INTRODUCTION

2.1 There are many demands on the use of land in the countryside and the settlements within it. The broad range of policies contained in this chapter will seek to reconcile these demands to ensure the rural economy functions efficiently as the countryside is a living and working place. However, the Council also recognises that there is a need to restrict and control certain types of development in order to protect and enhance the attractive nature of the West Lindsey countryside. The role of the District's three market towns is emphasised as a key component of the Local Plan First Review strategy.

AIMS AND OBJECTIVES

2.2 The Local Plan First Review is influenced by the policy guidance emerging from Central, Regional and County levels together with this Council's overall corporate strategy. The policies contained in this chapter have been formulated with a number of objectives in mind:

·  To achieve an acceptable balance between the needs of the environment, local communities and the demands of development and land uses.

·  To encourage rural diversification to create local job opportunities and improve the skills of the local people.

·  To strive to assist the economic development and regeneration process and its progression through the planning system with the minimum of delay and inconvenience.

·  To improve the social environment and reduce the levels of crime and disorder.

·  To try and improve the physical environment and ensure that no development causes permanent damage to the countryside, thus protecting the countryside for its own sake.

NATIONAL, REGIONAL & STRATEGIC GUIDANCE

2.3 Government Guidance for the rural economy set out in PPS7 (Sustainable Development in Rural Areas) provides broad objectives to:

·  Meet social and economic needs of people who live and work in rural areas.

·  Maintain or enhance the character of the countryside and conserve its natural resources.

·  Improve the viability of market towns and smaller settlements in order to promote a sustainable community in terms of a reasonably mixed demography, variety of employment and housing, and prevent the decline of community services and facilities.

2.4 The Rural White Paper vision seeks a living, working, protected and vibrant countryside.

2.5 The Regional Spatial Strategy for the East Midlands recognises the diverse nature of the rural economy in that its aim is a living and working countryside in which enterprise is promoted and the environment is respected.

2.6 The East Midlands Regional Economic Strategy and the Lincolnshire Economic Strategy seeks to strengthen the rural enterprise links between settlements and their hinterlands. A holistic approach is required in order to integrate the transport and access networks, provide a range of housing, offer a wide variety of employment opportunities; and offer people the opportunities to enhance their skills to fulfil their potential. A combined approach will help to sustain existing communities, their services, facilities and to help to reduce rural deprivation, unemployment resulting from agricultural restructuring and the social exclusion that is experienced and compounded by the remote nature of the rural communities.

2.7 The East Midlands Rural Action Plan focuses upon learning and skills, enterprise and innovation, agriculture, rural transport, rural tourism, market towns and promoting rural issues and initiatives.

2.8 The strategic guidance for Lincolnshire set out in the Lincolnshire Structure Plan Review focuses on the need to sustain and improve the quality of life for present and future generations to facilitate more sustainable development.

2.9 The Economic Development Strategy for West Lindsey sets out the vision for sustaining and developing the rural economy.

2.10 The Local Plan First Review seeks to set out a range of policies which support the aspirations of the Lincolnshire Economic Strategy. It also links to the Sustainable Community Strategy for Lincolnshire 2006 – 2009 which has a priority focussed on economic development. This same priority is also contained in the West Lindsey Sustainable Community Strategy 2006 – 2016.

2.11 This chapter aims to guide development into suitable areas within settlements, particularly the three towns. This will help to improve the local economy and to help stimulate new job opportunities by providing choice through flexibility and competition.

EMPLOYMENT DEVELOPMENT

2.12 Of the rural districts within Lincolnshire, West Lindsey has the second lowest number of VAT-registered businesses and accounts for only 2% of the region's business registrations (ONS - UK Business Activity, Size and Location 2005).

2.13 The Council is committed to supporting the local economy, and local businesses, and to improving the employment opportunities of West Lindsey residents. One of the ways of achieving this is by ensuring that there is an adequate supply of land available for either the expansion or relocation of existing businesses and the establishment of new businesses within West Lindsey.

2.14 The business structure of the District is based upon approximately 2,940 business units of which 94% employ fewer than 25 people. The business unit is defined as being a firm which is not the company headquarters but may be an additional site of a company (ONS - UK Business Activity, Size and Location 2005).

2.15 The Council wishes to encourage employment generating development, which is of a nature and scale appropriate to the area, and by optimising (where acceptable) the expansion of existing firms.

2.16 This will ultimately increase job choice for local residents, reduce unemployment in the area, benefit local communities, and aim to reduce the existing trend of economically active residents of West Lindsey commuting outside of the District, principally to Lincoln City.

JUSTIFICATION

2.17 It is important to ensure that sufficient opportunities are available within the District to help fulfil the Council's economic development objectives in relation to planning and sustainable growth, with the development of sites which will generate employment, or be used for industry, business etc. In accordance with national policy the Council aims to ensure that there is sufficient land available which is readily capable of development and is well served by infrastructure, and that there are a variety of sites available to meet differing needs.

2.18 Sites that have been allocated for employment use will usually be considered to be preferable for development. However, in order to achieve the Council's goals in terms of economic growth, this may sometimes involve the development of land which has not specifically been allocated for such uses. This policy will broadly support such windfall proposals.

2.19 Employment-generating development can sometimes result in intensive use of a site, with the potential to create a significant impact upon the surrounding area. It is important to create a balance between the economic and environmental considerations to ensure that, even though development can go ahead, the character of the surrounding area is protected and the amenity of nearby residents is not adversely affected. This is especially important for sites near to or within the countryside, and protected areas such as the Area of Outstanding Natural Beauty, sites of nature conservation etc.

2.20 More intensive uses can also have a detrimental impact upon the existing road system, unless carefully controlled. It is essential that developers ensure that the roads leading to a site are capable of accommodating an increase in traffic or a change in the type of traffic. Any alterations or improvements made to the main routes leading to the site must not alter the character of those roads.

AGRICULTURAL AND RURAL DEVELOPMENT

2.21 Despite the changes in the agricultural sector it remains a significant part of the economy. The physical landscape has been determined by the changes in agricultural practices and the resulting farm diversification schemes, which often remove land from agricultural use.

2.22 The following policies seek to encourage appropriate agricultural development, including farm diversification and the intensive livestock units proliferating throughout the District, whilst protecting agricultural land.

JUSTIFICATION

2.23 Agricultural development is an important aspect of the rural economy however agricultural buildings can have a significant impact upon the landscape of the District.

2.24 The Council expects farmers or developers to pay close attention to matters of design, materials and landscaping when submitting Planning Applications, and would encourage the same principles to be applied to ‘˜Agricultural Development Notifications' under the General Permitted Development Order.

2.25 Modern agricultural practice often requires large buildings to house livestock, or to store machinery or produce, such that they can have a significant visual impact on the landscape. The Council recognises that larger structures are more cost-effective and practical. However, careful attention to materials, siting and design of buildings and their effect on the surrounding environs is crucial to prevent any adverse impact on the wider landscape character.

2.26 Should it be desirable to remove an existing building which is not in use, conditions will be imposed on the planning permission to achieve their removal when no longer required for agricultural purposes. This will ensure that the countryside does not contain a proliferation of vacant and redundant modern agricultural buildings.

PROTECTION OF AGRICULTURAL LAND

2.27 Central Government policy seeks to protect the best and most versatile agricultural land as a national resource for future generations, which echoes the fundamental principle of sustainable development. The best and most versatile land is classified as Grades 1, 2 and 3A. Development proposals must ensure they seek a lower, rather than higher, grade of agricultural land to ensure the ability of the best land to be retained for food production in the future.

2.28 Local Planning Authorities are therefore required to consult the Department of Environment, Food and Rural Affairs on any proposal that does not accord with the Development Plan, and which leads to, or may lead to, the loss of more than 20 hectares of land in Grades 1, 2 and 3A.

JUSTIFICATION

2.29 The Council recognises the importance of safeguarding the best and most versatile land in order to meet the objectives of sustainable development.

2.30 It is no longer necessary to protect land for agricultural use, although it remains important that an efficient and flexible agricultural industry remains. Many ‘˜soft' uses of agricultural land, e.g. golf courses often render the return of land to agricultural use impracticable.

2.31 In some instances, such as habitat creation, it is recognised that policies to protect high quality agricultural land from development need to be sufficiently flexible so as to not constrain environmentally beneficial projects that would not cause irreversible loss of such land and would contribute to national, regional and county level sustainability and biodiversity objectives. In such cases relatively small areas of high grade land may be required for habitat restoration projects which substantially improve the local environment and contribute to the achievement of the Government biodiversity or other targets. A particular case is for flood defence schemes where the creation of washlands may provide the most cost-effective and sustainable means of defence. Development proposals should be directed towards lower grade land, but that is not to say that all lower grade land is appropriate for development. The overall approach with this policy and others is still to protect the countryside from inappropriate development.

FARM DIVERSIFICATION

2.32 The changes in the agricultural industry over the past decade have led to many farmers being encouraged to ‘˜diversify' into new enterprises. It may be necessary for the rural economy to diversify away from its traditional agricultural roots.

2.33 Central Government policy advocates principles for farm diversification in order to support the vitality of the rural economy. Local Planning Authorities are expected to be supportive of well conceived farm diversification schemes because of their potential for providing a wide and varied employment opportunity for local people.

2.34 Application of the policy criteria will ensure that the proposals are appropriate to their proposed location and remain protective towards and respectful to the surrounding environment.

JUSTIFICATION

2.35 The Council recognises the need for farm diversification in order to sustain and enhance a healthy rural economy. Any proposal submitted should be complimentary to the agricultural operations on the farm and be operated as part of the farm holding. Any proposal to completely replace a farm operation with a new use will be considered in accordance with the policies relevant for that use as they are not considered to be farm diversification proposals.

2.36 Proposals that meet the wider objectives of the Local Plan First Review, such as informal countryside recreation, or make good use of existing buildings, or realise the opportunities for enhancing habitats and environmental improvement works without harming the character of the area are likely to be considered favourably.

INTENSIVE LIVESTOCK UNITS

2.37 Although intensive livestock units (ILUs) can be an appropriate land use in rural areas, they can on occasions create serious problems of dust, smell, noise, soil and water pollution. As a consequence, great care needs to exercised in choosing their location so as to minimise their impact on the countryside and the amenities of nearby residential properties and as a broader threat to the growing significance of the countryside as a tourism asset.

2.38 For the purposes of Policy ECON 5, an intensive livestock use can be taken to be the use of a purpose-designed or specially modified building for the concentrated breeding or keeping of animals for intensive food production purposes.

JUSTIFICATION

2.39 ILUs present particular planning problems, because of the scale of development that is required, and because of their associated characteristics and requirements. The Council recognises however, that such units allow cheap and efficient food production, together with local employment opportunities and also the necessity of their location in the countryside.

2.40 Whilst ILUs are an important part of the farming process, the Council will aim to ensure that their impact upon the countryside and local communities is limited to acceptable levels.

2.41 Such development may require an Environmental Assessment for proposals; such an assessment should discuss in detail the likely impacts of the proposal on the local environment and should be prepared by suitably qualified persons.

2.42 With proposals for all ILUs, the Council will assess all aspects and implications arising from the use, including traffic generation and waste disposal. Applicants will be expected to provide details of the likely traffic movements and how wastes are to be taken, dealt with, and how and where disposal can take place. The Council will not support storage of slurry or sewerage waste within the given separation distance and, to ensure that this is the case, appropriate planning conditions will be imposed upon any planning permission granted. Any disposal of slurry or sewerage waste by means of spreading will be expected to be carried out with adherence to the relevant guidelines.

2.43 A distance of at least 400 metres between ILUs and the majority of other buildings has been retained, as a standard suggested by Central Government. This cordon will minimise the level of contact that the public, and particularly local residents, will have with agricultural operation, reducing unpleasant odours and other forms of pollution that emanate from such ILUs.

2.44 The Council is aware that, by applying good management practices to ILUs, the risk of various forms of pollution can be kept to a minimum. Therefore, development which is expected to result in nuisance and an adverse impact upon the public should be refused.

2.45 The number of ILUs in an area will be monitored, so that they do not dominate areas close to settlements and the cumulative impact is not too great on the character of the landscape and countryside.

CONVERSIONS OF BUILDINGS WITHIN TOWNS AND PRIMARY RURAL SETTLEMENTS

2.55 Conversions of existing buildings within settlement boundaries to employment uses or other alternative uses are often acceptable in principle.

JUSTIFICATION

2.56 The re-use of existing buildings is often preferable to the provision of a new building and can often be part of a wider regeneration scheme. An assessment will be required to ensure that the building is capable of conversion and accommodating the proposed use. The associated land should also be capable of accommodating any additional development requirements, such as ancillary buildings, structures, and vehicle parking, without adversely affecting the character of the building and its setting.

CONVERSIONS OF BUILDINGS IN OTHER SETTLEMENTS OR THE OPEN COUNTRYSIDE

2.57 There are many traditional Lincolnshire farm buildings to be found throughout the District. Because of their form and materials, many make a positive contribution to their local environment.

2.58 Conversions of these buildings for employment or community use can make a positive contribution to sustaining and enhancing the rural economy by offering employment opportunities whilst helping to reduce the need for new buildings and therefore preserving the character of the countryside.

JUSTIFICATION

2.59 The Council recognises that the conversion of redundant rural buildings to other appropriate uses is important to the rural economy. This policy is not, however, intended as a way of allowing or encouraging development which would have unacceptable or adverse affects on the character of the building and its locality, traffic movements and the local road network, or the environment generally.

2.60 Certain types of development will, because of their scale or nature, be unacceptable in the countryside and such proposals are likely to be more suited to land allocated for employment purposes. Development proposals that were originally acceptable can become unacceptable over time if the use intensifies or expands significantly.

2.61 The countryside and the settlements within it are very sensitive to change and they should be protected for their own sake. Therefore conversion schemes must aim to harmonise with the local environment. This will mean that conversions, which keep alterations to a minimum and which reflect the traditional character of Lincolnshire buildings, will be generally acceptable.

2.62 There should be sufficient land attached to a building to allow for the provision of functional requirements to be both adequate and well designed. Car parking and storage can be particularly intrusive in the landscape and should be minimised and/or screened.

RETENTION AND PROTECTION OF EMPLOYMENT LAND

JUSTIFICATION

2.63 It is important for the Council to encourage development that makes the best use of appropriate brownfield sites and this includes the re-use of vacant buildings. Existing employment sites that have become vacant provide an ideal opportunity to introduce new business to an area without the need for additional use of land. It is therefore important to avoid the loss of the employment use.

2.64 There may be occasions where a former employment site is no longer suitable for employment use, maybe as a result of recent development within the area, or another use may create more benefits for the local community. In such cases, the Council will consider proposals for non-employment uses for the site. The policy gives criteria which must be met before the Council will support non-employment uses for land currently in employment use. Some existing employment sites are identified with the Council's Urban Capacity Study as offering potential for new use for residential purposes.

THE SERVICE SECTOR

2.65 In recent years there has been a growth in the service sector of the economy with a decline in the agricultural and manufacturing sectors. The Council aims to promote economic growth in the service sector, to increase local employment opportunities and expand the services available to local residents.

2.66 Strategic policy recognises the importance of office development as a component of the Lincolnshire Economic Strategy, alongside industrial and warehousing activities.

JUSTIFICATION

2.67 The development of small offices has become an expanding source of employment, and demand has mostly been catered for within urban areas. Urban areas do have greater accessibility and the range of business services and shops that are usually present. Encouragement into these locations will cluster established retail and commercial businesses together and recognise the potential of local service centres.

2.68 The Council wishes to maintain the role of the town centres by encouraging investment and by utilising the re-use of historic buildings which are often the cornerstone of such centres. Vacant upper floors can often be a problem in town centres and this policy will help to facilitate the use of these spaces.

2.69 Outside of the town centres, within the settlement boundaries and the countryside, appropriate office development can often be a good neighbour and can provide employment opportunities for local people and thereby reduce commuting to larger urban areas.

HOME WORKING

2.70 Technological developments have produced a change in the working patterns and office arrangements to change. Increasingly the idea of the remote office or operation away from the main headquarters of a business has opened up the choice for employees to work from home.

2.71 Many businesses use the opportunity for home working for their employees as a way of creating satellite offices or allowing staff to achieve a better home and work life balance.

2.72 Within West Lindsey, 12% of the economically active population employed within the District work from home according to the 2001 Census.

JUSTIFICATION

2.73 Small businesses often find it difficult to start up or continue because of a lack of acceptable premises within their means. Some businesses become established at home and have the potential to make a valuable contribution to local employment provision and the local community.

2.74 Small-scale home-based operations do not always require planning permission. This policy applies to proposals where consent is required, for example due to a change of use of part of the property occurring.

2.75 The use of a property for home working must not adversely affect the amenity or character of the surrounding area.

IMPROVING THE ACCESSIBILITY OF THE DISTRICT

2.76 In rural areas the quality of highway links is often crucial for the accessibility of the settlements and in particular the three towns of the District.

JUSTIFICATION

2.77 Certain road schemes, although not actually proposed in the Lincolnshire Local Transport Plan (2006-2011), would be desirable within the District to improve its overall accessibility. In this case, access from Gainsborough to the motorway network, and improved access to the industrial areas of Caistor would be desirable. Should solutions be found through funding to assist with these issues or through a future Local Transport Plan, this policy would support those solutions in land use terms.

2.78 No route has yet been identified on the proposals map for links between Gainsborough and the strategic motorway network. As a result, it is not possible to suggest the protection of any areas of land from development within this policy. However, should routes be proposed in the future for improved access from Gainsborough or Caistor, as defined in this policy, the Council would wish any land surrounding the proposals to be protected in order to avoid jeopardising the development of the road schemes.

THE LINCOLN EASTERN BY - PASS

2.79 The Lincoln Eastern By-Pass is part of a long-term development option in order to accommodate growth in the main urban centre for Lincolnshire and this policy should be read in conjunction with Policy STRAT 10 – Long Term Development Options.

JUSTIFICATION

2.80 Lincolnshire County Council has planning permission for the Lincoln Eastern By-Pass and will continue to pursue this scheme through the relevant statutory bodies. Most road schemes are required to either reduce the present unacceptable effects of traffic in an area, or will be required to ensure that there is an adequate capacity for additional traffic produced by new developments. The Council will refuse any development that may jeopardise the implementation of this scheme, in the interests of protecting the City of Lincoln's sub-regional role. The Lincoln Eastern By-Pass is part of the overall range of projects set out in the Lincoln Transport Study.

2.81 The land surrounding the Lincoln Eastern By-Pass should be protected and therefore development on any sites which may hinder the progress of the by-pass should not be permitted. The construction of the Lincoln Eastern By-Pass is a fundamental measure required to help achieve the increased regional importance of the Lincolnshire economy as set out in the Regional Spatial Strategy.

PROPOSALS INVOLVING OPEN STORAGE

JUSTIFICATION

2.82 Industrial processes and activities usually require areas for the storage of raw materials, finished products or waste materials. If located in the open, such areas can be visually obtrusive and, depending upon the nature of the stored materials, can also be a nuisance. Open storage can cause problems within the locality, often causing considerable noise and odour nuisance at unsociable hours. It can also take up valuable space, which may be required towards operational servicing requirements or vehicle parking, causing problems with these activities having to take place elsewhere.

2.83 Operations involving manufacturing or warehousing should be carried out within purpose-built buildings, especially if in close proximity to residential areas.

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