Response to Winchester District Local Plan Part 2

RESPONSE TO WINCHESTER DISTRICT LOCAL PLAN PART 2

DEVELOPMENT MANAGEMENT AND SITE ALLOCATIONS

CONSULTATION DRAFT 2014

POLICY CP18 – OTTERBOURNE – SOUTHDOWN SETTLEMENT GAP

1.0 INTRODUCTION

1.1 The Winchester Local Plan Part 1 identifies a number of Settlement Gaps under Policy CP18. This includes a Gap between Otterbourne – Southdown.

1.2 Local Plan Part 2 requires the review of the boundaries of Settlement Gaps. In paragraph 132 of the Inspector’s Report into the Joint Core Strategy states:

“However, the policy and its supporting text are also quite clear that all the other gaps listed will be subject to review as part of LPP2 in relation to local development needs, amongst other things, which will supersede the 2006 Local Plan. The text already includes the full criteria set out in the PUSH “Policy Framework for Gaps” (OD35) (Dec 2008), which will be applied to help ensure a consistent approach across the area. Therefore, there is no need for this strategic plan to include any further, more detailed or local guidance as to how the review should be carried out in practice.”

1.3 This objection sets out the case to review the settlement boundary between Otterbourne and Southdown with particular reference to the Compton Nursery (see Plan 1- Land Ownership Plan).

2.0 SITE LOCATION AND DESCRIPTION

2.1 Compton Nursery is situated to the south west of the defined settlement of Southdown. It is located within the Settlement Gap between the settlements of Otterbourne and Southdown. The Nursery shares a common boundary with the southern settlement boundary of Southdown (see Plan 2 – Extract from the submitted Proposals Map 12: Otterbourne). Page 1

Bryan Jezeph Consultancy Ltd Land at Otterbourne Road, Southdown

2.2 The site is located on the western side of Otterbourne Road which runs from Otterbourne in the south where it is known as Main Road to Southdown in the north. The roads link the northern part of Eastleigh Borough to the southern part of Winchester District.

2.3 The Nursery comprises 4 hectares (10 acres) of land in total in an “L” shape. The western boundary of the Nursery borders the M3 Motorway. It has a frontage to Otterbourne Road to the east. The frontage to Otterbourne Road is broken by the dwelling known as the Old Police Cottage. The land under the control of the Nursery wraps around this dwelling where it has short frontage to Otterbourne Road.

2.4 The Nursery has a principal frontage of approximately 66 metres to Otterbourne Road. The boundary to the road is defined by a small wooden fence. A gravelled car park for customers and a turning area for delivery vehicles is situated behind the fence (see Photograph 1). There are also a small number of sheds and two greenhouses visible from the road which are associated with the management of Nursery. There are greenhouses and bedding areas to the rear of the car park. The car park is open to view from the road.

Photograph 1: Frontage of the Nursery onto Main Road

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Land at Otterbourne Road, Southdown

2.5 The access to the car park and the site lies at the southern end of this frontage. The curtilage of the Old Police Cottage lies beyond this access. The Old Police Cottage has a frontage onto Otterbourne Road of approximately 17 metres. The short frontage of the Nursery beyond this to the boundary is approximately 21 metres.

2.6 The total frontage of the Nursery and the Old Police Cottage is 104 metres.

2.7 The southern boundary of the Nursery adjoins a large open field. The southern boundary of the open field adjoins the back gardens of the houses that lie in the settlement of Otterbourne. The frontage of the field to the road measures approximately 160 metres (see Figure 1). This field is in a separate ownership. The land to the rear of this field is part of the Nursery and is used for production.

Nursery Frontage

The Old Police House Frontage

Field Frontage

Figure 1: Frontage of Compton Nursery (Courtesy of Google Maps)

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Land at Otterbourne Road, Southdown

The surrounding area

2.8 The north eastern boundary of the Nursery adjoins a site which was previously occupied by The Captain Barnard Public House. This Public House has now closed down. After the closure the site was purchased by Highwood Residential who were granted planning permission in 2009 (ref: 09/00697/FUL) for the construction of a 65 bed care home and two 2 bedroom semi detached dwellings.

2.9 The site has not been developed and it has now been acquired by Brendon Care Ltd, a charity that specialises in providing care for the elderly. Brendon Care was granted permission in 2012 (12/01418/FUL) for the extension of time limit of implementing planning permission which was originally granted to Highwood Residential (ref: 09/00697/FUL).

2.10 On the far, eastern, side of Otterbourne Road there is an area of woodland known as Sparrowgrove Copse. This is part of the same Settlement Gap as the Nursery. Sparrowgrove Copse is an area of protected woodland which stretches from the railway line in the east to Otterbourne Road. The woodland has a frontage of 160 metres.

2.11 The areas within the Settlement Gap on each side of Otterbourne Road are not in alignment. The woodland area commences beyond the end of the car park serving the Nursery. It overlaps part of the open field but development commences some 30 metres before the field adjoins the housing on it southern boundary.

2.12 Electricity pylons run in through the Copse (see Photograph 2 and Plan 1). This creates an open swathe through the woodland. On the western side of the Road, the pylons pass through the southern boundary of the Nursery.

2.13 The Settlement Gap also coincides with the Parish boundaries of Otterbourne and Compton and Shawford.

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Land at Otterbourne Road, Southdown

Photograph 2: Electricity pylons running through Sparrowgrove Copse

3.0 PLANNING POLICY

3.1 The principal policy of relevance to this Objection is Policy CP18 Settlement Gaps.

3.2 Policy CP18 Settlement Gaps in the Local Plan Part One – Joint Core Strategy identifies individual designated Gaps within the Winchester area. These Gaps have the objective of retaining the undeveloped nature of defined settlements such as Otterbourne and Southdown. The policy states:

“The Local Planning Authority will retain the generally open and undeveloped nature of the following defined settlement gaps:

 Bishop‟s Waltham – Swanmore – Waltham Chase – Shedfield – Shirrell Heath

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Land at Otterbourne Road, Southdown

 Denmead – Waterlooville

 Kings Worthy – Abbots Worthy

 Otterbourne – Southdown

 Winchester – Compton Street

 Winchester – Kings Worthy/Headbourne Worthy

 Winchester – Littleton

 Whiteley – Fareham/Fareham Western Wards (the „Meon Gap‟)

Within these areas only development that does not physically or visually diminish the gap will be allowed.

To protect the individual character and identity of those settlements adjoining the proposed SDA at North Fareham, an area of open land is identified as a Gap to be maintained between the SDA and Knowle and Wickham. Development which would threaten the open and undeveloped character of this area will be resisted and the land should be managed to secure the long-term retention of its rural character.”

3.3 Local Plan Part 2 requires the review of the boundaries of Settlement Gaps. This is established in paragraph 132 of the Inspector’s Report into the Joint Core Strategy. It states:-

3.4 The PUSH “Policy Framework for Gaps” published in December 2008 was intended to establish a common approach to the definition of Gaps

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across the sub-region. It established a set of criteria for the selection of Gaps. These principal criteria are:-

 The open nature/sense of separation between settlements cannot be retained by other policy designations;  The land to be included within the gap performs an important role in defining the settlement character of the area and separating settlements at risk of coalescence;  In defining the extent of a gap, no more land than is necessary to prevent coalescence of settlements should be included having regard to maintaining their physical and visual separation.

3.5 It is evident that the land used by the Nursery does not meet any of these criteria. The Nursery does not perform an important role in defining the settlement character as it is already developed land. It does not have an open or rural character. In fact, it takes a more urban form.

3.6 During the Local Plan Part 1 – Joint Core Strategy Examination the Council responded to a number of Issues on the Policy in respect of Settlement Gaps raised by respondents to the Submission document. The Council set out additional criteria in Paragraph 33.B in its response to Examination Issues. These points are that:-

“The gap separates two settlements at risk of coalescence:

a) The distance of separation is less than 1250m (largest gap currently designated in the Winchester District Local Plan). b) The two settlements are not currently protected from coalescence from coalescence by natural or manmade barriers. c) The settlements are at risk of coalescence from significant development pressure.”

3.7 The woodland area to the east known as Sparrowgrove Copse appears to satisfy the criteria. It provides a significant visual break between the settlements of Otterbourne and Southdown. However, the situation on the western side is very different. The Gap is much narrower (as can Page 7

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Land at Otterbourne Road, Southdown

be seen from the aerial photograph). Furthermore, a substantial part of the so called Gap comprises the Nursery and the Old Police Cottage. The Gap is so narrow that it does not satisfy this function.

3.8 Furthermore, the Nursery does not perform an important role in separating the settlements either visually or physically as it is already developed land. Removing the Nursery from the Settlement Gap would not create a risk of coalescence physically or visually as it is already developed land. It is therefore inappropriate to include it within the Settlement Gap.

3.9 In reality, it is just the open field to the south of the Nursery that could be considered to perform as a Gap although it is such a small area with a frontage of just 160 metres. Nevertheless, its frontage is comparable in length of the frontage to Sparrowgrove Copse.

3.10 The woodland at Sparrowgrove Copse is covered by the Policy DM5. This Policy states:-

Policy DM5 – Protecting Open Areas

Open areas with an important amenity, biodiversity, heritage or recreational value, as shown on the Policies Map and detailed in the Open Space Strategy, will be protected from development. Built development will only be permitted on these spaces where it accords with other relevant policies and:

i) the proposal is for a facility which is ancillary to the function of the open space; and

ii) the contribution of the open area to the character of the wider area is maintained or enhanced.

Development may exceptionally be permitted where it is demonstrated that the benefit to the community clearly outweighs the harm caused by the loss of the facility, and options for developing elsewhere have been explored.

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3.11 It is notable that this Policy allows the possibility of development even in this specially protected area of open space. It is evident that a lesser test should apply to Settlement Gaps where the justification for protection is simply related to a line on the Plan.

Settlement Boundary Review

3.12 The Council claims that, because the boundaries of settlements were established in the Local Plan Review “some years ago”, it is not necessary to review them unless there are housing proposals. The only housing proposals in Local Plan Part 2 relate to Winchester Town and the Market Towns and Villages (Policies MTRA2 and 3).

3.13 This is clearly a misguided approach. The pressure for more housing requires all areas to be re-examined. It must be logical to review all boundaries to test their justification as it is evident that such locations are the most sustainable places for new development.

3.14 The resistance to reviews of boundaries is inconsistent with other advice. For example, there is an acknowledgement in the Core Strategy that, if the number of completions fails to achieve the trajectories, then land will be identified to make good any shortfalls. Paragraph 5.25 of the Winchester District Local Plan Part 1 states that:-

“If at some future point in the future it becomes clear that the site is failing to deliver the level of housing proposed, the implications for the Council‟s ability to ensure adequate housing supply across the District will be assessed.”

3.15 The proposed allocations in Local Plan Part 2 are already being tested by planning applications for the development on land not included within these proposals. It would be more logical to review boundaries of existing settlements to provide a more flexible approach as set out in Policy DM5 and Paragraph 5.25 above.

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Land at Otterbourne Road, Southdown

4.0 OTTERBOURNE – SOUTHDOWN SETTLEMENT GAP

4.1 Compton Nursery and the Old Police Cottage should be excluded from the Settlement Gap. The Nursery has an urban form with a car park and buildings against a backcloth of glasshouses. There are no hedges and just one tree in this frontage area. The dwelling known as the Old Police Cottage is also part of this frontage. This adds to the sense that this is an urban area.

4.2 The photograph of the boundary from the M3 Motorway confirms that the extensive hedge and tree planting provides effective screening that precludes views into the Nursery from the motorway (figure 2).

Figure 2: view of the Gap from the M3 (courtesy of Google Maps)

4.3 The only open area that provides the sense of openness and rural character on the western side of Otterbourne Road is open field to the south of the Nursery and the Old Police House. It has a frontage of just

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160 metres. This character could be maintained by the creation of an enlarged buffer of planting.

4.4 The section of frontage to the Nursery and the Old Police Cottage is 104 metres. This short frontage is not “open” or “rural” in character. This is imperceptible for the majority of people passing in vehicles. Thus the only open section is the field beyond of just 160 metres.

“Development may be exceptionally permitted”

Settlement Gap

Figure 3: Aerial view of the Settlement Gap and the Nursery (courtesy of Bing Maps)

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Physical separation

4.5 The Nursery has been on this site for many years. As the site is developed that it should be included in the Southdown settlement boundary and be taken out of the Settlement Gap.

4.6 Due to the close proximity of the Nursery to the settlement it does not physically separate the settlements of Southdown and Otterbourne (figure 3). It does not contribute to the Gap either physically or visually and its inclusion within the settlement boundary would not cause coalescence.

Photograph 3: Frontage of the Nursery onto Main Road

Visual separation

4.7 Compton Nursery does not provide a sense of separation. It is not of an open nature, it is therefore unnecessary to include it in the Settlement Gap as it does not demonstrate the characteristics of a Gap. It is therefore contrary to the third criterion set out in the PUSH

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Framework as it is more land than is necessary to prevent coalescence.

4.8 The land does not perform an important role in defining the settlement character and does not give the impression of undeveloped/rural character and is therefore contrary to criterion two of the PUSH Framework.

5.0 CONCLUSION

5.1 The land at Compton Nursery should be excluded from the Settlement Gap. It is questionable if any of the land on the western side of Otterbourne Road satisfies the criteria of a Settlement Gap. The land on the eastern side of Otterbourne Road is protected woodland that is likely to remain undeveloped.

5.2 Objection is raised to the inclusion of Compton Nursery in the Settlement Gap. The proposed revision to the Gap is shown on Plan 3.

5.3 Objection is also raised in respect of the background Paper entitled the “Settlement Boundary Review”. The Review only relates to boundaries where there are housing proposals in Local Plan Part 2. This is not justified. All boundaries should be reviewed so that any changes since the previous Local Plan was adopted can be accommodated and to ensure that land that could reasonably contribute towards any shortfalls in the housing trajectory for the District.

5.4 Greater flexibility should be provided as set out in Policy DM5 and Paragraph 5.25 of the Core Strategy. This would enable land to come forward that does not possess any special characteristics that justify its exclusion should housing shortfalls demand greater releases of land. This is especially applicable to the land at Compton Nursery which functions more as “brownfield” land rather countryside.

5.5 The Nursery has an open frontage onto Otterbourne Road. There are no trees or hedges to obscure the Nursery and the existence of the car

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park facing the road further demonstrates that this site is visually urban in character. Beyond the car park, there are the glass houses and sheds which take a more urban form.

5.6 The Nursery has a built up character. It has a frontage which is defined by a small wooden fence with a gravelled car park behind. The curtilage of the Old Police Cottage, which is part of the Settlement Gap also fronts onto Otterbourne Road. The western area of the Gap is bound by the M3 Motorway and again is concealed by a hedgerow (figure 2). The exclusion of the site would still leave a gap albeit with a very small frontage. There is no need to include the Nursery in the Settlement Gap.

5.7 The land at the Nursery does not meet any of the criteria in the Core Strategy or the PUSH Report. This land identified as a Settlement Gap between Otterbourne and Southdown in the Core Strategy, does not provide a physical or visual gap between the two settlements. Its inclusion within the settlement of Southdown will not cause coalescence.

5.8 Compton Nursery and the Old Police Cottage should be excluded from the Settlement Gap because they do not perform a role in separating the two settlements both physically and visually. The Otterbourne – Southdown settlement boundary should be redefined to incorporate the existing development known as Compton Nursery, to the south of Southdown as shown on Plan 3.

5.9 The land to the east of Otterbourne Road known as Sparrowgrove Copse and the comparable frontage of the open field to the west of the Road can fulfil the separation function.

Plans

Plan 1:- Land Ownership Plan

Plan 2:- Extract from the submitted Proposals Map 12: Otterbourne

Plan 3:- Otterbourne-Southdown Settlement Gap Page 14

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