CONTEXT

4.1 The environment of Somerset and Exmoor is a major resource in its own right and is important for the well being of people in every part of the plan area whether in remote rural areas, villages, suburbs or the centre of the largest towns. The overall aim of the policies in this chapter is to provide a framework of protection, conservation and management of the natural and built environment. The County Council and National Park Authority will also seek the enhancement of the environment, where people live, work, recreate and enjoy.

4.2 There is tremendous variety to the landscape of Somerset and Exmoor. In comparison with many other parts of England, it is both more diverse and it remains substantially undeveloped. The varied geology results in a mixture of high moorland, several hill ranges, open wetlands, low ridges and a coastline that includes cliffs, beaches, inter-tidal mudflats, dunes and an estuary. The smaller-scale elements of the landscape include limestone rock outcrops and gorges, dry stone walls, rivers and streams, small woodlands, hedges, orchards, withy beds farmsteads and canals. The diverse habitats present in the county add to the biodiversity, local distinctiveness and environmental stock. The hamlets, villages and market towns within the Joint Structure Plan area are no less varied, containing a rich variety of architecture and street patterns. Each element, whether urban or rural, requires careful attention to maintain its contribution to the overall quality of the environment. This requires many different skills that are essential for the maintenance of a vibrant rural economy.

4.3 Development can have a significant impact on the quality of the local environment of which it will form a part. It has an important influence on the inter-relationship that exists between neighbouring landscape types and particularly in the transition between urban to rural environments that occurs on the edge of settlements and especially in relation to the larger towns. This type of area is sometimes referred to as the 'urban fringe' and can be represented by a visually degraded landscape and environment. The overall strategy of the Joint Structure Plan seeks to concentrate future development primarily in the larger settlements. Some of this may need to be accommodated on the edge of settlements within the urban fringe. A challenge for the land-use planning process, and the development plan in particular, will be the management of future development in such areas. This will need to be done in such a way as to ensure an improvement in the visual quality and other environmental considerations in the transitional zones between urban and rural landscapes. The context for this, in design terms, is provided through advice contained in PPG 1: General Policy and Principles (1997), and PPG 3: Housing (2000).

4.4 The character and quality of the various aspects of the physical environment, and the level of importance ascribed to each, can contribute to it acting as a constraint to development. The implications of this potential restriction on development can be compounded if it is the subject of a statutory and/or national policy designation (e.g. Conservation Area, high grade agricultural land classification, land identified as liable to flooding via Section 105 mapping, etc.,). A study was carried out as part of the Joint Structure Plan process (Somerset Structure Plan Review - Environmental Constraints Project: Final Report), that assessed the development potential of the fifteen Towns in the context of their environmental capacity. The study identified 22 environmental factors which it divided into two types; critical (subject to statutory and/or national designations), and non-critical (subject to local and/or lower grade designations). It concluded that the settlements could accommodate the majority of the development the Strategic Planning authorities proposed, particularly in relation to, Policy 16: Provision of Land for Industrial, Warehouse and Business Development and, Policy 33: Provision for Housing, within the plan period.

4.5 The study identified that eight of the settlements would be approaching the limits of their potential physical expansion by 2011 if the development occurred at the level proposed by the Strategic Planning Authorities. However, any further growth in these settlements would involve breaching the threshold of one or more of the critical environmental factors. A consequence of these findings is that the overall strategy of focusing development on all these fifteen settlements may have to be re-appraised when the Joint Structure Plan is reviewed and updated. The reason for this would be to determine if the critical factors may need to be regarded as tradable in order to maintain the most sustainable pattern of development for the affected settlements in economic, environmental and social terms.

4.6 Care for the environment in all parts of the plan area, will help to support economically and socially healthy communities across Somerset and Exmoor and contribute to the well being of the area. The objectives and policies are set out under the headings of Countryside, Historic Environment and Coast. They reflect the importance of fostering understanding among the public of how the environment works and its value.

COUNTRYSIDE

4.7 Public understanding of the need to conserve the diversity of wildlife resources as essential elements of the ecosystem on which we all depend is better developed. It is also Government policy to safeguard the countryside for its own sake, for the benefit and enjoyment of existing and new residents and visitors. Government guidance on the countryside is set out in PPG 7: The Countryside - Environmental Quality and Economic and Social Development (1997).

4.8 The guidance, emphasises the special considerations that should apply in designated areas, for example National Parks or Areas of Outstanding Natural Beauty, so that the reasons for their designation are given due weight in development decisions. In general, across the countryside it points out that a high quality environment will more readily attract investment in villages and small towns, bringing opportunities to enhance the rural environment. It therefore highlights, within a working landscape, the need to protect and enhance the landscape, wildlife and wildlife habitats and historic features. Such an approach can help to protect and enhance designated landscapes such as Exmoor, the Somerset Levels and Moors, and the Blackdown, Mendip and Quantock Hills for the benefit of future generations. It also draws attention to the need to promote diversification of the rural economy and to the value of protecting the best quality agricultural land from development wherever possible.

4.9 PPG 9: Nature Conservation (1994), sets out Government policy for the conservation of the natural environment. This guidance emphasises the importance of nature conservation sites and the protection of species and advises on the treatment of nature conservation issues in development plans. It also provides a development control framework for the protection of nature conservation sites. The guidance also emphasises that our natural wildlife heritage is not confined to just designated sites and that nature conservation issues should be taken into account in all aspects involving the regulation and development of land. The role of structure plans is to identify key designations of nature conservation importance, to establish a strategic framework and to exemplify their characteristics in both the national and international context. Structure plans must also include policies in respect of the conservation of the natural beauty and amenity of land.

4.10 These requirements accord with the strategy of the Joint Structure Plan and its objectives for the countryside.

Objectives

• To conserve and enhance the biodiversity and natural beauty of the countryside in general and designated areas of international, national and local importance.
• To conserve the agricultural resources of Somerset and Exmoor.

4.11 In terms of the first of these objectives, advice from Central Government contained in PPG 7: The Countryside - Environmental Quality and Economic and Social Development (1997), and PPG 9: Nature Conservation (1994), recommends that greater weight and emphasis should be placed on protecting areas and interests of international and national importance. This is due to the fact that designated areas have been confirmed through relevant primary legislation. This in turn gives national and internationally designated areas a greater degree of legal protection than those that are designated at the local level.

POLICY 1
NATURE CONSERVATION

The biodiversity of Somerset and the Exmoor National Park should be maintained and enhanced. The greatest protection will be afforded to nature conservation sites of international and national importance.

In addition, Local Plans should include policies to maintain and enhance sites and features of local nature conservation importance including landscape features which provide wildlife corridors, links or stepping stones between habitats.

4.12 It is of vital importance to the proper planning of Somerset and Exmoor that the value of its biodiversity is recognised, protected and enhanced. In Somerset alone, some habitats have been recognised as being of international importance, for example, the Severn Estuary is designated as a Ramsar site, Special Protection Area and a possible Special Area of Conservation and parts of the Somerset Levels and Moors are a Special Protection Area and a Ramsar site. A number of important sites are being reviewed, to identify whether they should be designated as sites of international importance. Table 4.1 explains the different site designations.

4.13 Internationally important nature conservation sites shall be protected from inappropriate development that is not essential to the management of the areas and their integrity should be maintained. Alternative solutions to development in these areas must be sought when development proposals are considered and provision for development should only be made where location in that area is essential and where there are imperative reasons of overriding public interest. It is the role of Local Planning Authority through their district-wide local plans to define development control criteria, in accordance with Government advice in PPG 9: Nature Conservation (1994). In appropriate circumstances, permitted development rights can be removed by the local planning authorities, in order to provide greater protection for nature conservation sites.

4.14 Somerset and Exmoor are rich in habitats designated as being of national importance. It has a number of Sites of Special Scientific Interest (SSSI) that will be protected, and where appropriate, enhanced. Provision should only be made for development that affects a nationally important site for nature conservation if it is essential for the management of the site, or if it is in the national interest and the benefits arising from the development outweigh the intrinsic nature conservation or scientific value of the site. This includes proposals which fall outside of the designated area, as these could affect a SSSI or its setting. English Nature must be consulted in respect of development proposals that are likely to affect an SSSI. It is the role of local plans to indicate the criteria against which any proposal would be judged. It is important that provision is made for the management of nature conservation sites. This accords with Regulation 37 of, The Conservation (Natural Habitats & c.) Regulations 1994.

4.15 A considerable number of locally important sites for nature conservation have been identified in both Somerset and Exmoor. The local nature conservation designations used in the plan area are shown in Table 4.1. Many of those that are of local importance have been designated as County Wildlife Sites. These sites are important to the biodiversity of the area and contribute to the environmental stock of the area covered by the Joint Structure Plan. It is important that development proposals respect the local importance of these designated sites. Where the need for the development overrides the conservation interests of the site, it is important that measures are taken to ameliorate or compensate for the loss of habitat. Local plans should identify locally important sites on the proposals map and set criteria for the control of development.

4.16 Whilst designations can be applied to areas where there are strong clusters of particularly important types of wildlife and their habitats, these can only reflect the situation at a given point in time. Nature does not understand or respect the implications of such designations other than it helps to ensure that habitats in certain locations remain protected from development pressures. Wildlife is dynamic and responds to changes to conditions in its local environment, although not always to its own benefit. Its ability to evolve and adapt to changes that affect its habitat can be dependent on its ability to move around in relative safety. Where construction activity does occur that affects natural habitats, which have been identified and protected from development, it is important to ensure that these do not become isolated in such a way that the species

TABLE 4.1

within it are unable adapt effectively to the changed conditions caused by the development. It is important, therefore, to ensure that provision is made, through appropriate policies in district-wide local plans, that consideration is given to the inclusion of links between habitats either in the form of wildlife corridors or stepping-stones. It may be necessary to include provision for such links, where this is practical, through land identified for development. The linking of habitats in this way could also contribute towards protecting species of wildlife which, although not included in the lists at risk in PPG 9: Nature Conservation (1994), perform an important function by providing diversity in the local natural environment.

POLICY 2
EXMOOR NATIONAL PARK

In the Exmoor National Park;

• the conservation and enhancement of the natural beauty, wildlife and cultural heritage; and
• the promotion of opportunities for public understanding and enjoyment of the special qualities of the area,

should be given priority over other planning considerations. In cases of conflict between these purposes, greater weight should be attached to the first. Due regard should be had to fostering the economic and social well being of local communities.

Provision for development should only be made where it would not conflict with the purposes of the National Park designation. Provision should only be made for major development where there is an overriding need in terms of national considerations that cannot be met in any other way.

Particular care will also be taken to ensure that no development is permitted outside the National Park which would damage it's natural beauty, character and special qualities or otherwise prejudice the achievement of National Park purposes.

4.17 The Exmoor National Park falls within parts of Devon and Somerset and was designated in 1954, under the National Parks and Access to the Countryside Act 1949. The original reason for the designation of the Exmoor National Park was to provide statutory protection for its landscape and the scenic beauty of the area. This has since been revised, through the Environment Act 1995, to conserve and enhance their natural beauty, wildlife and cultural heritage and to promote opportunities for public understanding and enjoyment of their special qualities. Government advice contained in PPG 7: The Countryside - Environmental Quality and Economic and Social Development (1997), makes it clear that where there is potential for conflict between these two roles that the former should take precedence. Section 62 of the Environment Act 1995 provides the justification for environmental considerations taking priority over economic and social conditions within National Parks. The National Park Authorities (England) Order 1996, established the Exmoor National Park Authority as the sole strategic planning authority from 1st April 1997 for the national park, in addition to its existing function as the local planning authority for that area.

4.18 It must be recognised that the maintenance of a landscape can depend on the survival of an economically and socially healthy community. Policy 2 is set out to recognise the importance of these areas, facilitate this protection and enhancement by landowners and local planning authorities, and ensure that the formal boundary of a designated area does not foster significantly conflicting approaches to the landscape of adjoining areas. Provision, therefore, should only be made for development where it is necessary for the maintenance of the economic and social well being of the area as described above, where it would enhance the area or, where there is an overriding national need for the development. Land-based industries such as agriculture and forestry are important contributors to the local economy within the national park and extensive users of land. The way in which the land is used and managed for these purposes will be closely related to the purpose of the national park and will also be determined through the Exmoor National Park Management Plan. Relevant guidance is given in Chapter 5: The Economy and Chapter 7: Transport and Infrastructure, in respect of Minerals and Renewable Energy proposals affecting the National Park.

4.19 The area designated through the appropriate legislation as comprising the Exmoor National Park, provides the context for, and control of development within it. However, it is important to ensure that the land immediately outside of the national park boundary that provides its context and setting is also protected from in appropriate forms of development. Policy 2 seeks to extend the requirements that apply within the Exmoor National Park to include the land that contributes towards its setting. This is consistent with advice from Central Government set out in RPG 10: Regional Planning Guidance for the South West (1994), which states;

Development plans should ensure that land which bounds nationally important landscapes is suitably protected from insensitive changes that would detract from the designated areas. (para. 4.9)

POLICY 3
AREAS OF OUTSTANDING NATURAL BEAUTY

In Areas of Outstanding Natural Beauty the conservation of the natural beauty of the landscape should be given priority over other planning considerations. Regard should also be had to fostering the economic or social well being of the locality. Provision should only be made for major industrial or commercial development where it is in the national interest and there is a lack of alternative sites. Particular care should be taken to ensure that any development proposed does not damage the landscape character of the area.

4.20 The primary objective of the designation of Areas of Outstanding Natural Beauty (AONBs) is to conserve the natural beauty of the landscape. The designation is made under the same legislation as National Parks (The National Parks and Access to the Countryside Act 1949). The designation of AONBs is the responsibility of the Countryside Agency. Within the Joint Structure Plan area there are four AONBs. These are Blackdown, Mendip and Quantock Hills and, the western part of the Cranborne Chase and West Wiltshire Downs.

4.21 In AONBs, the priority is to conserve and enhance the landscape. Provision should only be made for development where it is important for the continued economic and social well-being of the local community. Provision for affordable housing, local employment, services or community facilities, or development that is in the national interest, such as minerals that cannot be obtained elsewhere, may also be considered. Provision should also be made for development where it would enhance the character of the locality. This is consistent with the advice contained within, PPG 7: The Countryside - Environmental Quality and Economic and Social Development (1997). As with the Policy 2: Exmoor National Park, relevant guidance is given in Chapter 5: The Economy, and Chapter 7: Transport and Infrastructure, in respect of Minerals and Renewable Energy proposals that affect AONBs. Local plans should contain detailed development control policies in respect of development within AONBs and also their immediate surroundings in order to protect their setting, as advised by Central Government in RPG 10: Regional Planning Guidance for the South West (1994).

POLICY 4
LEVELS AND MOORS

The biodiversity and unique character of the Somerset Levels and Moors should be maintained and enhanced.

4.22 The Somerset Levels and Moors have been specifically identified for safeguarding at a strategic level because of their internationally important wetland environment. The purpose of a strategic designation is to recognise and protect this important area. The justification for such a designation is recognition of the unique character of the area as a whole and its importance to the biodiversity and environment of Somerset and Exmoor. The environment has many special and distinctive features such as withy beds, pollarded willows, the landscape formed by peat extraction, and the network of drainage rhymes. It is important that special recognition is given to this cultural landscape and that the public understanding of the area is fostered. Part of this area has been designated as a Special Protection Area (SPA) and as a Ramsar Site. These are international designations and details are provided in Table 4.1.

4.23 In addition to the land-use planning related designations, part of the Somerset Levels and Moors is designated as an Environmentally Sensitive Area (ESA) in order to protect and manage the special landscape, nature conservation and historic interests through the support of particular farming practices. Provision for development should only be made where it is essential for the management of the area. In exceptional circumstances, provision should be made for any other development only where the relevant national/international interests outweigh the intrinsic nature conservation or scientific value. It is important that development outside of the designated area does not have an adverse impact upon the area such as, for example, through polluted surface water drainage flowing into the area.

4.24 The Somerset Levels and Moors are rich in wetland archaeology. The wetland environment has preserved many features and artefacts that would otherwise probably not have survived. This archaeology is an important element of the historic stock of Somerset and Exmoor. Policy 4 should be considered in conjunction with the relevant archaeological policies in the Joint Structure Plan (Policy 11 - Policy 14, as appropriate) where archaeological features or artefacts within this area are the subject to development proposals, as well as the relevant local plan policies.

POLICY 5
LANDSCAPE CHARACTER

The distinctive character of the countryside of Somerset and the Exmoor National Park should be safeguarded for its own sake. Particular regard should be had to the distinctive features of the countryside in landscape, cultural heritage and nature conservation terms in the provision for development.

4.25 It is Government policy, expressed in PPG7: The Countryside - Environmental Quality and Economic and Social Development (1997), that the countryside should be safeguarded for its own sake and non-renewable and natural resources afforded protection. The landscape character approach is designed to replace previous subjective landscape designations with an approach that characterises and values the countryside as a whole. It seeks to analyse the distinctive features of the countryside without making judgements of the relative values of areas. Its purpose is to ensure that development respects and enhances the character of the land and the built environment.

4.26 In previous versions of the Somerset Structure Plan, Special Landscape Areas and Special Landscape Features were identified but these only applied to parts of the countryside rather than the holistic approach that will be provided by Policy 5. Special Landscape Features affect much smaller areas and can continue to be identified by Local Planning Authorities through district-wide local plans as their application is more locally orientated rather than strategic. The strategy of the Plan is in respect of development in the countryside is set out in Policy STR6: Development Outside Towns, Rural Centres and Villages. This policy seeks strict control of development in the countryside unless it would benefit economic activity, maintain or enhance the environment and would not foster growth in the need to travel.

4.27 The Countryside Agency mapped the landscape character of the English countryside in 1996 (see Figure 4.1 as to how it affects the Joint Structure Plan area). This provides a range of general designations and these have been or are being refined further by Local Planning Authorities, and the results of this work will be set out in their district-wide local plans. The Strategic Planning Authorities in conjunction with English Heritage have engaged in work to define the historic character of the landscape and is undertaking an analysis of landscape character.

4.28 Throughout the plan area and within the overall landscape individual features exist which make a notable contribution to its quality and character and which merit protection. Many of these features have been identified through landscape character assessment work. These include dune and cliff formations, isolated hills, lakes, woodlands, canals, copses and green wedges and various towers, monuments and follies. Local plans should identify and designate those that are worthy of safeguarding. Local planning authorities should continue to identify these features through their local plans and landscape assessment work and continue to safeguard them through the strict control of development.

POLICY 6
BRISTOL/BATH GREEN BELT

A small area of Somerset lying to the north-east of Norton St Philip will be left permanently open as part of the Bristol-Bath Greenbelt which aims to prevent the unrestricted sprawl of Bristol, Bath, Bradford on Avon and Trowbridge and the coalescence of settlements.

4.29 A small area of the Bristol/Bath Green Belt falls within the area covered by the Joint Structure Plan. The purpose of the Green Belt as it affects the plan area is to prevent the unrestricted sprawl of Bristol and Bath, prevent their merger and absorption of various adjoining towns and villages and, to assist in safeguarding the countryside from encroachment through preserving the open aspect of the area. This is consistent with, and develops the advice provided by, Central Government in PPG 2: Green Belts (1995). This area of Green Belt links that in Bath and North East Somerset and Wiltshire and assists in safeguarding the countryside surrounding the cities from further development. Provision should only be made for development where it would preserve the openness of the Green Belt such as essential facilities for outdoor sport and outdoor recreation and cemeteries. The exception to this is the provision of buildings for agriculture or forestry and limited affordable housing for local community needs, limited infilling or the redevelopment of major existing developed sites where identified in the local plan. The Mendip District Local Plan will provide the development control criteria in this respect.

POLICY 7
AGRICULTURAL LAND

Subject to the overall aims of the strategy, provision should not be made for permanent development, excluding forestry and agriculture, involving the best and most versatile agricultural land (Grades 1, 2 & 3a) unless there are no alternative sites on lower quality agricultural land and there is an overriding need for the development in that location. Where land in Grades 1, 2 & 3a does need to be developed and there is a choice between different grades, development should be directed towards land of the lowest grade.

4.30 Intensive agricultural production in itself is not an entirely sustainable form of land use since it risks damage to biodiversity and can cause pollution. However, better quality agricultural land can be significantly more productive than other land, whatever the intensity of production, that its protection from development is a material consideration in assessing proposals. Its location, often close to existing built-up areas and where new development may be appropriate, inevitably makes its absolute protection difficult. This policy is intended to ensure that the value of protection is properly taken into account in establishing development allocations or considering development proposals. The strategy of the Plan, focusing on the fifteen settlements designated in Policy STR 2: Towns, will ensure that the overwhelming majority of high quality land is protected. It is acknowledged that many of our towns developed as market towns located in areas of the best and most versatile agricultural land, and therefore the protection of agricultural land will have to be balanced with other issues so that the best sustainable development option can be followed. Development proposals affecting such land will have to considered in conjunction with the sustainable development requirements of Policy STR 1: Sustainable Development, and any relevant local plan policies.

4.31 Where provision has to be made for permanent development, it should preferably involve land falling into one of the lower grades of the Agricultural Land Classification (Grades 3b, 4 or 5), as defined by the Ministry of Agriculture, fisheries and Food. It must be recognised that this lower quality land can often be the richest in terms of biodiversity, archaeology and its contribution to the quality of the landscape. Where land in Grades 1, 2 and 3a has to be developed, the development should be directed towards land of the lowest Grade. Provision for permanent development involving the best and most versatile agricultural land should only be made where there are no alternative sites available on lower quality land and where there is an overriding need for development in that location. Consideration may also need to be given to the ecological value and nature conservation issues, particularly habitat and species protection, which affects lower grade agricultural land. This could inhibit or restrict its development potential and thus increase pressure for development on agricultural land of a higher grade. Where this occurs, a balance will need to be sought between the requirements of this policy and those of Policy 1: Nature Conservation, where the lower grade agricultural land has had a nature conservation designation applied to it.

4.32 Provision for temporary use of land involving the best and most versatile agricultural land can be made where the quality of the land can be restored after the use has ceased. Minerals extraction falls into this category, as reclamation can provide agricultural land of equal, if not higher quality than before.

4.33 It is important that soils are protected as being an essential part of the environmental stock of the area. Peat soils in particular suffer the effects of shrinkage and wastage caused by changes in the level of the water table. It is important that the adverse affects of soil erosion are avoided.

Forestry in Somerset and Exmoor

4.34 Somerset and Exmoor have a relatively low percentage of woodland cover (5%) compared with similar areas elsewhere in England (average 8%), and this is below the Government target of 15% cover by 2015. Agreements have been made with the Forestry Commission restricting the area of afforestation in Exmoor. There is scope for agreement with the Forestry Commission in other parts of the area covered by the Joint Structure Plan, either to discourage or encourage appropriate forestry. The, Local Agenda 21 Vision for Somerset, has set a target of a 70% increase in woodland area, compared with the 1999 level, by 2015. This will need to be targeted in order to avoid areas of wildlife or archaeological importance. A relatively high percentage of these existing woodlands (50%) are semi-natural ancient woodlands and therefore are important in terms of conserving biodiversity as well as in landscape terms. Much of the woodland in the plan area is located on Exmoor, the Brendons, Quantocks and the Blackdown Hills. The contribution to the landscape in these areas is considerable and the way in which these woodlands are managed is important both in terms of wildlife as well as landscape conservation. Woodlands also represent an important element in the fight against climate change due to carbon dioxide fixing, and they have economic and recreational value. They are in effect, a multi-purpose resource.

4.35 Agreements have been made with the Forestry Commission restricting the area of afforestation in Exmoor. There is scope for agreement with the Forestry Commission in other parts of the area covered by the Joint Structure Plan, either to discourage or encourage appropriate forestry. Somerset County Council is considering the production of an Indicative Forest Strategy for Somerset that will assist in this process. The County Council and the National Park Authority will continue to monitor applications for woodland grant schemes and make representations to the Forestry Commission in an effort to ensure proper care of the overall stock of trees, woodlands, hedgerows and small woodlands within the area covered by the Joint Structure Plan. Orchards are important as they are distinctive features within the environment of lowland Somerset in particular.

Hedgerows and Small Copses

4.36 The rural landscape of Somerset and Exmoor owes much of its character to the existence of hedgerows, hedgerow trees and small copses that also make a valuable contribution to biodiversity. There are variations in field size, hedge type and tree species in various parts of the county which contribute to the quality of the landscape and the distinctive character of each area. Somerset County Council will identify the character of the landscape within the county through the publication of a landscape strategy for Somerset. It will seek to protect and enhance the countyŐs hedgerows, hedgerow trees and small woodlands and traditional orchards through a system of grant aid and advice to landowners working in conjunction with the Somerset Farming and Wildlife Advisory Group, the Countryside Agency and English Nature. The Strategic Planning Authorities will support the Local Planning Authorities in implementing, The Hedgerow Regulations 1997, with a view to protecting all the important hedgerows in Somerset and Exmoor.

HISTORIC ENVIRONMENT

4.37 Government guidance contained in PPG 15: Planning and the Historic Environment (1994), defines the historic environment, in its broadest sense, as embracing all aspects of the environment that reflect human history. Somerset and Exmoor have a varied historic and architectural heritage that provides local distinctiveness and contributes to our identity. It is recognised that such valued assets represent a finite cultural resource, which requires innovative and sensitive planning. The historic environment policies seek to conserve the historic landscapes, buildings and archaeological remains within the area covered by the Joint Structure Plan for future generations. As part of the Joint Structure PlanŐs wider environmental responsibilities, this objective for the historic environment reflects the County Council and the National Park AuthorityŐs commitment towards environmental stewardship and desire to protect such irreplaceable assets.

Objective

To conserve the historic and architectural heritage of Somerset and Exmoor

POLICY 8
OUTSTANDING HERITAGE SETTLEMENTS

The special character of the Outstanding Heritage Settlements identified below, should be respected.

Axbridge
Beckington
Bishops Lydeard
Bridgwater
Bruton
Castle Cary
Chard
Crewkerne
Dunster
East Coker
Frome
Glastonbury
Hinton St George
Ilchester
Ilminster
Langport
Lympsham
Marston Magna
Martock
Mells
Milborne Port
Milverton
Minehead
Montacute
Muchelney
Nether Stowey
North Curry
Norton St Philip
Norton sub Hamdon
Nunney
Porlock Weir
Shepton Mallet
Somerton
South Petherton
Stogursey
Stoke sub Hamdon
Taunton
Watchet
Wedmore
Wellington
Wells
Wincanton
Wiveliscombe

4.38 Policy 8 identifies the need for particular care to be given to the historic fabric of Outstanding Heritage Settlements when accommodating change. The value of each settlement is assessed upon archaeological evidence, street and property patterns, prominent historic features, buildings and structures, and the landscape setting.

4.39 Over a third of the 192 Conservation Areas within Somerset alone are situated within Outstanding Heritage Settlements. The use of this designation on towns and villages enables resources to be focused upon protecting the character of the settlement. With such a comparatively large number of Conservation Areas this policy focuses direct action and investment to the most important areas. This is essential with increasingly limited resources available for such schemes. Local plans will formulate the detailed control and identification of enhancement schemes to ensure the protection of the character and appearance of these settlements.

POLICY 9
THE BUILT HISTORIC ENVIRONMENT

The setting, local distinctiveness and variety of buildings and structures of architectural or historic interest should be maintained and where possible be enhanced. The character or appearance of Conservation Areas should be preserved or enhanced.

4.40 Somerset and Exmoor have a rich built historic environment, which represents an irreplaceable record of the past. Such historic assets provide our settlements with local distinctiveness and contribute to the overall environmental quality and character within the plan area. Policy 9 provides strategic guidance for the historic built environment, which includes both statutory and non-statutory protected buildings and structures. This enables the formation of comprehensive and coordinated policies, which will encourage the sensitive planning of the building stock and their overall settings.

4.41 Our growing appreciation of the historic environment includes the recognition that the spaces and layout of our built environment are an integral part of the overall character of the area covered by the Joint Structure Plan. The protection of the settings of historic buildings and structures is essential if the integrity of these areas is to be preserved.

4.42 There are numerous Conservation Areas throughout Somerset and Exmoor and these are designated on an assessment of an areas character and appearance, which includes groups of historic buildings, walls, trees, archaeological sites and monuments, and historic street patterns. Development within Conservation Areas within the plan area should have regard to the preservation or enhancement of these features. This will require sympathetic development in terms of scale, design and materials.

4.43 In 1996 approximately 12,700 Listed Buildings were identified in Somerset alone. Policy 9 acknowledges that any proposed alterations, which are unsuitable and insensitive to the buildings fabric and setting, can detract from the features that are of special historic or archaeological interest. The Listed Buildings of Somerset and Exmoor make a significant contribution to the historic and cultural heritage of the plan area. By permitting the sensitive and innovative alteration or re-use of Listed Buildings their long-term future can be secured and their contribution to environmental quality and local distinctiveness preserved. Detailed records of the Listed Buildings and Conservation Areas within Somerset and Exmoor are held by the Strategic Planning Authorities for the Joint Structure Plan area.

4.44 A pro-active approach should be adopted for all historic buildings, both listed and unlisted, and particularly those appearing in the Buildings at Risk Register. A recent survey has indicated that over 100 of the Listed Buildings in Somerset are threatened by under use, disrepair and neglect. The future of the built heritage within the plan area depends on securing new economically viable uses, which are compatible with their historic fabric and setting.

4.45 The Courts have held that Section 54A of the Town and Country Planning Act 1990 does not apply to decisions on applications for Listed Building Consent or Conservation Area Consent. Policy 9 therefore relates to activities that constitute development, to which Section 54A directly applies.

POLICY 10
HISTORIC LANDSCAPES

Development proposals which affect a registered historic landscape (historic parks, gardens and battlefields) should take account of their impact on the character of that landscape.

4.46 A new area of formal concern, which was first acknowledged in Somerset Structure Plan Alteration No. 2, is the protection of registered historic landscapes. Within the County of Somerset alone, the English Heritage Register of Historic Parks and Gardens identifies 39 such sites that are of special historic value. The purpose of the Register is to promote the appreciation, maintenance and enhancement of these areas. Inclusion in the Register does not provide statutory protection, nor does it imply additional planning control. The fundamental objective is to highlight the important contribution they make to the character and heritage of the plan area. Local Planning Authorities must therefore ensure they receive special consideration when determining proposals for new development that may detract from their historic value.

4.47 A similar register has been compiled for battlefields, which allows their significance to be considered within the development process. PPG 15: Planning and the Historic Environment (1994), has confirmed their status as a material consideration and highlights their educational and recreational potential. Within Somerset, the Battlefield of Langport (1645) and the Battlefield of Sedgemoor (1685) have been identified as being of historic importance.

4.48 The protection of registered landscapes from intrusive development will ensure that the setting of many of the most valued historic buildings, structures and archaeological remains are preserved.

POLICY 11
AREAS OF HIGH ARCHAEOLOGICAL POTENTIAL

Development proposals should take account of identified Areas of High Archaeological Potential or, elsewhere where there is reason to believe that important remains exist, so that appropriate assessment and necessary protection can be afforded to any archaeological remains identified.

4.49 Areas of High Archaeological Potential or AHAPs are identified in local plans as areas most likely to contain important archaeological features. The boundaries of these areas will be up-dated as further research is completed and new areas defined. The importance of Policy 11 lies in the protection it offers to known Areas of High Archaeological Potential, and other areas where there is reason to believe remains exist, whose archaeological value have yet to be assessed. This may lead to formal designation, by the English Heritage Board and Strategic Planning Authorities, as a Scheduled Monument or other Site of National or County Importance. Local Planning Authorities, through district-wide local plan policies, will be expected to request an archaeological evaluation to be undertaken where development proposals affect an AHAP. This is to ensure that the potential archaeological importance of an area is highlighted and allow appropriate protection to be given to the remains. Similarly this will provide a framework to guide and inform developers. The strategic aim of Policy 11 is to provide guidance and ensure that evaluation is sought prior to the determination of a planning application in order to promote early consultation between developers and Local Planning Authorities.

POLICY 12
NATIONALLY IMPORTANT ARCHAEOLOGICAL REMAINS

There should be a presumption in favour of the physical preservation in situ of nationally important archaeological remains. The setting and amenity value of the archaeological remains should be protected.

4.50 Our archaeological heritage represents a finite and non-renewable resource, which, in many cases, is highly fragile and vulnerable to damage. Archaeological remains, including; buried deposits, buildings and structures, require comprehensive protection. This requires the establishment of strategic guidance to ensure that the future of the most important archaeological remains are safeguarded.

4.51 PPG 16: Archaeology and Planning (1990), provides that archaeological remains, identified and scheduled as being of national importance, should normally be identified in development plans for preservation. Other unscheduled archaeological remains of more than local importance, may also be identified in development plans as being particularly worthy of preservation. Policy 12 provides that nationally important remains, whether scheduled or not, should be preserved in situ. This reflects the importance attached to the preservation of such remains and their settings. The significance of protecting the setting lies with the valuable contribution they make to the overall historic significance of the area.

POLICY 13
LOCALLY IMPORTANT ARCHAEOLOGICAL REMAINS

Development proposals which affect locally important archaeological remains should take account of the relative importance of the remains. If the preservation in situ of the archaeological remains cannot be justified, arrangements should be sought to record those parts of the site that would be destroyed or altered.

4.52 Whilst it is recognised that the preservation in situ of important archaeological remains is nearly always preferred, it is not feasible to protect all archaeological sites. In such circumstances the planning authorities will need to weigh the relative importance of the archaeological remains against other factors, such as the need for the development. This decision will be informed by an assessment of the significance and extent of the remains, as identified in Policy 13. If their preservation in situ cannot be justified appropriate arrangements should be sought by the local planning authority to record those parts of the site which will be affected by the proposed development.

4.53 The Strategic Planning Authorities maintain records of national and locally important remains within the area covered by the Joint Structure Plan. In Somerset alone, the Sites and Monuments Record (SMR) currently identifies over 12,000 known archaeological sites, monuments and finds. This information ensures that identified archaeological remains are an integral consideration during the determination of planning applications. The guidance emphasises the importance of early consultation between local planning authorities and developers to reconcile potential conflicts. This process will be aided by referring to the SMR at the earliest instance. It is planned that direct access and remote access to the SMR will improve during the life of this Plan.

POLICY 14
ARCHAEOLOGICAL STRATEGIES

Development proposals in Towns, Rural Centres and Villages should ensure that, where appropriate, the protection of archaeological remains is undertaken.

Axbridge
Bridgwater
Bruton
Burnham-on-Sea & Highbridge
Castle Cary
Chard
Cheddar
Crewkerne
Crowcombe
Downend
Dulverton
Dunster
Frog Lane
Frome
Glastonbury
Ilchester
Ilminster
Langport
Lower Weare
Lyng and Athelney
Martock
Milborne Port
Milverton
Minehead
Montacute
Nether Stowey
Newport
North Petherton
Norton St Philip
Rackley
Shepton Mallet
Somerton
South Petherton
Stoford
Stogumber
Stogursey
Street
Taunton
Watchet
Wedmore
Wellington
Wells
Williton
Wincanton
Wiveliscombe
Yeovil

4.54 Somerset County Council, in partnership with English Heritage, has undertaken a comprehensive programme of defining and assessing archaeological remains located within historic urban areas in the county. The findings of the research is presented in archaeological strategies for individual settlements and former settlements. The objective of the strategies is to identify those parts of the environment that most merit protection. The strategies will also address the difficulties in determining what form of designation is most appropriate, given the particular patterns of property ownership, land use and economic activity.

4.55 The work being undertaken by Somerset County Council reflects the difficulties of protecting archaeological remains in a development context. It is essential that a structured and consistent approach be adopted, as these remains are an integral part of the historic fabric in general. Consequently the management of our archaeological heritage needs to be addressed as part of the overall conservation of the area. This requires the full integration and active management of the archaeological heritage. Policy 14 provides a framework that will guide and inform decision makers in the management and planning of the archaeological resource within the area covered by the Joint Structure Plan. It should also be considered in conjunction with the requirements of the Policy STR 4: Development in Towns, and Policy STR 5: Development in Rural Centres and Villages, which identify the different types of settlement and the type and level of development that each are expected to accommodate. The Strategies are to be published as supplementary planning guidance.

COAST

4.56 The Somerset and Exmoor coastline has considerable landscape variety that makes an important contribution to the character of the plan area. PPG 20: Coastal Planning (1992), endorses sustainable policies and practices for the coast and stipulates that any need for development should be reconciled with the need for environmental protection, conservation and, where appropriate, enhancement for increased recreational use. At the strategic level a consistent policy approach to coastal areas must be provided, the environment protected and a framework for local plan strategies set up.

4.57 Much of coast in Somerset and Exmoor has existing protection through international, national and local designations, such as the Exmoor National Park, Areas of Outstanding Natural Beauty, the Exmoor Heritage Coast, Ramsar site, Sites of Special Scientific Interest and Special Landscape Areas. The coastal zone therefore enjoys a comprehensive protection through existing designations and additionally by development plan policies. For planning purposes the coastal zone is defined as the area above the mean low water mark. The limits of which are determined by the geographical extent of the natural processes and human activities that take place. This could include areas of potential marine and tidal flooding and erosion, enclosed tidal waters such as estuaries and areas directly visible from the coast.

4.58 RPG 10: Regional Planning Guidance for the South West (1994), states that development plan policies should generally safeguard the whole of the regionŐs undeveloped coast. The Heritage Coast designation is a management tool by which the conservation, protection and enhancement of the undeveloped coastline can be promoted. In these areas the requirements of conservation and access must be balanced to ensure the flexible planning and management of the coastal zone.

Objective

• To protect the natural beauty, geology and ecology of the coast.

POLICY 15
COASTAL DEVELOPMENT

Provision for any development along the coast, including the Exmoor Heritage Coast, should be made within Towns, Rural Centres and Villages. Where development requires an undeveloped coastal location it should respect the natural beauty, biodiversity and geology of the coast and be essential in that location. New coastal developments should minimise the risk of flooding, erosion and landslip.

4.59 The coast is an important national resource that is subject to development pressures from a variety of commercial and recreational uses. Within undeveloped stretches of coast, the opportunities for development are becoming increasingly limited. Activities that do not require a coastal location should, therefore, seek alternative inland locations to alleviate this pressure, as the undeveloped coast is rarely the most appropriate location for many land uses.

4.60 To safeguard the undeveloped stretches of coastline, land uses that are dependant upon a coastal location should utilise sites in existing settlements. This approach is a means through which seaside resorts and waterfront areas can be regenerated. Through the encouragement of high quality design, the special character of the coastal towns within the Joint Structure Plan area will be protected and enhanced. This in turn will have a beneficial effect upon the local economy through the promotion of tourism activities, primarily within identified settlement boundaries. The detailed issues of the type and distribution of tourism activities that require a coastal location will be provided, by Local Planning Authorities, through their district-wide local plans.

4.61 Policy 15 supports the overall strategy of the Joint Structure Plan by exercising strict control of new development outside recognised settlements. It is essential that development along the coast should be compatible with the areas character and setting. Intrusive development should be avoided and any potential conflicts should attempt to balance the need to protect the coast, while providing for the essential social and economic needs of our coastal communities. Development proposals in coastal locations will also need to take account of the requirements of Policy STR 4: Development in Towns, Policy STR 5: Development in Rural Centres and Villages, and Policy STR 6: Development Outside Towns, Rural Centres and Villages. Consideration would also have to be taken account of the natural environment policies (Policy 1: Nature Conservation - Policy 7: Agricultural Land) and those dealing with flooding (Policy 60: Floodplain Protection, and Policy 61: Development in Areas Liable to Flooding), plus the relevant policies in the district-wide local plan.

4.62 With growing environmental concerns, such as rising sea levels and coastal flooding, risks associated with developing in the coastal zone have been identified. Furthermore, the Environment Agency has also identified large inland areas that are at risk from tidal inundation, particularly in Sedgemoor District. The future provision of development in these areas will require particular consideration. The geology of parts of the coast makes them vulnerable to flooding, erosion and land instability. This is acknowledged in Policy 15 which states that new development should minimise the risks associated with coastal development. Policy 61: Development in Areas Liable to Marine Flooding, reinforces this precautionary approach by providing additional strategic guidance in respect of development on the coast. Local plan policies should control or restrict development, depending upon an assessment of the associated risk and need for the development, to minimise damage to property and to prevent demands for new coastal defences which could compromise the management of existing defences elsewhere on the coast.

4.63 The coast's natural processes operate over extensive areas, which do not respect administrative boundaries. The effective management of the coastal zone therefore requires co-operation and co-ordination between adjacent planning authorities. At the international level the European Habitats Directive (Council Directive of 21st May 1992 on the Conservation of Natural Habitats and of Wild Fauna and Flora), provides protection to certain rare and endangered habitats, plants and animals, on land and in the marine environment. At sea, this will provide a major new opportunity for protecting marine habitats through the designation of Marine Special Areas of Conservation. The Severn Estuary is designated as a Special Area of Conservation under the European Birds Directive (Council Directive of 2nd April 1979 on the Conservation of Wild Birds), and as a Ramsar wetland of international importance. These international designations reflect the importance of the estuary for winter waterfowl.

4.64 Somerset County Council and the Exmoor National Park Authority will actively encourage and, where appropriate, participate in initiatives such as the Severn Estuary Strategy partnership project to develop an Estuary Management Plan, English Nature's Sensitive Marine Areas, the Environment Agency's Local Environment Agency Plans and the Bridgwater Bay to Bideford Bay Shoreline Management Plan to ensure that the coastline is preserved and enhanced.