Test Valley Borough Local Plan 2006

6 MEETING ECONOMIC AND SOCIAL NEEDS (cont'd)

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6.5 Employment

6.5.1 The Government emphasises the need to encourage continued economic development, subject to environmental objectives. 99 The Government considers that "by shaping the pattern of development and influencing the location, scale, design and mix of land uses, planning can help to reduce the need to travel, reduce the length of journeys and make it safer and easier for people to access jobs, shopping, leisure facilities and services by public transport, walking and cycling." 100

6.5.2 The Council’s overall approach is to retain existing employment land in general, and industrial estates in particular, and to encourage new employment development within settlements that can be implemented without harming residential amenity. The reuse of rural buildings (such as redundant farm buildings) for employment uses is also encouraged by Policy SET 09 in Chapter 3. This can help to strengthen the economy in rural areas and parts of the Borough which are heavily dependent on agriculture.

6.5.3 Chapters 10 and 11 also include a number of site specific proposals to encourage further economic development. At Andover, a large extension to Andover Business Park is proposed (Proposal AND 04), together with an extension to the Walworth Estate (Proposal AND 03). Chapter 11 includes a proposal to permit new buildings and the redevelopment or extension of existing buildings within the University of Southampton Science Park for research and development purposes (Proposal STV 01). It also includes a proposal to retain the Nursling Estate as a key location for storage and distribution uses in South Hampshire (Proposal STV 05) and a proposal that safeguards land at Adanac Park for major corporate development (Proposal STV 03).

   

ESN 15:

RETENTION OF EMPLOYMENT LAND

On existing employment sites within settlements, development for an alternative use will not be permitted unless the activity is causing, or could cause, significant harm to the character of the area or the amenities of residents.

On existing employment sites, allocated employment sites, or sites with planning permission for employment use, which have not yet been fully developed, development for an alternative use will not be permitted unless the land is no longer required to meet economic development needs.

6.5.4 Employment uses within the Borough's towns, villages and countryside contribute towards the mix of uses within settlements, provide valuable opportunities for jobs close to where people live, and benefit the local economy. The loss of land currently in employment use to alternative uses can increase existing problems such as commuting and the lack of certain types of employment, particularly manufacturing. In rural areas, such sites may be difficult or impossible to replace.

6.5.5 The loss of existing employment uses will only be acceptable if its reuse would remove a source of environmental or amenity problems. The removal of a noisy or visually intrusive use from a sensitive location, such as a residential area or a site adjacent to a school could improve the amenity of local people. Similarly, development for an alternative use could provide a distinct benefit to the surrounding environment, for example if it removed an eyesore from an otherwise attractive Conservation Area.

6.5.6 The industrial estates within the Borough provide opportunities for a range of employment uses, including those that may not be acceptable within largely residential areas. They provide the main opportunities for uses such as manufacturing and in certain cases meet particular economic development needs. University of Southampton Science Park, for example, has a research and development focus (see Proposal STV 01) and Nursling Estate meets a sub-regional need for storage and distribution uses (see Proposal STV 05). The replacement of these estates elsewhere within the Borough, if lost to other uses, would be extremely difficult without causing significant environmental damage. The Council's aim therefore is to maintain the role of these estates, through the prevention of changes to other uses, including retail and, on sites where the type of employment use is more closely controlled, other employment uses.

6.5.7 To maintain a vibrant economy firms need to have access to land that can be developed to meet their expansion needs. To ensure that this can happen, the Council has allocated or granted planning permission for a number of employment sites. The Council will not permit other forms of development on these sites, unless it can be demonstrated that they are no longer required to meet economic development needs. In making such an assessment the Council will take a long-term view of need (i.e. beyond the immediate economic cycle) and will not allow allocated or consented employment land to be lost to other uses just because there is a short-term downturn in demand.

   

ESN 16:

EMPLOYMENT DEVELOPMENT WITHIN SETTLEMENTS

Within settlements, as defined on the Proposals and Inset Maps, development for employment use will be permitted provided that there would be no detriment to the character and appearance of the area or to the amenities of occupiers of nearby properties.

6.5.8 Proposals for small-scale employment development within existing settlements can help to sustain the economy as well as provide more jobs that are easily accessible to local residents.. The Plan adopts a flexible approach to the development of new employment sites or the expansion of existing employment uses in settlements, provided that any scheme can be implemented without harming the character or appearance of the surrounding area and will not adversely affect the amenities of nearby residents. In residential areas Class B1 uses will usually be more appropriate than other employment uses. Restrictions to working hours may also be appropriate if the development is likely to generate levels of noise, either from certain processes or from visiting vehicles, which could harm the amenities of nearby residents.

6.6 Community Facilities

6.6.1 Community facilities include a wide range of uses such as shops, schools, healthcare facilities, community halls, churches, sports and recreational facilities. Many community facilities are concentrated in town centres and it is important to maintain the vitality and viability of such centres and to resist developments elsewhere, which would adversely affect them. 101 The provision and maintenance of local neighbourhood and village facilities is also an important part of encouraging more sustainable development patterns. Sports and recreational facilities are important resources for local communities, which should be protected, and where necessary, provided in association with new housing developments. This section includes policies on:

  • town centres and key town centre uses;
  • local shops, public houses and community facilities; and
  • recreational areas and facilities (including noisy sports and the keeping of horses).

6.6.2 Specific proposals relating to Andover and Romsey Town Centres are included in Chapter 10 and 11 respectively.

Town Centres

6.6.3 Town centres have a wide variety of functions. They serve as market places, business centres, meeting places, entertainment zones, tourist attractions, transport hubs and residential areas. They serve as a focus for the community and are usually highly accessible by public transport. The Council aims to enhance the role of the centres of Andover and Romsey through the retention of existing town centre uses, particularly shops, and by encouraging major retail developments and other key town centre uses (such as office or leisure developments) to be located within them. The Council will also encourage town centres to adapt to meet current demands, whilst maintaining their character and local shopping roles. Such new roles may include specialist shopping uses, tourism (particularly tourism based on the heritage of the towns and surrounding countryside) and other leisure uses, such as eating out.

   

ESN 17:

MAJOR RETAIL DEVELOPMENT AND OTHER KEY TOWN CENTRE USES

Retail developments, and other key town centre uses (such as large scale commercial offices, entertainment and leisure facilities) will be permitted within the town centres of Andover or Romsey (as defined on Inset Maps 2 & 4), provided that they are designed at a scale appropriate to the size of the centre.

Development for significant retail, commercial, entertainment or leisure facilities outside Andover and Romsey town centres will not be permitted if it could be accommodated within a town centre, edge of town centre, or local centre (in order of preference).

Any development that would harm the vitality and viability of town centres will not be permitted.

6.6.4 The location of retail development, or any major use attracting large numbers of people, has important implications for the vitality and viability of town centres. 102 Recent trends towards the dispersal of major retail, office and leisure uses to edge-of-town or out-of-town locations have, in some cases, harmed the nearby town centres, by attracting trade away from them. Such locations are also less likely to be easily accessed by walking, cycling or public transport.

6.6.5 The Government advises Council’s to adopt a "sequential approach" to considering proposals for major retail development. The first preference should always be for town centre sites, followed by edge-of-centre sites, then local centres. Sites outside settlements should only be considered if no other sites are available. The Government also advises that the sequential approach should apply to other uses that attract large numbers of people, such as: large commercial offices; higher education establishments; hospitals; leisure or entertainment uses.

6.6.6 The Council will expect developers seeking planning permission for significant retail, commercial, entertainment and leisure developments, that are likely to attract people from beyond a strictly local catchment area, to demonstrate that they have undertaken a search for suitable sites in accordance with the sequential approach. Any developer must demonstrate that there are no town centre sites available, or that could be made available, before the Council would consider permitting development on less central sites. The Council will not permit development for major retail or other key town centre uses if a more sustainable alternative location, in terms of the sequential approach, could be used. For retail and leisure proposals located outside Andover and Romsey town centres the need for the development will have to be demonstrated.

6.6.7 Any major developments proposed in Andover or Romsey town centres should be of a scale that respects the size and character of the centre within which it is proposed. Within the main shopping areas of both towns, the Council will seek to retain shops and an appropriate mix of non-retail uses on the ground floors of buildings in accordance with Proposals AND 07 and STV 08. Since such developments are likely to attract large numbers of people, the Council will expect developers to demonstrate that adequate transport infrastructure exists, or can be provided to accommodate the additional trips generated.

6.6.8 The purpose of the policy is not to prevent the development of small-scale shops or community facilities in neighbourhood centres and villages to meet strictly local needs. Policies ESN 18 and ESN 19 seek to retain existing local shops and facilities where they occur and Policy ESN 20 seeks to encourage new local shops and facilities.

   

ESN 18:

RETENTION OF EXISTING LOCAL SHOPS AND PUBLIC HOUSES

Development (including the change of use of existing premises) which involves the loss of local shops and local public houses, will only be permitted if it can be demonstrated that the use is no longer commercially viable, or cannot be made commercially viable.

6.6.9 The loss of facilities, such as neighbourhood shops in towns or village shops and public houses, reduces customer choice and can also necessitate people travelling further afield to meet their needs. This is a particular problem in rural areas, where village shops, post offices and pubs are central to village life.

6.6.10 The Council does not seek to preserve unviable facilities but wishes to prevent the loss of those that are viable, or could be made viable. Where a change to another use, or redevelopment is proposed, the Council will need to be convinced that the shop or public house is not viable. Developers will be expected to show evidence of attempts to market the property as a business and evidence that it has been advertised widely in appropriate publications.

   

ESN 19:

RETENTION OF LOCAL COMMUNITY FACILITIES

Development (including the change of use of existing premises) which results in the loss of a local community facility (other than shops and public houses), will only be permitted if it can be demonstrated that it is no longer practical or desirable to use the facility for its existing use or another use likely to benefit the local community.

6.6.11 Existing community facilities should not be unnecessarily lost through re-use or redevelopment to non community-based uses, even if they are currently unused or underused. Where a change to another use, or redevelopment is proposed, the Council will need to be convinced that the site or premises is no longer suitable or needed for the current or an alternative community use or that its continued community use cannot realistically be funded.

6.6.12 If it is considered that a facility is no longer needed for its current use, developers will be expected to demonstrate that the potential to use the site or building for other community uses had been investigated. Funding issues may relate both to the running of the facility itself and to its maintenance. In such cases the Council will expect evidence to be provided of the running and / or capital costs and of the efforts made to secure adequate capital or revenue funding.

   

ESN 20:

NEW LOCAL SHOPS AND LOCAL COMMUNITY FACILITIES

New local shops and community facilities will be permitted provided that:

  1. they are within settlements (as identified on the Proposals and Inset Maps) or involve the reuse of rural buildings which are located close to existing residential areas; and
  2. there would be no adverse impact on the character of the area or the amenity of nearby residents

6.6.13 Local community facilities, including local services, neighbourhood shops and leisure provision, provide a valuable and convenient service to local communities, reducing the need to travel by car and enabling those without cars to use such facilities easily. Many rural villages have lost shops, post offices and schools, and have infrequent public transport services and their communities are now heavily dependent on cars. Some suburban estates have been developed in the past without adequate access to local facilities.

6.6.14 The Council will encourage the development of new local community facilities within settlements to help meet local community needs. The reuse of rural buildings for this use may also be appropriate, provided that they are located close to existing residential areas so that they are in easy reach of those wishing to use them, and do not lead to an increase in the length and number of journeys.

   

ESN 21:

RETENTION OF RECREATIONAL AREAS AND FACILITIES

Development proposals which would result in the loss of existing playing fields or other recreational areas or facilities, will only be permitted if:

  1. the site or facility is not needed to meet the full range of recreational needs of the local community;
  2.  
    1. where a clearly identified community recreational need exists, it can be demonstrated that the site cannot realistically be re-used to meet such a need and equivalent replacement or alternative provi sion is made nearby which is both accessible to or meets the needs of the local community: and
    2. where playing field(s) are to be lost they should be replaced by equivalent or better in terms of quantity and quality and be in a suitable location.

6.6.15 Existing recreational areas and facilities, including sports pitches, recreational buildings, public open spaces and allotments, are important resources for the local community and should not be lost to built development. The Council considers that people should have access to open space close to where they live and the need for higher densities within urban areas should not compromise the important aim of protecting areas of green space and other recreational facilities.

6.6.16 The loss of existing recreational areas or facilities may be permitted if there is adequate provision of a full range of recreational areas or facilities in the local area to meet the needs of the local community. Where clearly identified recreational needs exist, the Council will only permit the loss of recreational areas or facilities if it can be demonstrated that the site is no longer suitable for its current use and cannot be put to alternative recreational uses to meet community needs. Where it is proposed to relocate a facility or provide an alternative use off site, it should be accessible to the existing and new users and be equivalent of size, attractiveness and quality.

6.6.17 Under the policy ancillary buildings on existing recreational areas, such as changing rooms for sports pitches, may be permitted where the primary use of such buildings is for recreational purposes. Such facilities may also be of wider benefit by improving the overall attractiveness of the recreational area.

6.6.18 In the case of allotments, their loss to built development will only be permitted if they can be replaced in or adjacent to the same settlement. Any replacement allotments must be within easy walking distance of the same population and of a similar, or better, agricultural quality than the original land.

   

ESN 22:

PUBLIC RECREATIONAL OPEN SPACE PROVISION

New housing development where there is a net increase in dwellings will be permitted subject to:

  1. the provision of open space to a standard of at least 2.8 ha per 1,000 population comprising:
    2. sport’s grounds / formal recreation 1.0ha
    parkland 0.4ha
    informal recreation areas 0.8ha
    children’s play space 0.6ha

as net areas of usable open space, excluding access, parking, ancillary buildings, landscaping and safety margins sufficient to avoid the need for visually intrusive fencing;

  1. the laying out and equipping of the open space to a high standard at an early stage in the development; and
  2. arrangements for the long term maintenance for the open space having been made.

6.6.19 The Council wishes to ensure that new residential development does not cause or exacerbate deficiencies in the general provision or quality of recreational open space. The recreational needs of any new developments should be met on-site or as close to a development site as possible. The Council will seek open space provision, or contributions towards open space provision, from all new housing developments, including infill developments, unless they are of a type of housing unlikely to generate demand for such facilities (e.g. sheltered housing for the elderly). The standards in the policy cover recreational open space only and do not relate to landscaping, wildlife or flood water storage areas, which may also be required on development sites. The different types of recreational open space are described in Annex 1.

6.6.20 The conversion in Figure 6.4 will be used to apply the open space standard to a proposed number of dwellings.

Figure 6.4: Applying the Open Space Standard
Number of Bedrooms per Dwelling 1 2 3 4 or more
 
Number of Persons per Dwelling 1 2 2.5 3

6.6.21 If the type of dwellings are not known, a rule of thumb conversion of 2.4 persons per dwelling will be applied to give a provisional calculation of the open space requirement; this calculation will be revised once house types are known. A developer should therefore allow in the layout for the size of open space to be altered depending on the mix of house types which is finally proposed.

6.6.22 Much of the recreational open space will be provided on site as an integral part of the design and layout of development. The only exceptions to this will be: where the site is not of sufficient size in itself to make the appropriate provision feasible; or where it is preferable to have contributions towards a specific major facility in the locality rather than a number of smaller areas on development sites. It will usually be possible to provide the equipped and casual children's play areas on most sites of over 20 dwellings, though only on larger sites will it be feasible to provide playing fields.

6.6.23 Where some or all of the required open space cannot be provided on site, developers may provide for the needs of their development off-site. This may be achieved either directly or by a commuted payment towards the provision of an equivalent area of public recreational open space elsewhere. This equivalent area should be located so that the population of the new housing can conveniently use it. In the case of play areas they should be within easy walking distance (400m) of the new development, though higher-order facilities such as major playing pitches may have larger catchment areas so that contributions towards provision further away may be appropriate, provided that access is readily available by foot, cycle or public transport from the development site. If there is an existing site in need of improvement or upgrading within an appropriate distance of the development, then payments towards upgrading may be an acceptable alternative to provision of a new site.

6.6.24 The Council will expect developers to provide for the laying out and equipping of open spaces to a high standard. This should be done at an early stage to enable occupants of early phases of schemes to meet their recreational needs locally. The future management of open space provided on site will be ensured, either through agreements with developers or by other arrangements agreed with the Council. Government advice on Supplementary Planning Guidance has been prepared which provides additional information on the requirements for public recreational open space and how they can be met, including guidance on how commuted payments for provision and maintenance will be sought.

   

ESN 23:

FORMAL RECREATION FACILITIES IN THE COUNTRYSIDE

In the countryside a formal recreation development or activity will be permitted provided that:

  1. there would be no adverse impact on the landscape character of the area or conflict with the conservation of the countryside;
  2. it would not require engineering works, ancillary buildings, other forms of development, off-site infrastructure or alien forms of landscape planting which would adversely affect the countryside or the setting and amenity of settlements; and
  3. any associated requirements for buildings and structures is restricted to that which is ancillary to the primary recreational use of the land and, where possible, is met within existing buildings.

6.6.25 Uses that may be permitted under this policy include activities which require large open areas, but few or no buildings or structures, such as golf courses and some equestrian activities. The policy excludes developments that would introduce urban influences into the countryside, such as stadia, or racetracks, and other activities, which rely primarily on the construction of structures or enclosures for their operation.

6.6.26 A location in the countryside is often essential for such uses but proposals, which would harm countryside interests, will not be acceptable. Developments should not harm protected areas, such as the New Forest, or areas of historic landscape value. Other parts of the countryside have a particular character and form part of a wider landscape entity. The introduction of a golf course, with new planting and earthworks, may introduce an alien feature into the landscape and have an adverse effect on a much wider area than the proposal site. An important consideration will therefore be the appearance of the use within the wider landscape, and the extent to which visual impacts could be contained in views by the landform and indigenous vegetation.

   

ESN 24:

NOISY SPORTS

In the countryside proposals for noisy sports will be permitted provided that:

  1. a there would be no adverse impact on landscape character or conflict with the conservation of the country side;
  2. there would be no adverse impact on the amenity of nearby residents;
  3. there would be no adverse impact on the amenity of users of public rights of way or other sites with public access;
  4. noise emissions would not be unacceptable by virtue of location and/or attenuation measures;
  5. the site is of sufficient size to accommodate any landscaping required to reduce the impact on the countryside;
  6. conditions are imposed to restrict use of the land to outdoor recreational use and specifying a return to agriculture should the recreational use cease; and
  7. any building provided is no larger than is essential to the function of the sport and is designed and located to minimise its impact on the countryside.

6.6.27 Noisy sports include the whole range of motor, gun, aerial and powered water sports. Noisy sports often require extensive areas of open land and in some cases need rural surroundings. The noise generated usually precludes sites within urban areas where excessive disturbance would be caused. Acountryside location is therefore often the only option.

6.6.28 Activities which take place on 28 days or less in the year do not require planning permission; however access, buildings or car parks are likely to require consent, as are activities that take place on more than 28 days. Granting planning permission for a permanent use can have benefits by bringing the activity within the scope of planning control to ensure the use is kept within acceptable bounds. The grant of temporary permission is also feasible and may be considered where an applicant has not fully satisfied the Council that the proposal will not harm the countryside. However, this temporary permission does not imply a commitment to a permanent permission, particularly if the criteria of the policy have not been met in full. Suitable locations are likely to be those where there is an existing noise intrusion in the countryside, such as adjoining a railway line or major transport route, where additional noise is likely to be less noticeable.

   

ESN 25:

THE KEEPING OF HORSES

Applications for development linked with the keeping of horses will be permitted provided that:

  1. it will not be detrimental to the character or visual amenity of the immediate and surrounding environment both within and outside areas subject to specific designations;
  2. the site is capable of supporting the proposed number of animals;
  3. there is safe access to the highways for all vehicles;
  4. there is safe access to the existing rights of way network; and
  5. there will be no adverse impact on landscape quality; nature conservation or the rights of way network.

6.6.29 Many people keep horses for recreational purposes in the countryside and the use is of value to rural communities and an important rural business in its own right. However, it can have harmful effects on the environment. Riding in the countryside can contribute to soil erosion, harm vegetation and have detrimental Meeting Economic and Social Needs impacts on wildlife interests. The keeping of horses can also lead to pressure for stabling, shelters and other structures which can be detrimental to the character and appearance of the countryside.

6.6.30 Any development associated with the keeping of horses should not have an adverse impact on the character and appearance of the countryside. Visual impact can be reduced through the re-use of existing buildings or through the sensitive location, screening and design of any new built development. When considering developments associated with the keeping of horses, the Council will take account of the capability of the land to support the intended number of animals. The British Horse Society recommends approximately two horses per hectare for permanent grazing (excluding storage areas and troughs). 103

6.6.31 Sites where horses are kept may, from time to time, require access by towed horseboxes or horse carrying lorries as well as private cars. Access to such sites should be safe and the routes to the sites should be capable of accommodating the type and volume of traffic likely to be generated without harming the character of the route itself. There should be safe access to bridleways, restricted byways and byways open to all traffic nearby to both reduce the need for riding on public roads and to ensure that there are adequate opportunities for the exercising of horses.

6.7 Tourism

6.7.1 The Government emphasises the need for sustainable tourism, which achieves both economic growth and the conservation of the environment. 104 In 2000, gross expenditure on tourism in Test Valley was estimated to be about £89 million, which was split fairly evenly between staying visitors and day visitors. Tourism is estimated to support about 2500 full-time equivalent jobs in the Borough. 105

6.7.2 The Council recognises that tourism is a dynamic industry, which needs to adapt to changing patterns and demands. It is essential, however, that any developments in Test Valley respect the high quality of the countryside and historic built environment, as it is these attributes which attract visitors in the first place. The varied nature of tourism developments means that they will need to be assessed against policies in a number of sections of the Local Plan. The pressure for tourism development may have implications for protected areas, such as the New Forest National Park. Also they should not cause problems in terms of excessive traffic generation, harm to residential amenity, or inappropriate design.

6.7.3 This section includes policies on:

  • tourism developments within settlements;
  • tourist facilities in the countryside;
  • tourist accommodation in the countryside; and
  • touring caravan and camping sites.
   

ESN 26:

TOURISM DEVELOPMENTS WITHIN SETTLEMENTS

Within settlements new tourist accommodation, attractions and facilities and extensions will be permitted provided that:

  1. the development will be in keeping with the scale of the settlement and the surrounding area;
  2. it maintains or enhances the historic and environmental character of the settlement.

6.7.4 Within the settlements of the Borough, opportunities for the development of new tourist attractions or accommodation may occur through the redevelopment or conversion of buildings, or infilling between buildings. Provided that these developments are in keeping with the character of their surroundings, do not harm the surrounding environment and do not jeopardise the economic and social needs of residents, they will be encouraged as a means of supporting the local economy.

6.7.5 The development of further attractions within the main towns of Andover and Romsey would be particularly valuable in order to support the town centres. Attractions in, or close to town centres can also be readily accessed by public transport. New tourist attractions, based on the heritage of the towns and their surrounding areas, will be encouraged. Attractions should be of high quality in order both to compete successfully within the market, and to complement the character of the surrounding area.

Tourism in the Countryside

6.7.6 In the countryside there is general policy of restraint but some tourist developments may be appropriate. The countryside of Test Valley, with the River Test and its many picturesque villages and the Public Rights of Way network are all attractions for tourists within the Borough. There is, however, a risk of the volume of tourists harming the environment that they come to see. High levels of visitor activity could have adverse effects where the capacity of particular sites or areas is unable to absorb the pressure of use.

   

ESN 27:

TOURIST FACILITIES IN THE COUNTRYSIDE

In the countryside a small-scale tourist facility, excluding accommodation, will be permitted provided that:

  1. there is no adverse impact on landscape character or conflict with the conservation of the countryside;
  2. it is directly related to the existing heritage and landscape qualities of the area;
  3. it does not detract from the general amenities of the locality and nearby residents.

6.7.7 Major tourism developments outside settlement boundaries are unlikely to be appropriate because of their potential impact on the countryside. However, the Council will encourage new tourism attractions and facilities in the countryside that are small in scale including sensitively sited and designed car parks and picnic areas. Developments that are sensitively designed and located may be appropriate, particularly where they help to improve employment opportunities in rural areas or allow for the diversification of an agricultural business.

6.7.8 New tourist attractions in the countryside should not adversely affect the open character and landscape quality of the countryside. The use should be directly linked to existing features worthy of retention in the countryside and the means of securing those features should be a part of the development proposals. Tourism attractions can generate significant amounts of traffic, which can harm the countryside. Any new attractions should not cause significant traffic or parking problems.

   

ESN 28:

TOURIST ACCOMMODATION IN THE COUNTRYSIDE

In the countryside, small-scale tourist accommodation will be permitted provided that:

  1. it utilises existing buildings or is attached to an existing local facility or development, such as a farm, and would be ancillary to, and assist in, sustaining its viability;
  2. there is no adverse impact on landscape character or conflict with the conservation of the countryside;
  3. it does not detract from the general amenities of the locality and nearby residents; and
  4. it is in a readily accessible, sustainable location.

6.7.9 Outside settlements there is a general policy of restraint in order to protect the open character and natural beauty of the countryside. Development outside settlements is also less likely to be accessible by public transport and within easy reach of facilities. New tourism accommodation in the countryside should therefore be small in scale. It should also utilise an existing building wherever possible. New accommodation can be provided through the conversion of existing buildings and extensions to hotels and guesthouses can enable existing premises to upgrade their accommodation or facilities to meet the higher standards expected by today's tourists.

6.7.10 Where rural buildings are converted or extended to form tourist accommodation, it is essential that the development respects the character of the building and does not have an adverse visual impact on the surrounding countryside. Proposals for serviced and self-catering accommodation should be appropriate in design and scale to their surrounds.

6.7.11 Holiday accommodation can lead to problems of access and parking. Car parking to meet the needs of the accommodation should be provided in conjunction with the development, in order not to exacerbate on-street parking problems. Car parking areas should be landscaped and designed so as to avoid harming the setting of the building or adjacent buildings. Where adequate car parking cannot be provided without significantly detracting from the character of the surroundings then proposals will be refused.

   

ESN 29:

TOURING CARAVAN AND CAMPING SITES

In the countryside, small scale camping and touring caravan sites will be permitted provided that:

  1. it is for touring tents and caravans only, and does not include permanent chalets or static caravans;
  2. there is no adverse impact on landscape character or conflict with the conservation of the countryside;
  3. it is satisfactorily screened, accessed and serviced;
  4. it is associated with existing development such as a farm or recreational or tourist activity; and
  5. the site is readily accessible to local facilities that guests are likely to use.

6.7.12 Touring caravan and camping sites are an important part of the self-catering holiday sector and can contribute to the local economy. They also provide tourists with the opportunity to wander and explore. Wherever located, sites should not have an adverse impact on the wider countryside. They should be small in scale, effectively screened and laid out so as not to be visually intrusive. The characteristics of a touring facility with its seasonal use is likely to have a limited impact on the countryside. More permanent accommodation, such as static caravans or chalets, is visible all year round and will be more intrusive. These types of development will not be permitted on caravan and camping sites in Test Valley.

6.7.13 The Council will require that any sites are both associated with an existing development, such as a farm, tourist or recreational development and are located close to local facilities. This will not only ensure that sites are conveniently located for tourists, but will also help to prevent the sporadic development of caravan and camping sites in the countryside and limit the amount of traffic using the Borough’s rural roads. Caravan and camping sites should also meet the requirements of PPG 25 (Appendix G) and Policy HAZ 02.

Holiday Occupancy Conditions

6.7.14 Where tourist accommodation is permitted in the Borough, the Council will normally apply a condition restricting its occupancy to holiday use only. This will help to ensure that the property, once permitted, remains as tourism accommodation, and prevents remote or otherwise unsuitable properties from coming into general residential use. In some cases it may also be appropriate to apply a seasonal occupancy condition restricting the use to a number of months per year.

6.8 Infrastructure

6.8.1 It is essential that items such as roads and drainage are provided in association with schemes for housing or other forms of development. Also some infrastructure items, such as telecommunications facilities, are often provided independently of other development. The Council will require the provision of essential infrastructure as part of development schemes and will take full account of the environmental impacts of other infrastructure projects when considering their acceptability. This section contains policies on the provision of:

  • infrastructure in association with new development;
  • telecommunications;
  • renewable energy schemes; and
  • advertisements.
   

ESN 30:

INFRASTRUCTURE PROVISION WITH NEW DEVELOPMENT

Development should make appropriate provision for infrastructure and community facilities directly related to and necessary for the development, having regard to the type, location, scale, and cumulative impact of the development proposed.

6.8.2 A range of services and facilities is often necessary for development to proceed. Such services may include power, water supplies, sewerage and wastewater treatment and surface water disposal together with schools, shops, recreation, health, social and cultural and recycling facilities. Many services and facilities need to be connected or provided either before development takes place or at an early stage. Policy TRA 01, relating to transport infrastructure, sets out the principle that development should only be permitted if it can be demonstrated that its transport-related impact is acceptable. In some cases, development can only meet this requirement if improvement works are carried out, or new facilities provided.

6.8.3 Where new services or facilities are required specifically as a result of a development and developers are asked to make provision, planning permission will be granted subject to agreements to secure implementation. Contributions may take the form of commuted payments, as in the case of open space provision (Policy ESN 22). Developers will be expected to negotiate with the Council, and in appropriate circumstances the relevant statutory undertaker or provider, for the provision of infrastructure.

   

ESN 31:

TELECOMMUNICATIONS

Planning applications and prior approvals for telecommunication development will be permitted or granted prior approval provided that:

  1. a the equipment (including associated buildings and structures) is sited and designed to minimise visual intrusion;
  2. it does not adversely affect the quality of the surrounding landscape or townscape;
  3. there are no other suitable sites or facilities for sharing;
  4. wherever feasible new masts or antennas are mounted on existing buildings or structures providing that listed buildings or conservation areas are not adversely affected; and
  5. it has been demonstrated that the proposal meets guidelines from the International Commission on Non-Ionizing Radiation Protection.

6.8.4 The Government encourages Councils to allow for the efficient development of the telecommunications network to meet the growing needs of business, public services and individuals. However, it also advises that any telecommunications developments should be sited, and their external appearance designed, to minimise environmental impacts whilst not inhibiting the operational efficiency of the development. 106

6.8.5 Telecommunications installations can have significant visual and other environmental impacts. There are several ways in which the visual effect of telecommunications can be minimised. The sharing of masts can reduce the number in a particular area, though there may be technical restrictions preventing this in some cases. Sharing may also result in the need for the original mast to be taller or have a greater number of antennas on the top, which may be more visually intrusive than a number of smaller masts.

6.8.6 The visual effects of masts may be limited in appropriate cases by installing them on existing structures, such as buildings or electricity pylons. Where siting on or in, an existing building is proposed, the impact on the building will be an important consideration. The Council will carefully scrutinise any proposed telecommunications development, which may have an impact on Conservation Areas or Listed Buildings and will not permit such developments where there would be an adverse impact.

6.8.7 Landscaping and screening of masts, and control over materials, colour and design, can also help to reduce their impact. Pole masts are generally preferable to tower or lattice masts, and height should be kept to a minimum wherever possible (under 20 metres is preferable). Particular types of telecommunications developments may have special siting needs, and technical and operational requirements will be taken into account in assessing any applications. Associated buildings and structures, such as control cabins, can be intrusive as well as the masts themselves. This impact can be minimised through careful positioning and landscaping.

6.8.8 Independent technical assessments of requirements may be sought in connection with specific proposals. If existing masts are no longer required, their removal by the operator is desirable. This would be dealt with through the licensing of the mast rather than through planning control.

6.8.9 The Council will intervene in the details of certain permitted development if, taking into account any technical or safety requirement, the telecommunication apparatus would have an adverse effect on the external appearance of the building.

   

ESN 32:

RENEWABLE ENERGY DEVELOPMENTS

Proposals for the development of renewable energy schemes will be permitted provided that:

  1. the impact of the development on the immediate and wider landscape, particularly within statutory and non statutory designated areas, is not detrimental;
  2. the proposal does not adversely affect features or areas of ecological, historic or cultural interest;
  3. measures are undertaken, both during and after construction, to minimise the impact of the development on local land use.

6.8.10 The Government wishes "to stimulate the exploitation and development of renewable energy sources wherever they have prospects of being economically attractive and environmentally acceptable." 107 The development of renewable energy sources helps to increase the diversity and security of energy supply, and could also help to reduce harmful emissions to the environment. 108 Renewable energy schemes encompass a range of different types of development, including the generation of energy from wind turbines; and the generation of both heat and energy from the burning of wood fuel from short rotation coppice. "Energy from Waste" developments are not covered by this Local Plan policy, as this is dealt with separately in the Hampshire Minerals and Waste Local Plan.

6.8.11 Government guidance acknowledges that renewable energy systems differ from fossil fuel and nuclear energy systems in their relationship to land use and the environment. They tend to be of a lower energy output for an equivalent area of land used, when compared with conventional sources, and capital plant requirements may be more expensive. A variety of factors peculiar to the technology involved have to be taken into account in assessing planning applications for renewable energy systems. 109

6.8.12 Encouragement of the development of renewable energy sources must be weighed carefully against the policies in this Plan to protect the environment (see Chapter 4). Many schemes can have particular locational constraints since, in many cases, the resource can only be harnessed where it occurs. In considering schemes for renewable energy development, the Council will consider both the immediate impacts of renewable energy projects on the local environment and their wider environmental benefits, such as a contribution to reducing emissions of greenhouse gases.

   

ESN 33:

ADVERTISEMENTS

Advertisements will be permitted provided that:

  1. their siting, size and illumination do not have an adverse impact on highway or pedestrian safety;
  2. they are appropriate in terms of size, colour, material, lettering and height to the surrounding environment and if located on a building it is well related to its scale and setting;
  3. they do not adversely affect the character of settlements or the countryside; and
  4. any illumination is designed to minimise visual intrusion.

6.8.13 The aim of this policy is to ensure that advertisements do not cause any risks to safety and do not harm the appearance of buildings, the character of settlements and quality of the countryside. Advertisements communicate information to passers-by, and are essential to many commercial activities. They take many forms, including: fascia signs and projecting signs on shops; pole signs at petrol filling stations; sign boards at factories; poster hoardings; and advance signs along highways. The Government recognises that "all advertisements affect the appearance of the building, structure or place where they are displayed. The main purpose of the advertisement control system is to help everyone involved in the display of outdoor advertising to contribute positively to the appearance of an attractive and cared-for environment in cities, towns and the countryside." 110

6.8.14 The quality of the environment can be adversely affected by the introduction of shop and other business signs which may be inappropriate in design, colour, materials, degree of illumination and visual intrusion. This can be particularly acute in historic towns or villages, in the countryside and along transport corridors. Advertisements may also lead to road safety problems by distracting road users, or reducing highway visibility.


99 para. 1, PPG4: Industrial and Commercial Development and Small Firms, 1992, DoE.
100 para. 3, PPG13: Transport, 2001, DETR.
101 PPG6: Town Centres and Retail Development, 1996, DoE.
102 para. 1.11, PPG6: Town Centres and Retail Development, 1996, DoE.
103 Guidelines for the Keeping of Horses - Stable Size, Pasture Acreage and Fencing, 1995, British Horse Society.
104 para. 1.1, PPG21: Tourism, 1992, DoE.
105 The Economic Impact of Tourism in Test Valley Borough, 2001, Southern Tourist Board.
106 para. 74-80, PPG8: Telecommunications, 2001, DTLR.
107 para. 8, PPG22, Renewable Energ y, 1993, DoE.
108 para. 3, op.cit.
109 para. 4, op. cit.
110 para. 2, PPG19, Outdoor Advertisement Control, 1992, DoE.

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