2.1.1 Holderness forms a distinctive geographical area bounded by the North Sea to the east and the Humber Estuary to the south. It is predominantly rural in nature with 94% of the area being open countryside and 40% of the population living in the 3 towns of Hedon, Hornsea and Withernsea. Much of Holderness comprises the best and most versatile agricultural land, which it is Government policy to protect wherever practicable.
2.1.2 Holderness is a prosperous farming area and the percentage of land in the Government's 'best and most versatile' category (Grades 1, 2 and 3a in MAFFs Agricultural Land Classification System) is indicated here
2.1.3 The countryside within Holderness has an open character with long uninterrupted views afforded by the low lying landscape and the lack of trees. The visual quality of the environment is enhanced by the variety of crops, the cultivated nature of the landscape emphasising existing hedgerow boundaries. Many field boundary hedgerows have been lost in recent years and it is important that where possible these features are retained for their scenic and nature conservation value. Similarly, the Council has long recognised the value of woodland and small groups of trees and the need to protect such important features of the landscape.
2.1.4 The Holderness coastline extends for some 50km (over 30 miles) between Atwick and Spurn and has some of the longest beaches in Yorkshire. Less than 10% of the coast is developed and the remainder is open undeveloped countryside.
2.1.5 Spurn, a sand and shingle peninsula, extends southwards from Holderness 5km (3 miles) into the Humber. Part of the Humber Estuary was formally declared a Special Protection Area (SPA) and Ramsar site on 28 July 1994. The Humber Flats, Marshes and Coast SPA/Ramsar site includes the Humber Flats and Marshes : Spurn Head to Saltend Flats, Site of Special Scientific Interest (SSSI) which stretches along the southern boundary of Holderness. The site incorporates an extensive area of intertidal mud and sand, with fringing saltmarsh, small associated pools, sanddune systems and the important landform of Spurn Peninsula. The former designations recognise the international importance of the Humber Estuary as a wetland and for a number of migratory, wintering and breeding birds.
2.1.6 The Lagoons SSSI at Easington forms part of the Phase II SPA/Ramsar site for the Estuary. It comprises a variety of coastal habitats but most significantly, the saline lagoons and pools which represent the only extant example in North Humberside of this nationally rare habitat. The lagoons are also recognised as internationally important due to their restricted distribution throughout Europe, they support a nationally important population of Little Terns.
2.1.7 Hornsea Mere is the largest natural freshwater lake in Yorkshire and Humberside. It is of great importance for wildlife and has also been designated as a SSSI and SPA. The lake supports a number of bird species and is of international importance for the number of Gadwall which spend their winter there. The associated reedswamp, grasslands and woodland also form part of the site and provide a habitat for plants, birds and insects.
2.1.8 Some areas within Holderness are recognised as nationally important for their geological and geomorphological interest. These range from geological exposures such as the cliffs at Dimlington, and Spurn, to sites which help in the identification of the environmental conditions both before and since the last Ice Age through their pollen records and fossil remains.
2.1.9 Other inland water features include the River Hull and numerous drains and ditches which provide habitats for a variety of aquatic plants and animals. Some of the ditches near the coast support plants indicative of brackish conditions (mixture of seawater and freshwater), which are by their very nature restricted in distribution and therefore of conservation interest. Sand and gravel extraction in parts of Holderness has resulted in the creation of waterfilled pits which are of considerable nature conservation interest for birds, plants and insects and have recreational potential.
2.1.10 There are also a number of important nature conservation features outside these areas including floristicallyrich hay meadows, woodlands, grasslands/scrub, hedgerows and disused railways, and a wealth of plants and animals which are found throughout Holderness including birds, butterflies and bats.
2.1.11 The importance of nature conservation within Holderness is reflected by the fact that there are 2 internationally recognised sites (Ramsar and/or SPA), 7 Sites of Special Scientific Interest and 4 Regionally Important Geological Sites (RIGS).
2.1.12 The natural landscape of Holderness is complemented by the built environment. Architecturally, the area's most distinctive features are its churches and its cobble wall buildings. A considerable number of churches date back to the 12th Century. Holderness has a rich and diverse archaeological heritage with nearly 2,500 sites and find spots of archaeological material currently recorded. Twenty one of these sites are currently designated as scheduled ancient monuments. In addition, there are over 400 listed buildings and 25 conservation areas.
2.1.13 There is an increasing awareness of environmental issues generally and the Council has a major role in conserving and improving the landscape and reconciling the needs of the environment with economic activity in rural areas so that a harmonious and effective pattern of development can be achieved. It is the intention of the Council to give environmental concerns a high priority in the Local Plan, and to ensure that this approach applies to all forms of development proposals.
2.1.14 The Council considers the following issues need to be addressed in the Plan :
1. The need to protect the natural resources of Holderness, its soil, air and water quality, landscape and wildlife from the adverse effects of development proposals and from pollution and to take opportunities to enhance these resources wherever and whenever possible.
2. The sea and estuary coasts need to be protected from unnecessary and inappropriate development and it will be necessary to ensure that new development does not take place which will require protection from coastal erosion or flooding in the future.
3. Identification of natural features which are important and irreplaceable and to protect them against development.
4. Identification and protection of features of archaeological, historic and architectural importance from the effects of inappropriate development, and ensure that new development where it is appropriate is designed to have a minimal adverse impact on such features and to enhance them wherever this is appropriate.
5. Reduction in the risk to people and the environment from industrial processes and from the transportation network.
6. Preventing the unnecessary sprawl of development into the open countryside and protecting the countryside for its own sake and best and most versatile land.
International
2.1.15 At the United Nations Conference on Environment and Development in Rio de Janeiro in 1992, the most relevant outcomes were conventions for Biodiversity and Climate Change and most significantly a report known as Agenda 21. This action plan for sustainable development in the 21st Century was signed by 178 countries, including the United Kingdom. Agenda 21 indicated that planning of development and land use must be integrated with planning of transport, energy, water/sewerage and other infrastructure so as to minimise resource loads. Development should be sustainable.
2.1.16 The European nations commitment to sustainability dates back to 1972 when it was recognised that:
"Economic expansion is not an end in itself ... it should result in improvement in the quality of life ... particular attention will be given to the intangible values and to protecting the environment ...".
2.1.17 The Maastricht agreement also promotes the need for balanced and sustainable growth which respects the environment.
National
2.1.18 Since the publication of the discussion paper 'This Common Inheritance' the Government has given a high priority to environmental considerations particularly in its Planning Policy Guidance Notes. It seeks to achieve the prudent and efficient use of resources and a coordinated approach to problem solving and Development Plans are expected to take environmental considerations into account comprehensively and consistently.
2.1.19 The Government suggests that land should be treated as a finite resource and that development and conservation should not necessarily be regarded as being in conflict. The environmental implications of all development should be taken into account, in particular, the impact on landscape quality, wildlife conservation and environmental health. Local Plan policies should be designed to secure the conservation of the natural beauty and amenity of land and should reflect the practical measures needed to protect and improve natural features in town and country.
2.1.20 It is important that people live in a physically safe environment and that matters such as coastal erosion and flooding are addressed. National guidance also requires the protection of the best and most versatile agricultural land from development and suggests that to reduce CO2 emissions, development that generates trips, such as work places, should be located at or near public transport infrastructure. Residential development should be located to minimise journey lengths and times and energy efficient means of transport such as cycling and walking are encouraged as alternative means of transport.
Strategic
2.1.21 The Humberside Structure Plan calls for a balance to be made between meeting demands for job creation, housing and leisure and ensuring that environmental resources are not unnecessarily damaged. The Structure Plan gives a broad statement of policy on the environment in Policy EN1.
EN1 Proposals for development will be considered with a view to minimising adverse affects on the environment whilst making the best use of the County's environmental resources.
2.1.22 The Structure Plan states that the best and most versatile agricultural land should be safeguarded by encouraging development on land within built up areas or land with a statutory designation in a local plan.
2.1.23 It suggests priorities for conservation as it considers it impractical to conserve everything. It advocates a richly varied network of areas of landscape and wildlife interest to help improve the overall quality of the environment.
2.1.24 The Council views favourably proposals that bring derelict and other wasteland into beneficial use. It wishes to discourage the encroachment of development into the open countryside.
2.1.25 The Structure Plan Alteration Number 1 was approved in March 1993 and the Structure Plan is being reviewed. Although it is unlikely that the replacement structure plan will be adopted in the short term it will place greater emphasis on wider environmental issues including global warming, rising sea levels and environmental pollution.
The Council's Aims and Objectives
2.1.26 The Council is ideally placed to promote the concept of sustainability through its continuous involvement in managing and protecting the environment and through its detailed understanding of the environment of its area.
2.1.27 This Plan has two principal environmental aims. One relates to safeguarding and enhancing existing features of importance, the other relates to new proposals and opportunities to enhance the environment. The Council considers that improvements to the environment will assist in achieving the overall aims to help attract inward investment and secure the future prosperity of Holderness. All development proposals will be required to have regard to minimising their effects on the environment and upon the quality of life of Holderness residents and visitors.
AIM 1 THE COUNCIL WILL SEEK TO IDENTIFY, RETAIN, PRESERVE AND ENHANCE THOSE FEATURES OF THE ENVIRONMENT THAT MAKE A POSITIVE CONTRIBUTION TO THE CHARACTER AND APPEARANCE OF HOLDERNESS, AND WILL GIVE WEIGHT TO PROTECTING ENVIRONMENTAL RESOURCES THAT ARE IN EFFECT IRREPLACEABLE.
2.1.28 The Council will :
seek to retain the separate identity of settlements and prevent the unnecessary encroachment of development into the countryside.
pay particular regard to protecting best and most versatile agricultural land.
seek where appropriate to enhance and conserve the landscape of Holderness.
protect Buildings of Special Architectural or Historic importance.
protect archaeological remains of particular importance
safeguard those features that contribute significantly to the character and amenity of settlements.
seek the implementation of initiatives to protect existing tree cover and provide more tree/landscape features.
define and take appropriate steps to protect and enhance sites of significant international, national, regional or local nature conservation importance.
encourage the enhancement of underused land for the creation of wildlife habitats.
AIM 2 THE COUNCIL WILL ENCOURAGE NEW DEVELOPMENT THAT ENHANCES THE EXISTING FABRIC OF THE AREA'S TOWNS AND VILLAGES AND SAFEGUARDS ITS RURAL NATURE AND WILL OPPOSE DEVELOPMENT THAT CONFLICTS UNREASONABLY WITH THE ENVIRONMENT.
2.1.29 The Council will :
regularly review its Conservation Areas to confirm that the areas covered are those of the most historic or architectural importance and will encourage improvement of individual unlisted buildings and enhancement of the total built environment.
require developers to take steps to identify and appraise the significance of archaeological relics before development takes place and where appropriate take measures to preserve them..
seek to ensure that new development is compatible with its surroundings and built to a high standard.
require landscaping of new developments.
Encourage energy efficiency and the use of renewable energy sources wherever they are compatible with local environmental objectives.
2.1.30 Policy guidance for the environment is considered under the following headings:
1. Landscape Conservation and Enhancement
2. Nature Conservation and Enhancement
3. Existing Built Environment
4. New Development.
Landscape Conservation and Enhancement
2.1.31 Agriculture makes an important contribution to the Holderness economy and is the principal land use. About 53% of farmland is of the most productive grades, (MAFF agricultural land classification 1 and 2), compared with an average of only 20% for Yorkshire & Humberside and 14% for England and Wales. Reforms to agricultural policy and the increasing efficiency of agricultural production have resulted in the industry experiencing considerable changes. As a result there has been less need to retain as much land as possible in agricultural use and instead, increasing importance has been placed on the need to promote diversification of the rural economy.
2.1.32 In considering planning applications for development the Council will take account of the quality of any agricultural land that would be lost. Higher graded land is regarded as having special importance and therefore considerable weight is given to protecting such land from development. This has led to a policy of protecting the best and most versatile agricultural land (Grades 1, 2 and 3a) whilst less weight is given to the loss of land of moderate or poor quality (Grades 3b, 4 and 5). It would however be unrealistic to try to protect all high grade land. Where a choice has to be made within these grades, the policy is one of the 'worst first'. Policy En2 of the Humberside Structure Plan provides the following guidance.
En2 Land within builtup areas and land allocated, or with planning permission, for development will normally be used, wherever practicable, before nonagricultural development is allowed on agricultural land. Although the operational needs of the developer will be borne in mind, any such development should, as far as is reasonable:
1. be sited on land of the lowest quality in the locality with grades 1 and 2 land only being used when the local planning authority is satisfied that there is no reasonable alternative location on land of a lower grade;
2. keep the amount of agricultural land taken to a minimum; and
3. pay due regard to the effects on farm structure and viability.
2.1.33 In all cases where development proposals affect agricultural land a careful assessment will be made of the benefits and impact it has on the attractiveness of the area and its agricultural viability.
Env1 The use of the best and most versatile agricultural land for any form of development not associated with agriculture or forestry will only be permitted if there is a strong need for development on the particular site which overrides the need to protect such land and complies with other relevant local plan policies. Where development is permitted on the best and most versatile land it should, as far as is reasonable, use the lowest grade of land suitable for the development.
2.1.34 Trees and hedgerows are often the most prominent feature in the Holderness landscape, they provide definition to site boundaries, screening, buffers against pollution and are an important wildlife habitat. The Council has a duty to ensure, whenever it is appropriate that in granting planning permission for any development, adequate provision is made for the planting of trees particularly native deciduous species.
Env2 When considering proposals for new development the Council will expect existing healthy trees and hedgerows to be retained so far as such retention is reasonably practical and will require additional planting using, where appropriate, native species, as an integral part of the scheme or in the immediate locality.
2.1.35 If a woodland or individually important tree is considered to be threatened with felling or by development proposals the Council will consider whether it should be protected by the making of a Tree Preservation Order. Tree Preservation Orders afford protection for individual trees, groups of trees or woods (but not shrubs, cultivated fruit trees or hedgerows).
Env3 The Council will use its powers to make Tree Preservation Orders to protect trees in the interest of amenity where the trees have amenity value which is considered worthy of protection in the long term.
2.1.36 Areas of inland water provide important resources for sport, recreation, nature conservation and amenity. Holderness was previously rich in aquatic habitats, however, these inland water resources have gradually been lost as a result of land drainage and reclamation. The remaining inland water resources need to be protected from inappropriate development and potential pollution to safeguard water quality.
Natural Inland Water Resources
2.1.37 Hornsea Mere (over 300 acres) is the largest natural freshwater lake in the Yorkshire region. It is an area of international and national ornithological and scientific interest and has been designated as a SSSI, Special Protection Area and Nature Reserve. As well as supporting a wide range of flora and fauna its size enables its use by the public for recreational purposes without harming the ecological balance. The Mere is in private ownership as are the woodlands that lie on its margins.
2.1.38 The saline lagoons at Easington (The Lagoons SSSI) are of international importance both because of the type of habitat and birds they support. The lagoons are managed as a nature reserve by the South Holderness Countryside Society in conjunction with the Spurn Heritage Coast Project. Policies Env12 and Env13 afford protection to sites of international and national importance.
2.1.39 The River Hull which forms part of the north western boundary of the Borough has recreational and environmental significance, both for formal recreation and informal enjoyment. ManMade Inland Water Resources
2.1.40 Previous sand and gravel extraction in the Brandesburton and Burstwick areas has resulted in a number of water filled pits, many with considerable nature conservation and recreation value.
2.1.41 The potential of the inland water resources in the Brandesburton area in landscape and recreational terms is considerable. A Management Plan, 'The Brandesburton Pits Management Project' has been prepared, this provides additional detailed information on how competing interests in the area can be reconciled, how change can be managed and improvements implemented. Policy Env14 applies to sites of local importance.
2.1.42 Other man made water resources include numerous drains and streams that act as important habitats for flora and fauna.
Env4 The Council will seek to promote inland water resources as important areas of recreational and environmental amenity by:
1. Conserving existing areas of value around inland water resources and wherever possible, seeking to restore and enhance the natural element of the water environment;
2. Supporting initiatives which will result in improvements to water quality;
3. Where appropriate, promoting public access to inland water resources where this would not adversely affect the nature conservation value of the resource.
2.1.43 The Coastline of Holderness extends for some 50km (30 miles) from Spurn to it's boundary north of Atwick. The Humber Estuary also makes up 37km (23 miles) of the Holderness boundary from Spurn to Saltend. Spurn has been defined as a Heritage Coast due to its unique physical geography and nature conservation importance. The wide expanse of the Humber Estuary is regarded as being of considerable scenic and environmental value.
2.1.44 The majority of the coastline is undeveloped open countryside and with the exception of the Humber Estuary and Spurn it consists of low lying cliffs which are straight and exposed. The cliffs are subject to rapid erosion of about 1.5 2 metres per year although this can fluctuate considerably from year to year and from place to place depending on whether the area is protected by coast defence works and conditions such as storm tides and high rainfall. Some of the material removed by erosion is redeposited to form the sand and shingle spit of Spurn the remainder of sediment is thought to be deposited in the Humber Estuary and on the Northern European coastline.
2.1.45 There is growing concern that existing and future coast defence works along the coast may reduce the amount of material available for beach replenishment further south and that this could cause Spurn to breach sooner than expected or increase the risk of flooding in this area. The impact of coast defence works on increasing erosion rates further south is not yet known. The long term cumulative effects of coast defence works will be investigated as part of the Shoreline Management Plan which the Council is currently undertaking. However, the results of the cumulative effects may not be known for some time.
2.1.46 Beaches stretch the length of the Holderness coast. There are two traditional seaside resort towns, Hornsea and Withernsea. Withernsea is a 'lively' resort while Hornsea has a more restrained nature.
2.1.47 The number of static caravans on the coast is currently in excess of 5,000. The caravans are located in Hornsea and Withernsea and in the villages of Aldbrough, Atwick, Cowden, Easington, Kilnsea and Tunstall. Static caravans account for almost all the holiday accommodation on the Holderness coast.
2.1.48 The Council has historically sought to protect those areas from coastal erosion that can be justified on the basis of cost. The result of the application of such a strategy is that Hornsea and Withernsea are protected by hard coastal defence works consisting of timber groynes and concrete sea walls. At Mappleton the use of alternative engineering techniques, by the placing of rock defences produced an economically viable scheme. It may however be difficult to provide economic justification at all sites.
2.1.49 Government guidance recommends that each coastal authority should define a coastal zone for its area. This should take into account local circumstances and the key coast related planning issues which require planning policies. In Holderness issues include coast related development, coastal erosion, rising sea levels, flooding and environmental concerns. Development within the coastal zone needs to be sustainable in order that investment and resources are safeguarded from the effects of natural processes. Policies will need to ensure that coastal erosion is not aggravated by new development and that the lifetime of any new construction is not threatened by erosion.
2.1.50 The Council has defined a coastal zone which broadly follows the coastal road (the B1242), the boundaries of the defined Heritage Coast, the estuary foreshore and hinterland south of the A1033. For the most part the coastal zone covers an area of undeveloped open countryside where policies limiting development such as Policy S7 of the Humberside Structure Plan apply.
S7 Residential development in the open countryside will not normally be permitted except where it is essential for the purposes of agriculture or forestry. The following is an additional policy applying to the coastal zone.
Env5 The Council will only approve development proposals in the Holderness coastal zone which are not likely during the life expectancy of the development to:
1. lead to a requirement to construct new or to extend or enhance existing coastal protection or flood defences
2. interfere significantly with natural coastal or estuarine processes
3. increase the risk of flooding and coastal erosion on site or elsewhere
4. be affected by the risk of coastal erosion within the developments estimated lifespan
5. conflict with nature conservation policies of this plan.
6. preclude reasonably practical options to conserve or enhance important coastal habitats by managed retreat or soft engineering techniques.
Small scale extensions to existing development will be permitted providing the whole development meets the life expectancy criterion.
2.1.51 In situations where existing concentrations of development or natural resources are threatened by coastal erosion the Council may allow defence works to be constructed. Within Holderness the main coastal resorts of Hornsea and Withernsea are already protected by a series of sea defences in the form of groynes. The Council will ensure the proper maintenance of these defences and may enhance their provision if it is seen as being within the national interest.
2.1.52 There are also a number of general policies that can be applied within the coastal zone. These relate broadly to the risk to development of coastal erosion and coastal defence works.
2.1.53 In order to assist the natural physical and environmental features of the coastline, the Council will pursue a policy of ‘do nothing'. Within this process there may be circumstances where defence works are considered acceptable. These would normally include the protection of concentrations of population from the effects of erosion or flooding, or the protection of strategically important industrial or commercial facilities.
2.1.54 Applications for development within the coastal zone must take account of the ongoing effects of coastal erosion and the risk from flooding.
2.1.55 The term 'coast protection' refers to those lengths of coastline where erosion rather than flooding is the major problem. Responsibility for coast protection lies with the Council under the provisions of the Coast Protection Act 1949. The Act provides powers to carry out works but does not impose a duty to do so.
2.1.56 Sediment eroded from the Holderness Coast is a finite resource which is vitally important to maintain both coast protection and flood defence works within the coastal process cell that stretches from Flamborough Head to Gibraltar Point. Sediment is also important for sustaining natural features such as the Spurn Peninsula and mudflats and other habitats of the Humber Estuary.
2.1.57 A Shoreline Management Plan (SMP) is now being developed for the coastal cell based upon guidance in the ‘Strategy for Flood and Coastal Defence in England and Wales' (produced by MAFF). The Council is a member of the Humber Estuary Coastal Authorities Group (HECAG) which is managing this project.
2.1.58 A SMP is urgently needed to take account of the natural coastal processes and human and other environmental influences and needs along the Humberside and Lincolnshire Coasts. Until a SMP is developed and agreed, a precautionary principle needs to be applied to coastal protection schemes to avoid prejudicing the plan.
2.1.59 In advance of an SMP the Council may consider schemes for areas of national significance such as the Easington Terminals and significant settlements which are at risk from erosion provided technically, environmentally and economically sound and sustainable measures are proposed.
Env6 In advance of a Shoreline Management Plan the Council will only support works to protect either:
1. Assets of national or strategic importance, or
2. Significant settlements which are at risk from coastal erosion; provided technically, environmentally and economically sound and sustainable measures are proposed and the works are designed to minimise their effect on the natural physical processes of the coast and that they minimise any impact on areas of acknowledged nature conservation importance.
2.1.60 Within Holderness the following categories of coastline have been defined and are shown on the Proposals Map:
1. Developed Coast
2. Undeveloped Coast
3. Conserved Coast
4. Estuary.
2.1.61 Each category has its own specific policy guidance taking into account differing natural processes, statutory designations and areas of landscape importance
2.1.62 The "developed coast" consists of land that lies behind existing coastal defences. Policies for the seafront areas of Hornsea and Withernsea aim to retain and concentrate tourist and recreational activities and are shown in greater detail on the Proposals Map. A number of sites in the developed coast have potential for environmental improvements and hence any new development will be encouraged to make an overall improvement to the environment.
Env7 In the developed coast as defined on the Proposals Map the Council will allow development in accordance with policy Env5 and the relevant policies applying to the specific location. Development will be required to maintain or improve the attractiveness of the local environment and complement the character of the area. Development will not be allowed to extend laterally along the cliff top outside existing coast defences.
2.1.63 Over 90% of the Holderness coast is undeveloped and is typified by agricultural uses. In these areas the principal factors determining the siting and location of new development are risks such as coastal erosion and flooding.
2.1.64 Outside protected areas the effects of coastal erosion can be dramatic and unpredictable. For this reason the Council wishes to ensure that new investment is not put at risk unnecessarily.
2.1.65 To protect development from erosion the Council proposes to restrict development in the undeveloped coast. Allowing for the average rate of erosion of 1.5 2 metres per year, the timescale of this plan of at least 10 years and for variations in the rate of erosion, no new development will be allowed to encroach within 30 metres of the cliff top at any time during the plan period.
2.1.66 In the area beyond 30 metres of the coast there remains a longer term threat of erosion. In this area it is considered that it would be unwise to allow new building construction although it is accepted that alterations and extensions to existing buildings may be required. For the purposes of this plan the average life expectancy of a building is considered to be 100 years. At a rate of erosion of 2 metres per year and allowing for variations in the rate of erosion new building should only be allowed at a distance greater than 200 metres from the cliff top. The following policies will apply in the undeveloped coastal area:
Env8 In the undeveloped coastal zone (as defined on the Proposals Map), no development will be allowed to encroach within 30 metres of the cliff edge. Between 30 metres and the coastal zone boundary development of a generally open nature, extensions to or the conversion of existing buildings or structures may be permitted. Development of a temporary nature may also be permitted on the basis of a temporary planning permission and subject to its' removal before it is affected by erosion. Where the developer is able to demonstrate that the development has specific locational requirements that make the location outside the coastal zone inappropriate, new development may be permitted within the coastal zone beyond 200 metres of the eroding cliff. In all the above cases proposals should accord with Policy Env5 of this Plan.
Env9 Uses of an open nature which do not conflict with the open character of the undeveloped coast including, agriculture, forestry, mineral workings and some leisure uses, for example, golf courses, playing fields and certain tourist attractions of a generally open nature may be permitted subject to the sustainable principles of this plan.
2.1.67 Spurn, which is a sand and shingle spit, has been defined as a Heritage Coast and a SSSI. It forms part of the recently declared Phase 1 Humber Flats, Marshes and Coast SPA/Ramsar site. It is owned by Yorkshire Wildlife Trust who manage it as a nature reserve. The geology of Spurn makes it a unique natural feature in the United Kingdom and provides a range of habitats for migratory birds as well as providing a haven for many plant species whose occurrence is unique to the region. The Council's general policies for SSSIs are found in the section on Nature Conservation and Enhancement. (see 2.1.79 below).
2.1.68 The peninsula itself is a dynamic sand and shingle spit, shifting gradually westwards as a result of the action of the sea. A recent report by the Institute of Estuarine & Coastal Studies suggests that the present day morphology of Spurn is largely artificial, a product of 19th Century construction works followed by a series of breakthroughs which occurred in the decade beginning 1840. The study concludes that there is little evidence for the concept of a "cycle" of development and erosion for Spurn. Such 250year cycles have been suggested in 1360, 1600 and 1849. An alternative explanation is that the spit has been affected by sea level variations over the past 1000 years which caused both the 13th century regression phase and the 17th century transgression.
2.1.69 The 19th century breakthrough was probably a result of a change in the sediment transport conditions and may also have been brought about by the massive "dredging" of gravel and cobbles from the inter tidal foundations of the Spit during the 18th and 19th Centuries. The artificial creation of a dune field along the neck of Spurn following the 19th Century breaches has led to the cessation of wash over processes which, the study has shown, was the major method by which a sediment balance was maintained in this area of the spit.
2.1.70 Sea defences built during the war have mostly been destroyed or allowed to decay. There are several interests involved at Spurn; including the Royal National Lifeboat Institute, Yorkshire Wildlife Trust and Associated British Ports but the magnitude of preventing the movement of the spit is such that following an investigation as part of the Spurn Heritage Coast Project, the preferred option is to restore the natural cycle of erosion and deposition thereby creating a self sustaining natural feature.
2.1.71 A management strategy for the Spurn Heritage Coast in partnership with interested organisations has been prepared and is in the consultative process. The project has already agreed to adopt the objectives of National Heritage Coast Policy, as defined in Countryside Commission's 1991 policy statement as its own. These amended so as to be specific to Spurn are:
to conserve, protect and enhance the natural beauty of the Spurn Heritage Coast, including its terrestrial, littoral and marine flora and fauna, and its heritage features of architectural, historical and archaeological interest;
to facilitate and enhance public enjoyment, understanding and appreciation of the Spurn Heritage Coast, by improving and extending opportunities for recreational, educational, sporting and tourist activities that draw on, and are consistent with, the conservation of its natural beauty and the protection of its heritage features;
to maintain, and improve (where necessary) the environmental health of inshore waters affecting the Spurn Heritage Coast and its beaches through appropriate works and management measures;
to take account of the needs of agriculture and fishing and of the economic and social needs of the local community through promoting sustainable forms of social and economic development, which in themselves conserve and enhance natural beauty and heritage features.
Env10 In the defined area of the Heritage Coast the Council will only allow tourism, recreational and educational activities which are compatible with the objective of conserving an unspoilt coastline provided that they do not adversely affect heritage features, natural coastal processes, flora and fauna, the coast or access to it by reason of scale, siting, design, noise disturbance or traffic. Proposals involving other land uses are covered by other policies in this Plan.
2.1.72 The Humber Estuary forms the southern boundary of Holderness and extends for some 37km (23 miles) from Spurn Point to the boundary with the City of Hull at Saltend.
2.1.73 The Humber catchment drains 20% of England into one basin fed by the main rivers Ouse and Trent. It is the largest contributor of fresh water from England to the North Sea.
2.1.74 The intertidal flats of the Humber estuary are of national and international importance to nature conservancy. The area has 2 international designations, as a Wetland of International Importance or Ramsar site and as a Special Protection Area. It is also designated a Site of Special Scientific Interest.
2.1.75 Apart from Paull village and the chemical complex at Saltend there is little development and the hinterland is predominantly rural in character, consisting mainly of Grade 1 and Grade 2 agricultural land.
2.1.76 The low lying nature of the estuary foreshore means that it is susceptible to flooding, in particular, shipping movement, dredging regimes and general port activities can have an influence on the Estuary. Flood protection works are already in place at Paull and a floodbank protects the strategic industrial allocation south of Hedon Haven.
2.1.77 The Council considers it important that policies should prevent inappropriate developments which would threaten the Estuary's future. Proposals for development in the estuarine coastal area will only be approved if Policy Env5 is satisfied.
Env11 Proposals for development in the estuarine coastal area must accord with Env5 and the other nature conservation policies of this plan. The Council will require a comprehensive scheme to accompany significant estuary related proposals, including environmental measures to safeguard environmental features of importance.
2.1.78 The Government is promoting effective multiple agency management planning on estuaries where there are demonstrable conflicts and pressures. These plans should complement and be consistent with development plans. A Humber Estuary Management Strategy is presently coordinated by English Nature and is being progressed by a partnership of local planning authorities (including the Council) and key estuary managers and users with the aim to produce an integrated estuary management strategy for the Humber. A range of issues will be covered including land use, development, flood defence, pollution, nature conservation, recreation and employment.
Nature Conservation and Enhancement
2.1.79 Within Holderness statutorily designated sites of conservation importance include the following:
Sites of International Importance
Special Protection Areas for Wild Birds
2.1.80 SPA's are designated for the protection of rare, vulnerable and for migratory birds. Within Holderness, Hornsea Mere is designated as a Special Protection Area for the number of Wildfowl which winter on the Mere. Part of the Humber Estuary has also recently been declared as a SPA and The Lagoons SSSI at Easington is being considered for designation.
Special Areas of Conservation (SAC's)
2.1.81 European Council Directive on the Conservation of natural habitats of wild fauna and flora, the habitats and species directive (92/43/EEC), complements the SPA designation by requiring European Union Member States to take measures to maintain or restore natural habitats and wild species (other than birds) at a favourable conservation status in the community and to designate special areas of conservation for this purpose. In those cases when development may be allowed on any of the sites compensatory measures to preserve the overall coherence of the site (The Natura 2000 network) would be required. Natura 2000 is a European Community Wide Network of SAC's and SPA's.
Ramsar Sites
2.1.82 The United Kingdom is party to the Ramsar Convention on Wetlands of International Importance. This requires the Government to promote the conservation of Wetlands generally and, in particular sites designated under the convention, known as Ramsar Sites. The Humber Flats and Marshes was formally designated as a Special Protection Area and listed as a Ramsar Site on 28 July 1994. The Lagoons SSSI at Easington (which forms part of Phase II of this designation for the Humber estuary) is awaiting declaration.
Env12 Development proposals (either individually or in combination with others) likely to adversely affect an existing or proposed Ramsar site, SPA or SAC will be subject to rigorous examination and will only be permitted if there are overriding reasons in the national interest and there is no alternative. Where sites host a priority habitat (as listed in the habitats directive) proposals must also be required for reasons of human health or safety. Before any development is allowed, the Council will require developers to demonstrate that adverse effects are minimised and that commensurate efforts to compensate for unavoidable damage are made.
Sites of Special Scientific Interest (SSSI)
2.1.83 Sites of Special Scientific Interest are designated by English Nature. They are identified as being of national importance in terms of their biological, geological, or geomorphological interest. Their designation is intended to protect, manage and enhance their native conservation interest through liaison with land managers and other organisations such as local authorities. Holderness contains 7 SSSIs, details of which are listed in appendix 2.
Env13 Development proposals (either individually or in combination with others) likely to adversely affect a notified SSSI will be subject to special scrutiny and will only be permitted if the proposal is in the national interest and there is no alternative. Before any development is allowed, the Council will require developers to demonstrate that adverse effects are minimised and that commensurate efforts to compensate for unavoidable damage are made.
Sites of Regional and Local Importance
Regionally Important Geological Sites (RIGS)
2.1.84 This initiative was launched by the Nature Conservancy Council in July 1991, to identify and protect important nonstatutory geological and geomorphological sites. They include important teaching sites and are considered worthy of protection for their research, historical or aesthetic importance. The following sites have been designated as RIGS;
1. Brandesburton Gravel Pits
2. Kelsey Hill Gravel Pits
3. Hornsea Mere Sites of Nature Conservation Importance (SNCI's)
2.1.85 Although not formally protected by statute SNCI's make a vital contribution to biodiversity. They are worthy of protection from their nature conservation, educational, research, historical and aesthetic value. Examples of such sites include hay meadows, pastures, woodland, hedgerows, wetland including ponds and ditches together with disused railway lines.
2.1.86 PPG9 expects local planning authorities to have regard to the need to protect nature conservation interests on nondesignated sites. The Council has however not been able to undertake a comprehensive and reliable survey of sites of nonstatutory nature conservation importance in the plan area prior to publishing this Plan. Where such sites are found to be of substantive value then they will be defined as SNCI's.
2.1.87 A site will be selected as a SNCI where it can be demonstrated that it is of substantive nature conservation value rising from one or more of the following characteristics: rarity, diversity, fragility, representativeness (whether it provides a fine example of a particular habitat type), naturalness (eg absence of interference), size, position of an ecological/ geographical unit (eg forming part of a wildlife network or corridor) or potential value through enhanced site management. Locational factors which may influence the value of SNCI include its physical access, visual prominence, educational value or its situation in an area lacking in similar habitats.
2.1.88 When the Council has identified a potential SNCI, it will invite comments on its possible definition from the landowners, any occupiers, English Nature, any other relevant nature conservation bodies (as recommended by English Nature and the Parish Council and from other interested parties by way of local advertisement and site notice). A decision on whether to define the site as an SNCI will be made by the Council in the light of any comments received. Once selected for SNCI status, the reasons for selection and other relevant details will be set out in a citation to provide a reference point against which to judge development proposals and future changes affecting the site. Local Nature Reserves (LNR)
2.1.89 The Council will also seek to identify and protect nonstatutory sites of nature conservation value through designation as Local Nature Reserves (LNR's) under Section 21 of the National Parks and Access to the Countryside Act, 1949.
Env14 Development proposals (either individually or in combination with others) likely to adversely affect RIGS, SNCIs or LNRs will only be permitted if the proposal meets a regional or local need that outweighs the conservation value of the site and there is no alternative within the region or district, as appropriate. Before any development is allowed, the Council will require developers to demonstrate that adverse effects are minimised (as far as is reasonable) and that commensurate efforts to compensate for unavoidable damage are made.
2.1.90 Wildlife is not confined to statutorily designated sites. Many features, in urban and rural areas, provide links from one habitat to another and so contribute to a network necessary to maintain the range and survival of flora and fauna. Sensitive landscaping, management and the skilled adaptation of derelict or underused areas can provide extended habitats. Local Plans should be concerned with the possible provision of new habitats.
2.1.91 Proposals which would increase the number, size and diversity of sites of nature conservation importance together with management arrangements will be supported.
Env15 The Council will seek to promote the improvement and enhancement of suitable habitats for wildlife and to encourage the creation of new habitats, where appropriate, by:
1. Stimulating schemes in the private sector to improve, enhance and create appropriate habitats to wildlife.
2. Encouraging Parish Councils to undertake environmental enhancement schemes in their areas.
3. Encouraging the adoption of "pocket parks" within villages/parishes to provide small scale/local nature areas of enjoying formal recreation/education.
4. Encouraging a network of conservation corridors, linking together existing areas of wildlife importance into a wider framework, for example railway lines, river and drains, importance hedgerows, woodlands and copses.
2.1.92 Particular need should be taken of the protection afforded to certain individual species. Development should not significantly adversely effect sites supporting species protected by law such as badgers, Barn Owls and bats and the species scheduled in the Wildlife and Countryside Act 1981, Schedules 1, 5 and 8.
Env16 Development proposals (either individually or in combination with others) likely to harm species protected under the Wildlife and Countryside Act 1981 and the Habitats Regulations will only be permitted if the proposal meets an identified need and there is no reasonable alternative. Before any development is allowed, the Council will require developers to demonstrate that adverse effects are minimised (as far as is reasonable). Where appropriate the Council will consider the use of conditions or planning obligations to:
1. Facilitate the survival of individual members of the species,
2. Reduce disturbance to a minimum,
3. Provide adequate alternative habitats to sustain at least the current levels of population.
The Habitats Regulations (1994) apply specific provisions of the Habitats Directive (an EC Directive on Birds and Habitats to which the UK is bound), to future SAC's and to existing and future SPA's.
2.1.93 The identification of "Wildlife Corridors" prevent the important nature conservation sites becoming merely oases. Linear landscape features can act as "corridors" along which wildlife can move and live. Continuity of habitat is an important factor of many species; the more isolated the site the more restricted the range of species able to colonise it. Corridors can be damaged or rendered unviable by reduction in their width or by severance. The importance of wildlife corridors applies equally to linear open spaces in towns, including green wedges, verges to roads, tracts and footpaths, as it does to strands of woodland and river and stream corridors in more rural locations.
Env17 The Council will encourage measures to consolidate, strengthen and enhance the wildlife value of wildlife corridors formed by woods, hedgerows, green wedges, green lanes, rivers and streams and will ensure that the landscaping of new developments within or adjacent to wildlife corridors make a positive contribution to this aim.
2.1.94 The Council does not have the power to create rights of way that will improve access but nevertheless supports the concept of creating public access to areas of nature conservation value.
Env18 Where appropriate, the Council will promote through the control of development, public access including, wherever possible, access for less able bodied people to all areas of nature conservation interest except where such access would be detrimental to the nature conservation of a specific area.
2.1.95 While attractive areas of countryside require special protection, the Council will support opportunities to achieve appropriate enhancement proposals on underused land and that which suffers from neglect, degradation and dereliction. Such areas provide opportunities for the creation of nature conservation features. This may be achieved by, the creation of green wedges, tree planting and hedges or other initiatives. This both encourages landscape enhancement and provides the creation or natural regeneration of habitats for a range of wildlife.
Env19 The Council will support proposals that create, improve or enhance appropriate habitats for wildlife on under used land through new planting and utilising existing features such as trees/woodlands and water.
Buildings of Special Architectural or Historic Importance
2.1.96 Buildings of historic or architectural importance are a valued part of our heritage. The most important ones are designated by the English Heritage as listed buildings and enjoy protection against demolition or unsympathetic alterations. Outstanding examples of listed buildings are classified as Grade I and II*, with the remaining "special" listed buildings being Grade II. The Borough currently has 26 buildings designated as Grade I, 19 at Grade II* and 368 at Grade II.
2.1.97 The Council will have special regard to the desirability of securing the retention, restoration, maintenance and continued use of buildings of special architectural or historic interest.
2.1.98 Proposals to alter or demolish a listed building require Listed Building Consent. Demolition will not be allowed unless the case for it has been justified to the satisfaction of the local planning authority and the Secretary of State for the Environment.
Env20 The Council will not grant Listed Building Consent for the demolition of a listed building unless it is satisfied that every effort has been made to continue the present use or to find a suitable alternative use, and that there are very exceptional circumstances why it cannot be retained.
2.1.99 Where the case for demolition relates to the structural condition of the building and the uneconomic cost of repair, the Council will require;
1. An independent structural engineer's report of the condition of the building,
2. An independent surveyor's valuation of the cost of repair, and
3. Evidence that the freehold of the building has been offered for sale on the open market at a price which reasonably reflects the value of the building without success, or of exceptional reasons why it cannot be offered for sale.
2.1.100 The alteration of listed buildings, perhaps to facilitate a change of use requires the greatest skill and care in order to avoid damage to historic structures, to ensure that any additions are in keeping with the age and character of the building and to see that any new external or internal features harmonise with their surroundings.
Env21 The Council will not permit any alteration, addition or change of use that would adversely affect the special architectural or historic character of Listed Buildings unless it can be demonstrated that every effort has been made to avoid such damage and there are very exceptional circumstances that, on balance, justify development.
2.1.101 Grant aid is also available to assist restoration and maintenance of listed buildings within the Holderness.
2.1.102 The Council is required to have regard to the setting of a Listed Building, this includes considering development in the vicinity of a listed building.
Env22 The Council will seek to preserve and enhance the setting of listed buildings by appropriate control of new development.
2.1.103 There are also buildings within Holderness which although not listed, are of local interest and make a significant contribution to the local environment. Many of these buildings are also worthy of protection. Buildings of particular local significance within conservation areas are set out in Appendix 3. One particular group of structures/buildings of local interest are those constructed of cobble, a building material which dates almost from the Norman conquest. Another are those structures dating from the Second World War such as at Spurn which may be of national significance and are currently being assessed by the Royal Commission on the Historic Monuments of England. In the case of Listed Buildings and in Conservation Areas, buildings of local architectural importance are afforded protection from demolition, unless specific approval is obtained. Elsewhere such buildings are not afforded this protection, however, due to their local significance the following policy will apply.
Env23 The Council will require that particular attention is paid to the retention of buildings of local architectural importance and where resources permit will make available grant assistance for their preservation and repair, even when such buildings are not listed and are not within designated Conservation Areas.
2.1.104 A Conservation Area is one which has been recognised as being "of special architectural or historic interest, the character or appearance of which it is desirable to preserve or enhance". The Council has currently recognised 25 such areas within Holderness and has formally designated them as conservation areas. The main purpose of this designation is to place greater planning controls on development within these areas so that their special character or appearance is protected and enhanced. Conservation areas are shown on the Proposals Map.
2.1.105 It is important to appreciate that development within a conservation area is not prohibited nor need it necessarily be discouraged. New building, if sensitively designed and located, can act as a positive improvement to character and appearance and can enhance the conservation area in which it is located. The special character and appearance of such areas may be derived from a combination of features. This may not just include buildings but also special architectural and historic features, sites of archaeological interest and also trees and areas of open space. The importance of open spaces within the street and landscape should not be undervalued. Many local villages have prominent ecclesiastical architecture which will be protected from development that detracts from its character.
2.1.106 A major review of existing and proposed conservation areas in Holderness was carried out in the early 1990's resulting in the definition of sixteen new areas and the amendment of seven existing areas (Appendix 4 refers). The Council will, continue to review their Conservation Areas from time to time, and may create new areas and amend existing ones as appropriate to its findings.
2.1.107 In order to define the distinctive character and appearance of its Conservation Areas, the Council is producing individual statements for each such area to assist property owners and developers to have a much clearer idea of features which the designation seeks to preserve and enhance.
Env24 When considering planning applications for development within designated conservation areas or for proposals which affect their setting (including views into or out of those areas), the Council will require particular attention to be paid to the desirability of preserving or enhancing the character or appearance of the area. The Council will expect new buildings (including extensions) to be accompanied by fully detailed plans and will not be prepared to accept outline applications.
2.1.108 In deciding applications for new development within conservation areas, special regard should be given to such matters as bulk, height, materials, colour and texture, vertical or horizontal emphasis, design and the safeguarding of views into and out of these areas. Although these matters are important in the determination of any planning application, they are especially important where the character and appearance of a conservation area is concerned. Further care is to be exercised in permission for advertisements (see Env34) and erection of telecommunication equipment (see U14 and U15). The Council has prepared a number of appraisal documents for individual conservation areas which provides detailed guidance to help preserve or enhance the special character and appearance of the area. Government guidelines also call for flexibility in cases where relaxation of standards may be justified in the interests of harmonising new development with its neighbours within the conservation area. In particular the redevelopment of gardens in conservation areas may significantly alter its appearance and care needs to be taken to ensure that development does not have a detrimental effect on the character of the conservation area. Env25 In determining applications for development in and adjoining a conservation area, the Council will have special regard to such matters as bulk, height, materials, colour, vertical or horizontal emphasis and design and safeguarding of views. Where appropriate, the Council will consider relaxing standards which may otherwise prevent a new development fitting comfortably within the conservation area.
2.1.109 In most cases consent is required to demolish an unlisted building within a designated conservation area. Demolition of a building will not always be followed by the redevelopment of the site, although in most cases it will be. Where Conservation Area Consent is granted for demolition it will normally be appropriate to require that existing buildings are not demolished until redevelopment can take place. This would prevent unsightly gaps in the conservation area as a result of premature demolition.
Env26 Where unlisted buildings make a positive contribution to the character or appearance of a Conservation Area, the Council will refuse Conservation Area Consent for their demolition, except in the following circumstances:
1. where it can be shown that the building is beyond reasonable repair,
2. where it is incapable of reasonably beneficial use Where unlisted buildings do not contribute positively to the character or appearance of a Conservation Area, the Council will grant Conservation Area Consent for their demolition, provided that it can be shown that removal would meet at least one of the above criteria or,
3. where its removal or replacement would benefit the character or appearance of the Area or,
4. where it is of inappropriate construction. Before Conservation Area Consent is granted the Council will require the submission of detailed plans for redevelopment and where appropriate may seek to ensure (by negotiation, planning conditions or legal agreement) that demolition does not take place without reasonable assurance of almost immediate redevelopment.
2.1.110 A conservation area's character can sometimes be harmed by minor developments such as porches, window replacement, extensions, or the inappropriate replacement of original features, which may be 'permitted development'. These rights can be withdrawn if the local planning authority makes an Article 4(1) Direction (with agreement of the Secretary of State for the Environment) or Article 4(2) Direction, at the discretion of the Council, under The General Permitted Development Order 1995. In such cases permitted development rights would only be withdrawn with strong justification when it is likely that they could damage an interest of acknowledged importance. The Council will keep the need for Article 4 Directions under review and take action as necessary.
Parks, Gardens and Other Land of Historic Interest
2.1.111 In addition to conserving the best of the built environment there is a need to protect historic parks and gardens that make an important contribution to the landscape.
2.1.112 English Heritage hold a Register of Parks and Gardens of Special Historic Interest in England. Within Holderness the park and garden at Burton Constable Hall is included and there is a recommendation to add the parks and gardens at Grimston Garth and Rise Hall to the Register.
Env27 The Council will encourage the conservation, restoration and maintenance of historic parks and gardens.
2.1.113 In particular those sites identified in the Register of Parks and Gardens of Special Historic Interest in England compiled by English Heritage will be safeguarded having been identified as being of material importance.
2.1.114 Archaeological remains are a finite and non renewable resource which are often highly fragile and vulnerable to damage and destruction. They are valuable both for their own sake and for their role in education, leisure and tourism. The long history of settlement in Holderness has left a legacy of archaeological remains. The Council maintains a database of currently known archaeological information for the County, known as the Sites and Monuments Record. There are currently c.2500 records for Holderness ranging from earthwork sites and standing structures to buried remains and findspots of artefacts both in urban and rural areas. These range in date from the prehistoric to modern period, from finds of bone harpoons used by the earliest settlers to the military defences of the 1st and 2nd World Wars. There are currently 21 Scheduled Ancient Monuments in Holderness designated under the Ancient Monuments and Archaeological Areas Act 1979. These are listed in Appendix 5 and shown on the relevant plans.
2.1.115 The Proposals Map indicates only those scheduled sites known at the time of plan preparation. Policy Env28 will apply to all Scheduled Ancient Monuments, whether or not depicted on the Proposals Map and all archaeological records held by the County Sites and Monuments Record.
2.1.116 The Council recognises the importance of archaeological sites, which are vulnerable and easily destroyed by change. The desirability of preserving an Ancient Monument and its setting, whether Scheduled or not, is a material consideration in determining planning applications. The Council will encourage early consultation between developers and the planning authority on any preliminary plans for development so that the needs of archaeology and development can be reconciled and any potential conflict significantly reduced.
2.1.117 A developer or applicant proposing development affecting a known or presumed site of archaeological importance will be expected to supply sufficient information to allow an assessment of the effect of their development upon archaeological remains. This will enable informed planning decisions to be taken. Wherever possible, the Council will seek to minimise the impact of development proposals on archaeology by sympathetic design, thus preserving archaeological remains in situ. In cases where destruction of archaeological deposits is unavoidable, a programme of archaeological investigation and recording may be required either in advance of, or during development. Such work may be directed by the use of planning conditions or legal agreements and should make provision for the postexcavation analysis and publication of the results.
Env28 Development proposals likely to adversely affect nationally important archaeological remains (whether scheduled or not) and their settings, will be subject to special scrutiny and will only be permitted if the proposal is in the national interest and there is no alternative. Before any development is allowed, the Council will require developers to demonstrate that adverse effects will be minimised, that commensurate efforts to preserve the remains in situ will be made and, where damage is unavoidable, that satisfactory arrangements for an appropriate programme of archaeological investigation, recording and publication exist.
Env29 Development proposals likely to adversely affect locally important archaeological remains will only be permitted if the proposal meets a local need that outweighs the intrinsic importance of the remains and there is no alternative within the district or locality, as appropriate. Before any development is allowed on sites which are known or likely to contain archaeological remains, the Council will require developers to demonstrate that adverse effects will be minimised (as far as is reasonable) and, where preservation of the remains in situ is not justified, that satisfactory arrangements for an appropriate programme of archaeological investigation, recording and publication exist.
2.1.118 The relationship between town and country is one of the most important subjects to be addressed in the local plan. To be effective the local plan must provide developers and the public with a clear indication of where development will and will not be acceptable.
Env30 Development outside the development limits of individual settlements as defined on the Proposals Map will be treated as development in the open countryside and will only be permitted where it meets all relevant plan policies and provided that it :
1. is for the purposes of agriculture or forestry, or
2. a. is beneficial for the rural economy
2. b. avoids the loss of the best and most versatile agricultural land
2. c. is of a scale and type that is in keeping with the character of the surrounding area
2. d. safeguards sites or features considered important for their landscape, amenity and historical value
2. e. protects sites of nature conservation importance
2. f. will not harm the landscape setting of settlements.
For the purpose of applying this policy all land outside development limits as defined in the individual settlement profiles in Part 3 of this plan regardless of existing use will be treated as open countryside.
2.1.119 In establishing development limits and in allocating land for development, retention of the individual identity of settlements is important. Often this is threatened by proposals to develop the open spaces between settlements. In some circumstances these spaces are narrow and the threat of coalescence is heightened. A high priority is therefore given to maintaining open spaces between settlements. The Council does not wish to see mergers between individual settlements and especially those listed in the policy which are considered to be under particular threat.
Env31 In determining planning applications for development the Council will seek to maintain existing open spaces between settlements. In particular, the open nature of the areas between the following will be protected: Hedon and Saltend, Hedon and Preston, Hedon and Thorngumbald, Bilton and Hull, Thorngumbald and Camerton, Seaton and Sigglesthorne, Elstronwick and Danthorpe, Patrington and Winestead.
2.1.120 The Council wishes to prevent the progressive erosion of a settlement's character caused by unsympathetic development. To prevent a hard line between town and country the Council aims to soften the impact of new development by requiring a high standard of landscaping within all new development. In particular, development on the fringes of settlements will require careful design including more landscaping so as to lessen its impact on the adjacent countryside. Where possible, landscaped areas should be integrated into new development and natural features should be retained and enhanced. Measures to soften the impact of development in fringe areas will include, where appropriate, lower densities, smaller groupings or clusters of development and open spaces.
Env32 Development on the fringes of settlements must be carefully designed and where appropriate include sufficient open space and landscaping to soften the transition between the urban and rural landscapes.
Important Open Areas Within or Adjacent to Settlements
2.1.121 Within or adjacent to many settlements there are spaces between building and areas of an open nature which are visually attractive and contribute much to the character or setting of a settlement. These areas do not necessarily fall within conservation areas or other recognised designations but nevertheless make an important contribution to the scenic value or setting of the settlements in which they are located and are worthy of protection from insensitive or inappropriate development. Such features include village greens, ponds, landscape gardens, meadowland and other features of local interest. The Council wishes to safeguard such features and has identified many of them on the Proposals Map as important open areas within or adjacent to settlements. It should be noted that there may be other similar spaces that have not been identified on the Proposals Map. These may also make a valuable contribution to the surrounding area but their development may conflict with other policies in this plan.
Env33 The Council will seek to enhance and preserve important open areas, within or adjacent to settlements many of which have been identified on the Proposals Map.
2.1.122 Where development is to take place, landscape proposals should normally be approved by the local planning authority before development commences. Consideration should be given to landscaping which will include protection and incorporation of existing trees, hedges, shrubs and other natural features on site, together with proposals for new planting. A clear indication should be given on submitted plans of existing vegetation retained and removed and of new planting. In some instances, the local planning authority will insist that some landscaping works are carried out before development is commenced in order to minimise the impact of a development.
2.1.123 There is a demand for advertisements which when well designed and in the right location can add to the visual interest of the area. There is however a need to avoid the unnecessary clutter from too many signs, protect the visual amenity of an area and limit the strident visual effects of illuminated signs.
Env34 Consent for the display of advertisements will be issued where in terms of their design, siting, colour and illumination, they would not:
1. Harm the visual character of the surrounding area; or
2. Detract from the amenity of residential occupiers; or
3. Give rise to problems of highway safety. Proposals for advertisement in conservation areas or affecting listed buildings should also satisfy policies Env 22, Env 23, Env 25 and Env 26.
2.1.124 Much of the countryside is lit, often throughout the night. Lighting is needed in many areas in the interests of public safety and to "highlight" some attractive buildings and structures. Levels of road security and flood lighting have increased in both numbers and brightness but some is wasteful, unnecessary or misdirected. The Council consider that 'pollution' by light should be minimised.
Env35 Development proposals requiring external lighting, especially where it is likely to affect the amenity of residents, should seek to minimise light pollution by demonstrating to the local planning authority that the lighting scheme proposed is the minimum required for safety, security and effective working practices.
2.1.125 Development briefs will enable the Council to clearly establish the main environmental features it wishes to retain or requires in connection with the proposed development. For large or otherwise important sites the Borough Council will set out development guidelines that indicate to developers how the site should be developed. (See policy H15).
2.1.126 Agriculture is likely to remain the land use that most influences the physical appearance and character of the countryside. Farm diversification may significantly affect the overall appearance of the countryside of Holderness. The Council wishes to prevent changes that would have an adverse effect on the landscape and ensure that necessary works are undertaken to make new uses acceptable in terms of their setting. The Council gives priority to promoting diversification of the rural economy so as to provide wide and varied employment opportunities for rural residents, including those formally employed in agriculture and related sectors.
Env36 The Council will support proposals for farm diversification which make a positive contribution to the rural economy. In particular, proposals for small scale business, industrial, community, recreational or tourism related uses, which make use of existing rural buildings will be supported provided that the location of such proposals respect and where possible enhance the quality of the built and natural environment and are sustainable, all other planning considerations being satisfied.
2.1.127 Holderness contains a high concentration of intensive livestock units and their associated land use problems. The rearing of livestock in confined conditions creates not only problems associated with large vehicles transporting feedstuffs and animals but particularly problems relating to the disposal of waste and the unacceptable smells that can result from storage or spreading.
2.1.128 When assessing proposals for new or further development of Intensive Livestock Units the Council aims to ensure that the well being of the community is safeguarded while at the same time an efficient and viable farming industry is maintained. Retaining distances between an Intensive Livestock Unit and concentrations of population should minimise the potential for nuisance complaints.
Env37 New Intensive Livestock Units and associated structures will be allowed only if they comply with relevant policies of this Plan, are sited outside protected areas and the overall environmental impact on the locality (including any cumulative impact) is acceptable; the Council will also need to be satisfied that adequate measures for the disposal of manure and slurry can be secured.
2.1.129 Protected areas are defined as within 800 metres of an urban centre or selected settlement, with a reasonable distance (between 100m and 400m depending on local circumstances such as the size of the settlement), elsewhere. Relevant policies in relation to policy Env37 may include general policies G3, G6 and G7, Landscape policies Env1, Env2, Env5, Env8 and Env10, Nature Conservation policies Env12 to Env16 and Built Environment policies Env28, Env29, Env31 and Env33.
Env38 Proposals for the expansion or improvement of an existing Intensive Livestock Unit will be allowed only if they comply with relevant policies of this Plan and the overall environmental impact on the locality and on local amenity (including any cumulative impact) is acceptable; the Council will also need to be satisfied that adequate measures for the disposal of manure and slurry can be secured.
2.1.130 Relevant policies in relation to Env38 may include those applying to policy Env37 above and additionally Env24 and Env32.
2.1.131 The relationship of occupied buildings (including residential dwellings) to Livestock Units is an important issue. Existing Structure Plan and Local Plan policy is aimed at minimising the adverse impact which intensive livestock units can have on occupied buildings including residential dwellings. The following policy applies;
Env39 Occupied buildings should normally be kept at least 400 metres (440 yards) away from existing intensive livestock units and manure storage areas with the exception of those which are already situated in towns and villages.
2.1.132 Occupied buildings are considered to be any permanent building, caravan site normally occupied by people or would be so occupied if it were in use for purposes for which it is apt. In exceptional circumstances, conversions to residential accommodation may be sited in locations within 400 metres of existing intensive livestock units for example, where a particularly significant building worthy of protection is involved. Alternatively, residential accommodation may be provided in a more remote location and new intensive livestock accommodation may then be proposed in its proximity. The Council considers that it would be unreasonable to penalise the agricultural industry, especially if the livestock unit is on a separate farm holding. It is therefore unlikely to view sympathetically objections to the reasonable development or expansion of livestock farms arising from the conversion of rural building.
2.1.133 Mineral Consultation Areas have been identified on the Proposals Map. Within these areas any proposed development will be referred to the Mineral Planning Authority whose observations concerning the need to safeguard mineral deposits in the area will be taken into account in determining the application.
Env40 Proposals within the defined mineral consultation zones (other than those related to the working of minerals) will be permitted where they are in accordance with the policies contained in this plan and will not unacceptably constrain the further exploration of the mineral reserve.