FOR IN OTHER POLICIES IN THIS PLAN. DEVELOPMENT WHICH WOULD GENERATESIGNIFICANT LEVELS OF TRAFFIC WILL NOT BE PERMITTED WHERE TRAVEL BY MODESOTHER THAN THE PRIVATE CAR ARE NOT AVAILABLE OR CANNOT BE PROVIDED FOR EFFECTIVELY.