AGENDA ITEM NO 9 MAIN CASE Proposal: A new bridge for cyclists, pedestrians and equestrians with a segregated crossing for grazing livestock

Location: Harrisons Drove Burwell

Applicant: The National Trust

Agent: Price & Myers

Reference No: 11/00886/FUL

Case Officer: Rebecca Saunt

Parish: Burwell Ward: Burwell Ward Councillor/s: Councillor Hazel Williams Councillor David Brown Councillor Lavinia Edwards

Date Received: 28 September 2011 Expiry Date: 23 November 2011 [L207]

1.0 EXECUTIVE SUMMARY

1.1 This application seeks permission for the construction of a dual purpose bridge for cyclists, pedestrians and equestrians, with a segregated crossing for grazing livestock.

1.2 The site forms part of the Wicken Fen spine route, which is part of the National Trust’s Wicken Fen Vision. The Vision is a 100 year plan to increase the size of the Wicken Fen Reserve. The new bridge would also provide a key link in the National Cycle Network, providing a crossing of Burwell Lode to full Cycle standards. At present cyclists must cross Burwell Lode by dismounting and carrying cycles up and down the steps of the existing footbridge and along approximately 185 metres of un-surfaced grass path.

1.3 The main issue to consider when determining this application is the impact of the proposal on the character and appearance of the countryside.

1.4 Due to the nature of the proposal, the location and the overall design of the bridge, the proposed scheme would not be unduly detrimental to the character and appearance of the countryside. The application is therefore recommended for approval.

Agenda Item 9 – Page 1 1.5 A site visit has been arranged for 10.40 prior to the meeting.

2.0 THE APPLICATION

2.1 The applicant seeks permission for a new bridge for cyclists, pedestrians and equestrians with a segregated crossing for grazing livestock. Access to the bridge would be provided by two separated tracks, the east track providing access for human users and the west track providing access for the National Trust’s free ranging livestock.

2.2 In essence the bridge would be a vaulted concrete arch that is founded on either side of the existing embankments to Burwell Lode. The bridge would have piled foundations, which would be formed on either side of the Lode, to ensure it would not disturb the existing embankments. The bridge would be wider at the embankments and would curve in on both sides to form a 7 metre wide structure at the mid span of the bridge, with a timber parapet separating the two tracks. The footpath at the crown of the bridge would be 7 metres above the surrounding landscape and 5 metres over the water level in Burwell Lode, to fit within the navigational constraints of Burwell Lode. The height of the slatted oak parapet either side of the bridge would vary from 1.4 increasing to 1.8 metres over the water.

2.3 The bridge would be constructed with precast concrete and a steel arch, weathering steel for the parapet posts and oak for the horizontal balustrading. Clay and soil would form the approach ramps and the topping for the arched structure. The clay would be sourced on site from pits that would be excavated to form a new wetland habitat in the form of ponds. The approach ramps would be covered with local topsoil and seeded with an appropriate grass mix utilising local species. The path would be formed by bound gravel.

2.4 The existing haul roads that run alongside the north and south banks of Burwell Lode would be diverted around the bridge and approach ramps to provide a continuous link. A small car park with space for 12 cars, including 2 disabled spaces, along with 6 cycle stands is also proposed on the north side of the bridge. The car park would also serve as the contractor’s compound during the construction of the bridge. Two new moorings to the east of the existing lift up bridge, on the south bank are also proposed along with canoe launch facilities.

2.5 The new bridge would provide a key link in the National Cycle Network, providing a crossing of Burwell Lode to full Cycle England standards. At present cyclists must cross Burwell Lode by dismounting and carrying cycles up and down the steps of the existing footbridge and along approximately 185 metres of un-surfaced grass path.

3.0 THE APPLICANT’S CASE

3.1 The applicant states their case in their Design and Access Statement. The bridge will have a dual purpose, carrying people and livestock. The ‘people’ will be cyclists using the Lodes Way cycleway, which is part of the National Cycle Network route 11, together with pedestrians and horse riders. The livestock will use separate approach embankments and a segregated deck. The inclusion of the separate livestock crossing function will allow an additional 400 acres on Burwell Fen to be extensively grazed. The new crossing is also required to bring the whole of the Lodes Way up to

Agenda Item 9 – Page 2 the standards set by Cycle England and agreed in 2009 as part of the award of Connect 2 Big Lottery grant to the Lodes Way project.

3.2 In addition to the application form and plans submitted, the applicant’s case has been put forward in supporting documents, which can be found on the planning file and can also be viewed online via public access http://pa.eastcambs.gov.uk/online- applications/applicationDetails.do?activeTab=externalDocuments&keyVal=LS6GWT GG55000 and include:

Environmental report; Desk study and ground investigation report; Burwell Lode crossing feasibility study; Flood risk assessment; Tree impact assessment; Phase 1 survey report; Protected species survey report; Burwell bund extended phase 1 habitat survey; Great crested newt survey report; Water vole survey report; Reptile survey; Wicken Fen Vision – The grazing programme explained.

4.0 THE SITE AND ITS ENVIRONMENT

4.1 The application site is situated in the countryside and forms part of the Wicken Fen spine route, which itself is part of the Wicken Fen Vision. The Vision is a 100 year plan to increase the size of the Wicken Fen Nature Reserve. The Wicken Fen Vision will create a network of footpaths and cycle tracks across the area.

4.2 The proposed site for the bridge is situated to the west of two existing bridges over Burwell Lode, an existing footbridge and a lifting bridge. Burwell Lode and its embankments, which are the responsibility of the Environment Agency, are situated above the level of the surrounding landscape, which given the flat topography, makes Burwell Lode a prominent feature in the landscape. The associated peat wastage and shrinkage and the drainage of the land are what have resulted in a significant reduction in the elevation of the surrounding land and as a result the water in the Lode now sits up to 2.5 metres higher than the surrounding land.

4.3 The site is partly within and entirely surrounded by farmland, the land to the south is used for crop production and to the north for livestock grazing. The nearest villages are Wicken and Burwell located 1800 metres to the north and 3000 metres to the southeast respectively.

4.4 Burwell Lode was excavated in the mid 17th Century and as well as being part of the drainage of the fens, was used for the navigation of boat traffic from chemical and fertilizer works in Burwell.

5.0 PLANNING HISTORY

Agenda Item 9 – Page 3 5.1 Application 09/00509/FUL was approved in October 2009 and granted permission for the construction of a cycle track from High Bridge to Straight Drove, the construction of a 3m wide bridge for public access across Reach Lode including the construction of embankments. Permission was also granted for the creation of two wetland habitat areas, including two ponds, following the extraction of fill material to construct the above embankments and the erection of temporary buildings to be used in association with the construction of the new bridge and other works.

5.2 Application 10/00476/FUM was approved in September 2010 and granted permission for the creation of a low bund, to enable the creation of a mixed wetland habitat through shallow, seasonal inundation of the enclosed area.

6.0 REPLIES TO CONSULTATIONS

6.1 1 nearby address notified and site notice posted – letters received from Chapel Farm, River Bank, Upware, 108 Ness Road, Burwell, 2 Road, Wicken and Squirrels, West Sussex:

As a local resident and lover of our fens as they are, I object to the proposal; Will build on the underbank droves, which will obstruct these routes for existing users and those who have used them traditionally; Will inconvenience horse riders and cyclists travelling along Burwell Lode; Need to ensure the access along the Lode bank and underbank is maintained; New haul roads proposed as diversionary routes for underbank droves – routes should have open public access and must not be obstructed with locked gates, nor should a nuisance be caused by large grazing animals; Been informed by an employee of CCC that I should be grateful to the NT for installing a new path and I should not mind loosing traditional ones, disgusted by this attitude; Request the application to be deferred in order to give more time to read and understand huge amount of detail included in the supporting documentation; Tree impact assessment has yet to be prepared and submitted; EA recommended application be withdrawn or deferred until several issues raised by them have been resolved; Application flawed as omits to provide bridge location, without such fundamental information impossible to consider the application; Location of bridge has an important bearing on the future of 16 healthy mature Willow trees situated on the north bank of Burwell Lode; These trees need to be preserved, although request for the relevant orders to be assigned, has so far been refused by trees officer, which I believe needs to be reconsidered; Wholly natural, wild and fragile environment being eroded by the NT; Strange creatures introduced so areas being fenced/gated and no longer possible to ride horses along the same paths; Hire of bicycles is a money spinner; Huge ghastly bridge; Other bridges in the area far more in keeping; Money set aside could be put to far better use.

Agenda Item 9 – Page 4 6.2 Archaeology – Recommend that the same archaeological condition be placed on the development as was for a prior application within the same bounds. The site should be subject to a programme of archaeological investigation and recommend this work should be commissioned and undertaken at the expense of the developer.

6.3 Cambridgeshire County Council, Environmental Services – The County Council support the application. The bridge will complete the Lodes Way and help to bring associated economic and health benefits. The project complements the Cambridgeshire Green Infrastructure Strategy (June 2011), particularly the objectives for target area 6.2 (Wicken Fen and Anglesey Abbey) to “create a network of way- marked routes for walkers, cyclists and horse riders linking Cambridge, local villages, Wicken Fen, Anglesey Abbey and the wider countryside” (page 121). Satisfied that potential Public Rights of Way issues have been appropriately considered.

6.4 Cllr David Brown – In light of local interest can I request that this application is referred to the Planning Committee to enable a full open debate.

6.5 Environment Agency – No objections to the proposed development but issues to be resolved including the final calculations for the cut and fill analysis balancing the volumes and the typo in the FRA which needs to be amended.

6.6 Internal Drainage Board – The Board have no objections to this proposal as we have already been consulted and agreed to the layout. The diversion of the ditches in this proposal will require the consent of the Board before works start on the site.

6.7 Natural England – Natural England supports this proposal, which will make a significant contribution to biodiversity and to opportunities for the public to enjoy the natural environment. Proposal would not have any adverse impact on the statutory designations relating to Wicken Fen. Phase 1 Habitat Survey identifies that the area that would be affected by the development is semi-improved grassland and drainage ditches which are not of high intrinsic biodiversity value. The loss of this habitat would be offset by habitat creation within the scheme including new ponds and by facilitating habitat creation and management in surrounding area. The surveys and proposed mitigation should ensure otters and great crested newts are not affected by the development.

6.8 Parish Council – Concerns expressed that the existing access for cyclists and equestrians along the underbank should be maintained. The visual effect of three bridges in such close proximity also gives cause for concern. In addition a number of Councillors felt strongly that the bridge was too large.

6.9 Sustrans – Sustrans is a partner with the National Trust in the creation of the Lodes Way, which have been made possible by the construction of bridges for non- motorised users over and Reach Lode. At Burwell Lode an existing stepped footbridge remains something of an obstruction of the Lodes Way. It provides an adequate pedestrian crossing, but can only be used with difficulty by cyclists, who have to lift bikes up and down steps and it is impossible for equestrians to use. This application would provide a gently ramped and much wider bridge, which would make crossing easier and more pleasant for pedestrians, cyclists, users of disability vehicles and equestrian access. Would open up relatively direct, quiet and attractive cycle route between Cambridge and Ely and a great many new cycling and

Agenda Item 9 – Page 5 equestrian routes. Sustrans enthusiastically supports this application for the many opportunities it would open up for active, healthy travel and countryside recreation.

6.10 Trees Officer – The tree impact assessment describes accurately the location and situation of the Willow trees in regard to the development site, and also the current condition of the trees. Agree with the report’s longer-term management proposals for the Willow trees, and pollarding and coppicing are recognised as traditional methods of managing Willows in the fenland landscape. Several small bushes/shrubs are being removed near the new bridge, may be an opportunity to plant some replacements. Details of report are acceptable. The mature group of Willow trees is not threatened by the development and the access to the site for the bridge construction and materials will be from the adjacent field, so it was considered that a tree preservation order on the group of trees was not required.

7.0 THE PLANNING POLICY CONTEXT

7.1 Core Strategy 2009

CS1 Spatial Strategy CS6 Environment CS8 Access EC8 Tourist facilities and visitor attractions S6 Transport impact EN1 Landscape and settlement character EN2 Design EN6 Biodiversity and geology

7.2 Regional Spatial Strategy – Plan

SS1 Achieving Sustainable Development ENV1 Green infrastructure ENV3 Biodiversity and Earth Heritage ENV7 Quality in the Built Environment

7.3 National Planning Policy

PPS1 Delivering Sustainable Development PPS7 Sustainable Development in Rural Areas PPS9 Biodiversity and Geological Conservation

8.0 PLANNING COMMENTS

8.1 The site is located in the countryside and forms part of the Wicken Fen spine route, which itself is part of the National Trust’s Wicken Fen Vision. The Vision is a 100 year plan to increase the size of the Wicken Fen Nature Reserve. The main issue to consider in relation to this application is therefore the impact of the proposal on the character and appearance of the countryside.

8.2 The aim of the Wicken Fen Vision is to recreate fenland habitat to help secure the survival of threatened species whilst creating a vast area of easily accessible

Agenda Item 9 – Page 6 countryside to explore by foot, cycle, horse or boat. This scheme has arisen as part of this aim.

8.3 At present there are 2 existing bridge crossings over Burwell Lode, which are unsuitable for the proposed crossing envisaged as part of the Lodes Way network. The ‘lift up bridge’ is owned and operated by the Environment Agency and is used to provide access for their vehicles for maintenance and repair of the lode embankments. The use of it was studied in a feasibility study and it was considered that it was not feasible to use this bridge for a range of practical and safety issues. The concrete footbridge, whilst providing a functional pedestrian crossing does not cater for cyclists, equestrians and disabled users. Neither bridge is suitable for the free movement of livestock.

8.4 The proposed bridge would allow access across Burwell Lode including disabled access, pedestrians, cyclists, equestrians and the free movement of livestock provided by two separated tracks. The new bridge would provide a key link in the National Cycle Network, providing a crossing of Burwell Lode to full Cycle England standards. At present cyclists must cross Burwell Lode by dismounting and carrying cycles up and down the steps of the existing footbridge and along approximately 185 metres of un-surfaced grass path.

8.5 Objections have been raised in relation to the visual impact of the proposed bridge. A number of different options were assessed prior to the submission of this application. Although the proposed bridge would be visible within the landscape it is considered that the bridge and the approach ramps would not be unduly detrimental, as it has been sensitively sited and designed. There are certain criteria, which dictate the height of the proposed bridge, including clearance for users of the Lode and the height of the handrails on the bridge. There are already a number of existing man made structures within the landscape including the two existing bridges, farm buildings, electricity sub station and pylons. A number of existing trees within the landscape would also help to mitigate the visual impact of the bridge. The simple design, the curve of the bridge and the proposed materials allow the bridge to sit comfortably within the landscape and although visible would not create an adverse impact on the countryside. The proposal would also create a valuable crossing point of the Lode for all users.

8.6 The project complements the Cambridgeshire Green Infrastructure Strategy (June 2011), particularly the objectives for target area 6.2 (Wicken Fen and Anglesey Abbey) to “create a network of way-marked routes for walkers, cyclists and horse riders linking Cambridge, local villages, Wicken Fen, Anglesey Abbey and the wider countryside” (page 121). The County Council are also satisfied that potential Public Rights of Way issues have been appropriately considered.

8.7 Policy CS6 of the Core Strategy states ‘opportunities will be taken to enhance quality, promote access (particularly by non car modes, and expand to contribute to green networks’. The proposed bridge supports this Policy by greatly improving an existing link to enable access for all, contributing to a green network, promoting sustainable transport links and increasing tourism within the area. The proposed bridge would offer significant improvements in accessibility in the area. The proposal would also be in accordance with Core Strategy policy CS8, which seeks to improve

Agenda Item 9 – Page 7 accessibility for the whole community, reduce the need to travel by car and increase cycling and walking.

8.8 Policy EN6 of the Core Strategy supports the creation of natural habitats as part of a development proposal. The material used for the creation of the approach ramps and topping for the arched structure would be taken from adjacent sites and would form a new wetland habitat in the form of ponds. This would result in the creation of natural habitats in accordance with policy.

8.9 A number of concerns were raised by neighbours in relation to a group of mature Willow trees on land managed by the Environment Agency, adjacent to the site. Following a site meeting with the applicant and the Trees Officer a Tree Impact Assessment was submitted. The tree officer agrees with the reports longer-term management proposals for the Willow trees and as the group of trees are not threatened by the development, it was considered that a tree preservation order was not required.

8.10 The public rights of way running along each bank of the Burwell Lode could be affected by construction for short periods of time when the steel work and permanent shuttering are installed. The agent has advised that the County Council rights of way team will be consulted on the need for temporary closures. The works will not affect the public right of way that runs across Burwell Fen.

8.11 A number of issues raised by residents were not material planning considerations, including the money proposed to fund the project, the hiring of bicycles to make money and the introduction of strange creatures to Wicken Fen to graze.

8.12 The Environment Agency requested additional information. An amended FRA and the final calculations for cut and fill analysis have now been sent to the EA for their comments, but no further comments have been received to date. Sustrans, Natural England and Cambridgeshire County Council are all in support of this application in terms of the linkages it would create and the promotion of sustainable transport links within the district. This application is therefore recommended for approval.

9.0 RECOMMENDATION

1 The development hereby permitted shall be commenced within 3 years of the date of this permission.

1 REASON: To comply with Section 91 of the Town and Country Planning Act 1990, as amended.

2 The materials to be used in the construction of the external surfaces of the development hereby permitted shall be those specified on the application form and Drawing No. 19303-P4, P5, P6 and P7. No additional or alternative materials shall be used unless otherwise agreed in writing by the Local Planning Authority.

2 REASON: To safeguard the character and appearance of the countryside, in accordance with policies CS1, EN1 and EN2 of the East Cambridgeshire Core Strategy 2009.

Agenda Item 9 – Page 8 3 No development shall begin until the applicant has secured the implementation of a programme of archaeological work in accordance with a written scheme of investigation which has been submitted by the applicant and approved in writing by the Local Planning Authority. The archaeological work shall be carried out in accordance with the approved details.

3 REASON: To ensure that any archaeological remains are suitably recorded in accordance with policy EN5 of the East Cambridgeshire Core Strategy 2009.

4 The development hereby permitted shall be carried out in accordance with the approved Tree Impact Assessment dated 8 November 2011 and the mitigation measures detailed within the Tree Impact Assessment.

4 REASON: To ensure the longevity of the existing landscaping, in accordance with policy EN1 of the East Cambridgeshire Core Strategy 2009.

5 The development shall be completed in accordance with the supporting documents relating to protected species that accompany the planning application - Reptile Survey dated September/October 2011, Burwell Lode Bridge Phase 1 Survey Report dated February 2011, Protected Species Survey Report dated May 2011, Water Vole Survey Report dated May 2011 and the Great Crested Newt Survey dated May 2011.

5 REASON: To ensure that the protected species on site are adequately protected, in accordance with policies EN1 and EN2 of the East Cambridgeshire Core Strategy 2009.

Background Documents Location(s) Contact Officer(s)

The Case File Rebecca Saunt Rebecca Saunt 11/00886/FUL Room No. 011 Planning Officer The Grange 01353 665555 Ely [email protected]

Agenda Item 9 – Page 9