Planning Committee 22 March, 2018 WD/D/17/001938
Application Number: WD/D/17/001938 Full
Registration Date: 2 October, 2017
Application Site: 20A WAREHAM ROAD, OWERMOIGNE, DORCHESTER, DT2 8HN
Proposal: Change of use from Disused Horticultural Nursery to Camp Site.Erection of 5 no timber camping pods and siting of toilets
Applicant: Mr Sayles
Ward Members: Cllr N Bundy, Cllr A Thacker
Case Officer: Joanne Langrish-Merritt
1. Summary Recommendation 1.1 Approve subject to conditions
2. Description of development 2.1 The application site lies on the southern side of the A352 on the outskirts of the village of Owermoigne. The site is a derelict former horticultural nursery. The proposed development is for the use of the land for siting 5 camping pods with seasonal tented camping to the east. The subject land for the camping pods and toilet/shower block is the site of the former glasshouses which is to be cleared. Most of the greenhouses, polytunnels and other horticultural outbuildings are now in a state of disrepair.
2.2 The field immediately to the east would be used for the seasonal camping. The site is delineated with post and rail fencing along its northern boundary and native hedgerow to the south. The agent has suggested that the seasonal camping would be for tented camping only and between the months of March and October only. Normal Licensing standards limit camping to 30 tents per acre and as this area of the site is 1 acre the maximum number of tents would be 30 at any one time. The agent has specified that it is likely that this number would only be reached during peak school holiday periods.
2.3 The proposed camping pods would be pitched roof timber buildings that would be supplied with electricity but no water or camping gas would be provided. Two small communal toilet and shower blocks are also proposed to the east of the camping pods. The existing vehicular access and short access track would be utilised and ten parking spaces would be provided to the east of the camping pods. 3. Main planning issues · Principle of development · Design and landscape impact · Highway safety and parking · Residential amenity
4. Statutory Consultations
Parish/Town Council 4.1 The Owermoigne Parish Council has objected to the application for the following reasons: The Parish Council objects to this application in its current form. There are serious concerns regarding its proximity to a working mixed farm and a suitable, safe and secure fence around the site should be a pre-condition requirement to prevent persons or animals straying into an environment with machinery, livestock and grain storage and the subsequent risk of accidents and contact and cross contamination. This is of such importance that it is not to be treated as a condition of approval.
Whilst not mentioned in the proposal, the documentation submitted with the application clearly states the provision of seasonal camping in an open field which is not identified. No indication of the number to be allowed is made and no calculation can be made of the impact on the environment.
There is no calculation regarding the potential traffic generated which will use the existing access onto A352. This entrance is directly opposite the busy entrances to the garage, used car sales, filling station and farm shop. It should be noted that many customers using these facilities, park on the rough verge adjacent to the site entrance and as a consequence, obstruct visibility. Suitable kerbing to highway standard should be included in the application to restrict this practise and ensure good visibility.
There are potential fire risks which could have serious consequences with agricultural materials and products stored adjacent to the campsite and these have not been addressed.
It is noted that the tree screening to the north and west are shown as being outside the curtilage of the site. Ownership should be established as this does not appear to be under the control of the applicant and could leave the site exposed.
In response to the Parish Council comments:
The agent has confirmed that the applicant has met with Mr Chilcott (neighbour to the west) and discussed boundary treatments with him. Where the actual camping pods are proposed is adjacent to and backing onto turkey sheds which are on the boundary and which present a blank face to the nursery property. There is therefore no need for additional boundary treatment in this area. The applicant does however intend to improve the fencing on the western boundary adjacent the farm access and would propose to erect a new fence there supplemented by tree planting. Additional information in relation to the seasonal camping has been provided and is explored further in the report below.
A traffic survey is not considered necessary by the Highway Authority who have no objections.
The immediate farm buildings are of metal sheeting construction and hence not particularly susceptible to fire; the camping pods will be treated with fire retardant.
Most of the tree screening is situated on the highway embankment and outside of the applicants control. However there are some trees within the site boundary in this area which are within the applicants ownership and it is his intention to supplement them with further tree planting. This would be secured via a condition.
Highway Authority 4.2 The Highway Authority has no objections subject to conditions
5. Other consultations 5.1 The DCP Trees Officer has no objections but makes the following comments:
The boundary trees located to the north and west of the site (shown to be off site) offer very good visual separation and containment to the site. These trees are of visual importance to the site and it is advised that these trees be retained and protected in accordance with the recommendations contained within BS5837:2012 Trees in relation to design, demolition and construction. There are no trees of significance within the site and therefore it is considered that there is no objection to the development proposals from an arboricultural impact.
5.2 DCP Environmental Health Officer has no comments to make in relation to the above application.
6. Other representations 6.1 Four letters of objection have been received. The main focus of these objections relate to
· Potential traffic problems and highway safety issues · Noise and light pollution · Impact on AONB · Trees, hedges and landscaping · Waste and recycling · Management of the camping facilities · Rights of access
Copies of the letters of representation are available to view on the website - www.dorsetforyou.com. 7. Human Rights 7.1 Article 6 - Right to a fair trial. 7.2 Article 8 - Right to respect for private and family life and home. 7.3 The first protocol of Article 1 Protection of property
8. Relevant Planning History
App. No Type Proposal Decision Date Officer 1/E/04/001130 FUL Erect single storey extension A 04 August JL 2004 1/E/79/000468 FUL ERECT ENTRANCE A 04 PORCH/CONSERVATORY October 1979 1/E/95/000288 FUL Erect extension and make A 18 July BB internal alterations 1995
9. The Development Plan
West Dorset and Weymouth & Portland Local Plan adopted (2015)
As far as this application is concerned the following policies are considered to be relevant:
· INT1 – Presumption in favour of sustainable development · ENV1 - Landscape, Seascape and Sites of geological interest · ENV10 - The landscape and townscape setting · ENV12 – The design and positioning of buildings · ENV16 – Amenity · SUS2 – Distribution of development · ECON7 - Caravan and Camping sites · ECON8 - Diversification of land-based rural businesses · COM7 - Creating a safe and efficient transport network · COM9 - Parking Standards in New Development
10. Supplementary planning documents 10.1 WDDC Design & Sustainable Development Planning Guidelines (2009)
11. Supplementary planning guidance 11.1 None
12. Other Material Planning Considerations 12.1 National Planning Policy Framework (NPPF)
Part 3: Supporting a prosperous rural economy Part 7: Requiring Good Design Part 11: Conserving and enhancing the natural environment Part 12: Conserving and enhancing the historic environment Decision taking: Para 186 - Local planning authorities should approach decision-taking in a positive way to foster the delivery of sustainable development. The relationship between decision-taking and plan-making should be seamless, translating plans into high quality development on the ground.
Para 187 - Local planning authorities should look for solutions rather than problems, and decision-takers at every level should seek to approve applications for sustainable development where possible. Local planning authorities should work proactively with applicants to secure developments that improve the economic, social and environmental conditions of the area.
Public Sector Equalities Duty (PSED) As set out in the Equalities Act 2010, all public bodies, in discharging their functions must have “due regard” to this duty. There are 3 main aims:- • Removing or minimising disadvantages suffered by people due to their protected characteristics • Taking steps to meet the needs of people with certain protected characteristics where these are different from the needs of other people • Encouraging people with certain protected characteristics to participate in public life or in other activities where participation is disproportionately low.
Whilst there is no absolute requirement to fully remove any disadvantage the Duty is to have “regard to” and remove OR minimise disadvantage and in considering the merits of this planning application the planning authority has taken into consideration the requirements of the PSED.
13. Planning issues 13.1 Principle of development
Policy SUS2 of the Local Plan states that outside Defined Development Boundaries development will be strictly controlled, having particular regard to the need for the protection of the countryside and environmental constraints, and be restricted to certain acceptable uses. This includes new tourism development which is relevant to this application.
13.2 Policy ECON 7 that refers to proposals of this nature states;
ECON7. CARAVAN AND CAMPING SITES i) New caravan and camping sites should be well located in relation to existing facilities or make appropriate provision for facilities on site. Farm diversification projects (for agricultural and other land-based rural businesses) for new caravan and camping sites will be supported, provided they are in keeping with the rural character and the development makes an on going contribution to the business that is diversifying.
ii) Proposals for the expansion, intensification or reorganisation of existing sites must clearly demonstrate that development forms part of a long term management plan to improve the quality and appearance of the accommodation and site. iii) All development (including the change of use from touring to static units) must not, individually or cumulatively, have a significant adverse impact on the distinctive characteristics of the areas landscape, heritage or built environment. Proposals in the Heritage Coast are unlikely to be supported.
iv) Development proposals must include an appropriate landscape scheme and provision for its ongoing maintenance
Concerning new camping sites, ECON7 states that these should ideally be well located in relation to existing facilities or make appropriate provision for facilities on site. The site would be a relatively modest campsite with 5 small camping pods and seasonal tented camping. In terms of facilities two toilet/shower blocks would be provided, but this is considered an appropriate provision in this location. The site would be well connected to the public rights of way network and the local bus service (which is X54 service to Poole) to provide links with other settlements and local facilities but would allow tourists an opportunity to be self-sufficient and camp in a distinctly rural location and support a prosperous rural economy.
13.3 The proposed development would be located within the AONB and Heritage Coast and the potential landscape impact is discussed in detail below. However, the site is on the very edge of the heritage coast and in a relatively contained site. The proposed camping pods are low lying rustic style cabins which would not be visible from the adjacent road but would be partially visible in long views from the foot paths to the south. The seasonal camping would be located in the field adjacent to the road and whilst there is some established planting at the western end of the field the tents would be visible from the adjacent road due to the sloping ground level. As a result of the existing hedge planting to the south the tented camping would only be glimpsed in longer views from the footpath to the south. Notwithstanding that, the existing development adjacent to the site must also be considered. To the west of the site there are a number of agricultural buildings. To the east of the site is Galton garden centre which has large domed white canopies which can be seen clearly in long range views. Directly opposite the site is a petrol station and farm shop. As such, this area directly adjacent to the road and on the very edge of the heritage coast is not considered to be of particularly high amenity value. Therefore given the minor visual impact created by the pods and the seasonal camping and given the other development within the area the proposed scheme is not considered to result in a significantly adverse landscape impact.
13.4 Whilst additional landscaping has been proposed within the site this would be secured via a landscape condition. The existing established planting on the northern and western side of the site also provides a great deal of screening and as such a long term management plan will also be secured via a condition. In light of these points it is considered that the proposal is acceptable in principle. 13.5 Design and landscape impact
The site lies within the AONB and the Heritage Coast. The site is within a semi rural location on the edge of the settlement of Owermoigne and has been historically used as horticultural nursery as such there are a number of buildings on site. However, the site is very much enclosed by the high established boundary planting along the northern and western boundaries.
13.6 The preamble to Policy ECON7 which relates to caravan and camping sites indicates that it is unlikely that new sites will be able to be accommodated within the Heritage Coast area without harming the landscape character, so such proposal are only likely to be permitted in very exceptional circumstances.
13.7 ENV1 of the adopted Local Plan relates to the landscape seascape and sites of geological interest. The preamble to Policy ENV1 states that “the councils will have special regard to the conservation of the areas beauty in development management decisions. “ The site is located within the designated AONB and as such the potential landscape impacts of the scheme must be carefully considered.
13.8 The site is also within the designated heritage coast. With regards to the heritage coast the preamble to Policy ENV1 also states that
“Away from main coastal resorts much of the coast and the wide inland strip is defined as Heritage coast, a non-statutory designation protecting the finest stretches of undeveloped coast in England and Wales.”
With that in mind development which would harm the character, special qualities or natural beauty of the Dorset Area of Outstanding Beauty or Heritage Coast, including their uncharacteristic landscape quality and diversity uninterrupted panoramic views, individual landmarks, and sense of tranquillity and remoteness, will not be permitted.
13.9 A strategic framework for the management of the Dorset AONB is set out in the Dorset AONB Management Plan. The Dorset AONB Management plan recognises that the coast and countryside of the Dorset AONB is a popular area for recreation and leisure and it is thought that the AONB receives more visits than some National Parks. Tourism is important to provide opportunities for local people and benefits the local economy and as such should be supported. Nonetheless it is essential that the demand for recreation and tourist accommodation does not affect the special landscape qualities of the AONB.
13.10 The Dorset AONB Management plan also identifies the
“continued pressure for tourism and visitor development especially within the fringe of settlements and in more open, and often remote, locations along the coast. The poor siting and design of development can result in negative landscape and visual impacts, with increases in traffic and associated traffic management schemes and the proliferation of signs.” 13.11 However it also recognises that
“In line with the emphasis on sustainable development, there is an opportunity to create new, and enhance existing, facilities and attractions within the AONB through high quality and sensitive siting and design.”
13.12 Given the above, whilst unusual, in certain circumstances tourist accommodation within the AONB and Heritage coast can be supported providing it does not have a significant impact on the special landscape qualities of the area. With regards to this site it is located on the edge of the settlement of Owermoigne adjacent to the main A352 road. The site is located on the very edge of the heritage coast in the least sensitive part of the designated area. The permanent camping pod development is relatively well contained and is enclosed on the northern and eastern side and as such would not be visible from Wareham Road. However, there are public footpaths and bridleways to the west and south and views from these areas must be carefully considered.
13.13 The camping pods would not be visible from the footpath to the west due to the established planting. There is also a degree of screening provided from the existing agricultural buildings at Glebe Farm. From the footpath directly to the south of the site the existing glasshouse is visible which indicates that the pods may also be visible. However, the proposed pods would be lower than the existing greenhouse and as such are unlikely to have a significant visual impact. From views to the south east the existing copse of trees would provide sufficient screening from the public footpath and the development would not be visible. As such the pods would be relatively unobtrusive within long views from the footpaths, in addition, planting would be added on the southern and western side of the pods which would soften their appearance further. Additionally if the development is seen in long views it would be seen in the context of the other development in the area and as such would not have a significant visual impact. Furthermore the planning benefits must be considered in that the existing dilapidated glasshouses and ancillary buildings would be demolished and removed from site to make way for the new development.
13.14 The proposed timber pods are of a standard design and would be low lying structures between 3-3.5 metres high, constructed of timber with green or brown roofs. Given their rustic materials and coloured roof, they would blend into the existing landscape and are considered to be less conspicuous than the existing glasshouse. Notwithstanding that the exact material and final colour will be secured by condition. As such the pods are considered to be in keeping with the rural character of the area and would not have an adverse impact on the wider landscape of the AONB. Two toilet/shower blocks would also be installed. Whilst these would not have the rustic appearance of the pods they would be modest structures and finished in a dark green colour to minimise their impact. As such it is considered that the proposed pods and toilet/shower block would be sympathetic to the location and would not have a significant visual impact on the wider landscape or the AONB.
13.15 The seasonal camping would be located in the field adjacent to the A352 and whilst there is some established planting at the western end of the field the tents would be visible from the adjacent road due to the sloping ground level. There is some existing hedge planting to the south and therefore the tented camping would only be glimpsed in longer views from the footpath to the south. However, it must be considered that the seasonal camping is not permanent but transient in nature and would not be present in the landscape all year round. Furthermore the tents would be on site during the spring/summer months when the trees and hedges are in full leaf and provide maximum screening. As previously stated this stretch of heritage coast directly adjacent to the road is at the very edge of the designated area and less sensitive than other areas. It also already has existing intrusive development such as the adjacent garden centre which is visible from the road. Therefore the proposed seasonal camping is not considered to have a significant impact on the landscape qualities of this part of the AONB or heritage coast
13.16 Impact on neighbouring amenity The site is in close proximity to a number of residential properties the closest of which is no 20 which is approximately 20metres away from the camping pods and more than 30metres from the seasonal camping site. Nonetheless the proposed development would be a relatively low key campsite with only five permanent camping pods and a maximum of 30 tents during the summer season. Furthermore there is existing planting between the seasonal camping site and the neighbouring property and additional planting would provide screening for the neighbour from the camping pods and would prevent any significant overlooking. With regards to the neighbour to the south the existing agricultural building would prevent any overlooking to the site for the camping pods. Although some residents have raised concerned about noise and disturbance, the site would be a modest size campsite and given its position adjacent to the busy A352 and opposite a busy petrol station this is not considered to be a quiet and tranquil area. Furthermore no 20a is within the applicants ownership and would provide onsite management of the campsite. Therefore there is likely to be an element of self policing. As such any additional noise or disturbance above that of the existing road is not considered to be so significant as to warrant refusal.
13.17 Highway safety and parking The established vehicular access to the site has good visibility onto the highway as it was previously used as a commercial horticultural nursery. The existing access track would be retained and parking for the new camping pods would be provided near to the pods either side of the stone track which will be grassed over. The Dorset County Council Highways have been consulted and offer no objections.
13.18 Biodiversity A biodiversity survey was carried out at the site and whilst the land was considered to be in a poor state and unlikely to support bats. Potential for nesting birds and reptiles was considered to be likely. As such a biodiversity mitigation plan has been prepared which specifies that all hedgerows must be retained and properly maintained to encourage growth and additional native planting added to support nesting birds. Also a ‘donor area’ for reptiles will be provided in the site to provide a nesting area for reptiles. No or very low lighting should be provided throughout the site. This will be secured via a condition. 14. Summary 14.1 The proposed development complies with national and local planning policy and is recommended for approval subject to conditions.
15. Recommendation 15.1 Approve subject to conditions i. The development to which this permission relates must be begun not later than the expiration of three years beginning with the date of this permission.
REASON: This condition is required to be imposed by Section 91 of the Town and Country Planning Act 1990 (as amended).
ii. The development hereby permitted shall be carried out in accordance with the following approved plans:
REASON: For the avoidance of doubt and in the interests of proper planning
iii. No development shall be commenced until details and samples of all external facing materials and their colour/finish for the walls and roofs of the camping pods shall have been submitted to, and approved in writing by, the Local Planning Authority. Thereafter, unless otherwise agreed in writing by the Local Planning Authority the development shall proceed in strict accordance with such materials as have been agreed.
REASON: To ensure a satisfactory visual appearance of the development.
iv. Prior to the first occupation of the camping pods a boundary treatment scheme shall have been submitted to the Local Planning authority, agreed in writing and installed on site.
REASON In the interest of residential amenity
v The use of the eastern field (as shown hatched on the submitted plans) shall be for seasonal use only from 1st March – 31st October in any calendar year and for tented camping only with no touring caravans, camper vans or static caravans permitted.
REASON: In in interests of visual amenity and preserving the special qualities of the AONB and heritage coast
vi The camping pods shall not be occupied at any time between 5th January and 28th February, inclusive, in any calendar year.
REASON: The use as permanent residential accommodation would be contrary to the Local Planning Authority's policy for the control of development in rural areas and to ensure that the camping pods are used as holiday accommodation only and not occupied as residential accommodation.
vii Before the development is utilised the turning and parking shown on Drawing Number 2904-020/001 A must have been laid out and made available. Thereafter, these areas must be permanently maintained, kept free from obstruction and available for the purposes specified. Reason: To ensure the proper and appropriate development of the site and to ensure that highway safety is not adversely impacted upon. viii No development shall take place until full details of the hard and soft landscape proposals have been submitted to and approved in writing by the Local Planning Authority (L.P.A). These details shall include boundary treatments and materials for the turning and parking areas, planting plans, written specifications and schedules of plants, noting species, planting sizes, proposed numbers/densities where appropriate and implementation timetables. A schedule of landscape maintenance proposals and long term management plan (minimum 10 years) shall also be submitted to and approved in writing by the L.P.A prior to commencement of the development. The said maintenance shall be carried out in accordance with the approved schedule for a minimum period of 5 years following the date of the decision hereby approved. Thereafter unless otherwise agreed in writing the scheme shall be implemented during the planting season November - March inclusive, immediately following commencement of the development.
REASON: To ensure the provision of amenity afforded by appropriate landscape design and maintenance ix Prior to erection of any external lighting to serve the camping pods or seasonal camping area hereby approved, details of the type, size, illumination levels and location of the lighting shall be submitted to and approved in writing by the Local Planning Authority. The development shall be carried out in accordance with the approved details and maintained as such thereafter.
REASON: In order to protect the landscape qualities of the Area of Outstanding Natural Beauty x The development hereby approved shall be carried out in accordance with the recommendations of the Biodiversity Survey and Mitigation Plan by Abbas Ecology dated January 2018.
REASON: In the interest of preserving the protected species on site.