Mr S Hearse Chief Executive Torridge District Council Riverbank House Bideford Devon EX39 2QG

DX 53606 BIDEFORD Tel : Bideford (01237) 428700

Date: 23 October 2020

FULL COUNCIL MEETING

On: Monday 2 November 2020 At: 6.30 pm Venue: Virtual Meeting via Zoom with Public Access via YouTube https://tinyurl.com/TorridgeYouTube - https://tinyurl.com/TorridgeYouTube

Temporary measures during the Coronavirus Pandemic: Members of the public attending meetings or taking part in the public forum are advised that all Council meetings taking place during the Covid-19 Pandemic will be filmed for live or subsequent broadcast via the YouTube channel - https://tinyurl.com/TorridgeYouTube

NOTICE OF MEETING

You are hereby summoned to the Meeting of the District Council at the aforementioned date and time

Chief Executive

To: Councillor D Brenton (Chair) Councillor P Christie (Vice-Chair) Councillors: R Boughton, C Bright, M Brown, D Bushby, M Clarke, C Cottle- Hunkin, R Craigie, A Dart, L Ford, J Gubb, P Hackett, P Hames, S Harding, C Hawkins, K Hepple, R Hicks, C Hodson, D Hurley, J Hutchings, T Inch, K James, D Jones, S Langford, N Laws, C Leather, R Lock, J Manley, D McGeough, J McKenzie, S Newton, P Pennington, G Rossi, P Watson and R Wiseman

Members are requested to turn off their mobile phones for the duration of the meeting

P R A Y E R S For those who wish to participate – Prayers will be held at 6.25 pm

AGENDA PART I - (OPEN SESSION)

1. Apologies For Absence To receive apologies for absence from the meeting

2. Council Minutes (Pages 4 - 23) Confirmation of the Minutes of the Meeting of the Council held on 5th October 2020.

3. Public Contributions 15 minute period for public contributions (The deadline for registering to speak is by 2pm Thursday 29th October 2020. To register please email [email protected]).

4. Declarations of interest Members with interests to declare should refer to the Agenda item and describe the nature of their interest when the item is being discussed.

5. Agreement of Agenda Items Part I and II

6. To consider correspondence or other business especially brought forward by the direction of the Chair

7. T o answer questions submitted under Procedural Rule A9

8. Covenant for the hotel site Westward Ho! (Pages 24 - 41) To receive the report of the Senior Solicitor & Monitoring Officer

9. Great Torrington Neighbourhood Plan (Pages 42 - 142) To receive the report of the Planning & Economy Manager

10. Northern Devon Destination Management Organisation (Pages 143 - 149) To receive the report of the Planning & Economy Manager

11. Cycle of Committee Meetings 2021/22 (Pages 150 - 152) To receive the report of the Chief Executive

12. Notices of Motion

13. Petitions To receive petitions (if any)

14. Exclusion of Public The Chair to move:

“That the public be excluded from the remainder of the meeting because of the likely disclosure of exempt information as defined in Schedule 12A of the Local Government Act 1972”

15. PART II - (CLOSED SESSION)

Items which may be taken in the absence of the public and press on the grounds that exempt information may be disclosed.

16. Major Projects Update To receive a verbal update from the Chief Executive

17. Confirmation of Chief Officers (Pages 153 - 156) To receive the report of the Leader of the Council & Chief Executive

Meeting Organiser: Democratic Services

Agenda Item 2 1

TORRIDGE DISTRICT COUNCIL

FULL COUNCIL MEETING

Remote meeting via Zoom

Monday, 5 October 2020 - 6.30 pm

PRESENT Councillor D Brenton (Chair)

Councillor P Christie (Vice-Chair)

Councillors R Boughton, C Bright, M Brown, D Bushby, M Clarke, C Cottle-Hunkin, R Craigie, A Dart, J Gubb, P Hackett, P Hames, S Harding, C Hawkins, R Hicks, C Hodson, D Hurley, J Hutchings, T Inch, K James, D Jones, S Langford, N Laws, C Leather, R Lock, J Manley, D McGeough, J McKenzie, S Newton, P Pennington, G Rossi, P Watson and R Wiseman

ALSO PRESENT S Hearse - Chief Executive S Dorey - Senior Solicitor & Monitoring Officer S Kearney - Planning & Economy Manager D Heyes - Interim S151 Officer I Rowland - Senior Planning Policy Officer T Vanstone - Senior Electoral & Democratic Services Officer H Roper - Service Improvement Officer K Brown - Democratic Services Officer S Cawsey - Democratic Services Officer M Richards - Democratic Services Officer

j McKenna Cornwall Council

43. APOLOGIES FOR ABSENCE

Apologies for absence were received from Councillors Ford and Hepple.

44. COUNCIL MINUTES

It was moved by the Chair, seconded by Councillor Hackett and -

Resolved: That the minutes of the meeting held on 10 August be confirmed as a correct record and signed by the Chair.

A recorded vote was taken.

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COUNCILLOR FOR AGAINST ABSTAIN

BOUGHTON, R X BRENTON, D G X BRIGHT, C X BROWN, M X BUSHBY, D X CHRISTIE, P S X CLARKE, M X COTTLE-HUNKIN C X CRAIGIE, R X DART, A L X FORD, L GUBB, J X HACKETT, P J W X HAMES, P X HARDING, S X HAWKINS, C X HEPPLE, K HICKS, R H X HODSON, C X HURLEY, D X HUTCHINGS, J X INCH, A T X JAMES, K J X JONES, D X LANGFORD, S X LAWS, N X LEATHER, C X LOCK, R A X McGEOUGH, D A D X McKENZIE, J X MANLEY, J X NEWTON, S X PENNINGTON, P W X ROSSI, G X WATSON, P X WISEMAN, R X

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(Vote: For 30, Abstentions 4)

Matters Arising

Minute No 2 – Matters Arising (Meeting 24 February 2020)

Councillor Hames asked when the Special Council meeting to discuss the Local Plan will be held.

The Chief Executive confirmed that a couple of dates were being considered for a number of special council meetings. The one being considered for the meeting for responding to the planning reforms white paper will be before the consultation closing date (23 October), on either October 19 or 26 October.

Minute 38 Notices of Motion – from Councillor Hames: Affordable Housing

Councillor Hames sought confirmation of when the Notice of Motion will go to Community & Resources. The Chief Executive explained that this item is a big part of the Strategic Plan, which was to be discussed later in the meeting. Affordable housing will form part of the action plan arising from the Strategic Plan. A report will be brought forward. However, the piece of work was quite extensive and complicated and, requiring a specialised skillset in terms of setting up a housing companies or building houses for example, could not be wholly completed by officers within the authority. Because of the wider ramifications, the report will need to be considered by Full Council.

Once Members have considered the Strategic Plan and if adopted, the action plan will be drawn up based on those items Members wished to prioritise.

45. PUBLIC CONTRIBUTIONS

Councillor David Chalmers, Mayor of Northam

Councillor Chalmers addressed the Council on the Strategic Plan. Northam Town Council wanted to ensure that Northam, as the 2nd largest town in Torridge, by population, was included in the Strategic Plan and for it to be recognised that the town, in terms of tourism and employment, was a significant player in the district. This was particularly important when Torridge was looking at investment and support for businesses across Torridge.

Mr Laurence Shelley

Mr Shelly spoke on the subject of the planning system, in particular, about sustainable development. He had concerns about developments in Northam and Westward Ho! which demonstrated no model of sustainability; which did not meet the needs of residents and did not address future environmental challenges. Mr Shelley referred to the Torridge Housing Needs Assessment carried out 8 years ago. He cited Daddon Hill as an example of a development which did not address the findings of the Torridge Housing Needs Assessment. This particular

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development did not include any bungalows to accommodate the aged group or those with mobility needs. He called for an up to date Housing Needs Assessment.

The speaker expressed the opinion that the affordable housing requirement should be set at 30%. He felt schools and road infrastructure were regularly failing to meet the timely provision requirements as set out in Local Plan Policy SD23.

With regard to the environmental element of the agreed developments, Mr Shelley spoke of car dependency if and when the school is eventually built; the lack of shops within walking distance and little surety of appropriate transport. Furthermore, there was no requirement for solar panels. He did not feel this was compatible with the move towards a low carbon economy.

Mr Shelley concluded by talking about non-material aspects of planning and urged Councillors to think about the cumulative impact of the decisions taken. He stated that people felt disconnected with the democratic process and often believed there was no point in objecting. He made a plea that sustainability be put back at the forefront of planning considerations.

Written Statements in support of Councillor Cottle-Hunkin’s Notice of Motion regarding the North Devon Hospital Maternity Unit

The Chair agreed that, contrary to normal proceedings and in view of the personal nature of the contribution, an anonymous statement would, on this occasion, be heard. In addition to this statement, contributions had been received from Bryony McDonald, Jodie Tuttiett, Chloe Turner, Keeley Hewett and Hollie Sturman.

The Chief Executive read out the statements relating individual experiences and emotions in light of attending scans and other maternity milestones alone without the support of a partner/family member. All statements confirmed their support for Councillor Cottle-Hunkin’s Notice of Motion.

46. DECLARATIONS OF INTEREST

Members were reminded that declarations of interest should be made as and when the specific agenda item to which they related was under discussion.

47. AGREEMENT OF AGENDA ITEMS PART I AND II

There were no Part II items.

48. TO CONSIDER CORRESPONDENCE OR OTHER BUSINESS ESPECIALLY BROUGHT FORWARD BY THE DIRECTION OF THE CHAIR

The Chair confirmed that a special meeting of Full Council will be held on November 16 to review the constitution. Members will be required to put forward views and comments by 23 October. Item 8 on today’s agenda had been deferred to that meeting.

49. TO ANSWER QUESTIONS SUBMITTED UNDER PROCEDURAL RULE A9

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A question had been submitted by Councillor Newton under Procedural Rule A9.

In accordance with the constitution, a written answer to the question had been circulated to all Members.

Written Question from Councillor Newton Please accept this question under RP A9.1. This was notified to Steve Hearse in accordance with RP A9.3 on 6 August 2020: "To ask for a breakdown of all costs borne by TDC incurred as a result of the legal dispute with Kivells over the Holsworthy Agricultural Centre. The response to identify any and all legal, compensation, maintenance, commission and court- directed costs over the duration of the dispute, as well as an estimate of total officer' time incurred."

Answer

Kivells costs

 Compensation settlement £ 525,448.71  Kivells costs £ 434,608.00  Torridge costs legal & Professional £ 321,638.50  Total costs £1,281,695.20

The officer time as submitted prior to the case amounted to 419.13 hours, the split as below:

Solicitor 231.73 15/09/2010 SD Solicitor CN 78.00 Solicitor HP 104.70 Surveyor/Paralegal 4.70 419.13

David Heyes Finance Manager & Interim Section 151 Officer

Councillor Newton asked a supplementary question of the Leader of the Council:

Given the fact that this was a significant loss of and drain on Council money, and it stretched over several administrations, will there be any follow-up or investigation to try to learn lessons from it, so that a repetition can be avoided?

The Leader of the Council responded that:

It did indeed go back over several administrations

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Lessons had been learnt in that a much more IFA-accountable system is to be introduced, so everything will be thoroughly recorded and documented. He invited Councillor Newton to share any ideas he might have which could safeguard future scenarios.

50. REVIEW OF CONSTITUTION

Item deferred to Special Full Council meeting on 16 October. He confirmed that the meeting will be held in the evening.

The Chair extended thanks on behalf of the Council to Councillor McKenna of Cornwall Council and Mr Clarke of the Local Government Association for their input in to the constitution. Councillor Pennington echoed the Chair’s thanks to Councillor McKenna and Mr Clarke.

51. STRATEGIC PLAN

The Chief Executive introduced the report. He summarised the proceedings since Members had started developing the Strategic Plan, through a series of workshops, in late 2019/early 2020. The draft plan was ready to go out to consultation in March 2020 but had been put on hold due to Covid-10.

Members had since approved a number of minor amendments at the last full Council meeting on 10 August, although these did not change the overall direction of the plan. The plan had then been put out to a consultation over a 6-week period, culminating on 23 September, and 20 responses, with 72 comments, had been received, inclusive of Councillor Chalmer’s public contribution earlier in the meeting. All of the comments had been included in papers but quite a few required further clarification and more details. Furthermore, as the Strategic Plan was still in a high- level format, many of the comments would be answered at the next stage. The next step is, once the plan, as set out in the pack, is adopted, officers will review the comments and include these in a future report which will be presented to Members together with an action plan.

The Leader of the Council hoped Members would see the merits of approving what had been developed by all Members. He highlighted the issue of housing, for which the Government was putting forward large sums of money and in order to benefit from this a policy needed to be in place.

In response to a question from Councillor Hames, the Chair said Northam Town Council should submit its comments for consideration at the meeting where the revised plan will be reviewed.

It was proposed by Councillor James, seconded by Councillor Brenton and –

Resolved:

That the final version of the new Strategic Plan be adopted.

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A recorded vote was taken.

COUNCILLOR FOR AGAINST ABSTAIN

BOUGHTON, R X BRENTON, D G X BRIGHT, C X BROWN, M X BUSHBY, D X CHRISTIE, P S X CLARKE, M X COTTLE-HUNKIN C X CRAIGIE, R X DART, A L X FORD, L GUBB, J X HACKETT, P J W X HAMES, P X HARDING, S X HAWKINS, C X HEPPLE, K HICKS, R H X HODSON, C X HURLEY, D X HUTCHINGS, J X INCH, A T X JAMES, K J X JONES, D X LANGFORD, S X LAWS, N X LEATHER, C X LOCK, R A X McGEOUGH, D A D X McKENZIE, J X MANLEY, J X NEWTON, S X PENNINGTON, P W X ROSSI, G X WATSON, P X WISEMAN, R X

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(Vote: For – unanimous)

52. WINKLEIGH NEIGHBOURHOOD PLAN

Members were advised that the Winkleigh Neighbourhood Plan had been brought to Full Council for approval and that the Council had no provision to make any changes.

Councillor Christie referred to the recent Plans meeting where the Government’s consultation on the new planning system had been discussed. He had been told that a new Local Plan would be required and he asked how this would affect the Neighbourhood Plan as this had to comply with the Local Plan. The Senior Planning Policy Officer responded that he did not know as the detail was lacking at this stage. However, under the existing legislation, an up to date Local Plan had to be in place by 2023. An up to date Local Plan was in place and it will remain up to date for 5 years and during this period it will be reviewed. If still considered to be up to date by the end of that period it could be taken forward.

The Senior Planning Policy Officer told the meeting that there were prescribed processes the authority had to follow, and he alluded to the Council’s statutory duties. He outlined the process.

The Ward Member for Winkleigh told the meeting that Winkleigh Parish Council accepted the Independent Examiner’s comments.

The Senior Planning Policy Officer stated that Winkleigh Parish Council, TDC Officers and the Independent Examiner were satisfied that the Plan should proceed.

It was proposed by Councillor McGeough, seconded by Councillor Leather and –

Resolved:

That the recommendations, as set out in the report, be approved.

A recorded vote was taken.

COUNCILLOR FOR AGAINST ABSTAIN

BOUGHTON, R X BRENTON, D G X BRIGHT, C X BROWN, M X BUSHBY, D X CHRISTIE, P S X CLARKE, M X

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COTTLE-HUNKIN C X CRAIGIE, R X DART, A L X FORD, L GUBB, J X HACKETT, P J W X HAMES, P X HARDING, S X HAWKINS, C X HEPPLE, K HICKS, R H X HODSON, C X HURLEY, D X HUTCHINGS, J X INCH, A T X JAMES, K J X JONES, D X LANGFORD, S X LAWS, N X LEATHER, C X LOCK, R A X McGEOUGH, D A D X McKENZIE, J X MANLEY, J X NEWTON, S X PENNINGTON, P W X ROSSI, G X WATSON, P X WISEMAN, R X

(Vote: For – unanimous)

Councillor Lock left the meeting.

53. AIR QUALITY SUPPLEMENTARY PLANNING DOCUMENT

The Senior Planning Policy Officer presented the report which sought to gain Member approval to adopt the Air Quality Supplementary Planning Document (SPD) so that it may be treated as a material consideration in determining relevant planning applications. He outlined the history and scope of the document.

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The Council learnt that Natural England had provided training to Planning Officers on the effects of ammonia on habitat and how to assess and mitigate this risk.

Clarification was sought regarding the source of the information regarding ammonia and rates of nitrogen (7.3). The Senior Planning Policy Officer replied that the information had come from Natural England and correlated to the information presented at the training received by Planning Officers. He would be happy to provide the slide to Members.

A short debate took place on the effects of ammonia on habitat and people’s health and the input of Natural England.

Councillor James declared that he was nervous about the agricultural section of the report and felt this had been added without due discussion.

Councillor Jones declared an interest – his family are farmers. Councillor Cottle-Hunkin declared an interest – small family farmers. Councillor Harding declared an interest - son and brother are farmers.

It was noted that the document had a particular focus on Braunton.

It was alleged that the document, although not yet adopted by TDC, was already being used by the Planning Team. The Senior Planning Policy Officer re-assured Members that there was no intention to bring the SPD in by the backdoor and it had not been solely the work of Natural England. Indeed, the SPD had been presented to the Local Plan Working Group and due regard had been given to it. Furthermore, the document had not been used by Planning Officers in terms of decision making. It was possible that Natural England had been requing scale assessments but this would have come from down from a national level.

It was proposed by Councillor Leather, seconded by Councillor Brenton and –

Resolved:

That the Air Quality Supplementary Planning Document (SPD), as set out in Appendix 2, as a Supplementary Planning Document be adopted and treated as a material consideration in the determination of relevant planning applications.

A recorded vote was taken.

COUNCILLOR FOR AGAINST ABSTAIN

BOUGHTON, R X BRENTON, D G X BRIGHT, C X BROWN, M X BUSHBY, D X

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CHRISTIE, P S X CLARKE, M X COTTLE-HUNKIN C X CRAIGIE, R X DART, A L X FORD, L GUBB, J X HACKETT, P J W X HAMES, P X HARDING, S X HAWKINS, C X HEPPLE, K HICKS, R H X HODSON, C X HURLEY, D X HUTCHINGS, J X INCH, A T X JAMES, K J X JONES, D X LANGFORD, S X LAWS, N X LEATHER, C X LOCK, R A McGEOUGH, D A D X McKENZIE, J X MANLEY, J X NEWTON, S X PENNINGTON, P W X ROSSI, G X WATSON, P X WISEMAN, R X

Councillor Pennington declared a personal interest because he farms. (Vote: For 13, Against 9, Abstentions 11)

54. COASTAL CONCORDAT

The Senior Planning Policy Officer explained the purpose and composition of the coastal concordat. The 25 Year Environment Plan, which TDC has signed up to, includes a commitment for all local authorities with costal interests to become a signatory by 2021. The agreement is currently non-binding.

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The Senior Planning Policy Officer described how the concordat was based on 5 high-level principles:

 a first point of contact  a single lead authority to coordinate the requirements  to add dispensing or deferring responsibilities  to get agreements early, ideally at the pre-application stage  to provide a coordinated service

He highlighted the benefits to regulators and applicants, summarising that it would bring better efficiency. It was noted that it is still the responsibility of the applicant to gain the required consents.

Councillor James, as Lead Member for the Environment, expressed concerns about accountability. The Senior Planning Policy Officer confirmed that this point had been noted and he reassured Members that the process should increase accountability, transparency and the flow of information. In response to Councillor Bushby’s concerns about the influence of Natural England and the Environment Agency, reassurance was given that the authority would retain all of its independence in terms of decision making.

It was proposed by Councillor James, seconded by Councillor Watson and –

Resolved:

1. That the Coastal Concordat be adopted, and officers be authorised to confirm such in writing to Defra; and

2. That it be agreed to work under the principles of the Concordat in undertaking and discharging its regulatory responsibilities associated to coastal development.

A recorded vote was taken.

COUNCILLOR FOR AGAINST ABSTAIN

BOUGHTON, R X BRENTON, D G X BRIGHT, C X BROWN, M X BUSHBY, D X CHRISTIE, P S X CLARKE, M X COTTLE-HUNKIN C X CRAIGIE, R X DART, A L X FORD, L

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GUBB, J X HACKETT, P J W X HAMES, P X HARDING, S X HAWKINS, C X HEPPLE, K HICKS, R H X HODSON, C X HURLEY, D X HUTCHINGS, J X INCH, A T X JAMES, K J X JONES, D X LANGFORD, S X LAWS, N X LEATHER, C X LOCK, R A McGEOUGH, D A D X McKENZIE, J X MANLEY, J X NEWTON, S X PENNINGTON, P W X ROSSI, G X WATSON, P X WISEMAN, R X

(Vote: For 26, Against, 5 Abstentions 2)

Councillor Hames left the meeting.

55. PETITIONS

There were no petitions.

56. NOTICES OF MOTION

There were no notices of motion.

57. WRITTEN NOTICE OF MOTION FROM COUNCILLOR MCGEOUGH

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Written Notice of Motion from Councillor McGeough

I would urge the members to support a retractable cover for the pool in Victoria park, we have lots of anti-social behaviour in the park with mindless people throwing glass into the small pool. To provide the pool with a cover would also provide the pool with a safety feature when it is not in use and unmanned by staff.

Implementation of a secure retractable cover would in the long run pay for itself and prove a cost saving exercise Eliminating unnecessary costs to outside contractors for works repairing and clearing the pool of debris etc. A cover would prevent this and provide every resident and visitor to the park with peace of mind when choosing to use this great facility in Torridge!

This is the only outside pool within Torridge and North Devon which a local authority provides for the public and we need to keep it in good order.

The Notice of Motion was taken as read. Councillor McGeough added that he sought to engage the support of Members as he felt Victoria Park was very important to Torridge and the proposal would bring cost savings to the Council. He reminded Members that he had previously submitted the Notice of Motion and believed it needed to be followed up.

The Chair confirmed that, if approved by Council, the Notice of Motion would be presented the Property & Major Projects Working Group for costings and assessment.

The Notice of Motion was seconded by the Chair.

A recorded vote was taken.

COUNCILLOR FOR AGAINST ABSTAIN

BOUGHTON, R X BRENTON, D G X BRIGHT, C X BROWN, M X BUSHBY, D X CHRISTIE, P S X CLARKE, M X COTTLE-HUNKIN C X CRAIGIE, R X DART, A L X FORD, L GUBB, J X HACKETT, P J W X

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HAMES, P HARDING, S X HAWKINS, C X HEPPLE, K HICKS, R H X HODSON, C X HURLEY, D X HUTCHINGS, J X INCH, A T X JAMES, K J X JONES, D X LANGFORD, S X LAWS, N X LEATHER, C X LOCK, R A McGEOUGH, D A D X McKENZIE, J X MANLEY, J X NEWTON, S X PENNINGTON, P W X ROSSI, G X WATSON, P X WISEMAN, R X

|(Vote: For – unanimous)

58. WRITTEN NOTICE OF MOTION FROM COUNCILLOR MCKENZIE

The Chair explained that, if approved, this Notice of Motion would go back to Full Council, with a comprehensive report.

Written Notice of Motion from Councillor McKenzie

I propose that this council re-evaluates its current management of the pebble ridge with the intention of preserving the coastal defence. I propose this as the cost of not preserving the pebble ridge and its function will cost lives, hundreds of millions of pounds, the loss of unique habitats and subsequent impact on biodiversity. It will also cause massive pollution in the bay, the estuary and both rivers as the dump will be washed away. This council, along with most others, declared a climate emergency. Hundreds of square kilometres of Northern Devon will be devastated including land used for residential, industrial and leisure purposes. This must be done in conjunction with North Devon District Council as the impact will also be felt by them. The last investigation into this matter is now out of date (2012).

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Councillor McKenzie stated that, after his discussion with the Lead Member for Resources, which included coastal defence, he wished to withdraw the Notice of Motion as the matter was already under investigation. However, if he felt insufficient progress had been made in a timely manner, he would re-introduce the Notice of Motion at a future date.

The Senior Solicitor confirmed that as the Notice of Motion had not been proposed, seconded and voted on, it could be withdrawn.

59. WRITTEN NOTICE OF MOTION FROM COUNCILLORS JONES & HUTCHINGS

The Chair asked the Leader of the Council to clarify whether the Notice of Motion had been superseded by the discussions and recommendation of the Community & Resources Committee. The Leader stated that the Notice of Motion had not been superseded, however, he confirmed that the Councillor Grant Fund had been restored. The Leader added there had now been more extraordinary meetings than missed meetings.

Written Notice of Motion from Councillors Jones & Hutchings

“While recognising that any such donation is entirely voluntary and at the discretion of the individual Councillor, in light of the Coronavirus pandemic leading to the cancellation of meetings in April, May and June this Full Council would encourage Chairs and Vice-Chairs to donate a portion of their chair’s allowance- as they see fit - to our Councillor grants fund.”

Councillor Jones sought clarification from the Senior Solicitor:

 Should the Council not proceed straight to the vote, as this is a Notice of Motion?  Are Members who are Chairs and Vice-Chairs allowed to vote on the Notice of Motion, as they must have a financial interest.

The Senior Solicitor confirmed that the Member proposing the Notice of Motion should have the opportunity to present the Notice of Motion and then the Chair should ask for a seconder, directly followed by the vote. With regard to Members who have an interest, Full Council cannot make the decision to take away a Member’s expenses.

Councillor Christie raised a point of order that all councillors vote on their own money as it comes in each year.

Councillor Hackett raised a point order. The Notice of Motion was discriminatory and did not treat all councillors with equality.

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The Chair sought a seconder. Councillor McGeough seconded the Notice of Motion and added that the Councillors should have the opportunity to present their Notice of Motion.

Councillor Jones presented the Notice of Motion explaining that all Members receive an allowance for going out into the communities and working hard and he had no doubt that the Chairs in question had been out in their communities and had done work related to their chair roles. Members of the public had said to Councillor Jones that, if meetings had been cancelled and a councillor receives an allowance to chair those meetings and their role during this period had been lessened, maybe it would be the suitable thing to give a portion of that back to the council as a gesture of solidarity with the people of Torridge who will be going through hard times.

It was proposed by Councillor Hutchins and seconded by Councillor McGeough –

That the Notice of Motion be approved.

A recorded vote was taken.

COUNCILLOR FOR AGAINST ABSTAIN

BOUGHTON, R X BRENTON, D G X BRIGHT, C X BROWN, M X BUSHBY, D X CHRISTIE, P S X CLARKE, M X COTTLE-HUNKIN C X CRAIGIE, R X DART, A L X FORD, L GUBB, J X HACKETT, P J W X HAMES, P HARDING, S X HAWKINS, C X HEPPLE, K HICKS, R H X HODSON, C X HURLEY, D X

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HUTCHINGS, J X INCH, A T X JAMES, K J X JONES, D X LANGFORD, S X LAWS, N X LEATHER, C X LOCK, R A McGEOUGH, D A D X McKENZIE, J X MANLEY, J X NEWTON, S X PENNINGTON, P W X ROSSI, G X WATSON, P X WISEMAN, R X

(Vote: For 3, Against 19, Abstentions 10)

60. WRITTEN NOTICE OF MOTION FROM COUNCILLOR COTTLE-HUNKIN

Councillor Brenton declared an interest - his eldest daughter is a Staff Nurse at the North Devon District Hospital.

Councillor Cottle-Hunkin declared a personal interest – she is 16 weeks pregnant and it affects friends and family.

Written Notice of Motion from Councillor Cottle-Hunkin

Pregnancy and birth are hard at the best of times. Covid-19 has made this even harder by removing partner support for women at the most exciting but also nerve- wracking time of their lives.

Since the national lockdown was lifted, maternity restrictions have remained and pregnant women have continued to sit alone in hospital rooms with partners locked out of scans and labour. They are anxiously separated from the people they love the most, with no idea of the outcomes as women are given life-changing news; they miss that first special moment of seeing their baby’s first heartbeat, or are devastatingly absent and unable to hold the mother’s hand through the tears and heartache of finding out it’s not there.

On 8th Sept the Government gave NHS Trusts guidance that states women should be permitted to have a supportive person with them for all scans and during all

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stages of labour. Yet at North Devon District Hospital the rules remain the same and no changes have been made to reflect this guidance.

Pregnancy, with all its ups and downs, is not something that should be experienced alone.

As such, I propose that this council writes a letter to Northern Devon Healthcare NHS Trust asking them to reconsider their current maternity restrictions with urgency, and allow women to have their partners with them for all pregnancy scans and at all stages of labour.

Councillor Cottle-Hunkin told the meeting that on 8 September, NHS guidance had been issued to allow the reintroduction of partners in maternity services. Councillor Cottle-Hunkin said there had been a lot of support from professional bodies, MPs and members of the public. On 1 October North Devon Healthcare Trust had announced that there would be changes, effective 2 October. The Council was informed of the changes. In light of the changes and the huge progress that had been made, Councillor Cottle-Hunkin wished to amend the Notice of Motion, proposing that a letter be written thanking the Trust and supporting the changes they have made.

It was proposed by Councillor Cottle-Hunkin, seconded by Councillor Brenton and –

Resolved:

That a letter be written thanking the Northern Devon Healthcare NHS Trust and stating that this Council supports the change they have made.

A recorded vote was taken.

COUNCILLOR FOR AGAINST ABSTAIN

BOUGHTON, R X BRENTON, D G X BRIGHT, C X BROWN, M X BUSHBY, D X CHRISTIE, P S X CLARKE, M X COTTLE-HUNKIN C X CRAIGIE, R X DART, A L X FORD, L GUBB, J X HACKETT, P J W X HAMES, P

Page 22 20

HARDING, S X HAWKINS, C X HEPPLE, K HICKS, R H X HODSON, C X HURLEY, D X HUTCHINGS, J X INCH, A T X JAMES, K J X JONES, D X LANGFORD, S X LAWS, N X LEATHER, C X LOCK, R A McGEOUGH, D A D X McKENZIE, J X MANLEY, J X NEWTON, S X PENNINGTON, P W X ROSSI, G X WATSON, P X WISEMAN, R X

(Vote: For – unanimous)

The Leader of the Council informed the meeting that a discussion had taken place as to who should sign the letter. The Chair proposed it be signed by the Leader, Councillor Cottle-Hunkin and the Chair.

The meeting commenced at 6.30 pm and closed at 8.50 pm

Chair: Date:

Page 23 Agenda Item 8

Page 24 Page 25 Page 26 Page 27 Page 28 Page 29 Page 30 Page 31 Page 32 Page 33 Page 34 Page 35 Page 36 Page 37 Page 38 Page 39 Page 40 Page 41 Agenda Item 9

Agenda Item

REPORT OF Planning and Economy Manager To: Full Council Subject: Great Torrington Neighbourhood Plan Date: 2nd November 2020 Reference:

PURPOSE OF REPORT: To agree the report of an independent examiner on the Great Torrington Neighbourhood Plan and the detail of the recommended modifications as set out in a Council Decision Statement for incorporation into a Referendum Neighbourhood Plan, and for arrangements to be made for a referendum to be held on the modified

Neighbourhood Plan.

1. INTRODUCTION

This report seeks approval to modify the submission version of the Great Torrington Neighbourhood Plan in accordance with the recommendations of an independent examiner, and then to proceed to a local referendum that would determine if the Neighbourhood Plan should be “made” (adopted). If “made” the Neighbourhood Plan will form part of the Council‟s statutory development plan and be used alongside the North Devon and Torridge Local Plan (2011-2031) in determining planning applications in the parish of Great Torrington.

Under neighbourhood planning regulations (Neighbourhood Planning (General) Regulations 2012)) councils are required to publish a “Decision Statement”, setting out what actions they propose to take in response to an examiner‟s recommendations. A draft Decision Statement for the Great Torrington Neighbourhood Plan is provided as appendix 2 of this report.

2. REPORT

Neighbourhood plans are statutory planning documents which can establish general planning policies for the development and use of land in a neighbourhood. Neighbourhood planning aims to help local communities play a direct role in planning the areas in which they live, and work and the Council has a statutory duty to assist communities in doing so.

The responsibility for preparing a neighbourhood plan resides with the designated “Qualifying Body”, which is Great Torrington Town Council in this instance, however the local planning authority (this Council) has a range of legislative responsibilities that it is required to discharge in support of neighbourhood planning, including:

 a duty to support the qualifying body in the neighbourhood planning activity;  formally consulting on the submission draft of the neighbourhood plan;  arranging for the independent examination of the neighbourhood plan;  considering whether the neighbourhood plan meets the prescribed legislative requirements;  arranging and carrying out a referendum on the draft neighbourhood plan;  ensuring the neighbourhood plan is “made” (adopted) if successful at referendum.

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The Great Torrington neighbourhood area designation was formally approved by this Council in March 2014. Since then the Neighbourhood Plan has been prepared by the Town Council, which has included an extensive programme of work and engagement with the local community.

Great Torrington Town Council undertook formal consultation on a pre-submission Neighbourhood Plan during March - May 2018 in accordance with Regulation 14 of the neighbourhood planning regulations. Following on from which it considered the received representation, and as considered necessary revised the neighbourhood plan. At this stage, the Council provided a comprehensive response to the consultation, supported by the commissioning of an independent „health check‟ to identify any potential issues or areas of concern.

The Neighbourhood Plan, along with necessary supporting documentation, was subsequently formally submitted to this Council in November 2018. Consultation on the submission Neighbourhood Plan (Regulation 16) was then conducted by this Council during February and March 2019. The Council provided a comprehensive, constructive and without prejudice response to the consultation with a view to highlighting matters that would benefit from being addressed prior to the Neighbourhood Plan being „made‟.

In April 2019, this Council, with the agreement of the Town Council, appointed Mr M. Lee MA MRTPI AMInstLM MTCPA NPIERS NSI as an independent examiner of the Neighbourhood Plan. The purpose of the examination being to determine whether the Neighbourhood Plan should, with or without changes, be recommended to proceed to referendum. In doing so the examiner was required to consider whether:

 the Neighbourhood Plan meets the “Basic Conditions”;  it has been prepared by and submitted for examination by a qualifying body and the area has been properly designated;  it sets out policies in relation to the development and use of land;  it specifies the period to which it relates;  it does not include provisions for „excluded development‟  it is the only neighbourhood plan for the area and doesn‟t relate to land outside of the designated area;  the referendum boundary should be extended beyond the area of the Neighbourhood Plan; and  the Neighbourhood Plan is compatible with the Human Rights Convention

The Basic Conditions as set out in the Town and Country Planning Act 1990 (as amended) are that a neighbourhood plan should:

 have regard to national policies and advice contained in guidance issued by the Secretary of State;  contribute to the achievement of sustainable development;  be in general conformity with the strategic policies in the development plan for the area;  be compatible with and not breech EU regulations; and  meet any prescribed conditions and comply with prescribed matters; which in this case are to comply with requirements associated to habitat regulations and environmental impact assessments.

From a review of the responses received to the consultation on the submission Neighbourhood Plan, the examiner considered that public hearings were not required and that the examination could be conducted through written representations.

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Through the examination process, the examiner encouraged the respective Councils to address outstanding matters that had been raised through the Regulation 16 consultation. Constructive dialogue between both parties led to a series of proposed modifications being mutually agreed, which were provided to the examiner to consider, along with the representations received from other respondents to the referenced consultation.

The final examiner‟s report was received by this Council on 16th December 2019. On the same day it was provided to the Town Council and made available to the public through the Council‟s website. The examiner‟s report is provided as appendix 1 of this report. The report recommends that the Council, subject to the acceptance of the proposed modifications to the Neighbourhood Plan, should proceed to a referendum. In addition to modifying the Neighbourhood Plan, in accordance with his recommendations, the examiner also sought the preparation of an Equality Impact Assessment and that the Basic Conditions Statement is updated to reflect the 2019 National Planning Policy Framework; these tasks have been concluded to the satisfaction of your officers by the Town Council.

Section 12(2) of Schedule 4B of the Town and Country Planning Act 1990 requires the local planning authority to consider each of the examiner‟s recommendations and the reasons for them and to decide what action to take in response to each recommendation.

The neighbourhood planning regulations require the Council to then publish a “Decision Statement” on the outcomes of its consideration of the matters subject to this report as soon as is possible after making the decision. The Decision Statement will set out this Councils decision(s) on the Great Torrington Neighbourhood Plan and the reasons for making such decision(s).

In addition to the modifications proposed by the examiner the Decision Statement also includes modifications agreed between the Councils, including adjustments to the supporting text required consequent of the examiner‟s recommendations that modify the policies of the Neighbourhood Plan. Appendix 3 to this report provides the referendum version of the Neighbourhood Plan. All the modifications set out in the Decision Statement have been incorporated into this document, together with changes of a minor nature (not specified in the Decision Statement) which include typographical corrections, adjustment to ensure plan wide consistency, presentational improvement and updated information with regard to the status of the Neighbourhood Plan.

The examiner recommended modifying most of the submission Neighbourhood Plan policies. However, in the main the policy intent was retained, adjustment being considered necessary to address imprecise phraseology and to restructure and simplify the policies to make them effective as a development management tool. Officers support the modifications proposed by the examiner in his report and accept the associated reasons for making such modifications. It is recommended that the proposed modifications recommended by the examiner, as set out in the Decision Statement are agreed and incorporated into the Neighbourhood Plan.

It is worth noting that the decision on whether to progress with the Neighbourhood Plan and whether to accept the examiner‟s recommendations resides with the local planning authority at this stage, not the Qualifying Body. It is however beneficial that the Town Council have considered and accepted the examiner‟s report and the proposed modifications to the Neighbourhood Plan.

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Torrington Town Council considered the examiner‟s report at its Full Council meeting on 6th February 2020 and resolved to “agree to incorporate the Inspectors recommendations into the Neighbourhood Plan along with TDC/DCC suggestions as provided in advance of this meeting” (Town Council minute 221). The Town Council further considered the detail of the examiner‟s recommendations and the application of all proposed modifications to the submission Neighbourhood Plan at its Full Council meeting on 1st October. The Council unanimously agreed (Town Council Minute 84) the following:

1. Approve the Draft Neighbourhood Plan which accepts and has integrated the recommendations of the examiner in relation to the Great Torrington Neighbourhood Plan, as set out in the examiner‟s report and those amendments tabled by TDC and DCC.

2. Approve any further changes of a minor nature necessary to address typographic, spelling and grammatical errors, adjustment to ensure plan wide consistency of terminology, presentational improvements, factual updates and updated information with regard to the status of the Neighbourhood Plan.

3. Approve, pending TDC‟s agreement, that the Great Torrington Neighbourhood Plan, proceeds to referendum, at a date yet to be determined by TDC.

The examiner was also tasked with considering whether the referendum area should be extended beyond the designated Neighbourhood Area. The examiner concluded that a referendum based on the Great Torrington Neighbourhood Area is appropriate. Officers find no reason to disagree with this conclusion and recommend that the area of the referendum is that of the designated Neighbourhood Area for Great Torrington.

Prior to the coronavirus pandemic, it would have been necessary for a referendum on the neighbourhood plan to have been held within 56 days of a decision being made on the Neighbourhood Plan, with the date of the referendum specified as part of the Decision Statement. As a result of legislation introduced in response to COVID-19, no neighbourhood planning referendums are currently allowed to take place until after 6th May 2021. At this time, it is proposed that a date for the referendum is not set and that such will be established in consultation with the Council‟s Elections Team in due course. It is currently anticipated that the referendum would take place as soon as reasonably practicable after the Police and Crime Commissioners‟ and Devon County Council elections, which are currently scheduled to take place on 6th May 2021.

The conduct of the referendum is prescribed by legislation; principally the Neighbourhood Planning (Referendums) Regulations 2012 („referendum regulations‟) and follows a similar format to a local election. All persons within the neighbourhood area who are registered and determined to be eligible to vote will be given the opportunity to participate in the referendum. The form of the question for the referendum is prescribed through the referendum regulations (paragraph 1 of Schedule 1) and in this instance the question that will be asked on the ballot paper is:

“Do you want Torridge District Council to use the neighbourhood plan for Great Torrington to help decide planning applications in the neighbourhood area?”.

Eligible voters will be given the simple option to either vote “yes” or “no”. If the majority of those participating in the referendum vote „yes‟, in favour of using the Neighbourhood Plan, then it must be “made” (adopted) by the Council within 8 weeks of the referendum. If the results of the referendum are negative, then it is not possible

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to move to make (adopt) the neighbourhood plan. In such circumstances, the Qualifying Body would need to consider how it may wish to proceed.

Prior to the coronavirus pandemic, neighbourhood plans could be given significant weight in the determination of planning applications, so far as it is material to the planning application, once successful at a referendum. Recognising that referendums cannot now be held until May 2021; the Government has revised Planning Practice Guidance (paragraph: 107 Reference ID 41-107-20200513) to enable neighbourhood plans to be given significant weight once a Decision Statement for the neighbourhood plan has been published. Hence, subject to a positive outcome on this matter before you and upon the associated publication for the Decision Statement, the Neighbourhood Plan will be able to begin to have effect on relevant planning decisions.

3. IMPLICATIONS

Legal Implications

The Council has statutory duties to carry out specific tasks relating to the progression and making of Neighbourhood Plans, to do so within prescribed timeframes and to directly fund such activities. Failure to carry out such duties, including those set out in this report, would be in breach of legislative responsibilities which could be subject to challenge by the Qualifying Body or third party, with associated costs and reputational damage.

The Neighbourhood Plan, as proposed to be modified, is considered to meet the Basic Conditions which were set out in law following the Localism Act (paragraph 8 of Schedule 4B to the Town and Country planning Act 1990 (as amended)) and this has been confirmed in the examiner‟s report. The Neighbourhood Plan is also considered to meet all the relevant legal and procedural requirements to enable it to advance to referendum.

The Council is required by legislation to make a decision on the examiner‟s report, proposed modifications and how to proceed, within a prescribed period. The Council is subsequently required by legislation to publish the decision and publicise it in a prescribed manner.

The Neighbourhood Planning (Referendums) Regulation 2012 (as amended) set out the information that must be made available in relation to the referendum, when and where the information must be published and made available for inspection, how the referendum will be conducted and prescribes the referendum questions. The timeframe for conducting the referendum has been delayed by the Local Government and Police and Crime Commissioner (Coronavirus) (Postponement of Elections and Referendums) (England and Wales) Regulations 2020, which in response to COVID- 19 postpones the opportunity for referendum to be held until 6th May 2021.

Financial Implications

The Council is responsible for a range of specific costs associated to the progression and making of Neighbourhood Plans, including the examination and referendum.

The Council‟s Democratic Services Team have indicated that the direct financial cost of conducting the referendum for the Great Torrington Neighbourhood Plan would be in the region of £8,000. The referendum would be held with the same resource/cost implications as a local town council election.

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The designation of the first five neighbourhood areas in Torridge attracted a grant of £5,000 per area as a „pump-priming‟ fund from the Government to support neighbourhood planning activity (£25,000 in total). Additionally, the Council will be eligible to seek a further grant of £20,000 from Government specifically in response to the progression of the Great Torrington Neighbourhood Plan upon the publication of the formal Decision Statement and subject to the Council resolving to send the Neighbourhood Plan forward to referendum. Officers will make necessary arrangements to secure the grant funding at the appropriate time.

The available grant funding is anticipated to be sufficient to cover the specific direct financial costs to the Council associated to supporting the progression of the Great Torrington Neighbourhood Plan; including the earlier procurement of an independent health check on the draft plan, the appointment of the independent examiner and the direct costs of the referendum. This does not however take account of the staffing and operational costs associated with completing the neighbourhood planning activities, which are conducted as part of the wider work programmes of the planning policy and democratic services teams.

It should be noted that Qualifying Bodies are eligible for alternate funding to support the preparation of their neighbourhood plans.

Human Resources Implications

Subject to the Council resolving to progress with the Neighbourhood Plan in accordance with the recommendations of this report, the Council will be responsible for conducting the referendum on the Neighbourhood Plan. The Democratic Services Team will undertake the necessary arrangements to conduct a referendum, supported by the planning policy team. Arranging the referendum will be carried out within the existing staffing and operational capacities of the teams, however it will be necessary to appoint staff to run polling stations and carry out the count. The costs of doing so are anticipated to be accommodated within the grant eligible for receipt from the Ministry of Housing, Communities and Local Government.

A range of other activities will be required by the Council in order to support the progression of the Neighbourhood Plan through to being made (adopted) and implemented. It is anticipated that such activities will be subsumed within the wider work programmes, operational and staffing capacities of the planning policy team

Sustainability/Biodiversity Implications

No adverse sustainability/ biodiversity issues are considered to be outstanding, subject to the application of the examiner‟s recommendations. The examiner states (examiner‟s report paragraph 2.15) that “the Plan would properly contribute to the objective of sustainable development, subject to the various policy amendments that I have recommended.”. The Basic Condition relating to sustainability would then be considered to have been met.

Equality/Diversity

The Basic Conditions Statement provided alongside the submission Neighbourhood Plan contained a statement that the “neighbourhood plan had regard to the rights and freedoms guaranteed under the European Convention on Human Rights and complies with the Human Rights Act.”. The examiner however referred, in his report to the absence of an analysis equating to an Equalities Impact Assessment (paragraph 2.22). To address this, the Qualifying Body have provided an Equalities Impact Assessment, which is considered to address the examiner‟s concerns. The

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Assessment sets out how the Neighbourhood Plan has been prepared with due regard to the European Convention on Human Rights.

Risk Management

The opportunity for challenge, resulting in intervention by the Secretary of State is limited to the following, where requested to do so by the Qualifying body:

a) where the local planning authority has failed to take a decision to send a plan to referendum within 5 weeks of receipt of the examiner‟s report, or within 5 weeks of the end of the period for representations; b) where the local planning authority does not follow all the examiner‟s recommendations; or c) where the local planning authority modifies the plan in a way that was not recommended by the examiner (except where the modification is to ensure compatibility with EU or human rights obligations or to correct an error).

Where intervention is sought based on a) or b), the request must be received within 6 weeks of the publication of the Council‟s Decision Statement.

Following receipt of the examiner‟s report the Qualifying Body agreed to an extension of the Council‟s decision-making timeframe, on 12th February 2020, to allow it to consider the examiner‟s report and to work through how they might be incorporated into the submission Neighbourhood Plan to form the referendum Neighbourhood Plan. The District Council have also worked with the Qualifying Body to ensure that the intended changes to the submission Neighbourhood Plan reflect the examiner‟s recommendations, with other agreed changes only being of a minor nature, as provided for by c).

Compliance with Policies and Strategies

One of the “Basic Conditions” that must be met to allow a neighbourhood plan to proceed to referendum is that it is in general conformity with the strategic policies of the relevant local plan. The examiner in his report (paragraph 2.16) provides that he was “satisfied that the neighbourhood plan is in general conformity with the strategic policies of the North Devon and Torridge Local Plan 2018.”.

Data Protection

All activities and the associated processing of personal data carried out by the Council in connection with the Great Torrington Neighbourhood Plan, including the carrying out of the submission consultation and managing the subsequent examination, have been completed in accordance with relevant data protection principles and legislative requirements.

Climate Change

No identified issues relating to climate change.

Ward Member and Leader Member Views

Lead Member: Cllr Watson: I congratulate Great Torrington Town Council for progressing their Neighbourhood Plan to this advanced stage, which aims to add a local dimension to decision making; subject to the consideration of this Council the Neighbourhood Plan will become a material consideration in determining relevant planning applications within the Parish. The Town Council and the local community are to be applauded for their efforts in advancing the Neighbourhood Plan, which will help shape their area.

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Ward Members:

Cllr Bright: I completely support the proposed Great Torrington neighbourhood plan, especially its aspiration to welcome more employment opportunities and educational facilities, both of which are definitely needed by the local residents. Moreover, the plan looks to protect the natural landscape and the topography of the area as well as to preserve the view of the town as seen from surrounding countryside.

Cllr Brown: Welcomes the progression of the Neighbourhood Plan. The Town Council have worked with the local community to produce a Neighbourhood Plan which seeks to guide development in a manner which reflects local priorities.

Cllr Cottle-Hunkin: The Town Council and the community are to be congratulated in advancing the Neighbourhood Plan. I give my support to its further progression to a referendum

3. CONCLUSION

The submission draft of the Great Torrington Neighbourhood Plan has been subject to independent examination and the Council is now required to determine how to proceed. The Council is required to:

1) decide what action to take in response to the recommendations of the examiner; 2) publish the decision and the reason(s) for it; and 3) if the Council consider the Neighbourhood Plan to be compliant with prescribed requirements, arrange and carry out a referendum on whether the Neighbourhood Plan should be „made‟ (i.e. adopted).

Officers concur with the examiner‟s conclusions, reasons and recommendations set out within his report (appendix 1); namely that subject to the application of the proposed modifications recommended through his report, for the reasons given, the Neighbourhood Plan will meet all of the Basic Conditions and other associated legislative requirements and that it‟s preparation has been in accordance with the necessary procedural requirements.

Through the process of advancing the Great Torrington Neighbourhood Plan the Council have worked to support the Town Council, which has resulted in agreement on the modifications to be made consequent of the examiner‟s report. As previously indicated the Town Council at its meeting on 1st October 2020 endorsed the modifications to be incorporated into the proposed Referendum Neighbourhood Plan (appendix 3) from an initial point of agreeing to do so on 6th January 2020.

The examiner‟s recommendations on the Neighbourhood Plan are not binding on the Council and it is within the Council‟s remit to make a decision which differs from that of the examiner, if it is determined that there is a justification for doing so. However, any significant deviation from the examiner‟s recommendations would result in further public consultation and the potential need to re-open the examination of the Neighbourhood Plan.

5. RECOMMENDATIONS

The Council is recommended to:

Accept the recommendations of the examiner in relation to the Great Torrington Neighbourhood Plan, as set out in the examiner‟s report (Appendix 1);

a) Amend the Great Torrington Neighbourhood Plan to include:

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a. the proposed modifications set out in the Decision Statement (appendix 2); and b. any further changes of a minor nature necessary to address typographic, spelling and grammatical errors, adjustment to ensure plan wide consistency of terminology, presentational improvements, factual updates and updated information with regard to the status of the Neighbourhood Plan;

b) agree that the Great Torrington Neighbourhood Plan, as amended (appendix 3), proceeds to referendum, at a date yet to be determined;

c) that the geographical area for the referendum be the Great Torrington Neighbourhood Area (Civil Parish of Great Torrington); and

d) Publish the above decisions and associated reasons in a formal Decision Statement.

SUPPORTING INFORMATION

Consultations: Chief Executive Planning and Economy Manager Governance Manager Senior Solicitor and Monitoring Officer Finance Manager and Section 151 Officer

Contact Officers: Senior Planning Policy Officer: Dawn Burgess

Background Submission draft Great Torrington Neighbourhood Plan (November Papers: 2018) and associated documents: https://consult.torridge.gov.uk/portal/planning/neighbourhood/torrington /torrington_submission The Neighbourhood Planning (General) Regulations 2012: http://www.legislation.gov.uk/uksi/2012/637/contents/made National Planning Practice Guidance: Neighbourhood Planning: https://www.gov.uk/guidance/neighbourhood-planning--2 Update on financial support for neighbourhood planning in 2020/21: https://assets.publishing.service.gov.uk/government/uploads/system/up loads/attachment_data/file/894415/200622_2020- 21_Chief_Planners_Letter_NP_grant.pdf Neighbourhood Planning (Referendums) Regulations 2012: https://www.legislation.gov.uk/ukdsi/2012/9780111525050/contents

Appendix 1 - Examiners Report Great Torrington Neighbourhood Plan

Appendix 2 – Decision Statement – Modifying the submission Great Torrington Neighbourhood Plan

Appendix 3 – Referendum version of Great Torrington Neighbourhood Plan.

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Final Examiner’s Report 8th December 2019 – Great Torrington Neighbourhood Plan 2018-2031

Great Torrington Neighbourhood Plan 2018 – 2031

Submission Version November 2018

Final Report 8th December 2019 to Torridge District Council of

Examination into Great Torrington Neighbourhood Plan 2018 – 2031

By Independent Examiner, Martin S. Lee, MA MRTPI AMInstLM MTCPA NPIERS NSI

Martin S. Lee, MA MRTPI AMInstLM MTCPA NPIERS NSI Martin S. Lee Associates Ltd.

8th December 2019

Martin S. Lee Associates Ltd. Wyndham,Page Stat 51ion Road, Hemyock, EX15 3SE 1 Chartered Town & Country Planning Consultancy m. 07710 229 580 e. [email protected] t. 01823 680 306

Final Examiner’s Report 8th December 2019 – Great Torrington Neighbourhood Plan 2018-2031

Contents Page

1.0 Introduction and Role of the Independent Examiner 3

2.0 Basic Conditions 4 Appropriate Regard to National Policies and Guidance 5 Contribution Towards Achievement of Sustainable Development 7 General Conformity with Strategic Policies for Local Area 7 Compatibility with European Union Obligations 7 Habitat Regulations Assessment 8 Compatibility with Human Rights Requirements 8

3.0 Background Documents 9

4.0 Public Consultation and Consultation Statement 9

5.0 Great Torrington Neighbourhood Plan 2018 – 2031 Land Use Planning Policies 10

Environment 12 Housing Provision 12 Transport and Infrastructure 15 Community Facilities 19 Employment 20

6.0 Summary 21

Habitat Regulations 22 Public Consultation 22 Compatibility with Human Rights 23 Textual, Policy & Map/Figure Revisions 23

7.0 Recommendations 23 Modifications to meet the basic conditions 23 Referendum Area 23

8.0 Conclusions 24

Martin S. Lee Associates Ltd. Wyndham,Page Stat52ion Road, Hemyock, EX15 3SE 2 Chartered Town & Country Planning Consultancy m. 07710 229 580 e. [email protected] t. 01823 680 306

Final Examiner’s Report 8th December 2019 – Great Torrington Neighbourhood Plan 2018-2031

1.0 INTRODUCTION AND ROLE OF THE INDEPENDENT EXAMINER

1.1 Neighbourhood Planning is an approach to planning which provides communities with the power to establish the priorities and policies to shape the future development of their local areas. This Report sets out the findings of the examination of the Great Torrington Neighbourhood Plan Submission Version November 2018 (the Plan) which is intended to cover the period from 2018 up to 2031.

1.2 Great Torrington Parish Area comprises the town of Great Torrington and its rural hinterland to the north, east and west. The boundary follows the River Torridge from north to south and encompasses the outskirts of the Town (including such areas as Rosemoor, Torrington Wood, Week Bottom, Daracott Moor, Woodhouse Wood and Van’s Wood). Great Torrington is surrounded by common land, the Great Torrington Commons and Conservator Lands (the Commons) which cover 147 hectares (365 acres) and have over 32 kilometres (20 miles) of public rights of way. The Parish lies within Torridge District Council’s administrative area and is bisected by the A386, B3227 and B3232.

1.3 The Plan refers to noteworthy English Civil War history, physical and social development, character, historic buildings and high quality landscape setting, defining the composition of its population and housing stock, and the importance of tourism in the local economy.

1.4 The Plan does not specifically advise the population of the Parish according to the latest Census figures but available statistics from the Torridge Profile 2017 indicate this was 5,850 persons in 2015. There is also no clear reference in the Plan on the number of households this represents.

1.5 The Plan advises that the application to Torridge District Council seeking formal designation as a Neighbourhood Area was approved on 24th November 2014. The Town Council have with the assistance of local residents, consultants, Officers and Members of the Council undertaken progressive and extensive consultation exercises, conducted a number of separate, progressive consultation events, as indicated in a Consultation Statement and prepared both the initial Draft seeking confirmation as to whether Strategic Environment Assessment (SEA) would be required and (following the requisite six-week pre-submission consultation) the revised Submission versions of the Neighbourhood Plan.

1.6 My role as an Independent Examiner, when considering the content of a Neighbourhood Plan, is limited to assessing whether the submission version of the Neighbourhood Plan meets the ‘basic conditions’, and other matters set out in paragraph 8 of Schedule 4B to the Town and Country Planning Act 1990 (as amended). The role is not to test the soundness of a Neighbourhood Plan or to examine other material considerations. Paragraph 8 of Schedule 4B to the Town & Country Planning Act 1990 (as amended) [excluding 2b, c, 3 to 5 as required by 38C (5) of the Planning and Compulsory Purchase Act 2004 (as amended)], states that the Plan must meet the following ‘basic conditions’;

• it must have appropriate regard for national policy; • it must contribute towards the achievement of sustainable development; • it must be in general conformity with the strategic policies of the development plan for the local area; • it must be compatible with human rights requirements, and; • it must be compatible with EU obligations. Martin S. Lee Associates Ltd. Wyndham,Page Stat 53ion Road, Hemyock, EX15 3SE 3 Chartered Town & Country Planning Consultancy m. 07710 229 580 e. [email protected] t. 01823 680 306

Final Examiner’s Report 8th December 2019 – Great Torrington Neighbourhood Plan 2018-2031

1.7 In accordance with Schedule 4B, section 10 of the Town & Country Planning Act 1990 (as amended), the Examiner must make a report on the submission version of the plan containing recommendations and reaching one of the following three concluding recommendations:

(a) that the submission version of the Plan is submitted to a referendum, on the basis it meets all the legal requirements, or

(b) that subject to modifications specified in the Examiner’s report being made to the submission version of the Plan and that the modified submission version of the plan proceeds to a referendum, or

(c) that the submission version of the Plan does not proceed to referendum on the basis that it does not meet the legal requirements.

1.8 If recommending that the Plan proceeds to a referendum, I am also then required to consider whether the Referendum Area should extend beyond the Great Torrington Neighbourhood Area, to which the Plan relates. I make my recommendations on this aspect at the end of this Report.

1.9 I am independent of the qualifying body, associated residents, business leaders and the local planning authority. I do not have any interest in any land that may be affected by the Plan and I possess the appropriate qualifications and experience required to undertake the Examination.

2.0 BASIC CONDITIONS

2.1 I now consider the extent to which the Plan meets the “basic conditions”. A Basic Conditions Statement (Great Torrington Neighbourhood Plan Basic Conditions Statement) was prepared to support the November 2018 submission of the Submission Version of the Plan by Great Torrington Town Council to Torridge District Council. This Statement explains requirements the Neighbourhood Development Plan must meet under Regulation 15 of the Neighbourhood Planning (General) Regulations 2012 to satisfy the basic conditions tests, what these comprise and how the Plan meets these tests, including the contribution that the Plan makes towards the achievement of sustainable development and its general conformity with the strategic planning policies for the development of the area. This Statement has been supplied to me by Torridge District Council, together with the other examination documents including the Submission Version of the Plan (November 2018), the Consultation Statement (undated), Pre-Submission Consultation Regulation 16 Representations and Responses (March 2019) and Strategic Environmental Assessment / Habitats Regulations Assessment Screening Report (undated).

2.2 The Basic Conditions Statement demonstrates how the Neighbourhood Plan conforms with provision made under sections 61E (2), 61J and 61L of the Town & Country Planning Act 1990, as amended by s38C(5)(b). I am content that the Great Torrington Neighbourhood Plan, has been submitted by a qualifying body, Great Torrington Town Council, in accordance with requirements and processes set out in the Town & Country Planning Act 1990 (as amended by the Localism Act 2011) and the Neighbourhood Planning Regulations 2012. Great Torrington Town Council as a qualifying body is thus entitled to prepare a Neighbourhood Development Plan for its area.

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2.3 Great Torrington Neighbourhood Plan covers the entire Parish area. I am content that the Great Torrington Neighbourhood Plan meets the requirements of The Town & Country Planning Act 1990, s61G in relation to the designation of the Plan area and that the proposed Neighbourhood Plan does not relate to more than one neighbourhood area and that there are no other Neighbourhood Development Plans in place within this neighbourhood area.

2.4 In relation to the Plan period it is essential that the Great Torrington Neighbourhood Plan contains explicit reference to its starting point as well as its end point. The Plan’s front cover page and text contain clear reference to its starting point as 2016 and end as 2031. The Plan cover does state the date of its publication and this will need to be updated once it is ‘made’ part of the Development Plan for the area (but this can readily be incorporated in the ‘made’ version of the Plan).

2.5 Section 6 “Our Vision” on page 12 of the Great Torrington Neighbourhood Plan provides the following initial statement: “A friendly, welcoming town that serves the local population, rural surroundings and visitors. A thriving neighbourhood where - regardless of age, health or status - people have access to suitable housing, employment and community facilities. The stability and cohesion that are central to the character of the town have been maintained by making it attractive and safe for all ages. Innovative approaches to the challenges of the 21st century are encouraged where they enhance the highly valued natural setting. Appropriate development is supported where it is matched by the provision of relevant infrastructure.” Whilst I appreciate this may be the Vision for the Plan, it could be made clearer by labelling this first paragraph accordingly and setting the text in parentheses, bold and/or italics. The subsequent paragraphs in this section appear to form an expansion on this main Vision, but again this could be made clearer by adjustments to the text and/or formatting.

2.6 Section 7 then confirms the clear objectives of the Plan for Environment, Housing, Transport and Infrastructure, Community Facilities and Employment.

2.7 I note that the North Devon and Torridge Local Plan was adopted in October 2018.

Appropriate Regard to National Policies and Guidance, including National Planning Policy Framework 2012 and 2019 (NPPF)1

2.8 Presumption in favour of sustainable development: NPPF 2019 advises that all plans should be based upon the presumption in favour of sustainable development, with clear policies that will guide how the presumption should be applied locally. Paragraph 13 of the NPPF 2019 acknowledges the application of presumption in favour of sustainable development will have implications for communities’ engagement in neighbourhood planning. Neighbourhoods are encouraged to develop plans supporting the strategic development needs set out in Local Plans (including policies on housing and economic development) and plan positively to support local development, shaping and directing development in their area that is outside the strategic elements of the Local Plan. The Basic Conditions Statement asserts the Neighbourhood Plan is planning positively, enabling delivery of new housing of high quality within existing built-up areas respecting the character, form and design of existing dwellings. The current North Devon and

1 Paragraph 214 of NPPF 2019 identifies the transitional arrangements in place to address circumstances where Neighbourhood and Local Development Plans are already in preparation prior to the replacement of NPPF 2012 with the current version NPPF 2019 that allow such plans to continue to be considered under NPPF 2012. It comments that plans

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Torridge Local Plan sets the housing need and distribution across Torridge and North Devon Districts. Torridge District Council have advised that Great Torrington is a self- sufficient local service centre which should provide a minimum of 632 new homes, a new primary school and early learning centre, together with new employment sites and regeneration over the plan period.

2.9 The Statement of Basic Conditions identifies in Table 2 how each of the Policies of the Neighbourhood Plan show regard to the NPPF 2018. The Qualifying Body may wish to update this analysis to the NPPF 2019 to make the references within the Neighbourhood Plan that much easier for the Local Planning Authority to use for development management purposes. However, in the light of the transitional arrangements in place for the Examination of Neighbourhood Plans submitted prior to 24 January 2019, the Statement should be amended to show alongside this analysis how each of the Policies show regard to the NPPF 2012. The NPPF 2019 explains at paragraph 29, that neighbourhood planning gives communities direct power to develop a shared vision for their neighbourhood and deliver the sustainable development they need.

2.10 The Great Torrington Neighbourhood Plan includes a statement within Section 6 establishing a very clear Vision for the Parish guided by extensive and progressive rounds of community consultation and engagement. Clearly setting out the extent of consultation prior to the draft Pre-Submission version of the Plan the Consultation Statement is accompanied by a summary of responses received, their analysis and any changes made as a consequence, addressing effectively those representations received as part of the Regulation 14 Consultation, confirming the predominantly minor changes required. A further document “Schedule of Comments to GTNP v2” sets out a schedule of those representations received as part of the Regulation 16 Consultation. The Town Council has clearly sought to translate the vision into a series of meaningful planning policies to plan for sustainable housing and employment growth (bearing in mind the scale of and facilities within the town and its hinterland), protect the character of the area and to determine future planning applications as part of the Development Plan for the District.

2.11 Paragraph 29 of the NPPF 2019 requires that non-strategic policies within Neighbourhood Plans should not promote less development than the strategic policies of the Development Plan or undermine those policies and (at footnote 16 that Neighbourhood Plans must be in general conformity with the strategic policies of the Development Plan). Furthermore, neighbourhood plans should reflect these policies and neighbourhoods should plan positively to support them. Provided that neighbourhood plans do not promote less development than set out in the relevant Development Plans, or undermine the strategic policies, neighbourhood plans may shape and direct sustainable development in their area.

2.12 It is clear from the Basic Condition Statement that the District and Town Councils believe the Great Torrington Neighbourhood Plan is in general conformity with the strategic policies of the North Devon and Torridge Local Plan 2018, striking a positive balance between the physical and policy constraints of the Parish and the requirement to meet local housing demand. The Submission Version of the Plan does not specifically state from the outset that its life span has been matched to that of that adopted Local Plan (i.e. to 2031) but the fact that it has means it may reasonably rely on the evidential background documentation used in that Plan’s preparation.

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2.13 The Great Torrington Neighbourhood Plan Statement of Basic Conditions systematically sets out in Table 3 of the Basic Conditions Statement how the Submission Version of the Plan meets North Devon and Torridge Local Plan policies in relation to the proposed policies within the key topic areas. The Basic Conditions Statement addresses in Section 2 compliance with national guidance in the form of the NPPF 2018, but not the NPPF 2012 under which transitional arrangements require it to have been assessed. The Basic Conditions Statement may be updated to amend Section 2, so the textual references also include references to the published final version of the NPPF 2019 instead of NPPF 2018 to assist future decision making. Additionally, in the light of the transitional arrangements assessment should also be included for compliance with the NPPF 2012. The changes would be modest and make the Plan more up to date. Subject to my comments in section 5 of this report, in relation to various policies of the Plan, I am generally satisfied that the Plan has adequate regard to both national guidance and the Development Plan.

Contribution towards Achievement of Sustainable Development

2.14 At Section 8 “NDP Policies” the Neighbourhood Development Plan defines how each of the proposed policies addresses each of the seven key objectives of the Plan which support sustainable development within the Parish. The Plan contributes to the achievement of sustainable development as defined within the NPPF, as outlined in Section 2 of the Basic Conditions Statement prepared by Great Torrington Town Council in respect of the Submission Version of the Plan.

2.15 I consider that this approach offers a clear analytical framework to test the credentials of the Submission Version of the Plan and consider that the Plan would properly contribute to the objective of sustainable development, subject to various policy amendments that I have recommended below.

General Conformity with Strategic Policies for Local Area

2.16 The statutory development plan currently relating to the Great Torrington Neighbourhood Plan area currently comprises the North Devon & Torridge Local Plan adopted by Torridge and North Devon Councils in 2018. The approach to the preparation of the Great Torrington Neighbourhood Plan has been to ensure general conformity with policies of the adopted Local Plan to ensure that the Neighbourhood Plan remains relevant for the full period of the North Devon and Torridge Local Plan. This is demonstrated within the Basic Conditions Statement, with regard to the NPPF and the strategic policies of the Local Plan, which sets out clearly how the Neighbourhood Plan conforms with each of the relevant strategic policies of the North Devon and Torridge Local Plan, referring to the considerable regard given to the evidence base of that Local Plan, particularly in relation to housing and employment land provision. I am, therefore, satisfied that the Neighbourhood Plan is in general conformity with the strategic policies in the North Devon and Torridge Local Plan 2018.

Compatibility with European Union Obligations

2.17 In relation to the Great Torrington Neighbourhood Plan, Torridge District Council provided a “Strategic Environmental Assessment & Habitats Regulations Assessment Screening Report” which confirms “The framework for development in Great Torrington is set in the NPPF (2018) and the North Devon and Torridge Local Plan (…October 2018). The proposed site allocations of the Great Torrington Neighbourhood Plan are for an extension to the cemetery, 3 Local Green Spaces, allotments, and a very small site for residential development within the Development Boundary. These allocations are not likely to have Martin S. Lee Associates Ltd. Wyndham,Page Stat 57ion Road, Hemyock, EX15 3SE 7 Chartered Town & Country Planning Consultancy m. 07710 229 580 e. [email protected] t. 01823 680 306

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significant effects on the environment.” and “The screening assessment found that the Great Torrington Neighbourhood Plan is not likely to have significant environmental effects, and accordingly it is concluded that a Strategic Environmental Assessment (SEA) is not required.” confirming the advice in the National Planning Policy Guidance (NPPG), February 2015, which clarifies where a SEA may be required for a neighbourhood plan.

2.18 The Regulation 16 consultations did not indicate any parties were discontent with the methodology or finding of the Screening Opinion issued in respect of the Great Torrington Neighbourhood Plan. I therefore consider that a proportionate and focussed approach has been taken through the SEA process for the Great Torrington Neighbourhood Plan and that the assessment has been completed in a timely fashion at the appropriate stage of the Plan preparation. The NPPG advises, at paragraph 030, that it is for the local planning authority to ensure that the strategic environmental assessment requirements have been met and whether the neighbourhood plan proposal is compatible with EU obligations (including obligations under the Strategic Environmental Assessment Directive).

2.19 I consider in relation to sustainability appraisal, including Strategic Environmental Assessment, the analysis undertaken is sufficient in a neighbourhood planning context and following on from the recent work undertaken in informing policy development for the adopted North Devon and Torridge Local Plan that the Basic Conditions have been met in contributing to sustainable development and meeting this component of EU regulation.

Habitat Regulations Assessment

2.20 A Habitats Regulations Assessment Screening Report has been incorporated within the SEA Determination Report to assess whether the Neighbourhood Plan was likely to impact on the integrity of European protected sites within and surrounding the Neighbourhood Plan Area and .” The policies and proposals of the Great Torrington Neighbourhood Plan are not expected to have a significant adverse effect on these important habitats. The Habitats Regulations Assessment screening assessment therefore concludes that no likely significant effects are likely to occur with regards to the integrity of the European designated sites due to the implementation of the Great Torrington Neighbourhood Plan. As such, it is not proposed that a full Appropriate Assessment is undertaken.” and at ‘Draft Opinion’ states “The screening assessment has found that the Great Torrington Neighbourhood Plan is not likely to have significant adverse effect on the integrity of the European designated sites, and it is concluded that a Habitats Regulations Assessment (HRA) is not required.”

2.21 Due to the lack of evidence of any relevant designated sites likely to be impacted upon, I agree that the neighbourhood development plan is unlikely to have a significant effect on a European site (as defined in the Conservation of Habitats and Species Regulations 2012) or any European offshore marine site (as defined in the Offshore Marine Conservation (Natural Habitats, & c.) Regulations 2007), either alone or in combination with other plans or projects. I also consider the making of the neighbourhood development plan would not be likely to breach the requirements of Chapter 8 of Part 6 of the Conservation of Habitats and Species Regulations 2017(d).

Compatibility with Human Rights Requirements

2.22 Section 5.0 of the Basic Conditions Statement provides a statement that “The Neighbourhood Plan has regard to the fundamental rights and freedoms guaranteed under the European Convention on Human Rights and complies with the Human Rights Act.” But I can find no analysis equating to an Equalities Impact Assessment of the Plan which Martin S. Lee Associates Ltd. Wyndham,Page Stat58ion Road, Hemyock, EX15 3SE 8 Chartered Town & Country Planning Consultancy m. 07710 229 580 e. [email protected] t. 01823 680 306

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demonstrates that the Plan’s preparation has had due regard throughout to the fundamental rights and freedoms guaranteed under the European Convention on Human Rights and that requisite consultation complies with the requirements of Regulations 14 and 15(2) of the Neighbourhood Planning (General) Regulations 2012. I do not currently therefore consider that the requisite assessment needed has been undertaken.

3.0 BACKGROUND DOCUMENTS

3.1 In examining the Great Torrington Neighbourhood Plan, I have had particular regard to the following documents which include the Submission Version of the Plan:

a) National Planning Policy Framework, 2012 (superseded) b) National Planning Policy Framework, 2019 (revised) c) National Planning Policy Framework, Planning Practice Guidance, 2015 (as amended) d) Town and Country Planning Act 1990 (as amended) e) The Planning and Compulsory Purchase Act 2004 (as amended) f) The Planning Act 2008 g) The Localism Act (2011) h) The Neighbourhood Planning (General) Regulations (2012) i) The Housing & Planning Act (2016) j) North Devon and Torridge Local Plan 2018 k) Great Torrington NP Approved Designated Area Map, Nov 2014 l) Great Torrington NP Basic Conditions Statement (undated) m) Great Torrington NP SEA & HRA Screening Report (undated) n) Great Torrington NP Consultation Statement (undated) o) Great Torrington NP Submission Version, Nov 2018 p) Great Torrington NP Regulation 16 Consultation Responses Schedule of comments to GTNP V2, March 2019 q) Great Torrington NP Health Check 2017 r) Great Torrington NP Health Check 2018

4.0 PUBLIC CONSULTATION AND CONSULTATION STATEMENT

4.1 Part 5 of The Neighbourhood Planning (General) Regulations 2012, “the Regulations”, makes provision in relation to procedure for making neighbourhood development plans. To fulfil the legal requirements of Section 15(2) of Part 5 of the Neighbourhood Planning (General) Regulations 2012, the consultation statement should contain the following:

• details of people and organisations consulted about the proposed Neighbourhood Plan; • details of how they were consulted; • a summary of the main issues and concerns raised through the consultation process, &; • descriptions of how these issues and concerns were considered and addressed in the proposed Neighbourhood Plan.

4.2 The Consultation Statement should also demonstrate that there has been proper community engagement and that it has informed the content of the Plan. It should also make it clear and transparent that those producing the plan have sought to address the issues raised during the consultation process. Consultation and community engagement are a fundamental requirement of the Neighbourhood Planning Regulations, the process of plan-making being almost as important as the plan itself. Such engagement with the community during the plan-making process has raised awareness and encouraged the community in the Parish to understand/question both the proposed policies as well as the Plan's scope/limitations.

4.3 The Consultation Statement sets out in some considerable detail the events that took place to secure public engagement in the Plan area and with statutory consultees, with the assistance of private consultants and officers of Torridge District Council. The

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Consultation Statement charts the progress and activities to the point it was deemed ready for submission to Torridge District Council to undertake relevant Regulation 16 Consultation and then forward to an Independent Examiner.

4.4 I note that the Pre-Submission Plan Regulation 14 Consultation Period ran for the requisite six-week time-period and that during that period a proportionate programme of information dissemination about the draft Plan was undertaken together with further meetings to explain the emerging proposals. At the end of the consultation period, the detailed responses were analysed. The Consultation Statement demonstrates that of the comments from within Torridge District Council, external statutory consultees and a summary combination of individual community members mainly commented on relatively minor details all of which were addressed by adjustments to the text and development limit boundary of the Neighbourhood Plan prior to its finalisation and formal Submission to Torridge District Council. Importantly, the tabular form of presentation for the consultee representations received sets out the actions taken in relation to each comment with a view to responding to concerns with the intention of enhancing the quality of the Plan.

4.5 The Consultation Statement does not cover the Regulation 16 Consultation. However, the a folder of ‘redacted’ Regulation 16 Consultation Responses was supplied by Torridge District Council to the Independent Examiner pursuant to Regulation 17 of Part 5 of The Neighbourhood Planning (General) Regulations 2012 and provides the responses received from various parties during this round of consultation. I have taken these details into consideration in the examination of the Plan and in making my observations on the proposed policies (see below).

4.6 I am satisfied that the Consultation Statement in combination with the tabulated form response summaries complies with Section 15(2) of part 5 of the 2012 Neighbourhood Planning Regulations and that the proposed neighbourhood development plan meets the requirements of paragraph 8 of Schedule 4B to the 1990 Act, in accordance with 15(1) of part 5 of the 2012 Neighbourhood Planning Regulations.

5.0 GREAT TORRINGTON NEIGHBOURHOOD PLAN 2018–2031 LAND USE PLANNING POLICIES

5.1 I now turn to consider the land use planning policies of the Great Torrington 1 Neighbourhood Plan. It was established in R. (Maynard) v Chiltern District Council that it is wrong to consider each policy within a neighbourhood development plan examination, in the context of compliance with the strategic policies of the development plan and the NPPF, in relation to Basic Conditions a) and e), but rather it is the Plan as whole that needs to be considered in the context of such policy guidance, in terms of “general conformity”. In Woodcock2, paragraph 8(2)(e) of Schedule 4B of 1990 Act only required the LPA to consider whether the draft Neighbourhood Development Plan, as a whole, is in general conformity with the adopted Development Plan. It is not appropriate to consider whether there is a tension between one policy of the Neighbourhood Development Plan and one element of the Local Plan. I have used this approach in assessing whether the Plan meets the Basic Conditions.

5.2 However, I consider that it is still prudent from an implementation perspective, to briefly review each of the policies to ensure that they are genuine land use planning policies and that they will serve the Parish in future for development management purposes, should the Plan be made. Before doing so, I note that whilst each of the main sections of the

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1 [2015] EWHC 3817 (Admin), Holgate J, 16th November 2015 2 Woodcock Holdings Ltd v Secretary of State for Communities and Local Government, [2015] EWHC 1173 (Admin), [2015] JPL 1151, Holgate J, 1st May 2015.

Submission Version of the Plan is numbered, there is a practical requirement for each and every sub-section and all individual paragraphs of text within the Plan to be individually enumerated for greater ease of future reference and legibility by those endeavouring to make practical use of it for development management purposes in the future.

Environment

5.3 ENV1: Landscape Protection

Planning applications will be supported that retain local features of nature conservation, cultural or landscape value, including mature trees, species-rich hedgerows, ponds and existing areas of woodland, and are sensitive to the distinctive character of the area.

5.4 This policy aims to protect landscape quality and with its positive phrasing requires only minor amendment and/or restructuring to increase its usability for development management purposes, replacing ‘planning applications’ with ‘development’ to remove the prejudicial inference and ensure that it is the enabling development that is being referred to.

ENV1: Landscape Protection

Development will be supported which demonstrates sensitivity to the distinctive landscape character of the area by retaining local features, such as mature trees, species rich hedgerows, ponds and woodland of nature conservation, cultural and landscape value, in accordance with the principles of the mitigation hierarchy, to avoid harm wherever possible, or else mitigate, or compensate where mitigation is not possible.

5.5 ENV2: Wildlife Enhancement

Development proposals shall be supported which improve the connectivity between wildlife areas and green spaces, to improve ecosystem service function and resilience, and/or improve the wildlife value of private and community land; creating new habitats where possible, in accordance with Local Plan policy DM08.

5.6 This policy aims to enhance existing and/or provide new wildlife habitats improving connectivity for wildlife. With its positive phrasing it requires minor amendment and/or restructuring to enhance its efficacy as a development management tool, simplifying the reference to ‘development’, replacing the imperative ‘shall’ with the enabling ‘will’ and removing inappropriate and unnecessary reference to compliance with a policy from the Local Plan (which may be moved to the supporting text).

ENV2: Wildlife Enhancement

Development will be supported which enhances ecosystem function and resilience, by:

a) improving connectivity between wildlife areas and green spaces;

b) increasing the wildlife value of private and community land, and/or;

c) creating new habitats.

5.7 ENV3: Enhance The Green Infrastructure Of The Parish

Development proposals which secure the provision and enhancement of green infrastructure that Martin S. Lee Associates Ltd. Wyndham,Page Stat 61ion Road, Hemyock, EX15 3SE 11 Chartered Town & Country Planning Consultancy m. 07710 229 580 e. [email protected] t. 01823 680 306

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benefits the community and the environment will be supported.

5.8 This policy compliments the provisions of the preceding Policy ENV2. However, it is likely that there will be circumstances where development proposals may only be able to provide or enhance green infrastructure, rather than achieve both. Additionally, provision as part of development needs to be qualified as justified and proposals solely involving provision of such infrastructure also accounted for. Accordingly, the following very minor rewording is suggested to create more flexibility in the phrasing and ensure the policy maintains its relevance and applicability across all development proposals:

ENV3: Enhance the Green Infrastructure of the Parish

Development proposals providing and/or enhancing green infrastructure that benefits the community and environment will be supported, whether as an essential mitigation justified by the impact of that development or as a standalone green infrastructure proposal.

5.9 ENV4: Dark Skies

Planning applications for developments which respect the area’s dark skies, take account of the town’s position in the landscape and minimise light pollution shall be supported.

5.10 The policy has a positive aim to maintain the ‘dark’ edge. It’s wording requires only minor amendment to simplify the reference to development and remove the imperative in order to be more effective as a development management tool.

ENV4: Dark Skies

Development which respects the area’s dark skies, takes account of the town’s position in the landscape and light pollution will be supported.

5.11 ENV5: Renewable Energy

Residential and commercial development proposals which use passive solar gain from building orientation and/or incorporate renewable energy provision into building design shall be supported.

5.12 The policy actively encourages energy conservation and renewable energy use in new development. Only minor amendment is required to simplify the reference to cover all development, remove unnecessary/repeated reference to building/design and remove the imperative. This greater degree of simplicity will allow the policy to cover all development scenarios.

ENV5: Renewable Energy

Developments which use passive solar gain and/or incorporate renewable energy generation will be supported.

Housing Provision

5.13 H1: Housing Types

Housing development proposals shall provide for a mix of housing types that will be informed by the most up to date Strategic Housing Market Assessment and local evidence of housing need. In particular, applicants will need to demonstrate how they have considered and addressed the housing needs of older households and young families.

5.14 The policy aims to support balanced community housing provision. The policy requires adjustment to simplify the reference to development to cover all types of development providing multiple residential units (a mix cannot be required in a development comprised of only single dwelling). In addition, the reference to the evidence base also needs to be

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simplified to remove citation of specific documents so it does not become out of date. Reference to the need for development proposals to address wide ranging housing needs, including those of older households and young families should be moved to the supporting text, with reference to the mix being informed by strategic or local evidence. Number of units within which a range/mix of house types can reasonably be provided should be specified. Supporting text should be expanded to take account of site context where this might influence the choice of and/or opportunity for a particular mix of housing types.

H1: Housing Types

Development providing four or more residential units shall provide a mix of housing types which reflects identified housing needs.

5.15 H2: Allocation of Affordable Housing

Affordable housing in Great Torrington will initially be subject to a local connection, meaning that people with a strong connection to the town or surrounding parishes and whose needs are not met by open market will be first to be offered the tenancy or shared ownership of the home.

5.16 The policy seeks to support the prioritisation of affordable housing for those with an accepted local association and need for such accommodation. There is no need to include reference to the Parish as the NP has no policy power over any area outside of its designated Neighbourhood Area boundary. The structure of the policy requires modification in order to make it simpler and easier to apply as an effective development management tool.

H2: Allocation of Affordable housing

Affordable housing provision shall be prioritised for occupancy by those:

a) with a strong connection to the Plan area or surrounding parishes, and;

b) whose needs are not met by open market housing, being given first option to take tenancy or shared ownership.

5.17 H3: Design and Layout

To meet with specific requirements in Great Torrington, new housing developments should ensure:

• Sufficient private garden amenity space, appropriate to the size of the property • Parking is located in between houses (rather than in front) so that it does not dominate the street scene

5.18 The policy appears positively aimed at preserving a perceived characteristic of existing residential development in the Plan area, namely substantial gardens of a size commensurate with that of the dwellings they serve and streetscenes not dominated by frontage parking. Vague and unqualified terms (such as ‘specific requirements’) and unnecessary reference to the Plan area needs removing, criteria need enumerating and phrasing and structure require adjustment to reinforce the imperative and enable more effective application. Also, flexibility needs to be added to account for all forms of residential development, for example whereas a result of a building conversion garden and/or parking is not feasible or essential. The supporting text should be augmented to provide an indication of the preferred method of calculation to be used in assessing the precise area of private amenity space required for a particular size of dwelling to provide the necessary clarity to support the ready application of the policy as an effective development management tool.

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H3: Design and Layout

Having regard to site character and context, residential development shall, where practicable, provide:

a) domestic curtilage/garden in the form of private amenity space screened from public view at a level commensurate with the size of the dwelling it serves, and;

b) parking space between buildings which ensures such provision does not dominate the streetscene.

Transport and Infrastructure

5.19 TI1: Car Parking

Development proposals should consider and address the related provision of off-street parking. Proposals that involve the loss of existing on-street parking or off-street parking at the locations identified on the Policies Map must replace the spaces lost within a convenient walking distance.

5.20 The policy numbering could lead to confusion due to the similarity between an uppercase ‘I’ and the number ‘1’. Omission of the letter ‘I’ is therefore suggested. The policy title also unnecessarily excludes all other forms of parking. The policy is positive in endeavouring to ensure development makes appropriate provision dependent upon its specific impacts. Not all developments will generate an additional parking requirement (e.g. domestic extension or outbuilding). Simplification and streamlining of the policy will provide a far more robust and effective development management tool. Definition of ‘short’ (in place of the more nebulous ‘convenient’) should be included in the supporting text (i.e. ‘five to ten minute walking time’).

T1: Parking

Development generating a need for parking shall make:

a) adequate provision for on-site parking, to meet anticipated needs, and;

b) compensatory provision within a short walking distance for spaces lost from on-street parking or existing car parks at South Street, Barley Grove and/or New Street (as identified on the two maps below).

5.21 TI2: Pedestrians and Cyclists

All major residential and commercial developments should deliver, through planning obligations or otherwise, appropriate provision for pedestrians and cyclists. This should seek to create routes (either by enhancing existing paths or by creating entirely new paths) that provide for safe and attractive walking and cycling within the development and beyond, particularly to Torrington town centre, the main employment centres and schools.

Pedestrian and cycling routes should: • Keep road crossings and changes in level to a minimum • Be suitable for those with wheelchairs, frames, buggies or other mobility aids • Where possible, be separated either physically or with lane markings

Proposals to provide a designated cycle route from the Tarka Trail to the town centre will be supported.

5.22 Policy numbering could lead to confusion due to the similarity between an uppercase ‘I’ and the number ‘1’. Omission of the letter ‘I’ is therefore suggested. The policy is positive in endeavouring to ensure development supports cycling and walking. Simplification and streamlining of the policy, and enumeration of criteria, will provide a far

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more robust and effective development management tool.

T2: Pedestrians and Cyclists

All major development shall make adequate on-site and off-site provision for pedestrians and cyclists, creating or contributing to the creation of safe and attractive walking and routes (by enhancing existing or creating new paths) particularly to the town centre, main employment centres and schools. Pedestrian and cycling routes shall seek to:

a) keep road crossings and changes in level to a minimum;

b) be suitable for those with wheelchairs, frames, buggies or other mobility aids;

c) be separated either physically or with lane markings, and;

Proposals to provide a designated cycle route linking the Tarka Trail to the town centre will be supported.

5.23 TI3: Residential Parking

Residential parking should be adequate, well integrated and located where it is accessible and likely to be well used.

The following table indicates minimum parking allocations required per dwelling:

On-plot/allocated parking Cycle storage spaces spaces per dwelling provided per dwelling 1 Bed 1 1 2 Bed 2 2 3 Bed 2 2

4 Beds + 3 2

Garages smaller than 7m x 3m will not count towards overall parking requirements. Garages must have functional entrances and sufficient space provided for the opening and closing of garage doors.

Residential developments will be expected to take account of the demand for visitor parking and provide spaces accordingly.

Residential development that provides less than the required standards will only be considered acceptable in circumstances where there are areas of high accessibility, or for specific types of residential development that create a lower demand for parking, such as sheltered accommodation. In these circumstances, applicants will be required to demonstrate that their proposals for car parking and cycle provision would not have an adverse impact on parking in the surrounding area.

5.24 Policy numbering could lead to confusion due to the similarity between an uppercase ‘I’ and the number ‘1’. Omission of the letter ‘I’ is therefore suggested. The policy is well intended, endeavouring to ensure parking meets certain minimum standards, recognising the high resident dependency on use of the private car and demand for public parking. The policy should be merged with T4 to bring all the parking standards for residential development (resident and visitor) under a single policy. Slight adjustment is required to make it more user friendly for development management purposes and comments on garage sizes and accessibility of same may be more usefully located in the supporting text.

T3: Residential Parking

a. Residential parking provision should be designed to meet the anticipated needs of residents and visitors alike, well integrated and accessible to encourage maximum usage, based on the following minimum levels per dwelling: Martin S. Lee Associates Ltd. Wyndham,Page Stat 65ion Road, Hemyock, EX15 3SE 15 Chartered Town & Country Planning Consultancy m. 07710 229 580 e. [email protected] t. 01823 680 306

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On-site/allocated parking/garage Cycle parking/ storage spaces spaces per dwelling provided per dwelling 1 Bed 1 1 2 Bed 2 2 3 Bed 2 2

4 Beds + 3 2

b. Developments shall include a minimum of one visitor parking space per four dwellings with one in ten of such spaces a minimum of 3.6m wide, to accommodate the needs of young families and disabled users.

c. Development with lower provision may be considered acceptable in areas of high accessibility or where the type of residential development proposed is likely to generate less demand (such as sheltered accommodation and/or in town centre locations) when applicants will be required to demonstrate the proposed level of parking provision would be unlikely to result in increased demand for parking in the surrounding area or that sufficient capacity or alternative provision is available (e.g. in public car parks).

5.25 TI4: Visitor Parking

Residential developments will be expected to take account of the demand for visitor parking and provide spaces accordingly. Developments should include: • 0.25 visitor parking spaces per dwelling, rounded up to the nearest whole number. • 10% of visitor parking spaces to be a minimum of 3.6m wide, to accommodate the needs of young families and disabled users.

5.26 Policy should be deleted completely and integrated in to T3 as proposed further above.

Community Facilities

5.27 CF1: Community Facilities

Proposals for new and/or enhanced sporting and recreational facilities, including allotments, will be supported so as to enhance the range and quality of facilities within the town, providing any such development would not be detrimental to the character of the area or the amenity of any nearby residents.

Proposals should be flexible in design so that different need groups and activities can be accommodated.

Contributions may be sought from housing developments to secure delivery of such facilities, through methods such as planning obligations or the Community Infrastructure Levy.

Proposals that involve the loss of open space, sports and recreational buildings and land, including playing fields, whether privately or publicly owned, will be developed in a reasonable time scale to ensure continuity of use and to provide facilities of an equivalent or improved standard.

Development that would result in a reduction of existing recreation facilities in the countryside, including public rights of way and other recreational routes, will not be supported.

5.28 The policy is positively worded but its structure requires adaption to provide enumerated criteria to simplify use for development management purposes. Whilst reference to contributions to off-site provision being sought via planning obligation is relevant to the policy the reference to Community Infrastructure Levy is not. Community Infrastructure Levy is not a negotiable element of a grant of planning permission and is levied simply on the basis of an adopted charging tariff. Reference to the use of Community Infrastructure levy funds may be moved to the supporting text if desired. The final sentence has also been adjusted to encompass a scenario which might involve the complete loss of a countryside recreational facility.

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CF1: Community Facilities

Proposals which provide new, replacement and/or enhanced sport and recreational facilities, including allotments, will be supported where:

a) they would enhance the range and quality of facilities within the town;

b) they would not be detrimental to the character of the area or the amenity of any nearby residential property;

c) their flexible design ensures different need groups and activities are accommodated, and;

d) any loss of open space, sport and/or recreational facility is replaced to an equivalent or improved standard, whether on or off site, with no reduction in accessibility, within a reasonable timescale to ensure continuity of use, and;

e) where on-site provision is not possible or appropriate, alternative off-site delivery or provision will be sought through financial contributions of broadly equivalent value.

Development proposals that affect public rights of way and other recreational routes will be supported only where there is no overall loss of connectivity or reduction in accessibility both of and to the public right of way or recreational route.

Employment

5.29 EM1: Employment Development

Planning applications for the reuse of brownfield land within the built-up area for employment uses will generally be supported where they demonstrate appropriate regard for existing neighbouring uses.

5.30 The policy aims to support employment in sustainable locations, prioritising reuse of land and requires minor adjustment to update terminology to accord with the NPPF.

EM1: Employment Development

Economic development proposals on previously developed land within the continuous built up form of the town of Great Torrington will be supported where there are no substantial adverse impacts on neighbouring uses.

5.31 EM2: Retail Development

Further retail development within the town centre will be supported where it: • Is scaled appropriately to the existing retail units; • Complements or builds on existing retail provision; and • Demonstrates the potential to sustain and/or extend the range of choice to residents, tourists and visitors.

5.32 The policy is positively worded and requires modest adjustment to phrasing and enumeration of criteria to make it a more effective development management tool. Supporting text should clarify that town centre boundary referred to is that defined in the North Devon & Torridge Local Plan, as no change to the boundary is proposed in the Neighbourhood Plan.

EM2: Retail Development

Retail development within the defined town centre boundary will be supported provided it:

a) is not of a such a scale that it is likely to adversely affect the viability of existing retail enterprises;

b) complements existing retail provision; and Martin S. Lee Associates Ltd. Wyndham,Page Stat 67ion Road, Hemyock, EX15 3SE 17 Chartered Town & Country Planning Consultancy m. 07710 229 580 e. [email protected] t. 01823 680 306

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c) demonstrates the potential to sustain and/or extend the range of retail choice.

5.33 EM3: Innovations in Tourism and Hospitality

Innovations in the provision and extension of tourism and hospitality facilities will be supported. Proposals that protect and enhance the Tarka Valley Railway project will be supported.

5.34 The positive phrasing of the policy is clear in its support of innovation, but innovative is not a readily definable term and so should be deleted. However, the reference to support for the Tarka Valley Railway project would benefit from being made independent and the lack of any defined area for this project on any map included within the Neighbourhood Plan means the reference to ‘within’ should be omitted. This requires a rewording of the policy title and restructuring to enhance clarity and effectively as a development management tool.

EM3: Tourism and Hospitality

Development proposals will be supported where they would:

a. improve and/or extend existing tourism and hospitality facilities, or;

b. support the enhancement of or not prejudice the future development of the Tarka Valley Railway project.

5.35 EM4: Opportunities for Employment

Planning applications for the expansion of existing businesses and the provision of employment through the development of business and industrial (B use classes), public and community and town centre uses in appropriate locations will be supported.

5.36 The positive intent of the policy is clear. Only minor adjustment is required to remove the unnecessary reference to planning applications, use classes and criteria defining examples of appropriate should be included in the supporting text. Reference to use classes may be included in the supporting text if desired.

EM4: Opportunities for Employment

Expansion of business and employment provision in appropriate locations will be supported where it can be demonstrated that there would be no consequent substantial adverse impact on residential living conditions and/or highway safety.

Site Allocations

5.37 SA01: Land for Cemetery Expansion

The site is allocated for future cemetery provision for the town.

5.38 The positive intent of the policy is clear. However, the wording of the policy does not make the land’s retention solely for cemetery use a requirement. Nor does it clearly identify the land in question. The map identifying the site needs to be clearly labelled and so a title is suggested. The following adjusted wording is recommended.

SA01: Land for Cemetery Expansion

The approximately 2.5ha site identified in Policy Map 1 ‘Land for Cemetery Expansion’ shall be reserved for future cemetery provision.

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5.39 SA02: Local Green Spaces

The sites listed below and identified on the Policies Map are designated as Local Green Spaces and developers will be required to protect and enhance these spaces.

5.40 The positive intent of the policy is clear. However, the wording of the policy does not make the land’s retention solely for cemetery use a binding requirement. Nor does it clearly identify the land in question. The map identifying the spaces needs clear labelling. The following adjusted wording is recommended.

SA02: Local Green Spaces

The areas at Jubilee & Rack Park identified on Policy Map 2 ‘Jubilee Park’ and Policy Map 3 ‘Rack Park’ are designated as Local Green Spaces and any development proposals within their boundaries will be required to protect and enhance the quality of these spaces and the contribution they make to community recreation.

5.41 SA03: Site North of New Street

This site is allocated for residential development (C3) and planning applications will be supported which meet the following criteria: • be of highly sustainable design; • enhance the setting of the local buildings in the vicinity; • conserve and promote the use of building materials which are in keeping with the landscape character; • provide pedestrian and cycle links; and • use developer contributions towards public transport network links.

5.42 The positive intent of the policy is clear. There is no: evidence base to support the deliverability of this site as a proposed formal allocation of the site; reference to the site in the basic conditions statement, or; documentation to indicate the site has been appropriately tested. The Local Planning Authority recognises that, if suitable, the site could come forward for development (even without being a formal allocation) given its location inside the defined development boundary contained within the Local Plan and any requirement for affordable housing would be determined based on the scale of development proposed. The phrasing of the policy is overly complex with unnecessarily detailed criteria that may be encompassed by ‘high quality design’. A requirement for transport links and/or financial contributions would be a matter for the Local Highway Authority, but may be moved to the supporting text if so desired. The policy also fails to clearly identify the site The reference to Use Class C3 is unnecessary and may be expressed more clearly in the supporting text if so desired. The map needs clearer labelling and the following adjustment is suggested to improve the policy’s application as a development management tool.

SA03: Site North of New Street

Residential proposals on the “Site North of New Street”, identified on Policy Map 4, will be supported, provided they of a high quality design that respects the local character, including in the use of external materials.

5.43 SA04: Sheperd’s Ham Allotments

This site is allocated for allotment use, to meet current and future demand in Great Torrington.

5.44 The positive intent of the policy is clear. However, the wording of the policy does not make the land’s retention solely for cemetery use a requirement. Nor does it clearly identify the land in question. The map identifying the site needs to be clearly labelled and Martin S. Lee Associates Ltd. Wyndham,Page Stat 69ion Road, Hemyock, EX15 3SE 19 Chartered Town & Country Planning Consultancy m. 07710 229 580 e. [email protected] t. 01823 680 306

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so a title is suggested. The following adjusted wording is recommended.

SA04: Sheperd’s Ham Allotments

The site identified on Policy Map 5 as ‘Sheperd’s Ham Allotments’ shall be safeguarded for allotment use.

6.0 SUMMARY

6.1 In accordance with Schedule 4B to the Town and Country Planning Act 1990, paragraph 10(6), b), I set out the summary of my findings below.

6.2 I am satisfied that Great Torrington Council is the qualifying body and accordingly entitled to submit a Neighbourhood Development Plan for the designated plan area and that this area is one which is appropriate for designation as a Neighbourhood Area. Formal designation was confirmed by Cornwall on 23rd November 2015.

6.3 The policies proposed within the Great Torrington Neighbourhood Plan relate to development and use of land within the designated Neighbourhood Area.

6.4 The plan period of the Great Torrington Neighbourhood Plan is 2018 to 2031 and it does not contain policies relating to “excluded development” as defined s61K of the Town & Country Planning Act 1990 (as amended).

6.5 I am also satisfied that the Great Torrington Neighbourhood Plan 2018 – 2031 does not relate to more than one neighbourhood area and that there is no other NDP in place within this neighbourhood area.

6.6 The Plan has been examined against current national and adopted local planning policy.

6.7 The Plan has also been subject to an Assessment in compliance with EU Directive 2001/42 on Strategic Environmental Assessment to inform the consideration of the Submission Version of the plan. The policies within the Submission Version of the Great Torrington Neighbourhood Plan appraised well against the sustainability framework. This gives confidence that the Plan, if made, should make a positive contribution to sustainable development within the Plan area.

Habitat Regulations Assessment

6.8 A Habitats Regulations Assessment Screening Report has been undertaken by Torridge Council officers to determine whether the Neighbourhood Plan was likely to impact on the integrity of European protected sites within and surrounding the district. The lack of any evident protected sites likely to be affected by the housing site allocation proposals contained within the Plan means it appears evident no further screening or further assessment was required. I agree therefore that the Neighbourhood Plan is unlikely to have a significant effect on a European site (as defined in the Conservation of Habitats and Species Regulations 2012) or a European offshore marine site (as defined in the Offshore Marine Conservation (Natural Habitats, & c.) Regulations 2007, either alone or in combination with other plans or projects.

Public Consultation

6.9 As to public consultation, the process and management of the community consultation

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appears thorough and I am confident that the Consultation Statement outlining the terms of reference and actions of Great Torrington Council, the supporting evidence from the workshops, consultation correspondence and feedback leading to the formulation of draft policies, subsequent pre-submission and submission plan consultation on the Plan policies adequately fulfils Section 15 (2), Part 5 of the Neighbourhood Planning (General) Regulations 2012.

Compatibility with Human Rights Requirements

6.10 The Basic Conditions Statement provides confirmation at 5.1 the Plan had regard to and complies with Human Rights legislation but does not contain any statement which explains how it has regard to the fundamental rights and freedoms guaranteed under the European Convention on Human Rights and complies with the requirements of Regulations 14 and 15(2) of the Neighbourhood Planning (General) Regulations 2012. If a statement to this effect is included then I am satisfied the Plan would otherwise be compatible with EU obligations and will contribute to achieving sustainable development within the Great Torrington Neighbourhood Plan area.

Textual, Policy & Map/Figure Revisions

6.11 I am satisfied that subject to the recommended policy revisions being accepted, that the draft Great Torrington Neighbourhood Plan 2018-2031, has given adequate regard to the policies in the National Planning Policy Framework (NPPF) and other relevant national planning guidance and would be in conformity with the strategic policies of the North Devon and Torridge Local Plan adopted in 2018. If these recommended changes are accepted (and the necessary associated modifications are made to the supporting text by the Great Torrington Council to ensure consistency and legibility within the document) I believe that the Great Torrington Neighbourhood Plan 2018-2031 will make a positive contribution to sustainable development, promoting economic growth, supporting social wellbeing, whilst conserving the natural and historic environment within the designated area.

7.0 RECOMMENDATIONS

Modifications to meet the basic conditions

7.1 For the reasons set out above and subject to the modifications indicated in the preceding sections of this examination report being accepted and incorporated into a revised version of the Plan which includes a clear statement of its compliance with Human Rights legislation, I consider that the Plan would meet the basic conditions in terms of:

• having appropriate regard to national planning policy: • contributing to the achievement of sustainable development; • being in general conformity with the strategic policies in the development plans for the local area; • being compatible with human rights requirements; and • being compatible with European Union obligations.

7.2 I therefore recommend that in accordance with Schedule 4B to the Town and Country Planning Act 1990, paragraph 10 (2), b) that the modifications specified in this report are made to the Great Torrington Neighbourhood Plan 2018-2031 and that the Submission Version of the Plan as modified may be submitted to a referendum. Martin S. Lee Associates Ltd. Wyndham,Page Stat 71ion Road, Hemyock, EX15 3SE 21 Chartered Town & Country Planning Consultancy m. 07710 229 580 e. [email protected] t. 01823 680 306

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Referendum Area

7.3 It is the Independent Examiner’s role to consider the referendum area appropriate in the event that the Town Council wishes to proceed to the Referendum stage.

7.4 In the event that Great Torrington Town Council wishes to proceed to the referendum stage with this Plan, I consider that the referendum area should extend to the full extent of the originally designated Plan Area, as confirmed on 24th November 2014 and as identified edged red on the map included on page 4 of the Great Torrington Neighbourhood Plan 2018–2031.

8.0 CONCLUSIONS

8.1 I conclude that, subject to the recommendations in this report being accepted, the Plan would meet the basic conditions as defined in the Localism Act 2011, Schedule 10 and Schedule 4B, 8 (2) of the Town and Country Planning Act 1990.

8.2 In accordance with the Town and Country Planning Act 1990, Schedule 4B 10 (2) (b), I recommend that the modifications specified in this report are made to the draft Neighbourhood Development Plan and if accepted, the Great Torrington Neighbourhood Plan 2018 – 2031 is submitted to a referendum.

Martin S. Lee MA MRTPI AMInstLM MTCPA NPIERS 8th December 2019

Martin S. Lee Associates Ltd. Wyndham,Page Stat72ion Road, Hemyock, EX15 3SE 22 Chartered Town & Country Planning Consultancy m. 07710 229 580 e. [email protected] t. 01823 680 306 Appendix 2

Great Torrington Neighbourhood Plan Decision Statement Regulation 18

XX November 2020

Background

The designated neighbourhood area for the Great Torrington Neighbourhood Plan comprises the Civil Parish of Great Torrington. On 24th November 2014, Torridge District Council (“the Council”) formally approved the designation of the Great Torrington Neighbourhood Area, following an application by Great Torrington Town Council (“the Town Council”) and a six-week consultation, in accordance with the Neighbourhood Planning (General) Regulations 2012.

As a “qualifying body”1 the Town Council submitted the draft Great Torrington Neighbourhood Plan (the ”Neighbourhood Plan”), in November 2018, along with supporting documents, to the Council for consultation, independent examination and the remaining stages of the draft documents preparation in accordance with the Neighbourhood Planning (General) Regulations 2012 (as amended).

The Council then published the Neighbourhood Plan and supporting documents, as required by Regulation 16 of the Neighbourhood Planning (General) Regulations 2012 (as amended) and invited representations to be made over the period 14th February and 28th March 2019.

In April 2019, the Council appointed an independent examiner, Mr M. Lee MA MRTPI AMInstLM MTCPA NPIERS NSI, to examine the Neighbourhood Plan and consider whether it should proceed to referendum.

The examination took place over the period April to December 2019 and the Council received the final Report of Examination on 8th December 2019. The examiner dealt with the examination by means of written representations, as he did not feel there was the need for a hearing. The Report of Examination recommended specific modifications to the Neighbourhood Plan and that the modified Neighbourhood Plan is progressed to a referendum. It also recommended that the boundary of the referendum area should follow the boundary of the designated Neighbourhood Area (the Civil Parish of Great Torrington).

The Council published Report of Examination on its website on 16th December 2019.

Regulation 18 of the Neighbourhood Planning (General) Regulations 2012 (as amended) requires the Council to decide whether to reject a neighbourhood plan proposal or to progress the plan to a referendum, what the referendum area should be, what modifications (if any) to make to the plan and what action to take in response to the examiner’s recommendations.

1 A definition of “qualifying body” is provided at section 38A(12) of the Planning and Compulsory Purchase Act 2004 (as inserted by paragraph 7 of the Localism Act 2011)

Page 73 The Council’s Decision

The Council agrees with the recommendations in the Report of Examination. It has decided to modify the Neighbourhood Plan as per these recommendations, as well as to make additional minor modification, reflecting the Examiner’s recommendations and to correct errors in the Neighbourhood Plan that the report did not address2.

The Council has also decided to progress the modified neighbourhood plan to a referendum of eligible registered voters within the Great Torrington Neighbourhood Area. This decision was made at a meeting of the Council on 2nd November 2020.

A list of all modifications to the submission Great Torrington Neighbourhood Plan, as agreed by the Council are provided at the end if this statement.

Documents The following documents are available on the Council’s website: https://www.torridge.gov.uk/torringtonnp

 Examiner’s Report - Great Torrington Neighbourhood Plan  Schedule of Modifications to the submission Great Torrington Neighbourhood Plan  Modified Great Torrington Neighbourhood Plan, incorporating the schedule of modifications.

For any questions please contact the Planning Policy team through 01237 428700 or email [email protected]

2 Modifications made in accordance with paragraph 12(6) of Schedule 4B of the Town and Country Planning Act 1990 (as applied to neighbourhood plans by section 38A of the Planning and Compulsory Purchase Act 2004)

Page 74 Schedule of modifications to the Great Torrington Neighbourhood Plan

Recommendation Plan reference - Modification Reason for modification number/paragraph section/policy of Examiner’s Report (Submission /Referendum Plan paragraph) N/A (Further Front cover Submission Plan (November 2018) To reflect the progression modification Referendum Plan (May 2021) 2018-2031 from a Submission to recommended by Referendum Neighbourhood Torridge District Plan. When the plan is ”made” Council) the status and date will be changed to reflect the date of adoption.

Page 75 Page N/A (Further Multiple sections and Amendments to correct punctuation, provide for consistency, improve To improve the presentation modification paragraphs presentation and remove unnecessary numbering of titles; these details are not of the Plan and its consistency recommended by throughout the Plan. set out in the schedule, they have been applied to the Referendum Plan. and readability. Torridge District Council) Section 5.0 All paragraphs All paragraphs numbered. This is a practical requirement Paragraph 5.2 throughout the Plan, for every sub-section and except some titles. individual paragraphs to be individually enumerated for greater ease.

N/A (Further Section 2.0 Following the Plan’s pre-submission consultation which ended on 14th May To update the Plan’s status in modification (paragraph 2.2) 2018, all comments received were reviewed by the Town Council and changes moving towards a referendum recommended by were made to the draft Plan. The then submission Plan will be further finalised Plan and clarify the Basic Torridge District and then was submitted to Torridge District Council (the District Council). The Conditions requirements. Council) District Council will then undertake undertook a six-week consultation on the draft Plan, over the period 14th February – 28th March 2019. An independent examiner will be was then appointed by the District Council to examine the draft submission Plan to assure assess whether it accords met with the following ‘basic conditions’, which require it to:

• have appropriate regard to for national policy; • contribute towards the achievement of sustainable development; • be in general conformity with the strategic policies in the development plan for the local area; and • Demonstrate be compatible compliance with all relevant EU obligations and human rights requirements.

N/A (Further Section 2.0 The examination of the Plan was will generally be conducted by means of To update the Plan’s status in modification (paragraph 2.3) written representations; oral hearings will not normally be required to ensure a that it has been assessed by recommended by neighbourhood plan is adequately examined. The examiner (Mr. S Lee, MA the named examiner with a Torridge District MRTPI AMInst LM MTCPA NPIERS NSI) will issued a report to the District positive recommendation. Council) Council and Great Torrington Town Council (the Town Council) on 8th Page 76 Page December 2019, which will state if he/she is minded to recommend that the draft Plan should proceed to referendum which concluded that subject to the recommendations contained within the report being accepted, the Plan would meet the basic conditions, as set out above and could be submitted to a referendum.

N/A (Further Section 4.0 The basic condition for EU obligations includes the Strategic Environmental To correct the need for a SEA, modification (paragraph 4.4/4.3) Assessment Directive, which requires an assessment for neighbourhood plans reflecting the Torridge District recommended by that are likely to have significant environmental impacts. The District Council, Council SEA/HRA scoping Torridge District in consultation with prescribed consultees determined that a Strategic report as referenced in the Council) Environmental Assessment was not required, as is set out in the Basic examiner’s report in Conditions Statement. Although as the Plan As Great Torrington allocates sites paragraph 2.17. for development and the neighbourhood area contains sensitive natural or heritage assets that may be affected by the proposals in the Plan, a Sustainability Appraisal has been prepared.

N/A (Further Section 4.0 The National Planning Policy Framework (NPPF) sets out the Government’s To clarify the context of the modification (paragraph 4.6/4.4) planning policies for England. and was revised in July 2018 How the Plan has NPPF and which version of the recommended by regard to the NPPF is set out in the Basic Conditions Statement. Although the NPPF the Plan is considered Torridge District 2019 NPPF is now in place, stated transitional arrangements require this Plan against. Council) to be considered on the basis of the 2012 NPPF. The NPPF provides the basis for local planning authorities to prepare their local plans and for communities producing neighbourhood plans.

N/A (Further Section 4.0 The North Devon and Torridge Local Plan (2011-2031) was adopted on 29th To highlight the context that modification (paragraph 4.10/4.7) October 2018; and it sets out a spatial vision and development strategy for the North Devon and Torridge recommended by Great Torrington. The spatial vision provides that as follows: Local Plan (2011-2031) has in Torridge District setting out the spatial vision Council Great Torrington will develop as a self-sufficient local service centre with a and development strategy for vibrant, independent retail and employment offering. Great Torrington will be Great Torrington. enhanced and promoted through tourism and leisure utilising its unique cultural heritage as well as the natural environment of the Commons. Its future will be supported through small to medium scale employment and housing development and the successful regeneration of key sites and buildings both within the historic town centre and urban fringe. A creative and dynamic

Page 77 Page community will be fostered through improved access to arts, culture and leisure facilities.

N/A (Further Section 5.0 There is also a local demand for assisted living developments to accommodate To clarify the statement in modification (paragraph 5.11/5.9) the growing elderly population and the disabled accommodation to meet the having regard for policy H1 recommended by needs of an increasingly aging population5 and to accommodate households and identify the evidential Torridge District that require6 supported housing. base provided for in the Council) statement through the Footnotes: 5 addition of footnotes. 2008-2017 Torridge Profiles: https://www.torridge.gov.uk/article/15446/Ward- Profiles 6Torridge District Council Urban Housing Needs Assessments: http://www.torridge.gov.uk/CHttpHandler.ashx?id=12978&p=0

N/A (Further Section 5.0 The North Devon and Torridge Green Infrastructure Strategy 2013-20317 To update in order to reflect modification (paragraph 5.21/5.17) determined that there is was a good current access to plan and amenity space the findings of the Green recommended by in Great Torrington and that a range of open space and recreational Infrastructure Strategy and Torridge District requirements would be generated from the housing development planned for adjust the references provided Council) in the North Devon and Torridge Local Plan. The strategy also recognised the in support of this statement need for the town’s tennis courts to be refurbished. supply of open space. for clarity. Updated the Although there is not a shortage of sports pitches, existing courts such as tennis reference to the capacity of courts require enhancement. There is also a current demand8 for and future the primary school in light of need9 for allotments in Great Torrington. as there are currently 13 people on new data. the waiting list. Although Great Torrington has a good variety of leisure and recreational facilities; there will however be the need even greater pressure for additional facilities as the town grows over time. In terms of educational facilities, the primary, junior and infant schools are nearing full capacity and an additional primary school and early year’s provision is severely needed. Currently Great Torrington children are being bussed out to village schools. As of January 2016 2019, the Great Torrington Bluecoat C of E primary school was at 98 95% of its capacity.

Footnotes: 8 Great Torrington Town Council allotment waiting list 9North Devon and Torridge Green Infrastructure Strategy 2013-2031. Available at: Page 78 Page consult.torridge.gov.uk/file/3371346

N/A (Further Section 5.0 Great Torrington has experienced recent limited employment development on To clarify the status of the modification (paragraph 5.25/5.20) sites allocated for economic development employment estates in the past in referenced employment sites. recommended by the Torridge District Local Plan12. For over 5- 14 years, a site of 4.62 hectares of Torridge District undeveloped land has been available east of adjoining the Hatchmoor Council) Industrial Estate, was allocated for economic development. The site remained undeveloped and has not been maintained as an employment allocation in the North Devon and Torridge Local Plan with no indication of progression for employment purposes. The North Devon and Torridge Local Plan allocates a new 4 hectare site adjoining the Hatchmoor Industrial Estate to deliver has now allocated 4 hectares for the delivery of economic development that provides a mix of premises to support reflective of the site and appropriate to enable business start-ups and expansion. Development of this site should this will hopefully improve the availability of employment provision opportunities in Great Torrington.

Footnote: 12 Torridge District Local Plan (1997-2011). Available at: https://www.torridge.gov.uk/article/11250/The-Torridge-District-Local-Plan-1997--- 2011-Superseded-29-October-2018

N/A (Further Section 5.0 In addition to the Hatchmoor site, some limited opportunities for employment- To clarify the referenced site’s modification (paragraph 5.26/5.21) based development exist on the former creamery and abattoir sites. Although development status and that recommended by both are subject to significant constraints, consequent of their previous use, it the referenced sites will Torridge District is recognised considered that there are opportunities for the sites have the deliver limited employment Council) potential to be redeveloped on a mixed-use basis in the interest of opportunities. Removed regeneration. The creamery site is subject to a Local Plan allocation (Policy reference to specific GTT01), which provides for its redevelopment with a focus on housing with applications that may become some employment. will be redeveloped with a focus on housing, as set out in outdated during the lifetime Local Plan Policy GTT01 and reflected in planning application of the neighbourhood plan. 1/0039/2016/OUTM.

Section 2.0 Section 6.0, Addition of labelling and text in bold and/or italics. To give clarity to the vision of Paragraph 2.5 (paragraphs 6.1-6.6) the plan.

Page 79 Page Section 5.0 Section 8.0 Development Planning applications will be supported which demonstrates To improve the usability of the Paragraph 5.4 Policy ENV1: sensitivity to the distinctive landscape character of the area by that retaining policy for development Landscape Protection local features, of nature conservation, cultural or landscape value, including management purposes. such as mature trees, species-rich hedgerows, ponds and existing areas of woodland of nature conservation, cultural and landscape value, in accordance with the principles of the mitigation hierarchy, to avoid harm wherever possible, or else mitigate, or compensate where mitigation is not possible. and are sensitive to the distinctive character of the area

Section 5.0 Section 8.0 Development will proposals shall be supported which improve the connectivity To remove an inappropriate Paragraph 5.6 Policy ENV2: Wildlife between wildlife areas and green spaces, to improve enhances ecosystem and unnecessary reference for Enhancement service function and resilience and/or improve the wildlife value of private and compliance with a Local Plan community land; creating new habitats where possible in accordance with Local policy and to increase its Plan Policy DM08.by: efficacy as a development management tool. a) improving connectivity between wildlife areas and green spaces; b) increasing the wildlife value of private and community land, and/or; c) creating new habitats. Section 5.0 Section 8.0 Development proposals providing and/or enhancing which secure the To ensure the policy maintains Paragraph 5.8 Policy ENV3: Enhance provision and enhancement of green infrastructure that benefits the relevance and applicability the Green community and the environment will be supported, whether as an essential across all development Infrastructure of the mitigation justified by the impact of that development or as a standalone proposals. Parish green infrastructure proposal.

Section 5.0 Section 8.0 Planning applications for Developments which respects the area’s dark skies, To simplify and remove the Paragraph 5.10 Policy ENV4: Dark takes account of the town’s position in the landscape and minimise light imperative in order to be Skies pollution shall will be supported. more effective as a development management tool.

N/A (Further Section 8.0 The Torridge Valley and adjacent slopes are a Devon County designated dark To remove an unqualified modification (paragraph 8.7/8.8) sky area34. Therefore, any development in or near a protected area of dark sky reference and provide recommended by or an intrinsically dark landscape where iIt is desirable to minimise new light improved relevance to the

Page 80 Page Torridge District sources, development proposals should fully incorporate sensible lighting modified policy ENV4. Council) schemes. Lighting schemes can be costly and difficult to change, so getting the design right and setting appropriate conditions at the planning stage is important.

Section 5.0 Section 8.0 Residential and commercial Developments proposals which use passive solar To simplify the reference to Paragraph 5.12 Policy ENV5: gain from building orientation and/or incorporate renewable energy generation cover all development and Renewable Energy provision into building design shall will be supported. remove unnecessary reference to building/design to allow the policy to cover all development scenarios.

Section 5.0 Section 8.0 Housing development proposals shall provide for a mix of housing types that To simplify the policy to cover Paragraph 5.14 Policy H1: Housing will be informed by the most up to date Strategic Housing Market Assessment development of multiple Types and local evidence of housing need. In particular, applicants will need to residential units, remove demonstrate how they have considered and addressed the housing needs of citation to specific documents older households and young families. Development providing four or more that could become outdated residential units shall provide a mix of housing types which reflects identified and move some wording to housing needs. the supporting text.

Section 5.0 Section 8.0 In order to support a balanced community, housing should meet the needs of To remove the reference to Paragraph 5.14 and (paragraph 8.12/8.13) local people. and not be disproportionately weighted towards two and three- previously built dwellings that further modification bedroom dwellings, as has been the perception in recent years. The mix of cannot be evidenced and the recommended by house types and tenures will be based on the most up-to-date evidence15 at the addition of a reference to site Torridge District time an application is made, which will aim to ensure a reasonable balance. context as a potential Council Additionally, regard should also be had to the site’s context where this might influence on housing mix. have an influence on the choice of and/or opportunity for a particular mix of housing types. N/A (Further Section 8.0 Applicants will need to demonstrate how they have considered and To add clarity as to what will modification (paragraph 8.13/8.14) addressed wide ranging housing needs, including those of older households be required from applicants recommended by and young families; the mix of which should be informed by strategic or local with regards to the Torridge District evidence. Older households would contain include at least one adult 65+ and demonstration of housing Council) young families would contain include at least one child under the age of 18. needs.

Page 81 Page N/A (Further Section 8.0 Key findings from the Town Lands and Alms Report indicated that the To alter to a more precise modification (paragraph 8.14/8.15) community has aspirations towards 4-bedroom family accommodation. The evidenced reference. recommended by Joint Needs Assessment16 recognises there is a growing ageing population in Torridge District Great Torrington and that one-bedroom dwellings are in demand. Many Council) residents are content to continue into retirement in their current homes, whilst other seek alternative housing in the town, such as smaller dwellings and sheltered dwellings, mainly single storey and with modest gardens.

N/A (Further Section 8.0 The Lifetime Homes Standard was established in the mid-1990s to incorporate To ensure the supporting text modification (paragraphs 8.15- a set of principles that should be implicit in good housing design. Good design, is relevant to the related recommended by 8.17) in this context, is considered to be design that maximizes utility, independence Policy. The issue of design Torridge District and quality of life, while not compromising other design issues such as raised in the deleted Council) aesthetics or cost effectiveness. supporting text is addressed through the North Devon and The Lifetime Homes Standard seeks to enable ‘general needs’ housing to Torridge Local Plan. provide, either from the outset or through simple and cost-effective adaptation, design solutions that meet the existing and changing needs of diverse households. This offers the occupants more choice over where they live and which visitors they can accommodate for any given time scale. It is therefore an expression of Inclusive Design.

There is a set of 16 design criteria that provide a model for building accessible and adaptable homes. Applications for all new housing development should complete a Lifetime Homes Standards checklist as part of the Design and Access Statement. Applicants must be able to provide justification for any non- compliance.

Section 5.0 Section 8.0 Affordable housing in Great Torrington will initially be subject to a local To simplify the policy and Paragraph 5.16 Policy H2: Allocation connection, meaning that people with a strong connection to the town or make it easier to apply as a of Affordable Housing surrounding parishes and whose needs are not met by open market will be first development management to be offered the tenancy or shared ownership of the home. tool. Affordable housing provision shall be prioritised for occupancy by those: a) with a strong connection to the Plan area or surrounding parishes, and; b) whose needs are not met by open market housing, being given first

Page 82 Page option to take tenancy or shared ownership.

N/A (Further Section 8.0 The occupation of affordable housing will be restricted to households in need of To ensure the supporting text modification (paragraph 8.20/8.18) affordable housing, and in the first instance priority will be given to those is consistent with the related recommended by applicants with a local connection to additionally, within Great Torrington and policy and correction of Torridge District the surrounding parishes at least one of the following criteria must be satisfied terminology. Council) required to be met by perspective prospective occupants:

(a) at least one adult in the household was resident continuously for a minimum of five years immediately prior to occupation; (b) at least one adult of the household was resident for five years within the previous ten years immediately prior to occupation; (c) at least one parent, guardian, child or sibling, of at least one adult in the intended household, has been resident for a minimum of five years immediately prior to occupation; or (d) at least one adult in the household has been in continuous employment for at least 16 hours a week in Great Torrington or the surrounding parishes for at least five years immediately prior to occupation. Section 5 Section 8.0 To meet with specific requirements in Great Torrington, new housing To remove vague and Paragraph 5.18 Policy H3: Design and developments should ensure: unqualified terms and readjust Layout the structure to reinforce the • Sufficient private garden amenity space, appropriate to the size of the imperative and enable property effective application and • Parking is located in between houses (rather than in front) so that it flexibility. does not dominate the street scene

Having regard to site character and context, residential development shall, where practicable, provide:

a) domestic curtilage/garden in the form of private amenity space screened from public view at a level commensurate with the size of the dwelling it serves, and; b) parking space between buildings which ensures such provision does not dominate the street scene.

Section 5.0 Section 8.0 Amenity space is an essential part of the character and quality of the To provide guidance as to the Page 83 Page Paragraph 5.18 (paragraph 8.25/8.23) environment of residential properties. Garden space should not be reduced to a means by which private point where it is out of scale or fails to meet the present and future occupiers amenity space will be need for adequate useable private amenity space. All residential properties assessed. require some in-curtilage private open space, usually to the rear, compatible with the overall size of the plot, for normal domestic activities, such as, bin storage, clothes drying, sitting out and play space. This space should enjoy a high degree of privacy from the public street and from any other public places. The appropriateness of private amenity space provided with residential development will be considered having regard to national guidance and as relevant supplementary planning guidance prepared by the District Council.

Section 5.0 Section 8.0 TI1: T1: Car Parking To prevent confusion due to Paragraphs 5.20, 5.22 Policies T1: Parking, TI2: T2: Pedestrians and Cyclists the similarity between an and 5.24 T2: Pedestrians and TI3: T3: Residential Parking uppercase ‘I’ and the number Cyclists and T3: 1, the letter ‘I’ has been Residential Parking omitted from the policy reference.

Section 5.0 Section 8.0 Development proposals should consider and address the related provision of To simplify and streamline the Paragraph 5.20 Policy T1: Parking off-street parking. Proposals that involve the loss of existing on-street parking policy to provide a robust and or off-street parking at the locations identified on the Policies Map must effective development replace the spaces lost within a convenient walking distance. management tool.

Development generating a need for parking shall make: a) adequate provision for on-site parking, to meet anticipated needs, and; b) compensatory provision within a short walking distance for spaces lost from on-street parking or existing car parks at South Street, Barley Grove and/or New Street (as identified on the two maps overleaf below).

Section 5.0 Section 8.0 In accordance with Policy T1, any compensatory car parking provision To clarify what is determined Paragraph 5.20 (paragraph 8.29/8.28) required to account for spaces lost due to development should be provided to be as a short walking within a short walking distance of those spaces that are lost. A short walking distance for the application of distance is taken to be a maximum of 480m (equivalent to a 10 minute Policy T1. Page 84 Page walking time) from the lost spaces, as measured along a route accessible and safe to pedestrians.

Section 5.0 Section 8.0 All major residential and commercial developments shall make adequate on- To simplify and streamline the Paragraph 5.22 Policy T2: Pedestrians site and off-site should deliver, through planning obligations or otherwise, policy to provide a robust and and Cyclists appropriate provision for pedestrians and cyclists,., This should seek to create effective development routes (either by enhancing existing paths or by creating entirely new paths) management tool. that provide for creating or contributing to the creation of safe and attractive walking and routes (by enhancing existing or creating new paths)within the development and beyond, particularly to Torrington the town centre, the main employment centres and schools. Pedestrian and cycling routes should shall seek to:

• keep road crossings and changes in level to a minimum; • be suitable for those with wheelchairs, frames, buggies or other mobility aids; • Where possible, be separated either physically or with lane markings, and;

Proposals to provide a designated cycle route from linking the Tarka Trail to the town centre will be supported.

N/A (Further Section 8.0 A “major development” is defined as development involving one or more of the Revision to reflect national modification (paragraph 8.32/8.31) following: planning policy (NPPF 2019 recommended by (a) the provision of dwellinghouses housing where— Annex 2). Torridge District (i) the number of dwellinghouses homes to be provided is 10 or more; or Council) (ii) the development is to be carried out on a site having an area of 0.5 hectares or more and it is not known whether the development falls within sub- paragraph (a)(i); (b) the provision of non- residential development where: (i) additional floorspace of 1,000m2 or more, or (ii) building or buildings where the floor space to be created by the development is 1,000 square metres or more; or development on a site of an area of 1 hectare or more. (c) development carried out on a site having an area of 1 hectare or more.

Section 5.0 Section 8.0 a) Residential parking provision should be adequate, well integrated and To contain all parking Page 85 Page Paragraph 5.24 Policy T3: Residential located where it is accessible and likely to be well used designed to meet the standards for residential Parking anticipated needs of residents and visitors alike, well integrated and development under one policy accessible to encourage maximum usage, based on the following minimum (TI4 combined into T3) and to levels per dwelling: make the policy more user friendly for development The following table indicates minimum parking allocations required per management purposes. dwelling:

On-siteplot/allocated Cycle parking/storage parking/garage spaces per spaces provided per dwelling dwelling 1 Bed 1 1 2 Bed 2 2 3 Bed 2 2 4 Beds + 3 2

Garages smaller than 7m x 3m will not count towards overall parking requirements. Garages must have functional entrances and sufficient space provided for the opening and closing of garage doors.

Residential developments will be expected to take account of the demand for visitor parking and provide spaces accordingly. b) developments shall include a minimum of one visitor parking space per four dwellings with one in ten of such spaces a minimum of 3.6m wide, to accommodate the needs of young families and disabled users. c) development with lower provision may be considered acceptable in areas of high accessibility or where the type of residential development proposed is likely to generate less demand (such as sheltered accommodation and/or in town centre locations) when applicants will be required to demonstrate the proposed level of parking provision would be unlikely to result in increased demand for parking in the surrounding area or that sufficient capacity or alternative provision is available (e.g. in public car Page 86 Page parks).

Residential development that provides less than the required standards will only be considered acceptable in circumstances where there are areas of high accessibility, or for specific types of residential development that create a lower demand for parking, such as sheltered accommodation. In these circumstances, applicants will be required to demonstrate that their proposals for car parking and cycle provision would not have an adverse impact on parking in the surrounding area.

Section 5.0 Section 8.0 Residential developments will be expected to take account of the demand for To contain all parking Paragraph 5.26 Policy TI4: Visitor visitor parking and provide spaces accordingly. Developments should include: standards for residential Parking development under one policy  0.25 visitor parking spaces per dwelling, rounded up to the (TI4 combined into T3) and to nearest whole number. make the policy more user  10% of visitor parking spaces to be a minimum of 3.6m wide, to friendly for development accommodate the needs of young families and disabled users. management purposes.

N/A (Further Section 8.0 The planning portal residential parking standards4 set out the car parking To avoid confusion in referring modification (paragraph 8.39/8.38) provision required for residents in developments on green-field sites or in low- to a policy which is deleted. recommended by density areas. The total requirements given include spaces for visitors. Torridge District Combining policies TI3 AND TI4, from this Plan, comply with those standards. Council)

Section 5.0 Section 8.0 Proposals for new and/or enhanced sporting and recreational facilities, To provide enumerated Paragraph 5.28 Policy CF1: including allotments, will be supported so as to enhance the range and quality criteria to simplify policy use Community Facilities of facilities within the town, providing any such development would not be for development detrimental to the character of the area or the amenity of any nearby residents. management, to remove a reference to the Community Proposals should be flexible in design so that different need groups and Infrastructure Levy and to add activities can be accommodated. guidance in relation to the loss

of a countryside recreational Contributions may be sought from housing developments to secure delivery of

Page 87 Page facility. such facilities, through methods such as planning obligations or the Community

Infrastructure Levy.

Proposals that involve the loss of open space, sports and recreational buildings and land, including playing fields, whether privately or publicly owned, will be developed in a reasonable time scale to ensure continuity of use and to provide facilities of an equivalent or improved standard.

Development that would result in a reduction of existing recreation facilities in the countryside, including public rights of way and other recreational routes, will not be supported.

Proposals which provide new, replacement and/or enhanced sport and recreational facilities, including allotments, will be supported where: a) they would enhance the range and quality of facilities within the town; b) they would not be detrimental to the character of the area or the

amenity of any nearby residential property; c) their flexible design ensures different need groups and activities are accommodated, and; d) any loss of open space, sport and/or recreational facility is replaced to an equivalent or improved standard, whether on or off-site, with no reduction in accessibility, within a reasonable timescale to ensure continuity of use, and; e) where on-site provision is not possible or appropriate, alternative off- site delivery or provision will be sought through financial contributions of broadly equivalent value.

Development proposals that affect public rights of way and other recreational routes will be supported only where there is no overall loss of connectivity or reduction in accessibility both of and to the public right of way or recreational Page 88 Page route.

N/A (Further Section 8.0 Objective: Increased economic development opportunities through the use of To provide consistency with modification Objective appropriately located previously developed land. Existing employment sites the revised Policy EM1. recommended by are encouraged to be kept for employment use. Torridge District Council) Section 5.0 Section 8.0 EM1: EMPLOYMENT USES ON URBAN BROWNFIELD LAND DEVELOPMENT To update the terminology Paragraph 5.30 Policy EM1: and adjust to accord with the Employment Planning applications for the reuse of brownfield land Economic development NPPF. Development proposals on previously developed land within the continuous built-up form of the town of Great Torrington area for employment uses will generally be supported where they demonstrate appropriate regard for existing neighbouring uses there are no substantial adverse impacts on neighbouring uses.

N/A (Further Section 8.0 In 2011 unemployment in Great Torrington increased to levels higher than To provide a more recent modification (paragraph 8.49/8.48) those experienced across Torridge and Devon County. Historically, the town has position of unemployment recommended by experienced high levels of unemployment that resulted from the closure of the levels. Torridge District Dairy Crest Creamery and North Devon Meats and through the down scaling of Council) manufacturing at Dartington Crystal. Unemployment levels have improved in recent years and are now reflective of levels across Torridge24.

Footnote: 24 2017 Torrington Ward Profile (TDC): https://www.torridge.gov.uk/CHttpHandler.ashx?id=18050&p=0

N/A (Further Section 8.0 It is important that the potential for all employment uses are considered on the To avoid the inclusion of text modification (deleted paragraph site before planning applications are made for non-employment uses. Where a within the Plan, which has no recommended by following 8.52-8.54) business is coming to the end of its economic life or has ceased trading relationship to the included Torridge District altogether, applicants will be expected to submit a Viability Statement as part policies. The issues of Council) of the planning application. The Viability Statement should provide proof of safeguarding employment marketing and demonstrate that there is no realistic prospect of retaining or re- land and development viability using the site in its current use. The viability case will be considered along with raised in the deleted other policy considerations. Proof of marketing should include all of the supporting text are addressed

Page 89 Page following criteria: through the North Devon and Torridge Local Plan.  The land/premises has/have been widely marketed through an agent or surveyor at a price that reflects its current market or rental value for employment purposes, and no reasonable offer has been refused. The period of marketing should be 18 months long;  The land/premises have been regularly advertised in the local press and regional press, property press, specialist trade papers and any free papers covering relevant areas. This should initially be weekly advertising for the first month, followed by monthly advertising for the remainder of the marketing period. Advertisements should be targeted at the appropriate target audience;  The land/premises have been continuously included on the agent’s website, the agent’s own papers and lists of commercial/business premises for the marketing period;  There has been an agent’s advertisement board on each site frontage to the highway throughout the marketing period.

The Viability Statement should also detail the following information:  Details of current occupation of the buildings and where this function would be relocated;  Details as to why the site location makes it unsuitable for existing uses  Any physical constraints making the site difficult to accommodate existing uses;  Environmental considerations/amenity issues; and  Consideration, firstly, for a mixed-use scheme involving the existing use and other compatible uses, secondly, for other employment generating uses such as those relating to tourism, leisure, retail and residential institutions and, thirdly, of the viability of providing affordable housing on the site, which could meet a specific local need, before consideration of market housing.

In certain cases, for example, where a significant departure from policy is proposed, the District Council may seek to independently verify the Viability Page 90 Page Statement, and the applicant will be required to bear the cost of independent verification.

Section 5.0 Section 8.0 Further Retail development within the defined town centre boundary will be To adjust the phrasing and Paragraph 5.32 Policy EM2: Retail supported where provided it: enumeration of criteria to Development • is scaled appropriately not of such a scale that it is likely to adversely make the policy a more affect the viability of to the existing retail units enterprises; effective development • complements or builds on existing retail provision; and management tool. • demonstrates the potential to sustain and/or extend the range of retail choice to residents, visitors and tourists.

Section 5.0 Section 8.0 The town centre boundary is that defined in the North Devon and Torridge To guide the scope of the Paragraph 5.32 (paragraph 8.55/8.51) Local Plan55, as the area defined on the local authorities’ proposals map Policies application of Policy EM2, with Map, which also defines a, including the Primary Shopping Area, which is the regard to the definition of the area and areas predominantly occupied by main town centre uses. within or town centre boundary. adjacent to the Primary Shopping Area.

Footnote

25 North Devon and Torridge Local Plan (2011-2031) Torrington Policies Map. Available via: https://consult.torridge.gov.uk/portal/planning/localplan/adoption/

N/A (Further Section 8.0 Consultations and anecdotal evidence indicate a perception by some residents To include more recent modification (paragraph 8.56/8.52) and businesses that ‘the town is dying’. Monitoring26 by the District Council monitoring data of vacancy recommended by indicates vacancy rates ranging from 4.7%-9.57% over the period 2011-2019, rates with comparison to the Torridge District within the Town Centre; 9.57% being the vacancy rate at June 2019, which national average. Council) was just below the national average of 10%. In fact, monthly monitoring of vacancies in Town Centre business premises from June to December 2015 indicated a top vacancy rate of 14%, compared to the national average of 13%. Out-of-town and internet shopping are well-known and are considered to represent a continuing threat to small town businesses27.

Footnote: 26 Torridge and North Deon and Torridge Authority Monitoring Reports (2011/2012- 2018/2019) Available at: https://www.torridge.gov.uk/Authority-Monitoring-Report- Page 91 Page AMR 27 Local shop monitoring: A. Williams.

Section 5.0 Section 8.0 EM3: INNOVATION IN TOURISM AND HOSPITALITY To delete reference to Paragraph 5.34 Policy EM3: Tourism innovation as is not a readily Innovations in the provision and extension of tourism and hospitality facilities and Hospitality definable term. Policy will be supported. restructure is required to Proposals that protect and enhance the Tarka Valley Railway project will be enhance clarify and improve supported. effectiveness as a Development proposals will be supported where they would: development management a) improve and/or extend existing tourism and hospitality facilities, or; tool. b) support the enhancement of or not prejudice the future development of the Tarka Valley Railway project.

Section 5.0, Section 8.0 Planning applications for the expansion of existing businesses and the provision To remove unnecessary Paragraph 5.35 Policy EM4: of employment through the development of business and industrial (B use references. Opportunities for classes), public and community and town centre uses in appropriate locations Employment will be supported.

Expansion of business and employment provision in appropriate locations will be supported where it can be demonstrated that there would be no consequent substantial adverse impact on residential living conditions and/or highway safety.

Section 5.0 Section 8.0 The following development proposals to provide opportunities for local To clarify how appropriate Paragraph 5.36 paragraph 5.63/5.59) employment shall be viewed favourably, subject to other policy conditions, locations will be determined. including the locational qualifications set out it in the North Devon and Torridge Local Plan:  a range of small and medium sized business, including those working in technology, arts/media, niche industries and internet marketing;  the establishment of business ‘hubs’ with shared services and business support;  agriculture, market gardening and other horticultural enterprises;  social enterprises, particularly where there are tangible benefits to the neighbourhood; and Page 92 Page  commercial developments which offer full-time employment, including live/work’ units which incorporate accommodation for owners and partners.

Section 5.0 Section 9.0 The site is allocated for future cemetery provision for the town. The To clarify that the land is Paragraph 5.38 Policy SA01: Land for approximately 2.5ha site identified in Policy Map 1 ‘Land for Cemetery retained solely for cemetery Cemetery Expansion Expansion’ shall be reserved for future cemetery provision. use and the related map identifying the site is clearly labelled and titled.

Section 5.0 Section 9.0 The sites listed below and identified on the Policies Map are designated as Local To adjust wording and clear Paragraph 5.40 Policy SA02: Local Green Spaces and developers will be required to protect and enhance these labelling of the related maps. Green Spaces spaces. The areas at Jubilee Wood and Rack Park identified on Policy Map 2 ‘Jubilee Wood’ and Policy Map 3 ‘Rack Park’ are designated as Local Green Spaces and any development proposals within their boundaries will be required to protect and enhance the quality of these spaces and the contribution they make to community recreation.

Section 5.0 Section 9.0 This site is allocated for residential development (C3) and planning applications To simplify the policy, Paragraph 5.42 Policy SA03: Site will be supported which meet the following criteria: removing unnecessary and North of New Street detailed criteria to improve its • be of highly sustainable design; applications as a development • enhance the setting of the local buildings in the vicinity; management tool and clearer • conserve and promote the use of building materials which are in labelling of the related map. keeping with the landscape character; • provide pedestrian and cycle links; and • use developer contributions towards public transport network links. Residential proposals on the “Site North of New Street”, identified on Policy Map 4, will be supported, provided they are of a high quality design that respects the local character, including in the use of external materials. Section 5.0 Section 9.0 This site identified on Policy Map 5 as ‘Sheperd’s Ham allotments’ shall be To adjust wording and clear Paragraph 5.44 Policy SA04: safeguarded is allocated for allotment use., to meet current and future demand labelling of the related map. Sheperd’s Ham in Great Torrington. Allotments

Page 93 Page REFERENDUM PLAN – (May 2021)

2018-2031 2018-2031

Page 94 CONTENTS

1.0 INTRODUCTION………………………………………………………………...... 1 2.0 THE PURPOSE OF THE NEIGHBOURHOOD PLAN……………………………………………………… 2 3.0 THE NEIGHBOURHOOD PLAN AREA…………………………………………………………………...... ….4 4.0 PLANNING POLICY CONTEXT...... …5 5.0 ISSUES RAISED THROUGH COMMUNITY ENGAGEMENT………………………………….…....…7 6.0 OUR VISION- GREAT TORRINGTON NEIGHBOURHOOD IN 2031………………….……….…12 7.0 OBJECTIVES………………………………………………………………...... 13 8.0 NEIGHBOURHOOD PLAN POLICIES………………………………………………………………...... 16 ENVIRONMENT…………………………………….………...... ………..17 HOUSING………………………………………………………………...... …20 TRANSPORT & INFRASTRUCTURE………………………………………………………………………. 24 COMMUNITY FACILITIES………………………………………………………………...... 29 EMPLOYMENT………………………………………………………………...... 31 9.0 SITE ALLOCATIONS...... 36 10.0 IMPLEMENTATION AND MONITORING……………………………….………………………………….42 Appendix A- Glossary …………………………………………………………………………….………………..43 Appendix B- Relevant Bodies………………………………………………………………….………………..45 Appendix C- Car Parking Concerns (Waitrose Application 2014) ……………….……….……47

Page 95 1.0 INTRODUCTION

1.1 Great Torrington has a long history and a distinctive character, the town sits in the middle of the beautiful countryside with spectacular views into the very heart of the Tarka Country. It occupies an elevated site east of the river Torridge, about 5 miles to the south of Bideford. The town is an elongated settlement with good connections to the A386, B3227 and B3232. Great Torrington is surrounded by common land, the Great Torrington Commons and Conservator Lands (the Commons) which cover 147ha (365ac) and have over 32km (20 miles) of public rights of way. The Commons play a major role in the social, economic and environmental vision for the town.

1.2 This history of Great Torrington is a major tourist attraction and draws people from across the country to the area. During the Civil War, Great Torrington was, first, a Royalist Garrison and then it was taken by General Fairfax, who mounted a surprise attack in one of the largest battles of the Civil War, on February 16th, 1646. This proved to be one of the last and most decisive battles of the Civil War in the West Country, with a battlefield of some fifteen thousand men. The Royalists were defeated, and events moved forward to the eventual culmination of the Civil War in England with the execution of King Charles I. The Civil War highlights the historical importance of the town.

1.3 Tourist hotspots within the area include Dartington Crystal, Rosemoor Gardens, the Tarka Trail, the Town Museum and the Plough Arts Centre.

1.4 Great Torrington has a wealth of local independent shops that have come together with the aim of improving the Great Torrington experience. The town has an active community and it is renowned for its great festivals and local events, such as Mayfair, Torrington Carnival and spectacular bonfires organised by the Torrington Cavaliers. Yet there is a strong local feeling that house prices are high, employment opportunities within the town are diminishing and young people with Great Torrington connections are being forced to go elsewhere. Furthermore, public transport connections to the outskirts of the town and other strategic centres is infrequent and the availability of car parking spaces within the town centre is proving a difficult situation. Recent development pressure has focused the challenges of maintaining and enhancing a sustainable community, and the quality of the natural, built and historic environment. This Neighbourhood Plan (the Plan) has been prepared to help address these challenges.

2 Page 96 2.0 THE PURPOSE OF THE NEIGHBOURHOOD PLAN

2.1 A neighbourhood plan is a type of planning document which was created by the Localism Act 2011. Neighbourhood plans should provide locally focused policies and actions to address matters identified as important to the local community, offering people a powerful new opportunity to plan the future of their communities. It establishes a vision for the evolution and long-term sustainability of Great Torrington (see Section 6), and practical proposals to guide development over the next 13 years (2018 – 2031).

2.2 Following the Plan’s pre-submission consultation which ended on 14th May 2018, all comments received were reviewed by the Town Council and changes were made to the draft Plan. The then submission Plan was submitted to Torridge District Council (the District Council). The District Council then undertook a six-week consultation on the Plan, over the period 14th February – 28th March 2019. An independent examiner was then appointed by the District Council to examine the submission Plan to assess whether it met the following ‘basic conditions’, which require it to:

 have appropriate regard for national policy;  contribute towards the achievement of sustainable development;  be in general conformity with the strategic policies in the development plan for the local area; and  be compatible with EU obligations and human rights requirements.

2.3 The examination of the Plan was conducted by means of written representations. The examiner (Mr. S Lee, MA MRTPI AMInst LM MTCPA NPIERS NSI) issued a report to the District Council and Great Torrington Town Council (the Town Council) on 8th December 2019, which concluded that subject to the recommendations contained within the report being accepted, the Plan would meet the basic conditions, as set out above and could be submitted to a referendum.

2.4 The final stage towards achieving a neighbourhood plan is the referendum. The District Council will hold a referendum on the Plan, where all persons entitled to vote in a local election for the area will be entitled to participate. If the majority of those who vote in the referendum are in favour of the Plan, the District Council will give the Plan legal force, at which point the Plan would form part of the development plan for the area. With development plan status, the Plan, along with the North Devon and Torridge Local Plan, will be the first consideration in decision making on planning applications in the parish of Great Torrington.

3 Page 97 2.5 The implementation of the Plan will require co-ordinated input and cooperation of a number of statutory and non-statutory agencies, private sector organisations and the local community. It is intended as a starting point to ensure the continuation of the market town identity of Great Torrington and implement positive physical change within the area. The Town Council will monitor the implementation of the Plan. Subject to available resources the Town Council will prepare regular monitoring reports, which will be published on the Town Council website.

4 Page 98 3.0 THE NEIGHBOURHOOD PLAN AREA

3.1 In order to protect the Town’s history and enhance its uniqueness, the Town Council applied for the area to be formally designated as a neighbourhood area. The application letter included a map which identified the area to which the application relates, a statement as to why the area is considered appropriate to be designated as a neighbourhood area, and a statement that the Town Council is a ‘Qualifying Body’. The District Council approved the designation of the Parish of Great Torrington as a Neighbourhood Area on 24th November 2014, following a six-week period of consultation.

3.2 The boundary includes the entire area in the administrative jurisdiction of Great Torrington Town Council, which serves the community of Great Torrington. The boundary follows the River Torridge from north to south and encompasses the outskirts of the Town such as Rosemoor, Torrington Wood, Week Bottom, Daracott Moor, Woodhouse Wood and Van’s Wood.

5 Page 99 4.0 PLANNING POLICY CONTEXT

How the Neighbourhood Plan fits into the Planning System

4.1 The Plan, once made, in conjunction with the North Devon and Torridge Local Plan (2011-2031) will guide future development in Great Torrington and will be a primary consideration when determining planning applications in the area.

4.2 Additionally, the Plan has been prepared in strict accordance with all relevant primary and secondary legislation – principally Schedule 4B of the Town and Country Planning Act 190, as amended by the Localism Act 2011, and the Neighbourhood Planning (General) Regulations 2012 (as amended) – to ensure that it comprises a set of policies that are procedurally sound in their preparation and in accordance with the ‘basic conditions’.

4.3 The basic condition for EU obligations includes the Strategic Environmental Assessment Directive, which requires an assessment for neighbourhood plans that are likely to have significant environmental impacts. The District Council, in consultation with prescribed consultees determined that a Strategic Environmental Assessment was not required, as is set out in the Basic Conditions Statement. Although as the Plan allocates sites for development and the neighbourhood area contains sensitive natural or heritage assets a Sustainability Appraisal has been prepared.

National Planning Policy Framework

4.4 The National Planning Policy Framework (NPPF) sets out the Government’s planning policies for England. How the Plan has regard to the NPPF is set out in the Basic Conditions Statement. Although the 2019 NPPF is now in place, stated transitional arrangements1 require this Plan to be considered on the basis of the 2012 NPPF. The NPPF provides the basis for local planning authorities to prepare their local plans and for communities producing neighbourhood plans.

4.5 The NPPF states that neighbourhood plans should support the delivery of strategic policies contained in local plans or spatial development strategies; and should shape and direct development that is outside of these strategic policies. The NPPF goes on to state that neighbourhood plans should not promote less development than set out in strategic policies for the area, or undermine those strategic policies.

1 National Planning Policy Framework (2019) – Paragraph 214 6 Page 100 The North Devon and Torridge Local Plan

4.6 Great Torrington lies within the administrative area of Torridge District Council, in the County of Devon. Along with national policy, the District Council has policies and proposals that have a significant influence on the strategy and detailed content of the Plan.

4.7 The North Devon and Torridge Local Plan (2011-2031) was adopted on 29th October 2018; it sets out a spatial vision and development strategy for Great Torrington. The spatial vision provides that:

Great Torrington will develop as a self-sufficient local service centre with a vibrant, independent retail and employment offering. Great Torrington will be enhanced and promoted through tourism and leisure utilising its unique cultural heritage as well as the natural environment of the Commons. Its future will be supported through small to medium scale employment and housing development and the successful regeneration of key sites and buildings both within the historic town centre and urban fringe. A creative and dynamic community will be fostered through improved access to arts, culture and leisure facilities.

4.8 In synopsis, the Spatial Development Strategy for Great Torrington sets out a plan for:

(a) high quality, sustainable development in appropriate locations; (b) the provision of a minimum of 632 dwellings, including affordable and supported homes; (c) the redevelopment on brownfield sites and modest urban extensions to the east and south to meet the housing requirement; (d) a new primary school and enhanced early year provisions; (e) additional employment land: 4 hectares to the east of Hatchmoor Industrial Estate, and safeguarding of employment activity at the former abattoir site; (f) regeneration opportunities being actively pursued, including the former Creamery site; (g) delivering economic growth through capitalising on enhanced levels of assistance offered by the Assisted Areas Status; (h) improvement and enhancement of the town’s retail function; and (i) enhancement and promotion of the town’s heritage and cultural assets.

7 Page 101

Summary

4.9 The Plan does not seek to repeat national or local policies but, where appropriate, to add local detail to those policies. It sets out the clear wishes of the community of Great Torrington in respect of the management and control of development, to attain appropriate sustainable growth within the Great Torrington Neighbourhood Plan Area.

8 Page 102 5.0 ISSUES RAISED THROUGH COMMUNITY ENGAGEMENT

5 5.1 Local involvement and consultation is at the heart of neighbourhood planning. The Town Council started the process at the beginning of June 2014. A public meeting was held by the Town Council to explain the concept and invite volunteers. From this, a Steering Group was formed of Town Councillors and local volunteers as the Council considered it important that the Plan was not simply seen as something produced by the Town Council but as a community effort. A Consultation Statement has been prepared and accompanies the Plan, which goes into greater detail regarding the consultation process.

5.2 The Plan’s Steering Group identified a number of key issues, as a result of public consultations and household questionnaires. These are grouped under five themes: environment, housing, transport and infrastructure, community facilities and employment, which form the structure of the policy section.

Environment

5.3 The initial consultation raised that protecting and enhancing the built and natural environment should be a key focus of the Plan. This was reinforced in the second round of consultation, where a leading conclusion was that the Plan should aim to maintain the unique individuality and scenic area of the town.

5.4 An ‘area of waste called the Common’, was given to the people of Torrington in 1194. This was formalised in 1889, when the Common’s Act was presented in Parliament. ‘An Act for vesting Great Torrington in a body of Conservators’. Since then the Act has been continually updated, with the latest byelaw in 2010. The Commons today are an important feature of Great Torrington, the land adjoins the town on three sides, extending to an area of 132.6 hectares. The Commons provides substantial informal open space and contains two play areas. It is rich in flora and fauna, contains ancient woodland, and includes part of the River Torridge and the Tarka Trail, which is well used by local residents and tourists.

5.5 The Great Torrington Conservation Area extends from west to east, Castle Street to Halsdon Terrace and north to south New Street to the south of Castle Hill Car Park where it borders the Great Torrington Commons. A large number of listed buildings 9 Page 103 are contained within the Conservation Area, which reflects the town’s historic importance. The majority of the town has been built on gentle to moderate sloping land commanding a hilltop location. The steep-sided river valleys are significant constraints to future development.

Housing

5.6 The Great Torrington Town Study 20112 identified that there were 2,529 properties in Great Torrington. Currently there is a requirement in the North Devon and Torridge Local Plan for at least an additional 632 houses to be built in the Great Torrington area between 2011 and 2031. Over the period April 2011-March 2017, 104 dwellings were built in Great Torrington, therefore in respect of addressing the Local Plan requirement, there is a balance of at least 528 dwellings to be provided by 2031.

5.7 Building over the next 13 years must not only provide the appropriate type of housing, but also remain within the limits set out in the North Devon and Torridge Local Plan.

5.8 There is a significant need for affordable housing despite average property prices being less than the county average3, that such is consequent of high affordability rates locally resulting from relatively low household incomes4.

5.9 There is also a local demand for accommodation to meet the needs of an increasingly aging population5 and to accommodate households that require6 supported housing.

5.10 The above issues were raised through the consultation process where it was concluded that a main aim of the Plan should be to allow for good quality affordable housing for those who work in the town, as well as assisted living housing for the elderly.

Transport & Infrastructure

2 Great Torrington Town Study (Torridge District Council 2011) Available at: https://torridge.gov.uk/CHttpHandler.ashx?id=8280&p=0 3 2017, Torridge Profile 2017. P.28. Available at: http://www.torridge.gov.uk/CHttpHandler.ashx?id=18130&p=0 4 2009, Great Torrington Town Study. P.5. Available at: http://www.torridge.gov.uk/CHttpHandler.ashx?id=8280&p=0), 5 2008-2017 Torridge Profiles: https://www.torridge.gov.uk/article/15446/Ward-Profiles 6 Torridge District Council Urban Housing Needs Assessments: http://www.torridge.gov.uk/CHttpHandler.ashx?id=12978&p=0 10 Page 104 5.11 During the consultation period on the draft Plan, public transport and congestion in the town centre were raised as key issues.

5.12 There are regular bus services between Great Torrington, Bideford and Barnstaple. However, it is limited in respect of employment accessibility, evening travel, and connection to the outlying villages and regional centres are infrequent. Improved connections to other centres would help reduce car dependency, reduce carbon emissions and improve people’s quality of life, especially the youth.

5.13 Great Torrington is well served by walking and cycling opportunities, most significantly through the Tarka Trail and the network of paths provided across the Great Torrington Commons. Future development will need to consider how it would link with existing facilities in the town centre and established sustainable transport options. Priority should be given to the provision of a cycle link from the Tarka Trail to the town centre. Improved cycling and pedestrian links could further support the sought enhancement of the town’s tourism role and through improved modal options for residents encourage non-car borne movements that would have benefits in respect of health, climate change and congestion within the town’s network of historic streets.

5.14 There is sufficient water supply to support new development. However, it is recognised that because of the dual water run off/sewerage system found in older properties, Great Torrington has an inadequate sewerage treatment system. This is exacerbated by the large number of new housing built in recent years. South West Water has recognised this problem and given Great Torrington priority for improvement in their forward plan. The sewerage treatment systems require urgent attention irrespective of new development occurring over the plan period.

5.15 Due to the loss of part of the New Road car park and the proposed restrictions on on-street car parking within the centre, public car parking in the town centre is proving to be a major issue.

Community Facilities

5.16 Great Torrington has a good range of community facilities and services which serve the town and outlying villages. Residents in the surrounding parishes have a high dependency on Great Torrington for key services such as education and healthcare. 11 Page 105 The overall consensus during the consultation process was that people appreciate and enjoy Great Torrington as it’s ‘a very friendly town with great community spirit’, therefore it is essential that the Plan protects and enhances the community.

5.17 The North Devon and Torridge Green Infrastructure Strategy 2013-20317 determined that there is good current access to plan and amenity space in Great Torrington and that a range of open space and recreational requirements would be generated from the housing development planned for in the North Devon and Torridge Local Plan. The strategy also recognised the need for the town’s tennis courts to be refurbished. There is also a current demand8 for and future need9 for allotments in Great Torrington. Great Torrington has a good variety of leisure and recreational facilities; there will however be the need for additional facilities as the town grows over time. In terms of educational facilities, the primary, junior and infant schools are nearing full capacity and an additional primary school and early year’s provision is severely needed. Currently Great Torrington children are being bussed out to village schools. As of January 2019, the Great Torrington Bluecoat C of E primary school was at 95% of its capacity10.

Employment

5.18 It became clear during consultation that people believed employment opportunities in the town needed to improve and the Plan should encourage skill-based employment. Additionally, it was repeatedly raised that opportunities of tourism in the area should be increased and derelict sites should be redeveloped.

5.19 Employment within Great Torrington is mainly supported by businesses at Hatchmoor Industrial Estate and through the services and facilities provided throughout the town centre. Just over half of the town’s working residents, work within and around Great Torrington, with a further significant number commuting to Bideford and Barnstaple11.

5.20 Great Torrington has experienced recent limited employment development on sites allocated for economic development in the Torridge District Local Plan12. For 14 years,

7 North Devon and Torridge Green Infrastructure Strategy 2013-2031. Available at: consult.torridge.gov.uk/file/3371346 8 Great Torrington Town Council allotment waiting list 9 North Devon and Torridge Green Infrastructure Strategy 2013-2031. Available at: consult.torridge.gov.uk/file/3371346 10 2019, Great Torrington Bluecoat Church of England Primary School data. Getthedata.com. Available at: https://www.getthedata.com/school/great-torrington-bluecoat-church-of-england-primary-school-113377 11 2011, Great Torrington Town Study. Available at: www.torridge.gov.uk/CHttpHandler.ashx?id=8280&p=0 12 Torridge District Local Plan (1997-2011). Available at: https://www.torridge.gov.uk/article/11250/The- Torridge-District-Local-Plan-1997---2011-Superseded-29-October-2018 12 Page 106 a site of 4.62 hectares adjoining the Hatchmoor Industrial Estate, was allocated for economic development. The site remained undeveloped and has not been maintained as an employment allocation in the North Devon and Torridge Local Plan. The North Devon and Torridge Local Plan allocates a new 4 hectare site adjoining the Hatchmoor Industrial Estate to deliver a mix of premises to support business start-ups and expansion. Development of this site should improve employment opportunities in Great Torrington.

5.21 In addition to the Hatchmoor site, some limited opportunities for employment- based development exist on the former creamery and abattoir sites. Although both are subject to significant constraints, consequent of their previous use, it is recognised the sites have the potential to be redeveloped on a mixed-use basis in the interest of regeneration. The creamery site is subject to a Local Plan allocation (Policy GTT01), which provides for its redevelopment with a focus on housing with some employment.

5.22 Although employment growth may be limited with regard to site allocations, opportunities should be provided to support the expansion of existing businesses within the town. Regard must also be given to the economic benefit and potential to be achieved through supporting tourism, hospitality and other serviced based proposals that will not require land release on traditional industrial estates.

13 Page 107

6.0 OUR VISION - GREAT TORRINGTON NEIGHBOURHOOD IN 2031

The Vision

6.1 A friendly, welcoming town that serves the local population, rural surroundings and visitors. A thriving neighbourhood where - regardless of age, health or status - people have access to suitable housing, employment and community facilities. The stability and cohesion that are central to the character of the town have been maintained by making it attractive and safe for all ages. Innovative approaches to the challenges of the 21st century are encouraged where they enhance the highly valued natural setting. Appropriate development is supported where it is matched by the provision of relevant infrastructure.

6.2 The natural environment is managed for the benefit of residents and visitors; creating a town that is known for its natural beauty and accessible open spaces for all to enjoy.

6.3 Great Torrington will be a sustainable settlement in which to live, with sufficient and appropriate housing to meet local needs.

6.4 Transport and Infrastructure. Strong and flexible connections between the town centre and its residential surroundings are established, achieving a high level of social and economic integration. Traffic management ensures minimal congestion and adequate parking, and pedestrian infrastructure ensures accessibility for all users. Great Torrington will be an environmentally-friendly neighbourhood.

6.5 The value of community is reflected in the availability of facilities for people of all ages, including sport and recreational facilities and opportunities for artistic and creative engagement.

6.6 The economic strength of the town continues to derive from its role as an important local centre. Employment opportunities are diverse and plentiful.

14 Page 108

7.0 OBJECTIVES

7.1 In order to achieve the aforementioned vision, the community focused its objectives on five groups of key issues, they are:

7.2 ENVIRONMENT The Plan will make sure that:

 the Torrington Commons, the distinctive

rural landscape, settlement pattern and

historical nature of the town is protected

and enhanced;

 the wildlife value of the area is protected and where possible enhanced to ensure ecosystem function; and

 access to and provision of open spaces should be protected and additional, accessible open spaces provided for the benefit of people and wildlife.

7.3 HOUSING The Plan will make sure that:

 developments include a suitable mix of housing suited to local needs,7.4 includingTRANSPORT AND INFRASTRUCTURE dwellings suited to older residents;The Plan will make sure that:

 there is provision of affordable the housing number of town centre car parking spaces that meets the national definitionwill andbe maintained or increased; will be subject to a local connection; and  any new development in the neighbourhood  development will be of high quality,area will well take account of the needs of designed to fit in with the localpedestrians, area and cyclists, car users and public contribute to creating a strongservice sense of vehicles, with safety for all and carbon place. reduction being paramount;

 any new development will ensure that car parking is appropriate for the scale and context of the development;

 Great Torrington’s rural edge is retained; and15 Page 109  renewable energy initiatives are encouraged.

7.5 COMMUNITY FACILITIES The Plan will make sure that:

 support is given for proposals to create new play facilities for young people;

 proposals for new sporting and recreational facilities, including allotments, will be supported and encouraged; and

 the developers of new housing must make appropriate financial contributions towards 7.6 EMPLOYMENT new and existing community facilities. The Plan will make sure that:

 existing employment sites kept in employment use;

 the vitality of Great Torrington’s town centre is protected;

 sustainable green tourism activities are encouraged; and

 new employers are attracted, increasing local jobs.

16 Page 110

8.0 INTRODUCTION TO POLICIES

8.1 Sections 6 and 7 set out the overall vision for Great Torrington as a whole. This section sets out the policies to support and deliver the vision. The policies are grouped under the following topics:

 Environment  Housing  Transport and Infrastructure  Community Facilities  Employment

8.2 Each topic has its own Chapter. The chapters are structured in the same way for each topic and each objective is supported by a number of policies. These policies are numbered, coloured and supported by text that explains how and why the policy requirements must be met. The policies are then followed by justification statements.

17 Page 111

ENVIRONMENT

OBJECTIVE: The Torrington Commons, the distinctive rural landscape, settlement pattern and historical assets of the town are protected and enhanced.

Policy ENV1: LANDSCAPE PROTECTION

Development will be supported which demonstrates sensitivity to the distinctive landscape character of the area by retaining local features, such as mature trees, species-rich hedgerows, ponds and woodland of nature conservation, cultural and landscape value, in accordance with the principles of the mitigation hierarchy, to avoid harm wherever possible, or else mitigate, or compensate where mitigation is not possible.

8.3 Great Torrington is renowned for the Commons and Conservator Lands which contain a diverse number of flora and fauna. The steep sided Torridge river valley borders the town to the south and west with a tributary valley running east to west along the towns northern edge. The valleys accommodate much of the Great Torrington Commons. The land to the east rises and the promontory of high ground broadens out towards high

18 Page 112 Culm measures. The character of the landscape and the landforms to the south, north and west of the town as well as the presence of the Commons physically define the town and contribute to its distinctive character.

8.4 The Joint Landscape Character Assessment for North Devon and Torridge13 provides guidance for the conservation and enhancement of the areas special landscape qualities.

OBJECTIVE: The wildlife value of the area is protected and where possible enhanced to ensure ecosystem function

Policy ENV2: WILDLIFE ENHANCEMENT

Development will be supported which enhances ecosystem function and resilience, by:

a) improving connectivity between wildlife areas and green spaces; b) increasing the wildlife value of private and community land, and/or; c) creating new habitats.

8.5 Wildlife corridors are critical for the maintenance of ecological processes, including allowing for the movement of animals and the continuation of viable populations, as they form a connection between two or more larger areas of similar wildlife habitat. In addition to larger tracts of land, the NPPF notes the ecological importance of “wildlife corridors and stepping stones that connect them” within the built areas of towns. These contribute directly to the continuity and integrity of natural features and support the spread of flora and fauna within the built environment; therefore, holding significant economic and environmental value.

OBJECTIVE: Access to and provision of open spaces should be protected and additional, accessible open spaces provided for the benefit of people and wildlife.

Policy ENV3: ENHANCE THE GREEN INFRASTRUCTURE OF THE PARISH

Development proposals providing and/or enhancing green infrastructure that benefits the community and environment will be supported, whether as an essential mitigation justified by the impact of that development or as a standalone green infrastructure proposal.

13 2010, Land Use Consultants. Joint Landscape Character Assessment for North Devon & Torridge Districts. Available at: : https://www.torridge.gov.uk/article/11273/Joint-Landscape-Character-Assessment-for-North- Devon-and-Torridge-Districts 19 Page 113

8.6 The NPPF defines green infrastructure as a network of multi-functional green space, urban and rural, which is capable of delivering a wide range of environmental and quality of life benefits for local communities.

8.7 Enhancing green corridors will provide, not only for wildlife, but where possible, multi- functional green space, which can deliver a wide range of quality of life benefits for the local community in order to achieve our vision. Enhanced green infrastructure will provide residential amenity space, therefore development that impacts amenity value will only be supported where similar amenity value is provided on site.

OBJECTIVE: To retain Great Torrington’s rural edge.

Policy ENV4: DARK SKIES

Development which respects the area’s dark skies, takes account of the town’s position in the landscape and light pollution will be supported.

8.8 It is desirable to minimise new light sources, development proposals should fully incorporate sensible lighting schemes. Lighting schemes can be costly and difficult to change, so getting the design right and setting appropriate conditions at the planning stage is important.

8.9 Devon County Council (DCC) is currently replacing 33% of its lanterns with LED’s. With regard to turning lights off, DCC have been implementing the Part Night Policy since January 2010. This policy allows for street lights to be turned off for a period of 5 hours from approximately 12:30 each night and equates to approximately 45,000 street lights. In addition, LED’s installed on the main roads have a stepped dimming profile, which allows for light levels to drop to 75% of output from 21:30 to 12:00 and then to 50% until 05:00, whereon they will rise back to 75% until 06:00 and 100% until dawn.

OBJECTIVE: To encourage renewable energy initiatives.

Policy ENV5: RENEWABLE ENERGY

Developments which use passive solar gain and/or incorporate renewable energy generation will be supported.

20 Page 114 8.10 Within development, the use of renewable energy should be encouraged, along with its benefit to reducing energy costs. This policy would reduce the retrofitting of solar panels which can spoil the look of established housing.

8.11 The benefits arising from renewable energy and the need for a positive context for development are recognised, but landscape considerations are also relevant. This policy takes account of the unique character of the landscape, as all proposals involving the use of renewable energy measures should consider the impact on local character including views, the amenity of neighbours, heritage assets, highway safety and nature conservation.

8.12 This policy also recognises the importance of renewable energy in contributing to national carbon reduction targets.

HOUSING

OBJECTIVE: The Plan will make sure that developments include a suitable mix of housing suited to local needs, including dwellings suited to older residents.

Policy H1: HOUSING TYPES

Development providing four or more residential units shall provide a mix of housing types which reflects identified housing needs.

8.13 In order to support a balanced community, housing should meet the needs of local people. The mix of house types and tenures will be based on the most up-to-date evidence at the time an application is made, which will aim to ensure a reasonable balance. Additionally, regard should also be had to the site’s context where this might have an influence on the choice of and/or opportunity for a particular mix of housing types.

21 Page 115 8.14 Applicants will need to demonstrate how they have considered and addressed wide ranging housing needs, including those of older households and young families; the mix of which should be informed by strategic or local evidence. Older households would include at least one adult 65+ and young families would include at least one child under the age of 18.

8.15 The Joint Needs Assessment14 recognises there is a growing ageing population in Great Torrington and that one-bedroom dwellings are in demand. Many residents are content to continue into retirement in their current homes, whilst other seek alternative housing in the town, such as smaller dwellings and sheltered dwellings, mainly single storey and with modest gardens.

OBJECTIVE: The provision of affordable housing that meets the national definition and will be subject to a local connection.

Policy H2: ALLOCATION OF AFFORDABLE HOUSING

Affordable housing provision shall be prioritised for occupancy by those: a) with a strong connection to the Plan area or surrounding parishes, and; b) whose needs are not met by open market housing, being given first option to take tenancy or shared ownership.

8.16 Affordable housing means housing provided for households whose needs are not met by the local housing market and defined as ‘Affordable housing’ in Annex 2 of the NPPF (or any subsequent revised definition provided through updated national planning policy or guidance).

8.17 Surrounding parishes include: Huntshaw, St Giles in the Wood, Little Torrington, Frithelstock, Monkleigh and Weare Giffard.

8.18 The occupation of affordable housing will be restricted to households in need of affordable housing, and in the first instance priority will be given to those applicants with a local connection to Great Torrington and the surrounding parishes at least one of the following criteria required to be met by prospective occupants:

14 2008, Housing Vision. Strategic Housing Market Assessment for the Northern Peninsula. 2012, Housing Vision. Strategic Housing Market Assessment: Torridge and North Devon Update. 2016, GL Hearn. Housing and Economic Needs Assessment. Available at: 22 Page 116 (a) at least one adult in the household was resident continuously for a minimum of five years immediately prior to occupation; (b) at least one adult of the household was resident for five years within the previous ten years immediately prior to occupation; (c) at least one parent, guardian, child or sibling, of at least one adult in the intended household, has been resident for a minimum of five years immediately prior to occupation; or (d) at least one adult in the household has been in continuous employment for at least 16 hours a week in Great Torrington or the surrounding parishes for at least five years immediately prior to occupation.

8.19 Starter homes and family homes with adequate gardens or shared greenspace are priorities for the community to retain and attract young families. There is a need to provide more 'affordable housing' for local people, particularly social rented housing stock for lower income families. The community supports this – feedback from early consultations identified that the lack of affordable local housing was a big problem. Respondents know local people in housing need, know people who have moved away unable to meet their housing needs, think that young people should be able to remain in the community, but that local wages mean people cannot afford decent housing.

8.20 Affordable housing should generally be provided on-site and must be fully integrated with the market housing throughout the development. Affordable housing must be visually indistinguishable from the market housing.

OBJECTIVE: The Plan will make sure that development will be of high quality, well designed to fit in with the local area and contribute to creating a strong sense of place.

Policy H3: DESIGN AND LAYOUT

Having regard to site character and context, residential development shall, where practicable, provide: a) domestic curtilage/garden in the form of private amenity space screened from public view at a level commensurate with the size of the dwelling it serves, and; b) parking space between buildings which ensures such provision does not dominate the street scene.

8.21 New housing, including conversions and the development of individual plots in Great Torrington, will be required to meet the criteria set out in Policy DM04: Design

23 Page 117 Principles of the North Devon and Torridge Local Plan15. The NPPF and Local Plan attach great importance to good quality design. Similarly, the community, through consultation unanimously said that the town should be protected from inappropriate development, its setting should be safeguarded, and that new development should be of an appropriate scale and form.

8.22 Given the landscape character and heritage quality of Great Torrington, if new housing is going to be successfully incorporated into the town, particularly on its periphery, we have to address the quality of design and local distinctiveness. The Design and Access Statements of new development proposals will be expected to demonstrate how the provisions of this policy are addressed.

8.23 Amenity space is an essential part of the character and quality of the environment of residential properties. Garden space should not be reduced to a point where it is out of scale or fails to meet the present and future occupiers need for adequate useable private amenity space. All residential properties require some in-curtilage private open space, usually to the rear, compatible with the overall size of the plot, for normal domestic activities, such as, bin storage, clothes drying, sitting out and play space. This space should enjoy a high degree of privacy from the public street and from any other public places. The appropriateness of private amenity space provided with residential development will be considered having regard to national guidance16 and as relevant supplementary planning guidance prepared by the District Council.

15 North Devon and Torridge Local Plan (2011-2031). Available via: https://consult.torridge.gov.uk/portal/planning/localplan/adoption/ 16 National Design Guidance (MHCLG). Available at: https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/843468/ National_Design_Guide.pdf 24 Page 118

TRANSPORT & INFRASTRUCTURE

Policy T1: PARKING

Development generating a need for parking shall make: a) adequate provision for on-site parking, to meet anticipated needs, and; b) compensatory provision within a short walking distance for spaces lost from on- street parking or existing car parks at South Street, Barley Grove and/or New Street (as identified on the two maps below).

OBJECTIVE: The number of town centre car parking spaces will be maintained or increased.

8.24 The town centre is surrounded by narrow streets with limited parking, such as Warren Lane, Well Street, New Street and Town Parks, which are used by commuters and local residents. At certain times, there is high pressure on available parking in the town.

8.25 The car parking concerns in Great Torrington were raised during the application for a new Waitrose in the town in 2014 (please see appendix C).

8.26 The issue of car parking was also frequently raised during the consultation phase of The Plan’s preparation. The initial consultation questionnaire asked, ‘how do you rate the car parking facilities in great Torrington?’ In response to this, approximately 70% of respondents deemed the car parking facilities to be inadequate, poor or average. Additionally, an exhibition was held at the Plough Arts Centre, where

25 Page 119 exhibition boards asked, ‘What do you dislike about Great Torrington and what would you like to change?’. One of the most frequently raised issues was the level of congestion in the town centre. Congestion in Great Torrington is worsened by the level of on-street and illegal parking. The provision of additional, and the protection of the existing, off-street parking would begin to tackle this issue.

8.27 The two existing public car parks (South Street and Barley Grove) are essential to the social and commercial wellbeing of the town, providing easy access to shops, business, churches and other social clubs situated in the town centre and adjacent areas. These car parks are already subject to volatility in terms of parking numbers and often reach full capacity when there are social or church events organised. Furthermore, the opening of the Town Hall as a venue for weddings and other large events, the growth of tourism in the area and the continuing increase in population, will contribute to added pressure on parking capacity.

8.28 In accordance with Policy T1, any compensatory car parking provision required to account for spaces lost due to development should be provided within a short walking distance of those spaces that are lost. A short walking distance is taken to be a maximum of 480m (equivalent to a 10 minute walking time) from the lost spaces, as measured along a route accessible and safe to pedestrians.

8.29 The reuse of the sites of redundant garages could make a useful contribution to increasing public parking spaces.

26 Page 120 SOUTH STREET AND BARLEY GROVE CAR PARK

NEW STREET CAR PARK

27 Page 121 OBJECTIVE: Any new development in the neighbourhood area will take account of the needs of pedestrians, cyclists, car users and public service vehicles, with safety for all and carbon reduction being paramount.

Policy T2: PEDESTRIANS AND CYCLISTS

All major development shall make adequate on-site and off-site provision for pedestrians and cyclists, creating or contributing to the creation of safe and attractive walking and routes (by enhancing existing or creating new paths) particularly to the town centre, main employment centres and schools. Pedestrian and cycling routes shall seek to:

 keep road crossings and changes in level to a minimum;  be suitable for those with wheelchairs, frames, buggies or other mobility aids;  be separated either physically or with lane markings, and;

Proposals to provide a designated cycle route linking the Tarka Trail to the town centre will be supported.

8.30 Feedback from consultations showed considerable support for making roads safer and more attractive routes for cyclists. Many of the roads in the area are narrow and carry a lot of vehicle traffic, making it difficult to create safe cycle routes, especially on routes that children use to and from school.

8.31 A “major development” is defined as development involving one or more of the following: (a) the provision of housing where— (i) the number of homes to be provided is 10 or more; or (ii) the development is to be carried out on a site having an area of 0.5 hectares or more and it is not known whether the development falls within sub-paragraph (a)(i); (b) the provision of non- residential development where: (i) additional floorspace of 1,000m2 or more, or (ii) development on a site of an area of 1 hectare or more.

8.32 Where a new major development takes place, it is a priority for the proposal to include safe and convenient pedestrian and cycle routes to and/or through the site. Creative and innovative measures will be encouraged. The layout of a development and the quality of connections it provides can make a significant impact on walking distances and people’s travel choices.

8.33 The main employment centre to which the provision of walking and cycling routes will be encouraged is Hatchmoor Industrial Estate. The industrial estate provides the base for a range of manufacturing and service-based industries. 28 Page 122

OBJECTIVE: Any new development will ensure that car parking is appropriate for the scale and context of the development.

Policy T3: RESIDENTIAL PARKING

a. Residential parking provision should be designed to meet the anticipated needs of residents and visitors alike, well integrated and accessible to encourage maximum usage, based on the following minimum levels per dwelling:

On-site/allocated Cycle parking/storage parking/garage spaces spaces provided per per dwelling dwelling 1 Bed 1 1 2 Bed 2 2 3 Bed 2 2 4 Beds + 3 2

b. developments shall include a minimum of one visitor parking space per four dwellings with one in ten of such spaces a minimum of 3.6m wide, to accommodate the needs of young families and disabled users. c. development with lower provision may be considered acceptable in areas of high accessibility or where the type of residential development proposed is likely to generate less demand (such as sheltered accommodation and/or in town centre locations) when applicants will be required to demonstrate the proposed level of parking provision would be unlikely to result in increased demand for parking in the surrounding area or that sufficient capacity or alternative provision is available (e.g. in public car parks).

8.34 Great Torrington is served by a number of bus services; however, these are limited in respect of evening and weekend travel and employment accessibility between surrounding villages and Great Torrington17. The closest railway station is located in Umberleigh, 7 miles away. The Town Study18 reports that 48% of the working population from Great Torrington commute to destinations outside of Great Torrington, within and beyond the district and county boundaries. These factors combined result in high levels of private car dependency and a need for residential parking. The 2011 Census shows that in Great Torrington, 47% of households have one car or van and 30% of households have two cars or vans. The Plan’s parking standards reflect these local factors and seek to make sure that new development

17 2011, Great Torrington Town Study. Available at: www.torridge.gov.uk/CHttpHandler.ashx?id=8280&p=0 18 2011, Great Torrington Town Study. Available at: www.torridge.gov.uk/CHttpHandler.ashx?id=8280&p=0 29 Page 123 does not add to the current levels of congestion caused by on-street parking. The standards will be applied to take account of Policy DM06: Parking Provision in the North Devon and Torridge Local Plan19.

8.35 Areas of high accessibility will be identified as those areas that are within 400metres of regular public transport links.

8.36 While the aim is to reduce car use in order to mitigate the effects of climate change and depletion of finite resources, this mode of transport will still be essential for many in the coming years. Parking was raised as a major issue during consultations.

8.37 Many of the roads in the area are narrow and/or heavily trafficked and the increase in on-street parking in recent years is adding to traffic congestion and represents a safety risk to pedestrians and other road users, it also presents a challenge to access for service and delivery vehicles. Providing sufficient space to accommodate visitor’s vehicles will prevent this problem worsening.

8.38 The planning portal residential parking standards20 set out the car parking provision required for residents in developments on green-field sites or in low-density areas. The total requirements given include spaces for visitors. During all phases of the consultation process it was repeatedly raised that providing accessible homes for the elderly and those with disabilities should be a priority of the Plan. In order to ensure a good quality of life and the safety of these residents, wider car parking spaces should be considered a necessity.

COMMUNITY FACILITIES

OBJECTIVE: Priority will be given to providing appropriate facilities for young people.

19 North Devon and Torridge Local Plan (2011-2031). Available via: https://consult.torridge.gov.uk/portal/planning/localplan/adoption/ 20 Parking Standards Annex A: Residential Parking Standards. Available online at: https://www.planningni.gov.uk/index/policy/planning_statements_and_supplementary_planning_guidance/s pg_other/parking/parking_standards_annexes/parking_standards_annexa.htm 30 Page 124

OBJECTIVE: Proposals for new sporting and recreational facilities, including allotments, will be supported and encouraged

OBJECTIVE: The developers of new housing must make appropriate financial contributions towards new and existing community facilities.

Policy CF1: COMMUNITY FACILITIES

Proposals which provide new, replacement and/or enhanced sport and recreational facilities, including allotments, will be supported where: a) they would enhance the range and quality of facilities within the town; b) they would not be detrimental to the character of the area or the amenity of any nearby residential property; c) their flexible design ensures different need groups and activities are accommodated, and; d) any loss of open space, sport and/or recreational facility is replaced to an equivalent or improved standard, whether on or off-site, with no reduction in accessibility, within a reasonable timescale to ensure continuity of use, and; e) where on-site provision is not possible or appropriate, alternative off-site delivery or provision will be sought through financial contributions of broadly equivalent value. Development proposals that affect public rights of way and other recreational routes will be supported only where there is no overall loss of connectivity or reduction in accessibility both of and to the public right of way or recreational route.

8.39 The loss of the Eric Palmer Centre over 10 years ago created a gap in community provision of facilities for use by local organisations. However, there are still a large number of organisations for young people functioning in Great Torrington. These groups meet in the following locations: Torridge Vale Social Club, the Scout Hut, hut in the grounds of GTS, GTS sports hall, Bluecoat School, the Rugby Club, the Football Club and The Plough.

8.40 There are community facilities at Castle Hill including the library, the Tourist Office and the Town Council offices. These last include a room that can be rented out on the first floor with and overhead projector. The 1646 Cafe on the ground floor would potentially benefit from daytime rentals in the above room. The space formerly used by 1646 is now fully refurbished and has become the Castle Community Centre.

31 Page 125 8.41 Funding has now been secured via the Atlantic Racquet Centre Community Charity to enable the Torrington Tennis Courts to be enhanced. These improvements include resurfacing the courts, reinstalling the floodlights, renewing the fencing, building a small clubhouse, installing electronic gated access and gaining access through the football club.

8.42 Sports facilities not already mentioned, include the Rugby Club at Donnacroft and Function Fitness, a privately-run facility in the former Eric Palmer Centre, which provides a gym and a variety of classes and the Boxing Club, which used to be at the Eric Palmer Centre but now meets five nights a week in its own facility above the Torridge Vale Social Club.

8.43 The army cadets meet in their own hut within the grounds of GTS. The Bluecoat Primary School also acts as a community resource to, for example, Allsorts who meet there on Fridays, and to Streetz. There are a number of rooms to hire in local pubs, in the Conservative Club and attached to local churches.

8.44 Arts facilities include the Plough which runs a wide range of arts related activities for young people and adults. The Plough is hoping to use the Town Hall, when refurbishment is complete, to extend the activities it can offer. The Howe Hall is owned by the Torrington Silver Band who rehearse and perform there. The Howe Hall is also available to hire from the Torrington Silver Band.

8.45 This shows there are already many activities available to young people (and adults) and a good selection of venues where they can meet. However, some are not ideal. For example, one organisation, Streetz, meets in several different venues and would benefit from one centre where it could store its equipment.

8.46 Access to community resources such as voluntary groups and befriending services should be encouraged in the community to reduce isolation and promote positive wellbeing. These services are supported where possible to enable sustainability.

EMPLOYMENT

OBJECTIVE: Increased economic development opportunities through the use of appropriately 32 Page 126 located previously developed land.

Policy EM1: EMPLOYMENT DEVELOPMENT

Economic development proposals on previously developed land within the continuous built-up form of the town of Great Torrington will be supported where there are no substantial adverse impacts on neighbouring uses.

8.47 In 2011 unemployment in Great Torrington increased to levels higher than those experienced across Torridge and Devon County21. Historically, the town has experienced high levels of unemployment that resulted from the closure of the Dairy Crest Creamery and North Devon Meats and through the down scaling of manufacturing at Dartington Crystal. Unemployment levels have improved in recent years and are now reflective of levels across Torridge22.

8.48 The NPPF sets out a policy of 'brownfield sites first', stating that "Planning policies and decisions should promote effective use of land in meeting the need for homes and other uses, while safeguarding and improving the environment and ensuring healthy living conditions. Strategic policies should set out a clear strategy for accommodating objectively assessed needs, in a way that makes as much use as possible of previously-developed or ‘brownfield’ land." Sites such as the Creamery are now infamous as a local eyesore and are the focus of a series of unrealistic planning applications. Its continuing presence is inconsistent with the Spatial Vison for Torrington (above), its economic and cultural aspirations.

8.49 Local Government in this district is under pressure from National Government to provide more land for housebuilding. Anecdotal evidence from various professionals suggests that owners of land designated for business use keep rents or purchase prices high to discourage applicants in the hope that the land will be re-designated for housebuilding and thus increase in value.

OBJECTIVE: The vitality of Great Torrington’s town centre is protected.

Policy EM2: RETAIL DEVELOPMENT

Retail development within the defined town centre boundary will be supported provided it:

21  is not of such a scale that it is likely to adversely affect the viability of existing 2011, Great Torrington Town Study. Page 7. Available at: consult.torridge.gov.uk/file/3371256 22 retail enterprises; 2017 Torrington Ward Profile (TDC): https://www.torridge.gov.uk/CHttpHandler.ashx?id=18050&p=0  complements existing retail provision; and 33  demonstrates the potential to sustainPage and/or 127 extend the range of retail choice.

8.50 The town centre boundary is that defined in the North Devon and Torridge Local Plan23, as defined on the local authorities’ Policies Map, which also defines a, Primary Shopping Area, which is the area predominantly occupied by main town centre uses.

8.51 Consultations and anecdotal evidence indicate a perception by some residents and businesses that ‘the town is dying’. Monitoring24 by the District Council indicates vacancy rates ranging from 4.7%-9.57% over the period 2011-2019, within the Town Centre; 9.57% being the vacancy rate at June 2019, which was just below the national average of 10%. Out-of-town and internet shopping are well-known and are considered to represent a continuing threat to small town businesses

8.52 Great Torrington is rated fourth highest of the least cloned towns in the UK on the Clone Town Britain Index, just above Crediton. This is a measure of the identity and diversity of outlets on the high street; the Index indicates towns with thriving independent shops, cinemas, restaurants and markets. Summarising the research contained in this study, the authors state that: ‘…. diversity matters for local economic resilience. Locally rooted, independent retailers relate differently to the communities they serve. In economic terms, more of the money spent in them is liable to stay and re-circulate in the local area. They are more likely to support other local businesses too, rather than procuring the goods and services they need from other remote national and international suppliers. In difficult times, locally rooted stores are also more likely to go to greater lengths to remain open, doing whatever they can to keep trading’25.

8.53 The predominance of independent shops together with the architectural character of the Town Centre is an asset which attracts visitors and inspires loyalty amongst residents. A study by the New Economics Foundation also notes that: ‘Where large clone stores dominate, research shows that people become less engaged with community life. They have fewer conversations while out shopping and can even be less likely to vote. Human relationships and the quality of civic life suffers’26.

23 North Devon and Torridge Local Plan (2011-2031) Torrington Policies Map. Available via: https://consult.torridge.gov.uk/portal/planning/localplan/adoption/ 24 Torridge and North Deon and Torridge Authority Monitoring Reports (2011/2012-2018/2019) Available at: https://www.torridge.gov.uk/Authority-Monitoring-Report-AMR 25 Reimagining the High Street. New Economics Foundation, 2010, p.2. 26 Reimagining the High Street. New Economics Foundation, 2010, p.2. 34 Page 128

OBJECTIVE: Sustainable green tourism activities are encouraged.

Policy EM3: TOURISM AND HOSPITALITY

Development proposals will be supported where they would: a. improve and/or extend existing tourism and hospitality facilities, or; b. support the enhancement of or not prejudice the future development of the Tarka Valley Railway project.

8.54 Public consultation indicates the need for a hotel; the proportion of people from Torrington who are employed in hotels and restaurants is below the average for Torridge (5.5% / 9.8%)27. A sustainable tourism strategy requires a range of accommodation to meet the diverse needs of visitors to the area. Paragraph 10.213 of the North Devon and Torridge Local Plan confirms that tourism is a significant contributor to the area’s economic position and a sector which is recognised as having growth potential.

8.55 Tarka Valley Torrington Railway are developing a site around the original Torrington railway station as the hub for part of the revived North Devon Line, now called the Tarka Valley Railway. The first phase of the development will reinstate approximately 300 yards of line from the existing line alongside the station and provision of two sidings on one side of the former station yard. Further phases will gradually extend the running line northwards towards Bideford. The attraction of the reinstated railway along part of the trackbed will bring more people to use the recreational facility of the Tarka trail, to visit the station and railway at Torrington. Some of these people will wish to experience a journey on a rural branch line through the beautifully scenic valley of the river Torridge. Many of these people will be visitors to the area who will be encouraged through local publicity to visit other attractions in the area and so increase the tourist footfall in the locality.

OBJECTIVE: New employers are attracted, increasing local jobs.

Policy EM4: OPPORTUNITIES FOR EMPLOYMENT

Expansion of business and employment provision in appropriate locations will be supported where it can be demonstrated that there would be no consequent substantial adverse impact on residential living conditions and/or highway safety.

27 2011, Great Torrington Town Study. Page 6. Available at: consult.torridge.gov.uk/file/3371256 35 Page 129

8.56 The consensus from consultation with local business leaders is that Torrington needs to move on from its manufacturing past and promote itself as a location for a new range of businesses. Recommendations include establishing itself as a home for niche businesses such which are less dependent on the road network but benefit from good broadband connections; care and personal support services which will see significant growth in line with projected growth in the older population; and hospitality and tourism services which will support the planned growth in tourism as a major sector in the south-west economy.

8.57 Consultation proposes indicated that businesses that co-locate and/or work in similar product areas can develop local networks and foster a climate of economic growth, which helps to attract other businesses to the area. Having more full-time workers in and around the Town Centre will increase the use of local shops and other retail businesses.

8.58 The following development proposals to provide opportunities for local employment shall be viewed favourably, subject to other policy conditions, including the locational qualifications set out it in the North Devon and Torridge Local Plan:  a range of small and medium sized business, including those working in technology, arts/media, niche industries and internet marketing;  the establishment of business ‘hubs’ with shared services and business support;  agriculture, market gardening and other horticultural enterprises  social enterprises, particularly where there are tangible benefits to the neighbourhood; and  commercial developments which offer full-time employment, including live/work’ units which incorporate accommodation for owners and partners.

36 Page 130 9.0 SITE ALLOCATIONS

Policy SA01: LAND FOR CEMETERY EXPANSION

The approximately 2.5ha site identified in Policy Map 1 ‘Land for Cemetery Expansion’ shall be reserved for future cemetery provision.

Policy Map 1: Land for Cemetery Expansion

9.1 The cemetery was established in 1854 by the Great Torrington Burial Board. The site occupies about 2.5 hectares, and is bounded by stone walls, banks and hedges. It slopes from the southern boundary and has views over Great Torrington Common.

9.2 The allocation is located to the east of the existing cemetery. There is a need for the cemetery to expand as there are only 7 remaining years of burial space (based on Town Council records) and this parcel of land allows for a natural extension. As part of this allocation, the footpath onto the Commons must be retained.

37 Page 131 Policy SA02: LOCAL GREEN SPACES

The areas at Jubilee Wood and Rack Park identified on Policy Map 2 ‘Jubilee Wood’ and Policy Map 3 ‘Rack Park’ are designated as Local Green Spaces and any development proposals within their boundaries will be required to protect and enhance the quality of these spaces and the contribution they make to community recreation.

Policy Map 2: Local Green Space - Jubilee Wood

38 Page 132

Policy Map 3: Local Green Space - Rack Park

Local Green How the sites meet the NPPF criteria Space Jubilee This greenfield site lies directly behind a residential development and the Wood development boundary, with the north side of the site bordering the Commons. Jubilee Wood is a stepping stone from the open space within the town to the Commons. It is an important green space as the nearby modern houses have small gardens, meaning the site provides a recreational space for the residents. The site is valuable to the local community as the Woodland Trust has been spearheading a national project to create Jubilee Woods of various sizes. This land has been identified as suitable for the ongoing planting of trees. As the land slopes, the bottom part is for tree planting, whilst the upper flatter area could be used to create a wildflower meadow. The whole area is for community led planting initiatives. The site is now owned and managed by the Town Council, with ongoing enhancements planned.

Rack Park The site is located south of New Street and in a residential area of Great Torrington. Rack Park is an open space community facility, which is used by all. The site is of historical importance as it was used for the drying of sheep skin in the 16th Century. Rack Park has a locally significant outlook.

39 Page 133 Policy SA03: SITE NORTH OF NEW STREET

Residential proposals on the “Site North of New Street”, identified on Policy Map 4, will be supported, provided they are of a high quality design that respects the local character, including in the use of external materials.

Policy Map 4: Site North of New Street

9.3 To the north, south and east of the site are existing housing, to the west are other long back gardens. The access road is located off Town Park to the north of the site which is reached by either Stonemans Lane or School Lane. This access road serves a number of dwellings and garages.

40 Page 134 Policy SA04: SHEPERD’S HAM ALLOTMENTS

This site identified on Policy Map 5 as ‘Sheperd’s Ham allotments’ shall be safeguarded for allotment use.

Policy Map 5: Sheperd's Ham Allotments

9.4 The site abuts the town, adjacent to the allocated old Creamery site and is accessible both by numerous footpaths and the Rolle Road.

9.5 There are currently 13 people on the waiting list for an allotment in Great Torrington. This number is likely to increase as the population of the town increases.

41 Page 135 10.0 IMPLEMENTATION AND MONITORING

10.1 When the Plan forms part of the development plan for the area, its policy provisions will be considered alongside the relevant policies of the North Devon and Torridge Local Plan, when development proposals located in the Parish of Great Torrington are subject to consideration.

10.2 Implementation of this Plan will depend on the co-ordinated activities of a number of agencies. It is essential that necessary infrastructure is provided in a timely manner related to the needs of new development. The precise timing and phasing of infrastructure will be managed by the relevant bodies (see appendix B) but the underlying principles will be to provide an attractive and sustainable community.

10.3 The Town Council will monitor the delivery of the policies in this Neighbourhood Plan, and work to ensure that the objectives of gaining the benefits for the community of Great Torrington are achieved. If appropriate, the Plan will be reviewed and revised.

42 Page 136 APPENDIX A- GLOSSARY

Affordable Housing Housing provided for households whose needs are not met by the local housing market and defined as ‘Affordable housing’ in Annex 2 of the National Planning Policy Framework (or any subsequent revised definition provided through updated national planning policy or guidance). Assisted Areas Areas defined by the Government where regional aid can be offered to undertakings, typically businesses, under European Commission state aid rules. Biodiversity The whole variety of life on earth. It includes all species of plants and animals, their genetic variation and the ecosystems of which they are part. Previously An area of land or premises that has been previously used, but Developed Land has subsequently become vacant, derelict or contaminated. Development Plan The Development Plan sets out land use planning policies and development proposals against which planning applications will be considered. The Development Plan comprises adopted Local Plans, Neighbourhood Development Plans waste and minerals plans. Ecosystems Environments consisting of all living things in a particular area and the non-living things with which they interact such as soil, air, water and sunlight. Green Infrastructure Green infrastructure is a network of multi-functional green space, urban and rural, which is capable of delivering a wide range of environmental and quality of life benefits for local communities. Green infrastructure includes parks, open spaces, playing fields, woodlands, street trees, allotments and private gardens. Infrastructure A collective term for services such as roads, electricity, sewerage, water, schools, health facilities, flood defences and types of green infrastructure. Local Planning The public authority whose duty it is to carry out specific Authority (LPA) planning functions for a particular area. Material Any consideration relevant to the use and development of land Considerations and which is taken into account in determining a planning application. National Planning The Government's planning policies for England and how they Policy Framework should be applied. (NPPF) Open Space All space of public value, including public landscaped areas, parks, allotments and playing fields, and also including, not just land, but also areas of water, such as rivers, lakes and reservoirs, which offer opportunities for sport and recreation or can act as a visual amenity.

43 Page 137 Strategic The European SEA Directive requires a formal environmental Environmental assessment of certain plans and programmes which are likely to Assessment (SEA) have significant effects on the environment. Local authorities are advised to take an integrated approach towards Sustainability Appraisal and Strategic Environmental Assessment to avoid unnecessary duplication and confusion. Together they will play an important part in testing the soundness of Local Development Documents, ensuring that they contribute towards sustainable development objectives. Strategic Housing A study into the long-term housing demand, supply and needs of Market Assessment a market area. A market area can be defined as the geographic (SHMA) area within which the majority of households move. Sustainable Sustainable communities “meet the diverse needs of existing and Communities future residents, their children and other users, contribute to a high quality of life and provide opportunities and choice. They achieve this in a way that makes effective use of natural resources, enhance the environment, promote social cohesion and strengthen economic prosperity” (source: The Egan Review; skills for sustainable communities, ODPM 2004). Viability Viability is the capacity of a centre to achieve the commercial success necessary to sustain the existence of the centre.

44 Page 138 APPENDIX B- RELEVANT BODIES

STATUTORY CONSULTEES

 Environment Agency  Natural England  English Heritage  Coal Authority  Network Rail  Highways Agency  Adjoining local authorities  Parish Councils (including those which adjoin the District in neighbouring local authority  areas)  Relevant county authorities  NHS  Devon and Cornwall Police  The Homes and Communities Agency  The Marine Management Organisation  Relevant electronic communication companies, such as BT and Virgin Media  Relevant electricity and gas companies  Relevant sewerage and water undertakers, such as South West Water

DUTY TO CO-OPERATE BODIES

 The Environment Agency  English Heritage  Natural England  The Civil Aviation Authority  The Homes and Communities Agency

45 Page 139  Clinical Commissioning Group  NHS England  Integrated Transport Authority  Highways England  The Marine Management Organisation  Local Enterprise Partnership  Local Nature Partnership

46 Page 140 APPENDIX C- CAR PARKING CONCERNS (WAITROSE APPLICATION 2014)

Waitrose application: Concerns about car parking in Torrington

“85% of Torrington’s food expenditure is going to supermarkets elsewhere.” “Sydney House car park rarely has more than 80 cars parked at any one time”. These two statements, which still appear today on the Waitrose Torrington website, are both completely untrue, yet they have influenced three key documents: the planning application for the development, the proposed car park agreement between Waitrose and Torridge District Council and the views of County Highways in their response to the application. In fact, Sydney House car park regularly has well in excess of 100 vehicles parking there at any one time on a Saturday. On a recent Saturday evening, by about 8pm, there was nowhere at all to park in the town centre. Sydney House, Barley Grove and the unofficial parking space in School Lane were all full, as were all the streets. There were some 340 cars in the three car parks and along South Street / Halsdon Terrace / Whites Lane. These visitors must have brought a huge amount of income to the town. In their current configuration the two Council car parks would probably have just coped with the influx of visitors if part of Sydney House hadn’t been fenced off. If the supermarket were built there would be just 281 parking spaces available to accommodate those 340 cars. Traffic restrictions along South Street / Halsdon Terrace / Whites Lane and the loss of free parking on the derelict transport depot at some point would leave the town centre with much reduced parking capacity. This would be before even one person parks to shop or work at the supermarket. We have now heard that parking in the proposed supermarket car park, about half of the town centre capacity, would be limited to 2 hours at the weekend – and this limit would also apply outside of the charging period. The property services manager at Torridge has stated “This is to enable a turnover of vehicles in the shoppers’ car park and hence the easy access to the store for shoppers as clearly at the end of the day Waitrose are a business”. Torridge District Council has signally failed to appreciate the importance of Sydney House car park to the town centre shops, attractions and community. The traffic assessment for the town, submitted by the developer and used by County Highways to make their response to the planning application, is full of errors and misleading information, including the claim that, at peak demand, Sydney House car park would be only 70% full. We request that Torridge District Council commission a fully independent traffic and parking study for the town before this planning application goes any further, so that the town’s needs and concerns, not just those of the developer, are taken into account.

(A version of this document was presented to Torrington Town Council on 4.12.14)

Car park numbers Saturday 29th December 2014. Approx 8pm

47 Page 141 Car park numbers

Sydney House* 160

Barley Grove 70

School Lane 80

South St / Halsdon Tce / Whites Lane 30

Total 340

Post-development parking capacity Sydney House Zone A (supermarket - time limited parking) 136 Sydney House Zone B 75 Barley Grove 70 Total 281

*Sydney House car park capacity reduced due to archaeological excavations.

www.savetorringtonskyline.org

48 Page 142 Agenda Item 10

REPORT OF Planning and Economy Manager To: Full Council Subject: Northern Devon Destination Management Organisation Date: 2nd November 2020 Reference:

PURPOSE OF REPORT:

This report seeks the views of the Committee on a proposal to form a dedicated Destination Management Organisation (DMO) for Northern Devon

1. INTRODUCTION

1.1 As part of the Council’s Covid recovery efforts, North Devon + have been looking at the option of establishing a Northern Devon DMO, focussed on the tourism sector in this area.

2. REPORT

2.1 The attached paper gives a background to the role of a DMO and the potential advantages that it might bring to the northern Devon area. As the paper sets out, tourism is a major financial driver for the area, supporting not just our coastal communities but also our town centres. A DMO may well assist in developing a strategic approach to the “offer” of the area.

2.2 At this stage final approval for the setting up of a DMO is not being sought. There is a lot of work involved in the setting up of a DMO and the first step is to ensure that it is something that is needed and required by the sector. If Members agree, the first step will be to seek external funding to take the proposal to the viability stage, including an element of initial consultation with the sector.

2.3 The proposal has been discussed with the North Devon Marketing Bureau who are supportive and see their organisation working in a complimentary way with any new DMO.

2.4 If the proposal progresses, further reports to Committee will follow.

2.5 A report with the same contents and recommendations as are within this report is being presented to North Devon Council on the 5th November 2020

3. IMPLICATIONS

Legal Implications N/A

Financial Implications

It is estimated that the cost of taking this proposal forward may be in the region of £80,000. Efforts will be made to secure external funding and at this time there is no request for financial assistance from the Council.

Page 143 Human Resources Implications Within existing officer capacity

Sustainability/Biodiversity Implications N/A

Equality/Diversity

N/A Risk Management

N/A Compliance with Policies and Strategies

Proposal is in line with the Council’s Strategic plan and adopted tourism strategy.

Data Protection (GDPR) Implications

N/A

Lead Member Views Date of Consultation – 22/10/20

Cllr Hicks

At this point in time it seems sensible to explore any options that might help the recovery of the Tourism Industry in Norther Devon following the devastating impacts of the Covid pandemic.

4. CONCLUSIONS

4.1 The presence of a DMO is likely to assist the Council and other partners in developing and promoting the tourism offer of Northern Devon.

4.2 ND+ is ideally placed to both investigate the possibilities presented by having a DMO and to later be that organisation should proposals progress.

5. RECOMMENDATIONS

5.1 Members note the content of this report and indicate their approval in principle to exploring the proposal further, including consultation with businesses and stakeholders

5.2 Members support officers in efforts to identify external funding to move forward with 5.1

SUPPORTING INFORMATION

Consultations: Date of Consultation –22/10/20 Officers Consulted – Chief Executive, Senior Solicitor and Monitoring Officer, Interim S151 Officer Contact Officer: Sean Kearney

Background Papers: DMO Paper for Members (attached)

Page 144

Page 145 WORKING TOWARDS A DESTINATION MANAGEMENT ORGANISATION

FOR NORTHERN DEVON

1. Purpose The purpose of this paper is to outline the opportunity of creating a Destination Management Organisation (DMO) for northern Devon and to seek approval in principle to exploring the potential further through consultation with the tourism sector and key stakeholders.

2. Tourism is unlike any other industry:

 It is hard to measure, cutting across a number of traditional industry sectors, beyond a core of accommodation, catering, and attractions to include significant elements of transport, retail, hospitality, leisure, recreation, heritage, arts, culture, entertainment, food & drink, professional services and construction, amongst others.

 It is characterised by predominantly very small businesses, who collectively define the visitor experience through where they stay, what they see and what they do. The offered ‘tourism product’ is not just the services of an individual business, but the collection of visitor services within the area, including the natural environment, which is of exceptionally high quality in northern Devon.

 It is a fragmented industry comprised of a diverse range of services which have developed to meet the needs of visitors, but have little in common operationally, other than they are dependent on the needs of tourists to varying degrees for their viability

 Individually, such businesses lack the resources to effectively promote both themselves and the area as a destination for tourism. Tourism-related businesses must therefore come together to pool resources to promote a destination area effectively, but often need help to do so.

3. Advantages of Destination Management Organisations (DMOs) While the benefits of working together to promote a destination area and brand, such as ‘North Devon & Exmoor’, have been recognised for many years, the development of Destination Management Organisations (DMOs) is more recent. DMOs have a wider purpose and mandate than solely marketing a destination area on behalf of its sponsors:  They are focused on “leading, influencing and coordinating the management of all the aspects of a destination that contribute to a visitor’s experience, taking account of the needs of visitors, local residents, businesses and the environment.”a  They bring together wider stakeholders with an interest in the development of tourism (public, private, community sectors, conservation organisations, agencies, charities etc.) to align activity, projects and investment to make the very most of the resources an area has for the sustainable development of tourism.

 They add strategic capacity and direction, working with stakeholder partners to pull together a joined-up vision, strategy and action plan to deliver positive change, local jobs and sustainability.  Through such a strategy or Destination Management Plan (DMP):

1 Page 146 - They monitor and respond to visitor trends and the activities of competitor areas. - They align activity with national and regional policies/strategies. - They draw upon collective partner resources and capacity for the delivery of a common agenda - They shape direction and priorities, for example (typical priorities highlighted by Visit England)b: . Seasonality of tourism – when more may be needed . The spread of tourism activity within the area . The balance of volume and value . Priorities towards staying as against day visitors, and increasing length of stay . Issues of capacity and quality of accommodation and services . Opportunities to make more of the destination’s particular distinctiveness . Opportunities to increase the level of tourism spending retained locally e.g. through supply chain initiatives . The need to develop new services for visitors. . The need to improve stakeholder engagement and joint working. - They address and coordinate action areas that are relevant to the local visitor economy, for example (typical activities highlighted by Visit England)b: . Partnership structures and communication . Community engagement, including advocacy . Product quality and development, including investment promotion . Infrastructure investment and improvements. . Place making – public realm etc. . Sense of place – use of local produce . Arts, culture and heritage – access, interpretation, promotion . Provision for informal and organised activities . Events planning and management . Destination branding and awareness-raising . Tactical marketing, including relationships and engagement with others . Information services – including signing and host orientation . Visitor transport and access . Business support and training . Environmental management and conservation . Visitor safety and security . Research and knowledge gathering

 They provide an entry point to VisitEngland, VisitBritain and Government as a strategic body for tourism in a destination area, together with bid-writing capacity to apply for strategic funding.  They monitor progress against plan and make sure things happen.

There are also wider economic benefits from a focus on joined-up destination management: “Great destinations are great places to live and work as well as to visit. If they are well managed, they are more likely to generate `wise growth' in their visitor economy, maximising the benefits of that growth in long term, additional income and jobs. The best-managed destinations can also attract new investment, keep value-added jobs, bring in new talent and stimulate innovation.” (VisitEngland)

2 Page 147 4. The need to act

 In 2018, the visitor economy around tourism visits to northern Devon (across the districts of North Devon and Torridge) was worth an estimated £0.56 billion, supporting almost 11,000 jobsc.

 Northern Devon shows a high level of dependency on tourism for wealth and jobs – almost 1 in 6 of all jobs (15%) in North Devonc - and in the absence of large employers, is a relatively accessible sector in which to start a business, creating opportunities in the most peripheral areas. Making the very most of the year-round and high value opportunities afforded by tourism is a strategic priority for the area (see Northern Devon Tourism Strategy 2018-2022: supporting growth in northern Devon).

 The impact of COVID-19 has underlined the importance of tourism to the area. Tourism has been one of the sectors hardest hit by the pandemic. When the UK went into lockdown on 23 March 2020, most tourism businesses were required to close their doors to the public. This created an immediate loss of income with implications for the long-term financial sustainability of the sector.

 Analysis commissioned by VisitEngland and VisitBritaind has forecast (assuming no second wave of infections): - 48% decline in the volume and value of domestic tourism in England in 2020. - 59% decline in international visits (and 63% decline in spending). - The tourism economy will take a number of years to recover to 2019 levels.  Areas with the highest dependency on sectors hardest hit by COVID-19 are expected to see the biggest economic decline.

 Analysis of impact on high street spending revealed that eight of the 20 small town areas in England and Wales with the biggest losses in retail spending in April 2020 were in the south west, including Barnstaple and Bideford - all were local economies geared around tourism, with a high proportion of jobs in accommodation, food and drink services and retaile.  With a number of sectors closely linked to the visitor economy, arguably, there has never been a more important time to assist the recovery of tourism in northern Devon.

5. Proposal North Devon + has been exploring the potential to create a DMO in northern Devon, including outline discussions with DMOs in other areas, VisitEngland and North Devon Marketing Bureau, who are keen work together on this initiative. The results of these discussions have revealed that:

 There are many different types of DMOs. They typically vary in form, function, governance and size but essentially take a lead role in the management and development of tourism in a destination area.

 They may be a single organisation, such as a local authority; an informal partnership or a legal entity, such as a community interest company that includes representation from both the private and public sectors.

 Their activities usually include destination marketing for an area, but not always – there are examples where a DMO has worked successfully with a separate marketing organisation.

3 Page 148  Central to a successful DMO is the development of a Destination Management Plan, which is broadly equivalent to a Strategy and Action Plan for Sustainable Tourism in a destination.

 DMOs are usually funded through a mix of commercial and public funding streams, including grants.  There are eight recognised DMOs in Devon, including Visit Exmoor and Visit Dartmoor, but none focused on northern Devon.

 VisitEngland is very supportive of developing a more strategic approach to tourism development and has offered guidance in exploring the potential.

Whilst there are many options for structuring a DMO, the most appropriate choice will depend on the needs of the area. VisitEngland recommends that the first steps are to: (a) Consult with tourism businesses and key stakeholders around issues, needs and priorities for developing tourism and supporting tourism businesses in the area; then. (b) Assess the most appropriate DMO model in the light of those findings.

The proposal is therefore a measured one – to start a process of consultation through surveys and interviews to understand the needs of the sector and the area; and then review options in the light of results.

6. Decision requested Agreement in principle to exploring the opportunities further, including consultation with businesses and key stakeholder organisations /agencies.

ND+ 2 Sept 2020

a VisitEngland (undated), Principles for developing Destination Management Plans: case studies b VisitEngland (undated), Principles for developing Destination Management Plans c The South West Research Company, Value of tourism analysis 2018 d VisitEngland, Domestic and inbound insights webinar e Tortoise Media (April 2020), Coping with COVID-19: Corona shock tracker.

4 Page 149 Agenda Item 11

REPORT OF CHIEF EXECUTIVE To: FULL COUNCIL Subject: CYCLE OF COMMITTEE MEETINGS 2021/22 Date: 2 NOVEMBER 2020

PURPOSE OF REPORT:

To seek Full Council’s approval of a programme of Committee meetings for 2021/22

1. INTRODUCTION

In accordance with the Constitution (Part 4, Chapter 1, A4 Committee Meetings) –

“Committee Meetings of the Council will take place in accordance with a programme decided at an autumn meeting of the Full Council”.

2. REPORT

The programme has been compiled based on eight cycles. The draft Schedule of Committee Meetings 2021/22 is attached at Appendix 1.

3. IMPLICATIONS

Legal Implications

Compliance with the Constitution

Financial Implications

N/A

Human Resources Implications

No

Sustainability/Biodiversity Implications

N/A

Equality/Diversity

Yes

Risk Management

N/A

Page 150 Compliance with Policies and Strategies

Compliance with the Constitution

Data Protection (GDPR) Implications

N/A

Climate Change

N/A

Ward Member and Lead Member Views

N/A

4. RECOMMENDATIONS

That Full Council approve the proposed programme of committee dates for 2021/22 (Appendix 1).

Page 151 DRAFT Schedule of Committee Meetings – 2021/2022

CYCLE 1 CYCLE 2 CYCLE 3 CYCLE 4 CYCLE 5 CYCLE 6 CYCLE 7 CYCLE 8 Plans (1st Thursday of each 1 July 2021 4 Nov. 2021 7 April 2022 3 June 2021 2 Sept. 2021 7 Oct. 2021 13 Jan. 2022 3 March 2022 month - 9.30am) 5 August 2021 2 Dec. 2021 12 May 2022

Audit & Gov (Tuesdays – 2pm) 27 July 2021 19 Oct. 2021 18 Jan. 2022 29 March 2022

Overview & Budget 22 March Scrutiny (Internal) 1 June 2021 6 July 2021 17 August 2021 28 Sept. 2021 9 Nov. 2021 14 Dec. 2021 Special 3 May 2022 2022 (Tuesdays) 2pm 4pm 2pm 4pm 2pm 4pm 8 Feb. 2022 4pm 2pm 10pm Overview & Scrutiny (External) 9 June 2021 21 July 2021 1 Sept. 2021 13 Oct. 2021 24 Nov. 2021 19 Jan. 2022 9 March 2022 27 April 2022 (Wednesdays) 2pm 6pm 2pm 6pm 2pm 6pm 2pm 6pm

152 Page Licensing (Wednesdays – 16 June 2021 28 July 2021 8 Sept. 2021 20 Oct. 2021 1 Dec. 2021 26 Jan. 2022 16 March 2022 11 May 2022 10am)

Standards (Wednesdays – 23 June 2021 25 August 2021 17 Nov. 2021 30 March 2022 10am)

Leadership Team 8 June 2021 13 July 2021 24 August 2021 5 Oct. 2021 23 Nov. 2021 11 Jan. 2022 1 March 2022 5 April 2022 (Tuesdays – 2pm)

Community & Budget 14 March Resources 28 June 2021 26 July 2021 6 Sept. 2021 18 Oct. 2021 6 Dec. 2021 24 Jan. 2022 Special 25 April 2022 2022 (Mondays) 31 Jan. 2022

AGM Council 21 20 Sept. 2021 Budget 17 11 April AGM (Mondays – 6.30pm) June 9 August 2021 (SH booking leave 1 Nov. 2021 13 Dec. 2021 31 Jan. 2022 Special May 2022 16 May 2022 2021 around this date) 21 Feb. 2022 2021

Bank Holidays: Easter May August Christmas 2021 15 April – 18 April 2022 2 & 30 May 2022 29 August 2022 25 Dec. 2021– 2 Jan. 2022 Agenda Item 17 By virtue of paragraph(s) 3 of Part 1 of Schedule 12A of the Local Government Act 1972.

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