INTRODUCTION

B1 Environmental concerns such as global warming, pollution and the depletion of natural resources are all issues which have captured the attention of policy makers and the general public in recent years. The sustainability policies in this chapter have been formulated to ensure that, where possible, all new development in the District makes a contribution towards protecting or enhancing the environment, or offsetting the harmful effects of development on the environment.

B2 A main thrust of Government thinking over the past few years has been to encourage sustainable development to meet the needs of today’s generations whilst protecting the ability of future generations to meet their needs. If we do not protect the environment, people living on this planet in the future may be faced with global warming, high levels of pollution, high levels of congestion, cramped living conditions etc.

B3 The policies in this chapter not only take account of the need for environmental protection but also the social and economic aspects of development relevant to a deeply rural and sparsely populated District.

AIMS AND OBJECTIVES

B4 The following specific objectives for the Plan’s sustainability policies have been identified:

·  To minimise the impact of development on the environment.

·  To ensure development causes no long term damage to the environment.

·  To offset the impact of development on the environment;

·  To promote energy conservation, recycling and sustainable patterns of development.

·  To minimise atmospheric noise, water and land pollution.

·  To reduce the need to travel.

NATIONAL, REGIONAL & STRATEGIC GUIDANCE

B5 It is a major responsibility of Local Authorities, through their Local Plans, to ensure environmental considerations are taken into account comprehensively and consistently when development is proposed. PPG12 (Development Plans) sets out the areas where the Government expects Local Plans to contribute to the principles of sustainable development.

B6 It is indicated in the Regional Spatial Strategy (RSS8) that a sustainable development strategy is to be achieved throughout the East Midlands region and this reflects national policy. This chapter serves to take the broad objectives of PPS1 (Delivering Sustainable Development), PPG12 and RSS8 and develop them into more detailed development control policies as part of the strategic framework of the Local Plan First Review.

B7 The Lincolnshire Structure Plan Review guides the way for the inclusion of sustainability policies in this plan. Many of the policies in the Structure Plan Review take into account the need for sustainable development in terms of development proposals that protects and enhances, whilst seeking to offset any harmful effects. Again, the policies in the Local Plan First Review should enhance, reflect and translate the Lincolnshire Structure Plan Review 2004 policies into workable local policies.

DEVELOPMENT PROPOSALS AND TRANSPORT CHOICE

B8 Through the Local Plan First Review the Council wishes to reduce the need to travel by locating major large scale development within locations where a full range of transport modes exists to allow for transport choice.

B9 In West Lindsey it is arguably difficult to be fully reliant on public transport due to the widespread, sparsely populated, rural nature of the District. However, the Council will encourage development that can make best use of public transport systems wherever possible, including the InterConnect high quality, high frequency bus routes.

JUSTIFICATION

B10 The aim of both the Council and Central Government is to encourage the use of environmentally friendly transport, and promote alternative modes of transport to the private car where available, therefore helping to minimise levels of congestion and pollution and encouraging the creation of a sustainable transport system. As a result of the growing concerns over energy conservation and pollution it is important that any major development follows the requirements of this policy to ensure that it may be easily and conveniently served by public transport and other modes alternative to the private car.

B11 Whilst the policy does not require all such developments to be located in the District’s three market towns, Gainsborough, Market Rasen and Caistor, these locations may often be the preferred choice due to the existing range of transport modes serving these settlements and the proximity of the probable workforce/users. However, other locations with a suitable range of transport choices available would also be supported by this policy.

B12 The Council does not have a specific definition of what constitutes large-scale development. Development considered being large-scale in Market Rasen, or Caistor for example, may not be regarded as such in Gainsborough. Each proposal will be assessed on its individual merit.

B13 An increased use of public transport and other modes would reduce the number of vehicles on the road and, as a result, help to reduce levels of congestion and pollution. The location of new development within or adjacent to existing urban areas and with a convenient public transport service may also help reduce the need for any increased travel. This policy will help to support the strategy of the Lincolnshire Local Transport Plan.

B14 Although the Council cannot specifically request this, any form of public transport serving the site should be made available before the site becomes operational. In cases where public transport is not to be provided, the creation of the necessary infrastructure to cater for the future provision would be beneficial, ensuring that any future provision is as straightforward as possible.

B15 Where this policy is applicable to a proposed development, if the justification for the development includes an existing or expanded public transport service, details of the anticipated levels of service provision must be provided in order that any claims may be substantiated. If expansion of the service is not proposed, details of the capability of the existing public transport service to accommodate additional usage should be provided. For a new development which, without an existing or expanded public transport service, would cause a significant increase in journey lengths or numbers, specific details of arrangements to ensure convenient transport to and from the site must be provided in a development appraisal as indicated in Policy SUS 9 and/or an assessment as required by Policy SUS 2.

IMPACT OF DEVELOPMENT ON TRANSPORTÂ

JUSTIFICATION

B16 Certain developments may have specific implications for transport within the locality of the site. Where this is the case, PPG13 (Transport) requires a Transport Assessment to be undertaken. These studies replace the previously requested Traffic Impact Assessments. Developers will be encouraged to discuss their Transport Assessments with the Local Planning Authority and the Highways Authority before they are produced.

B17 Each Transport Assessment should reflect the scale of the development and the nature and extent of the transport implications that are expected. Proposals will have to show how accessible the site is by all modes of transport, when the majority of journeys to and from the site will take place, and details of any proposals to improve access to the site by public transport, cycling or walking will be outlined in a Travel Plan. The need for car parking linked to the development should be reduced. Developers of smaller proposals need not go into as much detail in their assessments. For small- scale proposals the transport details could be included within the Development Appraisal required by Policy SUS 9.

PUBLIC TRANSPORT INFRASTRUCTURE

B18 Public transport is normally an efficient means of transporting large numbers of people and is effective as a means of reducing energy use. Because of its characteristics it is most advantageous in large urban areas. West Lindsey is for the most part rural, with areas only sparsely populated. The characteristics of the journeys required to be made by residents are therefore many and varied and often cannot be effectively catered for by public transport.

B19 However, National Policy in PPG13 (Transport) highlights the need to encourage public transport provision by allowing development which can be served by it. The Regional Spatial Strategy contains advice that Local Plans should accommodate proposals to improve public transport infrastructure.

JUSTIFICATION

B20 The use of public transport rather than the private motor vehicle can bring about benefits to the environment. The overall quality of a service, if it is perceived to be poor, can lead to that service not being used to its full potential. Such perceptions are usually caused by familiarity with the vehicles and infrastructure that are available. Â Old, unreliable vehicles and cold, poorly lit, unsafe, vandalised and inappropriate infrastructure and a lack of information do little to encourage the use of public transport.

B21 The upgrading of vehicles and facilities can encourage the use of public transport. Through the provision of a warm, safe, friendly and informative environment, people are more likely to be encouraged to use the services provided. The Council wishes to encourage proposals that will allow the upgrading of existing public transport facilities or the provision of new ones. The introduction of the InterConnect high-frequency bus routes across parts of West Lindsey are an example of a Local Transport Plan scheme the Local Plan First Review is seeking to complement through its land use policies.

CYCLE AND PEDESTRIAN ROUTES IN DEVELOPMENT PROPOSALS

B22 It is essential that, if the Council is to encourage cycling and walking as sustainable methods of transportation, safe and user-friendly environments must be provided wherever possible.

JUSTIFICATION

B23 Increased travel by cycle or foot reduces levels of pollution and levels of noise, and requires very little infrastructure. The provision of dedicated routes for cyclists and pedestrians enables them to travel in safety away from the danger of heavy and fast moving traffic, and therefore encourages more people to travel in this way. The Local Transport Plan for Lincolnshire is seeking to encourage greater use of walking and cycling in Gainsborough as part of its Community Travel Zone concept. This policy will complement this initiative and the Greenways national pilot scheme for the wider Lincoln area.

B24 If movement by cycle or on foot is to be encouraged; dedicated routes should be located and designed to link popular destinations whilst making people feel safe. Routes located within general public view reduce the risk of anti-social behaviour and vandalism, therefore making users feel more secure. They should be not be hindered by barriers or excessive changes of level.

B25 Small scale development will not normally be expected to contribute to an overall cycle or pedestrian route system. However, such developments should not be designed in a way which would jeopardise the provision of such routes should the site be expanded in the future. This may be the case if insufficient land is allowed for safe routes to be implemented.

CYCLE PARKING FACILITIES

JUSTIFICATION

B26 The provision of safe and convenient cycleways will encourage the use of cycling to reach various destinations as an alternative to motor vehicles. People choosing to use this form of transport require a safe and secure area in which to park their cycles, preferably under cover. A lack of provision of cycle parking at major developments may hinder the Council’s aim to encourage an increase in the number of people that cycle to their destinations. Appendix 9 contains the minimum standards for cycle parking facilities that development proposals should incorporate. Cycle lockers already exist at Saxilby and Market Rasen railway stations and within Gainsborough town centre. However, further expansion of such facilities are required if this mode of transport is to be developed seriously.

BUILDING MATERIALS AND COMPONENTS

B30 It is possible to significantly reduce the environmental impact of a building if the materials are carefully chosen. The production, use and disposal of materials account for significant quantities of energy and resource consumption.

JUSTIFICATION

B31 Research has been carried out into the relative environmental merits of building materials, making it possible to address this issue. Information, such as ‘˜The Green Guide to Specification’, published by Building Research Establishment is available stating the specific materials and components used for building that are less harmful to the environment in relation to others. This policy should be used in conjunction with other policies in the Plan relating to design and conservation. The use of recycled or reclaimed building materials will be encouraged. Where proposed development requires the demolition or removal of a building and/or building materials that have known historic value, there shall be a requirement on the developer to ensure that these materials are, where practicable, reused in new buildings or restoration within the District.

ENERGY EFFICIENCY

B32 It is essential to consider all possible ways in which to create energy efficient homes and other developments. The location and layout of a development can affect the energy efficiency of a site and the buildings on it. When considering the location and the layout of a proposed development, orientations and designs that maximise energy efficiency will be supported.

JUSTIFICATION

B33 The orientation of houses would ideally face south to maximise solar gain. This will not always be possible to achieve therefore targets placing new dwellings on an orientation of at least 45 degrees of south should be aimed for. By limiting overshadowing from trees the intention is not to remove existing trees from a site, rather to design the layout of the buildings to avoid overshadowing.

B34 The design and location of development can have far reaching consequences for the use of energy. On a large-scale development a reduction of energy consumption is linked to a reduction in the requirements for travel. Thus, in locating new developments, their proximity to other land uses should be taken into account so as not to produce a new undue need to travel which cannot be accommodated on existing or improved public transport services.

B35 The arrangement and layout of a small scale development and uses within it that actively promote energy conservation include:

·  Location of main rooms on the southern aspect of buildings to make full use of natural daylight and the warmth of the sun.

·  Use of conservatories or glazed areas on the southern aspect to act as sun traps to encourage heat gain and retention.

·  Landscaping, fencing or careful building location to allow shelter from strong winds and prevent excessive wetting of walls which causes chilling of the building.

·  Avoidance of over-shadowing which blocks natural light.

·  Implementation of high insulation standards, including cavity, roof and floor insulation and double or triple glazing.

·  Use of materials, which do not use large amounts of energy in their production, are renewable and, preferably, manufactured locally to avoid transport requirements.

B36 When any new development is being considered the Council will also consider all relevant development control factors. In some cases it may not be necessary or acceptable to require energy conservation measures as these will result in a form of development, which is out of character with its location. The Council believes that, through careful and innovative thought processes, energy conservation measures and high quality design are however complementary.

DEVELOPMENT APPRAISALS

JUSTIFICATION

B37 It is essential to ensure that new development proposals are designed and developed in a sustainable and sensitive way. This policy aims to ensure a Development Appraisal accompanies significant new proposals and includes a consideration of the listed criteria. It is important to address the impact a new proposal may have on any neighbouring uses. If the new use will be detrimental to the existing use, development should not be allowed. Similarly it is essential to ensure that the services and facilities in the locality can support any new proposal, and that an influx of population would not result in a strain on services and facilities.

B38 The Council recognises that the conservation of energy is a key sustainability issue. The environmental impact of any new development should be considered in terms of energy used during the life of the buildings. This is known as ‘˜energy revenue’, and its wastage is substantial. Every effort should be made by developers to use energy efficient building design, layout and materials in order to restrict energy use. The Energy Statement should include a comprehensive report of the efforts made by applicants to incorporate layouts and designs which exploit the potential for both renewable energy and energy efficiency. As stated in other policies within the plan it is required to provide affordable housing, open space and sometimes other factors in certain developments. Confirmation of inclusion of these aspects into the proposal should be included within the Development Appraisal.

B39 Development Appraisals will contain guidance on factors such as: movement of and access for vehicles and pedestrians; retention, where appropriate, of important site features, including land form, landscape and existing buildings and structures, design, layout and density of development in relation to settlement or neighbourhood character; open space provision, where appropriate, within the development site; landscape planting measures, infrastructure and site services and aspects of development which will not be acceptable without suitable mitigation proposals.

PLANNING LOSS

JUSTIFICATION

B40 The planning process operates in the public interest and its aim to embrace securing efficiency and amenity in the development and use of land and the protection of the environment. In granting planning permission or in negotiations with developers and other interests that may lead to the grant of planning permission, the Council may seek to secure modifications or improvements to the proposals.

B41 The Council will aim to ensure that a new development or redevelopment is facilitated, while having regard to the interest of the local environment, the amenities and well being of the community and other planning considerations. As part of a development proposal the Council may expect developers to contribute to the cost of infrastructure and/or services which would not have been necessary but for the development proposal. Payments to offset or mitigate the harm to the environment and amenities of the community may also be expected to form part of the development proposal, for conservation, building conservation or landscape protection. Payments should be reasonably directly related in scale to the benefit, which the development proposal would derive from the facilities to be provided, and to the scale of planning loss or harm likely to be caused by the proposal.

B42 Planning loss can relate to a wide range of impacts likely to be caused by the development proposal, including pollution, traffic congestion, and danger from traffic, noise, visual intrusion, damage to the landscape, to wildlife and to the heritage of the area.

ENERGY GENERATION / RENEWABLE ENERGY

B43 Through the Local Plan First Review the Council seeks to reflect the recent international thrust to conserve energy and embrace renewable energy creating methods.

JUSTIFICATION

B44 Wind power is perhaps the most promising renewable energy resource nationally. However, the geographical scope for wind farms is restricted primarily to those areas of the highest or most reliable wind speeds. In West Lindsey these areas are found in the Lincolnshire Wolds Area of Outstanding Natural Beauty but where the environmental impact of these structures is likely to be high. This factor should be considered when assessing potential sites for wind farms or turbines. It is recognised that although Policy SUS 11 encourages the development of renewable energy resources, no development is without environmental impact. Full consideration of the policies in the Natural and Built Environment chapter dealing with landscape protection must be fully assessed against any proposal. Any proposal must also take account of military and civil airfield safeguarding zones where tall structures are not generally permitted.

B44a In considering renewable energy proposals different considerations may apply depending upon the nature of the proposal being promoted. Lincolnshire offers significant potential for bio-mass proposals but probably less potential for on-shore wind energy.

WASTE COLLECTION AND RECYCLING

JUSTIFICATION

B45 In the right conditions recycling makes good environmental and economic sense. It leads to:

·  The conservation of natural resources;

·  Energy saving in production and transport;

·  Reduction in the risk of pollution as well as saving costs in pollution control.

B46 This policy is aimed at encouraging recycling points to be provided within new developments. New superstores and supermarkets, with dedicated car parks should have recycling facilities for glass, cans, plastics and newspaper, to encourage energy conservation through recycling and to help avoid the need for additional car journeys to recycling points. Recycling points should be properly screened and sited to minimise disturbances to any adjacent land uses.

HAZARDOUS PROPOSALS

B47 The Health and Safety Executive (HSE) notify the Council as to what areas of land or zones in the District are affected by hazardous substance installations or sites. The HSE has to be consulted when a planning application is submitted for certain proposals to develop land in these “hazardous areas”. Other important consultees include: the Civil Aviation Authority, Water Companies, the Environment Agency and the Ministry of Defence. Local Planning Authorities take safety factors into account when dealing with applications for development involving a major hazard. This policy also deals with any other hazardous proposals.

JUSTIFICATION

B48 Planning has an important part to play in ensuring that ordinary development is segregated from hazardous areas or proposals wherever possible and that the effect of hazardous development on the environment is contained.

B49 Various commercial, including agricultural, processes involve the use of potentially hazardous, health threatening and environmentally damaging materials. There is the risk of harm resulting from accidental uncontrolled release of such materials, particularly to people in the vicinity.

FLOOD RISK AREAS

B50 Local Plan Policies reflect land use issues, which are of public priority. This includes a safe environment where proper precautions are taken against risks that flooding can pose.

B51 The issue has become increasingly important given the expected rise in sea levels, possible increases in storm severity and other changes in weather patterns arising from anticipated climate change. The publication of PPG25 and emerging Draft PPS25 on Planning and Flood Risk have also increased the need to consider this issue as an element of sustainability.

JUSTIFICATION

B52 A Strategic Flood Risk Assessment has been carried out on behalf of the Council to identify the areas where development is proposed in West Lindsey which are potentially liable to suffer from flooding as required by PPG25 (Development and Flood Risk). For a variety of reasons some development has already taken place in these areas. Consequently people and property in the areas are at potential risk from flooding, further development in these areas will not be permitted. The Strategic Flood Risk Assessment only covers the allocated sites within Gainsborough, Market Rasen and within the Lincoln Policy Area because these locations are the only ones where development is actually being proposed within potential flood risk zones. As an initial step all sites in other areas across the District were de-allocated if they were in the Environment Agency Indicative Floodplain. Since the production of the Local Plan First Review the Environment Agency has published new flood maps highlighting factors such as the degree of risk and the relevant flood zone in accordance with PPG 25. The Council will always take account of the most up-to-date information available and will request site specific assessments where this is highlighted as necessary by the Environment Agency.

B53 Built development in flood risk areas may impede or divert the flow of floodwater to reduce the capacity of the available flood plain. The Council will allow only those uses, or built development, where it can be shown that it must be located in the flood risk area and it can be shown how the flood risk can be managed. On advice from the Environment Agency the Council will impose conditions requiring the most rigorous flood defence measures. Development must observe the Environment Agency’s and/or Internal Drainage Board’s separation distance from the defences (which varies between 8 and 9 metres in West Lindsey) and which is based on Environment Agency and Internal Drainage Board requirements which seeks to enable access to the important strategic watercourses.

B54 Full information on flood risk is contained within the Strategic Flood Risk Assessment carried out by JBA Consultants on behalf of the Council. This study looks at not only Gainsborough and Market Rasen in detail but also the Lincoln Policy Area, which covers part of West Lindsey, parts of North Kesteven and the whole of Lincoln City. Â This assessment has been carried out in collaboration and partnership with the Environment Agency, Lincoln City Council, North Kesteven District Council and Lincolnshire County Council.

B54a The Local Plan First Review has been highly constrained in its allocation strategy by the levels of existing commitments given the much reduced housing targets effectively imposed by the Secretary of State. Given the high levels of existing commitments it has not been possible to apply a PPG25 derived sequential test to the selection of new sites as in most cases very few non-committed sites have been carried forward. In Market Rasen no new sites have been identified in areas at risk of flooding. In Gainsborough all new brownfield sites are located within PPG25 Zone 3 due to the need to prioritise brownfield sites in order to meet Government targets as to assist the regeneration of the town as required by the Regional Spatial Strategy. Given the circumstances a PPG25 sequential test was not felt to be a practical option for selecting sites in Gainsborough. The Council acknowledges that detailed site specific flood risk assessments may be required for a number of the key development sites in Gainsborough to consider flood risk mitigation measures.

DERELICT, UNDER - UTILISED AND PREVIOUSLY DEVELOPED LAND

B55 The reclamation and reuse of derelict, under-utilised and previously developed land is, in general, accorded a high priority in Central Government and Regional Strategies. In the East Midlands Regional Spatial Strategy it is proposed that, where possible reclaimed sites should be developed in preference to greenfield sites. It is also a key priority of the Council to promote regeneration through the development of previously developed sites.

B56 The Council supports measures which lead to environmental improvements in West Lindsey. Â Industrial decline has left derelict buildings and, in some areas, the closure of airfields has created disused or under-used sites. The economic regeneration of the market towns of Gainsborough, Market Rasen and Caistor relies heavily upon the redevelopment of previously developed sites.

JUSTIFICATION

B57 Land is a finite resource and it is a priority to revitalise and bring into beneficial use under-utilised and disused land. Proposals for development on such areas can reduce pressures for regeneration on greenfield sites and aid regeneration in older built-up areas, to the wider benefit of local communities. PPG3 (Housing) sets out a national target for the re-use of previously developed land. The Local Plan First Review has set a target of 40% of housing development on previously developed land by 2016.

B58 There are potential ‘˜windfall’ sites across the District, mainly within the built-up area of settlements which can accommodate new development. However, the Council should not create problems associated with ‘˜cramming’ and over-development. Areas that are left vacant, under-utilised or derelict often lead to inappropriate and problematic uses. The visual impact of such areas can be detrimental and often reinforces the blighting impression of long-term neglect.

B59 The Council has economic objectives and Best Value performance targets to try to meet with regard to the use of previously developed land for new development. This policy together with those on the release and phasing of housing land are key aspects to ensure that the land use strategy of the Local Plan First Review reflects these wider objectives.

B60 It is important to recognise that this policy must be considered in conjunction with all other policies relevant to the specific proposal in the Local Plan First Review. It is often clear that not all derelict, under-utilised and previously developed land is necessarily suitable for development.

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