Policy NHE.1

The countryside's character, appearance and non-renewable and natural resources will be protected from harmful development unless the social and economic needs of the area or wider environmental objectives outweigh such harm.

14.2.1 The Government's policy is that the countryside should be safeguarded for its own sake and non-renewable and renewable resources should be protected. Post-war policies have focused on designating and protecting those areas of the countryside that are most important for landscape and wildlife. The priority now is to find ways of enriching the quality of the whole countryside.

14.2.2 The Countryside Agency and English Nature have analysed the distinctive features of the whole English countryside in both landscape and conservation terms. They have identified broad areas of cohesive character which can be described in terms of their landscape character, sense of place, local distinctiveness, characteristic wildlife and natural features, and nature of change. The agencies have produced a national map and a set of summary statements; the Countryside Agency in terms of character descriptions and English Nature with regard to natural area profiles. In Gloucestershire the Countryside Agency and English Nature identify the broad character areas as being the Severn and Avon Vales, the Cotswolds, the Forest of Dean Plateau and Lower Wye Valley and the Upper Thames Clay Vales.

14.2.3 Local character and distinctiveness may be defined in detail at the local plan level using this approach. The safeguarding of undesignated sites when permitting and implementing development can also be assisted through the 'Environmental Capital' approach promoted by the Countryside Agency, English Nature, English Heritage and the Environment Agency, where benefits can be assigned to features which local people may value.

14.2.4 In addition to identifying and protecting the County's character PPG.7 advocates that development plans should be informed through Local Agenda 21. This seeks to identify what sustainable development means at the local level. Gloucestershire's Local Agenda 21 organisation (Vision 21) is progressing the process of securing sustainable development. In 1996 Vision 21 published "Sustainable Gloucestershire" which sets out visions and analysis of the current situation; key issues and solutions for the major topics which, together, can create more sustainable development. It is an evolving movement of people and ideas that is seeking to address local development issues at a fundamental and integrated level.

14.2.5 Efforts should be made to work with local people where possible to identify how best to achieve locally distinctive development and sustainable change, building on initiatives such as the Countryside Agency's techniques for Countryside Design Summaries and Village Design Statements. These enable the community to determine the quality and nature of change to their local environment, and enhance qualities of distinctiveness.

Policy NHE.4

In Areas of Outstanding Natural Beauty the conservation and enhancement of the natural beauty will be given priority over other considerations. Regard will also be had to the economic and social well-being of the AONB. Provision should not be made for major development within the AONB unless it is in the national interest and the lack of alternative sites justifies an exception.

14.2.20 Over half of Gloucestershire has Area of Outstanding Natural Beauty (AONB) status. This comprises a substantial part of the Cotswolds to the east of the County, and also parts of the Wye Valley and the Malvern Hills AONBs.

14.2.21 PPG.7 advises that the primary purpose of AONB designation is to conserve and enhance the natural beauty of the landscape. In pursuing this, account should be taken of the needs of agriculture, forestry, other rural industries and of the economic and social needs of local communities. Particular regard should be paid to promoting sustainable forms of social and economic development that in themselves conserve and enhance the environment.

14.2.22 The definition of 'major development' is affected by issues such as location, scale, context and design. 'Major' cannot be quantified or determined at the strategic level in this context. However, potential impact can be judged against the local characteristics of a particular proposed site through the local plan process, thereby allowing for the local interpretation of 'major' and so ensuring the retention of qualities of local distinctiveness within the AONB.

14.2.23 Recreation is not an objective of AONB designation, but the demand for recreation should be met so far as this is consistent with the conservation of natural beauty and the needs of agriculture, forestry and other land uses. The Joint Advisory Committees (J.A.C.s) for each of the three AONBs in Gloucestershire have developed management strategies (planning policy guidelines) which aim to reconcile the needs of people living in and visiting the AONBs with the need to conserve the natural beauty of these areas.

Policy NHE.6

The distinctive historic environment of the County will be conserved and enhanced. Scheduled Ancient Monuments, Listed Buildings, Conservation Areas, and their settings will be preserved.
Historic settlements and landscape, historic parks and gardens, and sites of archaeological importance will be protected from the adverse effects of development.

14.2.28 The physical survivals of the past are to be valued and protected for their own sake, as a central part of cultural heritage and a sense of national identity. Their presence adds to the quality of life, by enhancing the familiar and cherished local scene and sustaining the sense of local distinctiveness which is so important an aspect of the character and appearance of Gloucestershire's towns, villages and countryside. The historic environment is also of immense importance for leisure and recreation.

14.2.29 Planning Policy Guidance Note 15 "Planning and the Historic Environment" (PPG.15, September 1994) states that effective protection of all aspects of the historic environment is fundamental to the Government's policies for environmental stewardship. Planning Policy Guidance Note 16 "Archaeology and Planning" (PPG.16, November 1990) identifies the importance of archaeological remains as the source of information about our society's past, and stresses their finite nature and their vulnerability to damage and destruction. Their protection through the planning system is essential to their survival.

14.2.30 The historic environment of the County has been formed from the activities of human communities over many thousands of years in clearing, farming and settling the landscape. There is extensive evidence of the past in the form of prehistoric settlement and burial sites, Roman towns and villas, medieval churches and villages, and industrial landscapes of national importance. There are many other archaeological sites, historic buildings and other features of more local importance. Local plans should protect the historic environment, preserving the important elements and its general historic character.

14.2.31 Characterisation of the historic landscape of the County is currently in progress. The landscape character areas and descriptions that will result from this project will assist in local plan preparation and in the conservation of the locally distinctive landscapes within the County.

14.2.32 Similarly, for the small historic towns of the County, the Gloucestershire Historic Towns Survey will provide information on the historic urban character of these settlements and their archaeological potential. This will assist in local plan preparation and in guiding the location of development.

14.2.33 Historic parks and gardens may be included within English Heritage's Register of Parks and Gardens of Special Historic Interest. Whilst this confers no additional statutory controls, development proposals affecting them are subject to statutory consultation procedures. Similarly, a Register of Historic Battlefields has been prepared by English Heritage. These include the battlefield sites at Tewkesbury [1471] and Stow-on-the-Wold [1646]. Again the effects of development proposals on them should be a material consideration in determining planning applications.

14.2.34 Local Planning Authorities are under a duty to designate as conservation areas any 'areas of special architectural or historic interest the character or appearance of which is desirable to preserve or enhance'. Whilst many of these areas are of local significance, cumulatively they contribute to Gloucestershire's diverse historical character. This is different to the conservation of individual buildings. Individual historic buildings and other structures of special historical or architectural interest may be given protection as Listed Buildings. However, where works may affect a listed building, special regard should be had for the desirability of preserving its setting, as this is often an essential part of the building's character.

14.2.35 About 18,000 archaeological sites are currently recorded in the Gloucestershire Sites and Monuments Records (SMR) which is maintained by the County Council. Approximately 400 of these are Scheduled Ancient Monuments of national importance, protected under the Ancient Monuments and Archaeological Areas Act (1979). Not all nationally important monuments are scheduled. There is a presumption in favour of the preservation of nationally important sites and their settings, whether scheduled or not. In addition, the SMR records many sites of more local significance, and will contain archaeological information about local areas. Local plans should contain policies which will protect significant archaeological sites and which set out how the archaeological implications of development will be assessed and mitigated through the development control process.

Policy H.6

Development in Villages

In rural areas residential development should be well integrated with the existing form and framework of settlements without adverse impact on the setting of the settlement or intrusion into the surrounding countryside. Provision should be confined to those settlements that:
a. have access to or can provide a range of employment opportunities to meet local needs;
b. have access or potential access to community facilities and services; and
c. are well served by public transport services.

6.5.11 Policy H.6 relates to villages throughout the County. The policy reflects the strategy and the move towards a sustainable environment as already referred to in the Strategy section and in particular to Policy S.4 which states that development in rural settlements should be limited in scale, and sustain and enhance the character and appearance and the social and economic well-being of local communities. The Panel concluded that the inclusion of the words "or can provide a range of employment" would provide suitable flexibility to facilitate appropriate economic development to support the local community reflecting Planning Policy Guidance Note 7 "The Countryside - Environmental Quality and Economic and Social Development" (PPG.7, February 1997). RPG.10 supports this view and states that emphasis should be placed on providing for housing in locations which are within or well related to settlements, which have or can provide an adequate range of employment opportunities and community facilities. Draft PPG.3 recognises that locating significant additional housing in villages may not be a particularly sustainable option, therefore this should be limited to circumstances where:-
"it can be demonstrated that additional housing will support local services, such as schools or shops, which could become unviable without modest growth;
· additional houses are needed to meet local needs, such as affordable housing, which will help secure a mixed and balanced community;
· the development will be designed sympathetically and laid out in keeping with the character of the village."

6.5.12 PPG.7 explicitly recognises that some villages, due to factors such as their size, existing facilities and location, have the scope to develop in a way which is compatible with sustainability objectives, and that they will have a key contribution to make to what is primarily an urban-based strategy. However, it should also be noted the advice in RPG.10, which clearly states that: "Development in rural areas should not be at the expense of the Region's important environmental assets ... Development which reinforces a scattered pattern of small rural settlements is unlikely to be consistent with the aim of achieving sustainable development."

6.5.13 In accordance with the principles of sustainable development, a greater degree of self-containment of existing villages is sought in order both to reduce the number of car-borne journeys and to encourage community life. This can help to overcome the situation where many villages serve as dormitory areas for the urban areas.

6.5.14 Additional housing in villages, especially those which have little public transport provision, tends to increase the level of commuting by car. It is therefore essential that villages where housing developments are proposed are well served by public transport. Reference should also be made to Transport Policy T.1.

6.5.15 It is acknowledged that not all rural settlements serve the same function. It will be for the District Councils through the preparation of local plans to define the role and function of settlements. The District Councils during their local plan processes will identify the opportunities and locations for residential development.

Policy S.1

The bulk of new development should be accommodated within and adjacent to the County's larger towns at scales and locations that:
a. maintain and enhance the predominance of Gloucester and Cheltenham as the focus for new development in the County,
b. maintain and make them more attractive places in which to live and work,
c. meet transport demands in safe and energy efficient ways primarily aiming at reducing the need to travel,
d. conserve natural resources of minerals, best and most versatile agricultural land, biodiversity and high quality landscape,
e. promote the regeneration of appropriate town centres,
f. avoid the coalescence of existing settlements,
g. conserve the historic and built environment.

5.6.1 The majority of new development (residential, employment, retail and leisure) during the Plan period should be accommodated within and adjacent to the County's main urban areas to assist in meeting sustainable development objectives. Current Central Government advice in land use planning and sustainable development is to guide new development to locations which minimise the loss of open countryside, reduce the need for car journeys and distances driven, and which permit the choice of more energy efficient public transport as well as cycling and walking. Developing within and adjacent to the main urban areas reflects the best possible option in terms of achieving these objectives.

5.6.2 This strategy policy sets the framework for Policies H.4 and E.2. The former states that most residential development will be provided in the Central Severn Vale (CSV), priority will be given to Cheltenham and Gloucester and then to locations adjacent or close by which are or can be easily and conveniently served by means of transport other than the private car. Policy E.2 also states that in providing for employment uses priority will be given to Cheltenham and Gloucester and then to locations adjacent or close by…. This reinforces the predominance of Cheltenham and Gloucester as the focus for new development in the County. Both Policies H.4 and E.2 then address development outside the CSV including development in the other urban areas of Stroud, Tewkesbury and Cirencester. The size of development will be a matter for the Local Plans, the scale and location to accord with the Structure Plan policies.

5.6.3 The Government is committed through existing planning guidance and more recently through emerging planning guidance - in the form of Draft PPG.3 and Draft PPG.13, to promoting more sustainable patterns of development, through:
· Concentrating most additional housing development within urban areas;
· Making efficient use of urban land;
· Maximising the re-use of previously-developed land and the conversion and re-use of existing buildings; and
· Adopting a sequential approach to determine the phased release of land.

5.6.4 Local authorities should promote developments which combine a mix of uses. The emphasis on the urban areas however does not mean that the Government is encouraging "town cramming". The Government is also committed to enhancing the vitality and viability of urban areas. The challenge is to reconcile the need for more effective use of land whilst improving the quality of residential areas.

5.6.5 Biodiversity is safeguarded through the designation and safeguarding of statutory and non-statutory habitat sites. However, it is now recognised through the UK Biodiversity Action Plan (BAP) that these sites, together with other countryside features which provide wildlife corridors or stepping stones from one habitat to another, all help to form a network necessary to maintain the flora and fauna. The Gloucestershire BAP has identified "natural areas of significance for particular aspects of biodiversity", which supplies contextual information within which to set priorities and targets for safeguarding biodiversity at the local level.

Policy S.4

Development in rural settlements should be limited in scale, and sustain and enhance the character and appearance and the social and economic well-being of local communities. Development within the open countryside will be strictly controlled.

5.6.21 Dispersed development has, in the past, resulted in housing developments which have been poorly related to population centres and severed from employment and facilities. This has led to reduced accessibility and increased travelling distances. Dispersed development has not hitherto encouraged the development of public transport.

5.6.22 Planning Policy Guidance Note 7 "The Countryside - Environmental Quality and Economic and Social Development" (PPG.7, February 1997) explicitly recognises that some villages, due to factors such as their size, existing facilities and location, have the scope to develop in a way which is compatible with sustainability objectives, and that they will have a key contribution to make to what is primarily an urban-based strategy.

5.6.23 However, advice in RPG.10 clearly states that:
"Development in rural areas should not be at the expense of the Region's important environmental assets ... Development which reinforces a scattered pattern of small rural settlements is unlikely to be consistent with the aim of achieving sustainable development."

5.6.24 Development in the open countryside will be strictly controlled. The protection of the countryside for its own sake is a fundamental aim of Government guidance, it is therefore necessary to limit development to that which is both appropriate in type and form and sensitive to its location.

5.6.25 There is a great deal of attractive countryside in Gloucestershire, this is reflected in the designation of much of the County as Areas of Outstanding Natural Beauty. This policy applies to development outside the major urban areas, other urban areas, principal settlements and villages; outside these existing settlements there remains the need to avoid sporadic, isolated, and visually intrusive development, which can make additional and uneconomic demands upon the provision of infrastructure and would not be in keeping with the principles of sustainability.

5.6.26 Any proposal will be determined on its merits by the District Councils. The emphasis throughout the rural areas will be on the provision of affordable housing.

Policy S.6

In providing for development the following aspects of the environment which contribute to local character and distinctiveness should be safeguarded and wherever possible enhanced:
a. the quality of the landscape,
b. the setting of the settlements and buildings within the landscape,
c. the quality of the built and historic environment,
d. the sites and landscapes of archaeological and historic value,
e. the distinctive wildlife and habitats,
f. the special qualities of rivers, canals and other water courses and features.

5.6.31 Gloucestershire has a rich and diverse landscape character which contributes to the quality of life of those who live and work in the County. RPG.10 recognises that is a supreme challenge to ensure that development is accommodated whilst ensuring that the South West's environmental assets are maintained and expanded. RPG.10 states that development plans and biodiversity action plans (BAP's) should recognise and foster local characteristics, and encourage new opportunities for landscape restoration and habitat creation. New development should respect and enhance the environment in its scale, location and design, as reiterated in Policy NHE.1.

5.6.32 The Countryside Agency and English Nature have analysed the distinctive features of the whole English countryside in both landscape and conservation terms. They have identified broad areas of cohesive character which can be described in terms of their landscape character, sense of place, local distinctiveness, characteristic wildlife and natural features, and nature of change. This approach is described in more detail in the section of the Plan entitled 'Natural and Historic Environment'.

5.6.33 Efforts should be made to work with local people where possible to identify how best to achieve locally distinctive development and sustainable change; building on initiatives such as the Countryside Agency's techniques for Countryside Design Summaries and Village Design Statements. These enable the community to determine the quality and nature of change to their local environment, and enhance qualities of distinctiveness.

5.6.34 The Gloucestershire Biodiversity Action Plan (GBAP) contributes to understanding how to reconcile the needs of people and wildlife. It defines Natural Areas where the current state of the habitat reflects the overall character best and offers the greatest potential for full restoration. Local plans should seek to ensure that development makes a positive contribution to the GBAP. Identification of existing habitat fragments should be followed by efforts to extend and reconnect sites, patches and areas, through areas of development and other inhospitable land uses.

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