TDLP PART 1 CHAPTER 4 - ECONOMIC DEVELOPMENT

AGRICULTURE

4.44 Agricultural land use includes use for forestry and fishing. The Structure Plan provides that the best and most versatile agricultural land, being land classified within Grades 1, 2, or 3A, should be conserved. Where agricultural land needs to be developed, any adverse effects on the environment are to be minimised. The national agricultural interest needs to be taken into account before any good quality agricultural land is released for development. Good quality land is protected against inappropriate development. Recognising the importance of the rural economy, the District Council is supportive of the rôle of the South West Forest in the promotion of integrated rural development.

Agricultural Development Strategy

4.45 The District Council in partnership with others has produced an Agriculture Strategy for North Devon. The need for the planning system to facilitate agricultural regeneration and protect the environment is recognised. The planning strategy for agricultural development is as follows:

• To facilitate sustainable agricultural development
• To encourage appropriate agricultural diversification
• To protect the best and most versatile agricultural land from development
• To guide the appropriate reuse of agricultural buildings
• To exercise appropriate restraint on unnecessary development, applying relevant tests of economic viability and functional need, assisting going concerns, and preventing abuse of the planning system.

The quality and distinctive characteristics of the farmed landscape will be conserved and enhanced.

Agricultural Development

4.46 The General Permitted Development Order (GPDO) determines the circumstances in which planning permission is required. The principal issues are ones of need, scale, siting, and amenity in relation to economic operation and the surroundings. Where the principle of agricultural development is established by permitted development rights and the LPA requests a planning application as a consequence of prior notification, the only relevant issues are siting, design, and external appearance. Pressure for intensive development may arise in response to demands for permaculture and for hobby farming, specifically in respect of part-time development and small farm units. The planning system makes provision for more extensive development control on units of less than five hectares in extent.

4.46A Policy is needed to apply the principles of sustainable development where control is exercisable, ensuring that legitimate agricultural enterprise is facilitated and that appropriate rural economic diversification is encouraged wherever this may be reasonably justified in a way consistent with the aims of the Plan and the permitted development rights that exist.

4.47 The principal aims for agriculture are to promote development that meets the changing requirements of the agricultural economy and, subject to the provisions of the GPDO, to exercise strict control over unnecessary new development in the countryside. The objective where relevant is to control the scale and impact of development, strictly limiting new development to that which is both necessary for business and food production purposes and justified by the scale of operation proposed.

Policy ECD5: Agricultural Development

(1) In circumstances where planning permission is required for development related to agriculture, it will be granted provided that:

(a) the scale of development is justified by the operational needs of the enterprise; and

(b) the prospects of reusing vacant, underused, or redundant agricultural buildings or their sites have been explored fully and opportunities exhausted; and

(c) the development will not detract unreasonably from the amenities of the occupiers of non-agricultural accommodation in the vicinity; and

(d) the siting is integrated wherever practicable with the existing farmstead and well related to existing landform features.

(2) Where planning permission is required for agricultural development on smallholdings or on holdings of less than five hectares, consent will be granted in the following circumstances:

(a) in the case of existing enterprise, only where the agricultural need has been demonstrated; and

(b) in the case of new enterprise, only where the financial viability of the unit has been demonstrated.

4.48 The policy enables agricultural development within a consistent framework that is flexible enough to take adequate account of the changing needs of agriculture.

4.49 In considering agricultural proposals, the LPA will take into account all of the following:

• The need to maintain agricultural efficiency
• The scale of the enterprise being undertaken
• The potential for disturbance to any nearby protected buildings
• The need to safeguard environmental quality and control impact
• The permitted development rights that exist.

New and replacement agricultural buildings should be sited well away from protected buildings. Protected buildings are habitable and /or institutional buildings used by the public and specified for the purpose of the GPDO. Development likely to cause nuisance or serious disturbance will not be permitted in close proximity to residential accommodation, though the occupiers of converted buildings are expected to tolerate routine agricultural operations.

4.50 The locational policy criterion in respect of siting is not intended to prevent agricultural enterprise moving out of villages. Where an existing farmstead is inconveniently located, new agricultural development may be guided to an edge of village location or other site well related to landform so that local character and distinctiveness may be maintained.

4.50A Implementation of the policy through the development control system will enable development to support the agricultural economy, to deal as necessary with new environmental, hygiene, and welfare legislation, and to meet changing market requirements. Subject to planning permission, buildings that are not suitable for permissible reuse may be demolished so that the land can be brought back into productive agricultural use. Subject to amenity and safety considerations, others appropriately may be abandoned to nature.

4.51 The following three parts of the subsection explain the second part of the policy, which supplements the policy criteria for agricultural development contained in the first part of the policy by dealing with specific aspects of development.

Severance and Fragmentation

4.52 The sub-division of farmland is becoming more common in Torridge. It is recognised that the size and composition of agricultural holdings is changing in response to commercial and other pressures. The issues with respect to sub-division of holdings involving the creation of new agricultural units, the severance of fields from existing holdings, and /or the fragmentation of existing units are the need for new buildings, the redundancy and adaptation of existing buildings, and the viability of new enterprise.

Small-scale Agriculture

4.53 Holdings of five hectares and under are not necessarily below the threshold for agricultural viability. It is recognised that legitimate agricultural development on a small scale may be proposed in respect of the following activities:

(a) Horticulture, which may involve polytunnels and /or other managed growing environments normally close to markets /edge of town

(b) Other intensive farming

(c) Smallholdings, where there may be a requirement to grow new crops or rear, raise, or keep livestock principally for consumption by the operator

(d) Permaculture, where mixed agricultural practices often including organic farming may be combined with a low-cost alternative lifestyle.

Where the need for or viability of a proposal is not transparent, it will need to be demonstrated by additional information. Applicants may wish to submit an economic impact statement, a business plan containing an economic forecast, or an economic feasibility study for example.

Part-time Agriculture

4.54 The second part of the policy also will be applied to proposals for the erection of new agricultural buildings or other operations requiring planning consent in connection with part-time farming on a small scale or on a smallholding.

4.55 The policy is not intended to prevent self-sufficient agricultural production for home consumption not involving a commercial sale element. Where the enterprise concerned does not have a commercial element, new agricultural development may still be justified provided that the information required to support the planning application adequately demonstrates the financial viability of any such operations that would constitute a new enterprise. Development associated with hobby farming for recreational purposes will fall to be considered under the rural area and recreation development policies of the Plan. Such development may be intended to provide a supplementary income but where it is a sub-economic operation, it may not be treated as agricultural development by the LPA.

4.56-4.60 [No text]

TOURIST DEVELOPMENT

Tourism Strategy

4.61 The main holiday and tourist areas should be protected from harmful development. The following four distinct tourist areas are identified in Torridge:

(1) The coastal resort of Westward Ho!
(2) The rest of the main settlements (Bideford /Northam including Appledore, plus Great Torrington and Holsworthy)
(3) The protected landscapes (Area of Outstanding Natural Beauty, Heritage Coast, Area of Great Landscape Value, and Coastal Preservation Area)
(4) The rest of the rural area.

4.62 The Structure Plan provides that the character and viability of the tourism industry in the coastal resort of Westward Ho! should be maintained and it supports the development of sustainable forms of tourism in appropriate locations and on a scale appropriate to the location. Whilst pursuing economic aims, it seeks to maximise the benefits to the resident community and to minimise the adverse environmental impacts.

4.62A Acceptable types of tourist development in the rural area are defined in the Structure Plan and are summarised as follows for ease of reference:

• Small-scale hotel, guesthouse, and self-catering accommodation developments in villages
• Farm and country house accommodation, including in well-related ancillary conversions
• Facilities directly related to recreational activity
• Holiday and touring park improvements
• New touring parks outside the AONB and the Coastal Preservation Area, subject to proven need
• Camping sites outside the Coastal Preservation Area
• Visitor attractions that would secure the protection of the area features on which they are based .

This summary does not vary the approved strategic policy in any way.

4.62B The District Council in partnership with others has produced a Tourism Development Strategy for Torridge. Quality and integration have been identified as the key issues and the aim is for a sustainable tourism industry. The main findings of the strategy are as follows:

• The industry needs to harmonise its activities with what is best for the environment and the resident community, as well as building a solid base for sustainable long-term growth
• Diversification and extensification of activity are important
• Standards among the number of attractions and visitor destinations, including the popular coastal resort of Westward Ho!, need to be raised toward the quality of the best.

4.63 The general aim is for all new tourist development to adhere to the principles of sustainable tourism established by the Government and reproduced in the Strategy. In accord with the principles, with the County tourism strategy, and with the local development strategy, the tourism objectives of the Plan are as follows:

(1) To focus tourist development on the resort of Westward Ho!
(2) To identify key tourist development opportunities in the resort and the Area Centres
(3) To set clear criteria for the types of sustainable tourist development defined in the Structure Plan
(4) To enable appropriate tourism initiatives in an environmentally acceptable way across the District
(5) To introduce positive policies for expansion of the countryside recreation network
(6) To conserve the quality and character of countryside while ensuring good design in development.

The tourist development policies of the Plan need to support these aims and objectives, providing for the necessary protection of tourism assets.

4.64 The District Council will improve the physical appearance of parks, beaches, and sea front areas under its control. Subject to strategic development restraint within the AONB and the Coastal Zone in particular, the pressure for tourist development in the rural area may be accommodated by maintaining and developing the following resources:

• The green tourism network - an extensive countryside recreation network that provides green tourism opportunities
• Tourist attractions - a number of such attractions are in keeping with landscape character and linked to the green tourism network.

Policy for c ountryside recreation and the establishment of a countryside recreation network is contained in Chapter 5 of the Plan.

Tourist Development Criteria

4.65 The Structure Plan defines the types of tourist development that in principle are sustainable and acceptable within the District. It restricts the location of new large-scale accommodation and tourist facility development in settlements to Westward Ho! and the Area Centres. Large-scale is defined as that which would have a noticeable effect on the tourism industry of Westward Ho!

4.65A The acceptable types of tourist development defined in the Structure Plan and referred to in the policy below are set out in the tourism strategy section of the Plan. The level of detail contained in the Structure Plan is such that no elaboration or interpretation of the policy is needed. The Plan needs to ensure that appropriate tests are applied and that, where new visitor attractions and other significant new development is permissible in principle in the rural area, proper account is taken of the economic impact.

Policy ECD6: Tourist Development Criteria

(1) Planning permission for acceptable types of tourist development will be granted provided that:

(a) the tourist need is identified, or the proposal is well related to existing tourism centres, attractions, or assets; and
(b) adequate arrangements for effective visitor management are incorporated; and
(c) the wider benefits of the scheme outweigh any conservation and amenity interests; and
(d) the natural beauty of the Area of Outstanding Natural Beauty is not harmed.

(2) New tourist development permissible at villages or in the open countryside will be expected:

(a) to bring significant economic benefits to the wider area, or substantial benefits to the community; and
(b) to demonstrate explicitly the scale and extent of such benefits.

4.66 All acceptable types of tourist development will be expected to give proper attention to the tourism potential of the area in which they locate, to visitor management issues such as traffic implications, parking, and ancillary visitor services, and to detailed design aspects. Site suitability and the relationship to existing tourism centres and assets, including the number, location, and extent of tourist attractions in the area, will be taken into consideration in determining proposals.

4.67 Appropriate visitor management arrangements will include provision for the following:

• Multimodal access, incorporating alternative transport links and facilities where necessary
• Car and coach parking, at an appropriate level and with adequate landscaping
• Boundary treatment, with site security arrangements in keeping with local character
• Site entry, with arrangements to handle likely off-site queuing
• Links, making a good relationship with the countryside recreation network.

On-site visitor management issues will be largely a matter for the site operator and the relevant licensing authorities.

4.67A The Structure Plan makes a distinction between large- and small-scale developments. In the interest of sustainable tourism, an economic impact assessment will be required where large-scale proposals would impact substantially on the local economy. Assessment will be required, based on the scale of development in relation to the character of the settlement where development is proposed. The LPA will require all popular tourist and specialist recreation development proposals that generate significant volumes of traffic to be accompanied by an economic impact statement explicitly demonstrating the scale and extent of the benefits. Large-scale development that does not bring significant economic benefit to the area or deliver other substantial community benefits to the locality will not be permitted.

4.67B Specific benefits that might be secured through planning obligations could include some or all of the following:

• Landscape enhancement
• Accessible natural greenspace, woodland planting, or wildlife areas
• Picnic areas
• Footpath links with other countryside recreation provision.

Applicants may wish to present a summary of potential benefits, especially for the local economy or local residents, and for any wider community or conservation interest.

4.68 New or extended tourist attractions where permissible will need to be well integrated with their surroundings. All tourist development proposals in the rural area will be expected to meet the relevant policy criteria. Even popular development may be designed to contribute to the quiet enjoyment of the rural area.

4.69-4.70 [No text]

Westward Ho!

4.71 A Strategy for Westward Ho! produced by W S Atkins for the District Council has been approved in principle, subject to agreement of individual proposals and to funding arrangements. The local strategy is as follows:

• To define core areas, where tourist needs will be accommodated
• To develop a priority programme of enhancement, based on those elements of the unified strategy over which the District Council can exert the most influence.

This approach is supported by an ongoing programme of capital works for schemes in the public domain.

4.72 The Structure Plan makes explicit reference to Westward Ho! as a coastal resort. It makes provision for additional tourist accommodation and tourism facilities on a scale compatible with existing development and it requires the Plan to identify the main tourist areas of Westward Ho!, within which proposals that would detract from their tourist function and character would not be permitted. The aim is to maintain the tourist character and viability of the resort. It is necessary to maintain a viable balance between tourist accommodation and the provision of tourism services and of tourist attractions and also to integrate development with community facilities.

Policy ECD7: Westward Ho!

(1) In the coastal resort of Westward Ho! planning permission will be granted for:

(a) tourist development that improves the attractiveness of the resort for both visitors and residents; and
(b) other appropriate development that would maintain the tourist character of the resort.

(2) The core tourist areas defined on the Proposals Map will be retained primarily for tourism purposes.

(3) Key tourist sites within the defined core tourist areas, which may contribute to the character of the resort, will be safeguarded and retained for complementary retail, leisure, or entertainment use.

(4) Development that would diminish the tourist character of the resort will not be permitted.

4.73 The policy protects the rôle of Westward Ho! as a seaside holiday resort, which issue has been resolved both in the Westward Ho! Strategy and in the Structure Plan. The policy implements the strategic approach in three ways:

(1) It seeks to enhance the resort
(2) It defines core tourist areas where tourist accommodation should be retained
(3) It identifies key sites that provide valuable tourism facilities and sustain the tourist character and viability of the resort.

The District Council will focus on Westward Ho!'s tourist assets and will aim to implement aspects of the local strategy within the core tourist areas.

4.74 Planning permission for significant development, being development other than minor or infill development as defined in the glossary of the Plan, in the core area will be granted only where it is for tourist purposes. Tourist development will be taken to comprise the following:

• Tourist accommodation
• Visitor attractions
• Tourism facilities
• Complementary service development (retail, leisure, or entertainment) available for tourist use.

Significant market housing or general employment development will not be acceptable within the core tourist areas.

4.75 The policy supports the provision and retention of complementary services and facilities within the core areas. It can secure real opportunities for complementary activities in key positions and should prevent important sites from being lost to other uses. Key sites are defined as sites in important corner or link positions and sites in other locations, with the potential to accommodate tourist attractions or that can act as a focus for tourist interest. Tourist accommodation will not be permissible at ground floor level on key sites. Such sites are needed in the resort to service tourist need, to sustain tourist interest and to maintain the character and viability of the resort.

4.76 [No text]

Occupancy of Tourist Accommodation

4.77 The Plan has responded to the state of the holiday market and the LPA will need to be responsive to future change. Both holiday occupancy and seasonal occupancy need to be considered. Policy is needed to control the change of use from holiday use to residential use.

4.77A The approach to holiday occupancy in relation to development proposals for the use of tourist accommodation outside of the traditional summer holiday season has been reviewed, in the light of Government guidance. The only seasonal control considered routinely necessary is to protect conservation interest.

Policy ECD8: Holiday and Seasonal Occupancy

(1) Where an additional dwelling would not be permitted, self-catering tourist accommodation will be limited to holiday occupancy only.

(2) Holiday occupancy will be restricted to relevant parts of the year where necessary to protect the natural environment.

4.78 In granting planning permission for self-catering holiday accommodation or for holiday caravans, the LPA will impose a holiday occupancy condition that specifies use as holiday accommodation only in locations where permanent housing would be inappropriate. This is necessary because the settlement policies of the Plan limit market housing development in the Rural Area.

4.79 The issue of seasonal occupancy is a separate matter. The imposition of a seasonal occupancy condition, to prevent the permanent residential use of accommodation that by the nature of its construction standard is unsuitable for continuous occupation, especially in the winter months, is not justified. The standard of construction and of energy conservation is a building control issue. Design is a separate issue. The second part of the policy provides that a seasonal occupancy condition may be appropriate to protect the natural environment, such as maintaining tranquillity for seasonal bird life susceptible to disturbance. Where accommodation is located away from sites important for nature conservation that are susceptible to disturbance, and is consistent with other relevant policies of the Plan, it will be considered suitable for year round holiday use.

4.80 The District Council will maintain a register of tourist accommodation subject to occupancy restrictions.

ENERGY AND WASTE

4.81 Strategic energy policy is set out by the Government and addressed in the Structure Plan. National policy is to stimulate the exploitation and development of renewable energy sources wherever they have prospects of being economically attractive and environmentally acceptable. The Government has set national targets for greenhouse gas reduction and for electricity production from renewable energy sources. Regional and local studies have identified the prospects of renewable energy development in the south west and in Devon respectively.

4.81A The national energy targets are as follows:

• By the period 2008 - 2012, to have reduced the current level of greenhouse gas emissions to 87.5% of the 1990 levels
• By 2010, to have reduced carbon dioxide emissions to 80% of the 1990 level
• By 2010, 10% of electricity production to derive from renewable sources.

The regional targets are as follows:

• By 2010, to seek to derive a minimum of 11% of electricity production from renewable sources
• By 2010, to derive up to 15% of electricity production from renewable sources.

The sub-regional target for Devon is 151MW of electricity production from renewable sources by 2010. Such targets will need to be considered by the LPA.

4.81B The Structure Plan provides that economically attractive renewable energy development that would contribute to the economic needs of the community is to be supported subject to landscape impact and local environmental conditions. The Devon County Council may address related matters in an Energy Local Plan or a Waste Local Plan. Prejudging such a Plan is not an option. An interim strategy is needed to guide energy development in advance of its adoption.

Energy Development Strategy

4.82 The Structure Plan addresses renewable energy development and sets criteria against which proposals should be determined. In the absence of detailed local studies, it would not be appropriate for the Plan to define the Areas of Search by renewable energy source for specific energy developments.

4.83 The aim is to facilitate alternative energy generation through the criteria based policy approach. The interim development strategy is as follows:

• To promote alternative energy generation that will reduce dependence on fossil fuel and nuclear power
• To facilitate appropriate energy generation that will serve regional needs
• To encourage local generation of alternative energy from renewable sources.

The North Devon Renewable Energy Action Plan identifies the potential of renewables locally.

4.84 The District Council encourages the development of alternative energy supplies from renewable sources, promotes the conservation of energy, and supports the elimination of fuel poverty. It supports the national energy targets by encouraging and promoting the greater use of renewable energy sources. It promotes the integration of community-based projects into energy efficient development proposals and will work positively to contribute to the attainment of realistic energy targets. In the above context, the District Council will review its approach to targets in due course.

4.84A The interim strategy has facilitated project development for alternative energy generation.

Energy Development

4.85 Policy is needed to enable appropriate development and to encourage the integration of new technology into development. The integration of alternative energy technology into the structure of homes and other buildings can have considerable energy advantages and is compatible with attractive building layout and architecture.

4.86 In recognition of the contribution that the District may make to the generation of energy, policy is needed to encourage such development with regard to national guidance and regional development policy.

Policy ECD9: Alternative and Renewable Energy Development

(1) Appropriately located renewable or alternative energy development will be permissible provided that:

(a) in the case of renewables, the scheme has due regard for specific national or regional energy targets; and
(b) in the case of alternatives, the scheme is designed to supply the energy needs of local business and /or the local community.

(2) Renewable energy development that would contribute to the energy needs of local business and /or the local community will be permitted provided that:

(a) the wider benefits outweigh any conservation and amenity interests; and
(b) in the case of a windfarm proposal, the specific features and qualities of the Area of Outstanding Natural Beauty, the Area of Great Landscape Value, and the Coastal Preservation Area would not be unacceptably harmed.

4.87 Proposals for all new energy generation will be assessed on the basis of the policy. The terms renewable energy and alternative energy are defined in the glossary of the Plan. Energy generation from a range of renewable sources will be facilitated and development is encouraged to meet local community and economic needs. In determining proposals for renewable or alternative energy development, due consideration will be given to any special locational requirements for the technology involved, and to the prospect of long-term economic sustainability. Development in accordance with the policy would contribute to the national greenhouse gas reduction targets.

4.88 Subject to a favourable detailed consideration, or until targets based on realistic prospects compatible with environmental constraints may be established, planning permission will only be granted for the following key forms of renewable energy development where designed to meet specific, local, or community needs:

(1) Wind turbine generators
(2) Energy from waste (eg biogas energy plant)
(3) Biomass conversion
(4) Solar systems
(5) Hydro power.

Development designed to serve the energy needs of local business or to make a positive contribution to the energy needs of the local community will be supported in principle. This includes combined heat and power (CHP) plants located near to potential areas of energy demand. This does not infer a presumption in favour of all of the available technologies in any location. In the case of large-scale facilities relative to the surroundings, including prominent wind turbines, the impact on area character in particular may preclude some forms of development.

4.89 In all cases, energy development will be expected to strike an appropriate balance between environmental issues and the need for and benefits of renewable energy. All development should meet safety requirements and have no unacceptably adverse impact. Proposals should aim to protect neighbourhood amenity and avoid nuisance to nearby residents, to minimise disturbance of wildlife habitat, to complement any buildings with which they are related, and to be optimally situated within the landscape so that they are not visually intrusive.

Waste

4.90 Waste collection, transfer, and recycling have been identified as local issues. Waste disposal is a matter for the Devon County Waste Local Plan. Strategic waste proposals will be considered in the context of the Development Plan with regard to Government guidance.

4.91 Structure Plan policy seeks the beneficial use of unavoidable waste generated by major developments. The LPA will ensure that adequate provision is secured on-site where appropriate and that energy recovery is considered and a management agreement sought, providing for reuse or recovery wherever practicable.

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