Draft Regional Planning Guidance for the South West Planning... · 2010-11-30 · 1 A key role for...

Draft RegionalPlanning Guidancefor the South West

August 1999 planning conference

south west regional

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Foreword by Chairman of South West Regional Planning Conference

1 Introduction

2 The Regional Context

3 The Vision, Aims and Objectives

4 Patterns of Future Change

5 Topic Based Policies

5A Environmental Protection and Resource ManagementThe EnvironmentWaterMineralsWasteEnergy Generation and Use

5B The Economy

5C Housing

5D Transport and Communications

5E Tourism and Leisure, Sport and Healthcare

6 Implementation and Monitoring

Appendix A: Planning Policy Guidance Notes

Appendix B: Glossary

Maps and Tables

Key Strategy Diagram

Regional Transport Strategy

Map 1: The Regional Context

Map 2: Strategic Environmental Resources

Map 3: Selected Areas for Priority Habitats and Natural Areas

Table 1: Targets for the Protection and Restoration of Habitats

This draft Regional Planning Guidance was approved by the South West RegionalPlanning Conference in July 1999, subject to final editing, and submitted to theSecretary of State for publication by the Government Office for the South West inAugust 1999.

Contents Page

Draft Regional Planning Guidance for the South West - July 1999

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Inside front cover

Inside back cover

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A number of background papers have been prepared for the South West RegionalPlanning Conference, (some of which are still at a draft stage) providing informationabout specific aspects of the Regional Planning Guidance, the issues and problemsfacing the Region, and the policy formulation. These documents are listed below, andare available on request from the Secretariat of the South West Regional PlanningConference at Room C101, County Hall, Taunton, TA1 4DY; TEL No: 01823 355017FAX No: 01823 351359 Email: [email protected]

1 Strategic Study of Urban Housing Potential

2 Economic Appraisal of the Draft Revised Regional Strategy

3 Development Potential around the Principal Urban Areas and Settlements*

4 Affordable Housing *

5 Population and Housing

6 South West Region: Environmental Capital Pilot

7 Water Issues in the South West

8 A Biodiversity Guide for the Planning and Development Sectors

9 Economic Review of the South West by Business Strategies Ltd

10 Transport and Communications

11 Minerals and Waste

12 Monitoring

*Available late autumn

SUSTAINABILITY APPRAISALA Sustainability Appraisal of the Regional Planning Guidance is being prepared by theSouth West Sustainability Round Table and will be available from the GovernmentOffice for the South West at The Pithay, Bristol, BS1 2PB Tel: 0117 900 1845

Background Papers


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A key role for the Regional Planning Conference is

to prepare and submit to the Government Draft

Regional Planning Guidance for the South West.

An important part of the preparatory work was

the publication by Conference of a Revised

Regional Strategy in July 1998. This was the

subject of an extensive public consultation exercise

in the latter part of 1998. The Conference was

particularly grateful to receive nearly 700

comments and these have been very helpful.

Further extensive work has now been undertaken,

in particular drawing upon the outcome of this

consultation and the results of discussions with

Focus Groups which Conference organised with its

regional partners and stakeholders.

The draft RPG will be subject to public

consultation and will be considered by an

Independent Panel appointed by the Secretary of

State; this Panel is likely to sit in March 2000.

Following consideration of the Panel’s Report, the

Secretary of State for the Department of the

Environment, Transport and the Regions will issue

revised Regional Planning Guidance for the South

West, probably at the end of 2000.

Derrick Spear

Chairman

South West Regional Planning Conference

ForewordBy the Chairman of South West Regional Planning Conference


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Regional Planning Guidance1.1 The role of Regional Planning Guidance(RPG) is to set out a strategy to manage the futuredistribution of land use activities within the Regionover the medium to longer term.1.2 This RPG and its policies provide aframework for the plans and strategic decisions ofa range of public, private and voluntary sectoragencies in relation to land use, transport,economic development and the environment overthe period up to 2016. The RPG is set within acontext looking forward over the longer term of30 years or more, during which it seeks to movetowards a more environmentally sustainablepattern of living. 1.3 This Guidance sets out:* the regional framework for development

plans * the longer term context for the strategy

prepared by the South West of England Regional Development Agency (SWRDA)

* the Regional Transport Strategy which forms the basis for Local Transport Plans

* a longer term context for the strategies of other regional agencies dealing with such issues as energy, minerals, and waste; and

* the basis for investment and operational plans of relevant infrastructure and public service providers.

The RPG Policies are directed initially to thestrategic and local planning authorities to beincorporated within their future development plansand in making individual planning decisions. Theyare also addressed, as appropriate and as indicated,to all Regional stakeholders, (including all thosewho live, work, visit and have executive,investment, funding responsibilities for the area) asa basis to their forward planning for policies,operational plans and programmes concerningdevelopment and investment in the Region.It is essential that RPG is understood andinterpreted as an overall strategy to achievesustainable development. Individual policiesand sections should not be read in isolationfrom each other.

1.4 It provides guidance on issues of regional,sub-regional and inter-regional significance, wherethese have implications beyond the boundaries ofindividual local authorities. It also takes account ofpolicy approaches in neighbouring regions,including the South East, and wider Europeanspatial considerations. 1.5 The RPG is a broad strategic document. Byconcentrating on matters of regional significancethe RPG adds value to other elements of theplanning system, and provides strategic regionalguidance on spatial planning matters.1.6 An outline of national planning policyguidance on a range of issues is set out inAppendix A. The Planning Policy Guidance Notes(PPGs) published by the Government offer thenational policy context within which RPG has beenprepared. The contents of these notes needs tobe taken into account by the reader, in addition tothis RPG.

RPG’s Relationship to the Strategy preparedby the Regional Development Agency1.7 The South West of England RegionalDevelopment Agency (SWRDA) was established in1998 to undertake a number of statutory dutiesincluding furthering the development andregeneration of the Region; promoting businessefficiency, investment and competitiveness;promoting employment and developing the relevantskills; and contributing to sustainable development.To meet these responsibilities, SWRDA is currentlypreparing a regional strategy. The aims andobjectives of this RPG are closely related to themission, the objectives and strategic drivers inSWRDA’s Consultation Draft Regional Strategy,published in June 1999.

How SWRDA can help implement RPG* securing and directing European and national

funding to address the difficulties experienced in areas of need;

* developing the skills of the labour force to enhance the Region’s competitive position and reduce its reliance on imported labour;

* providing business support;

1) Introduction


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* marketing the Region to attract inward investment in sectors which complement the character of the South West;

* assisting in bringing forward for development strategic sites for existing companies and inward investors;

* lobbying at European and national level to ensure that policy and investment decisions are to the benefit of the South West.How RPG can help meet the objectives of the Regional Strategy prepared by the SWRDA

* providing locational guidance relating to areasof growth and areas of disadvantage;

* ensuring protection of the Region’s key environmental assets;

* ensuring that new housing is constructed in sufficient quantity and at appropriate locations which will meet anticipated increases in the demand for labour;

* providing and improving the communications infrastructure to help facilitate a wide spread of investment, improve supply chains, allow the efficient movement of labour, and improve export facilities.

The need for this revision of RegionalPlanning Guidance1.8 The current Regional Planning Guidance forthe South West (RPG10) was published by theGovernment Office for the South West (GOSW)in July 1994. This took into account the submissionof advice prepared by the Regional PlanningConference. 1.9 Since 1994, there have been a number ofsignificant changes affecting the policy context forpreparing Regional Planning Guidance:* the increased importance of promoting

sustainable development - “meeting the needs of the present without compromising the ability of future generations to meet theirown needs”. Future growth, at any level, willneed to be carefully managed to avoid or minimise potential conflicts between social and economic aspirations and the protection of the environment. That balance is sought inthis RPG.

* the need to address economic competitiveness

* projections indicating increasing numbers of households over the next two or three decades. The latest published information indicates that, on the basis of past trends, the

number of households in the South West may be expected to increase by about 410,000 over the period 1996-2016.

1.10 The increasing influence of Europe needs tobe taken into account. All EU Governments haveadopted the European Spatial DevelopmentPerspective (ESDP). This brings together land use,transport and economic strategies under a singlespatial strategy and provides a context for anumber of European initiatives.1.11 The ESDP is pursuing three fundamentalgoals* Economic and social cohesion* Sustainable development, and* Balanced competitiveness of the European

Territory.1.12 The European Commission is undertaking areview of its Structural Funds (Agenda 2000).These are targeting regeneration in areas affectedby industrial, fishing or agricultural/rural decline,and supporting urban programmes. It is alsostrengthening cooperation between regions underits Inter-Regional programme (Interreg III).Monitoring and Future Review 1.13 There is a continuing requirement to keepRPG up-to-date. The extent to which theobjectives and policies set out in this RPG areimplemented in future years by planning authoritiesand other agencies will be monitored carefully.“Headline Indicators” are indicated throughout thisGuidance, and more fully in the Technical Reporton Monitoring. 1.14 The RPG will be reviewed at an early date totake account of the findings of Multi ModalTransport Studies, Air Services Studies, revisions toGovernment Guidance, particularly on transport,waste and minerals.


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Introduction 2.1 The Region includes Cornwall, Devon, Dorset,Gloucestershire, Somerset, Wiltshire, the formerAvon area, and the Isles of Scilly. It has no singleurban focus, but does contain major cities. Interms of population, Bristol is the largest, followedby Bournemouth/Poole and Plymouth. There are anumber of other important urban centresthroughout the Region. More than one third of thepopulation live in towns and cities of over 100,000residents. Over half of the Region’s population livesin rural areas and towns of less than 20,000. (SeeMap 1)2.2 The Region shares boundaries with Wales, theWest Midlands, and the South East, and is thelargest Region in England. Its longest mainland axisstretches over 350km from north east to southwest - the northern part of Gloucestershire is asfar from west Cornwall as it is from the Scottishborderland.

The Environment2.3 The South West has many areas of highenvironmental quality, with extensive lengths ofattractive coastline. The Region contains significantareas of international and national designations fornature conservation and landscape, and has largeproportions of the country’s undeveloped coast. Itsmost valued landscapes and areas of internationalimportance for biodiversity are shown on Map 2,overleaf. Of the Region’s total area, 37% isdesignated as National Park or Area ofOutstanding Natural Beauty, 638 km is designatedHeritage Coast (61% of the total for England),there are over 3,700 Sites of Special ScientificInterest, and around 40 National Nature Reserves.2.4 The Region contains important archaeologicalsites, monuments and buildings, including twoWorld Heritage Sites (Stonehenge/Avebury, andthe City of Bath), over 6,000 Ancient Monuments,and over 108,000 listed buildings.2.5 The South West has the highest proportion ofland in agricultural use of any English Region (over75%), and has higher than average proportions ofboth managed grassland and woodland. Thetraditional farmed landscape adds much to thecharacter of the Region. Only 7% of the land areain the South West is classed as urban or suburban,well below the overall proportion of 11% forEngland. Recent studies have defined theenvironmental characteristics of the Region, interms of the landscape and habitats (see Section5A, paragraph 5A5).

2.6 The Region has nationally important mineralresources and workings, such as china clay, buildingstone, oil, crushed rock, sand and gravel.

Environmental Factors and Issues:* dispersal of activities and a drift of population

away from cities to the countryside placing increasing demands on environmental resources

* expansion of out-of-town commercial activities leading to increasing consumption of resources, pollution, growth in road traffic and congestion

* problems of social exclusion together with a poor environmental image reducing the attractiveness of living in some cities

* the need to protect important environmentalassets, including those threatened by expansion of the major urban areas, manage the consumption of natural resources, and reduce the need to travel

* the need to protect and improve the quality of air and water resources

* uses that conflict with the tranquil enjoymentof the landscape

* visitor pressure on sensitive areas; and * impact of agricultural diversification on the

environment

The Economy2.7 The economy is the major driver ofdevelopment in the South West. Its performancewill therefore be critical to the future scale andpattern of development in the Region. Theeconomy has grown steadily over the past decade.Its GDP is now 8% of the UK total, although GDPper head is below both the national and EU15average. Employment has grown significantly. Thishas been coupled with relative improvements inunemployment. Much of the migration into theSouth West is by working age people seeking totake up employment opportunities within theRegion or improve their quality of life. Historically,there has been a clear link between economicperformance and the demand for housing.2.8 The future performance of the economy willdepend upon a combination of international andnational changes in the economic, social,technological, environmental and public policyarenas, and the local and regional responses tothese challenges and opportunities. A key featurein securing a sustainable future for the Region willbe the improvement of the competitiveness of theeconomy. Many factors will influence thatcompetitiveness, including the effective

2) The Regional Context


Map 1 - The Regional Context


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Map 2 - Strategic Environmental Resources


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and innovative use of new technologies andknowledge, the improvement of skills, and thedevelopment of effective relationships betweenpublic, private and voluntary sector partners.Equally important will be the planning regimeswithin which businesses must operate. ThisGuidance, therefore, has an important role inassisting the future economic development of theSouth West.2.9 The previous section highlighted theimportance of the environment of the Region.There is a perception that environmentalprotection acts as a constraint to competitiveness.There is also a perception that the pursuit ofimproved economic performance will necessarilyhave an adverse impact on the environment.Neither should be true. In economic terms, theenvironment is one of the Region’s key strengths,and many of its industries - primarily tourism -depend upon it. There is now an increasingrecognition that the environment of the SouthWest is an important driver for economicdevelopment and regeneration. Strong economicperformance will also help to provide the wealthneeded to conserve the Region’s environmentalassets. Nevertheless, it will inevitably bringpressures for new development. This RPG plays acritical role in attempting to manage developmentpressures so as to ensure that the environmentalqualities of the Region are conserved, both fortheir own sake and to improve the competitivenessof the economy. It recognises, however, that insome parts of the Region, particularly in the southeast, the level of protection afforded toenvironmental assets at international level meansthat physical development will be constrained.This may mean that, in such areas, economicgrowth will be below the level that wouldotherwise be achieved. The challenge for suchareas is to focus on the other factors which canimprove competitiveness, and the challenge for theRegion is to see whether it can provide alternativelocations for economic growth opportunities whichmight otherwise be lost. 2.10 Another issue for the Region is the need toaddress the significant social and economicimbalances within the South West. The Region asa whole suffers from low wages, with averageearnings below national average. In part, thisreflects the significance of low paid sectors, such astourism and agriculture. In contrast to averageearnings, household disposable income per head isabove national average. This is to some extent dueto the relatively high proportion of people ofretirement age. There is therefore an imbalancebetween those reliant on wages and those whoseincomes are drawn from, or boosted by, othersources.2.11 There are geographical imbalances. Broadlyspeaking, there is a gradation in economic fortunes,from the prosperous north and east, to the less

prosperous west. This gradation reflects both thedifferent economic structures and degrees ofaccessibility. Closer examination reveals a muchmore complex pattern of economic well being.Although in terms of GDP per head, Avon,Gloucestershire and Wiltshire are above theregional and national average; average earnings andhousehold disposable income per head in Avon arewell below the regional average. Below countylevel, there are further disparities. There are highlevels of deprivation in some of the Region’s urbanareas - notably Bristol, Plymouth and Torbay.There is also serious rural deprivation across theSouth West, although it tends to be less spatiallyconcentrated and is often hidden in comparisons ofaverage statistics. 2.12 The planning system must play its part inaddressing imbalances. It can do this by assistingthe process of providing higher quality jobs inexisting sectors and allowing for the developmentof other sectors which will provide higher earnings.It must also assist in the process of regenerationacross the Region.

Economic Factors and Issues:* how the planning framework can

improve the competitiveness of the Region’s economy, by providing for the needs of business, and recognising the close relationship between the economy and the environment

* harnessing the potential for improved economic performance, recognising that related development pressures will principally be focussed on the north and east of the Region

* addressing the needs of areas of economic disadvantage, principally through taking measures to improve their economic performance.

Population and Housing2.13 The Region has 8% of the total UKpopulation with an overall population densitybelow the national average. Since 1981, the SouthWest has had the fastest growing populationamong UK regions. Inward migration from otherregions led to an overall population increase of460,000 (11%) over the period 1981-1996. Thiscontinuing growth is despite the fact that deathsoutnumbered births in the Region by 8,000 overthe period, reflecting the age structure of itspopulation. 2.14 In 1996/7, one in three households includedat least one person receiving the state retirementpension. The Region has the highest proportion ofresidents of pensionable age of any UK region -21% of the total - and the lowest proportion ofchildren. The South West has the lowest averagehousehold size of any region except London.


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2.15 The Region has over 2 million dwellings,increasing by 19% between 1981 and 1996. Onefifth of dwellings were built before 1891 and onequarter since 1970. It has the second highest rateof home ownership of any region. 2.16 The most recent projections suggest anincrease of about 410,000 households in theRegion between 1996 and 2016. These projectionsincorporate a number of assumptions, the mostsensitive of which is the level of migration into theRegion, which has varied significantly in the past.2.17 The Government has recently proposed (indraft PPG11) that the RPG process will havegreater responsibility for testing and managinghousing provision. However, there needs to beconvincing reasons for departing from nationalprojections of future housing provision.2.18 Land is a finite resource and the best use ofthis and other infrastructure needs to be made bygiving priority to the re-use of previouslydeveloped land and buildings. The Government hasset a national target of 60% of new homes beingprovided on such sites. However, this cannotprovide for all the new homes required; somedevelopment of greenfield sites will be necessary.While the identification of specific sites will be amatter for Development Plans, Governmentguidance suggests that these should beconcentrated where there is the opportunity tomake the best use of infrastructure, includingpublic transport.

Population & Housing Factors and Issues:* Assessing the housing requirements of the

Region to 2016, taking account of official projections, the needs of the economy, and supply-side considerations

* The accommodation of additional housing, taking account of the likely economic performance of different parts of the Region, the approach to development within the Region, the potential for the re-use of previously developed land and buildings, and the need to create a balance of land uses in asustainable way

* The need to meet local housing needs in areas where supply is particularly constrained, such as rural areas and the Isles of Scilly

* The provision of an adequate supply of affordable housing.

Transport2.19 Each person in the Region travels, on average,about 11,500 km per year - 10% above the nationalaverage. Almost 90% of this total was by car orother private road vehicle, and only 7% by publictransport. Over a third of journeys were for leisurepurposes; one fifth were journeys to work.

2.20 The Region has the highest car ownershiprates of any UK region except the South East, withsome 2 million motor cars licensed - though some20% of households do not own a car. However, theRegion is geographically dispersed and has a largerural population. Public transport in these areas isgenerally inadequate to meet all needs, and formany the car will remain essential.2.21 Average traffic flows on motorways andtrunk roads are among the lowest in the country.In 1997, the South West had the lowest rate offatal and serious road accidents of all regionsrelative to distances travelled. The Region doesexperience significant seasonal variations in roadtraffic - more so than in other regions - related tothe importance of tourism.2.22 Central Government policy is to reduce theneed to travel, and growth in travel distances,particularly by encouraging new developmentwhere there are realistic prospects of it beingserviced by a choice of transport modes, andwhere one journey can fulfil a number of purposes.The roles of local public transport, and walking andcycling need to be encouraged.

Transport Factors and Issues:* improving the Region’s competitiveness

and quality of life through an efficient and modern transport system

* high levels of car ownership, and dispersed development creating travel patterns which are environmentally damaging

* existing and potential conflicts, on both road and rail networks, between locally-generated and through traffic

* the need to cater for efficient movement of goods and people, through the maintenance and management of existingnetworks, and by strategic investment to upgrade facilities

* management of problems on the transport network to relieve congestion and improve efficiency

* improvement of the links with national and international networks

* increasing the proportion of freight moved by rail and water, and making freight transfer more efficient by investingin inter-modal facilities

* the transport solutions for accessibility forresidents and businesses in rural areas.


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What Does Regional PlanningGuidance (RPG) Aim to Achieve?3.1 RPG provides a framework to guidedevelopment. In doing so, it starts from a“VISION” for the sustainable future developmentof the South West.

THE VISION“Developing the Region, in a sustainableway, as a national and European region of

quality and diversity, where the quality of lifeand environment for residents, the businesscommunity and visitors will be maintained

and enhanced.”

THE AIMSPROTECTION of the environment

PROSPERITY for communities, and theregional and national economy

PROGRESS in meeting society’s needs andaspirations

PRUDENCE in the use of resources.

The Aims3.2 Within the Vision are four underlying AIMS.These express, at the regional level, the fourobjectives for sustainable development set out byCentral Government. The pursuit of these Aimscan be directly related to specific indicators assuggested below, and these are explained morefully in Section 6. The Aims for the South Westcan be summarised as

* Protection of the environment - the effective safeguarding and enhancement of the Region’s environmental resources, both natural and cultural, including those which are crucial to maintaining its overall attractiveness as an area in which to live, work and play

Indicators relating to the effectiveness of environmentalconservation will be particularly important in respect ofthis Aim - see indicators 1 to 5 on page 53.* Prosperity for communities, and the regional

and national economy - improving the competitive position of the South West within the EU and nationally to increase sustainable prosperity for all its residents and businesses

Indicators relating to the level of economic performancewill be particularly important in respect of this Aim -see indicators 6 to 10 on page 53.* Progress in meeting society’s needs and

aspirations - addressing people’s requirements for good and improving standards of housing, facilities and accessibility; reducing inequalities, and promoting social inclusiveness throughout the Region.

Indicators relating to the level of access to facilities andopportunities will be particularly important in respectof this Aim - see indicators 11 to 17 on page 53.* Prudence in the use and management of

resources - reducing the consumption of irreplaceable natural resources, and making best use of past investment including buildings and infrastructure.

Indicators relating to the use of finite resources will beparticularly important in respect of this Aim - seeindicators 18 to 24 on page 53.3.3 This RPG seeks to ensure that the Region as awhole gains the maximum benefit from futurechange by allowing the implementation of its fourAims in ways that are complementary. However, inacknowledging the uniqueness and diversity of theSouth West, it recognises that these overallAims cannot all be secured to an equalextent across the whole of the Region. Theemphasis will therefore vary in different parts ofthe Region reflecting local circumstances and thespecific requirements of both the rural and urbanareas. A SPATIAL STRATEGY setting outguidance on patterns of future change in differentparts of the Region is outlined in Section 4.

How Will the StrategyContribute to the OverallRegional Aims? 3.4 The overall strategy set out in this RPGconsists of: * Key Objectives for the Region - outlined in

paragraph 3.8 * Guidance on patterns of future change across

the Region - Section 4* Guidance in respect of key policy topics -

Section 5; and* Guidance on monitoring the RPG - Section 6.

3) The Vision, Aims and Objectives


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Key Objectives

3.5 The overall Vision is articulated through theapplication of Key Objectives. These relate to thefour overall Aims - but in many cases, theyhighlight the ways in which these Aims interrelatewith one another.3.6 The Objectives shift regional policies in thedirection of more sustainable patterns ofdevelopment, and thus have a high priority. Theyare not listed in any particular order ofimportance, and their relative priority may varyover time. More importantly, relative priorities willvary in different parts of the Region. The spatialand topic aspects of the RPG (Sections 4 and 5below) set out in more detail guidance on how theAims and Objectives should be implemented indifferent parts of the Region.3.7 This RPG recognises that the manner in whichapparently conflicting or divergent Objectives areresolved - both in urban and rural areas - will bethe key to the future well being of the Region. Therelationship between economic and environmentalpriorities is fundamental. The RPG recognises, onthe one hand, that the Region’s environmentcontributes economic benefits; and on the otherthat, without the utmost care, further growthcould cause irreversible environmental harm. ThisRPG sets out a framework through which planningauthorities and other agencies should be able toresolve these difficulties.3.8 The Key Objectives are:(a) ensuring that the level, distribution, and natureof development does not further threaten thespecial character, diversity, and distinctiveness ofthe Region, and wherever possible benefits theenvironment(b) safeguarding and enhancing the quality anddiversity of the natural, cultural and builtenvironment across the Region, while giving thehighest level of protection to designated areas andfeatures of national and international importance(c) improving the economic competitiveness of theRegion by drawing on its strengths and resources,and fostering the development of businesses andskills(d) promoting, supporting, enabling, and focusingeconomic development in ways and locationswhere it can best contribute to meeting local,regional, national and European objectives(e) addressing the wide variations in prosperitybetween different parts of the Region throughregeneration, and so reducing social exclusion andeconomic disadvantage, particularly in areas ofspecial need(f) meeting people’s requirements for housing, jobs,and facilities, of good quality and in sufficientmeasure to provide for future needs(g) providing integrated, efficient andenvironmentally appropriate transport andcommunications systems to meet regional,

national and international priorities(h) improving accessibility to jobs and services, andensuring that patterns of future developmentmaximise the scope for reducing the length andnumber of journeys, particularly by car, andencourage public transport provision(i) recognising and encouraging community identityand diversity (j) ensuring that development makes the mostprudent use of resources created through pastinvestment, including buildings and otherinfrastructure especially in urban areas, andcontributes to new infrastructure provision inpartnership with public investment(k) controlling and where possible minimisingwaste and pollution; also minimising the loss ofgreen fields, biodiversity, primary minerals, water,and other irreplaceable natural and culturalresources(l) ensuring, at all levels of planning, integratedrelationships between economic activity andhousing, both in terms of scale and distribution

Relationship of RPG’s Vision,Aim, and Objectives withSWRDA’s Mission, StrategicObjectives and Drivers3.9 At the time of preparing this RPG, the firstdraft of the SWRDA’s Regional Strategy had beenpublished for consultation. In large measure, thesetwo documents are complementary. Close workingon the production of both documents, based upona common understanding of, and vision for theRegion has taken place. The second Aim of thisRPG - prosperity for communities, and the regionaland national economy - is very similar to theSWRDA’s Mission. 3.10 SWRDA’s Regional Strategy identifies threestrategic objectives, which this RPG supports,including:* increasing prosperity through improved

business competitiveness* addressing social and economic imbalances;

and* improving regional coherence. 3.11 SWRDA’s Regional Strategy suggests four“strategic drivers” to ensure that the Region willbe in a position to take advantage of itsdistinctiveness and which can shape its economicfuture. These strategic drivers accord well with theObjectives of this RPG, and include:* innovation, creativity, and technology* cultural and environmental assets attracting

and developing business potential, particularlynew environmental technologies

* skills development and learning to improve the Region’s economy and increase competitiveness; and

* partnerships for implementing and delivering both Strategies.


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The Spatial Strategy4.1 The Vision, Aims, and policies contained in theRPG: * promote a sustainable development pattern* minimise the need to develop on greenfield

sites and to travel* concentrate development on the Principal

Urban Areas (PUAs) * set out a sequential approach to guide the

process of selecting future development and investment locations.

4.2 Within each part of the Region the location offuture development will be based on a sequentialapproach, consistent with national governmentadvice as set out in PPGs6, 13 and draft PPG3, andis reflected within the spatial strategy and inspecific policies. The following regional factorsalso affect the strategic approach: * all parts of the Region contain large areas of

great environmental importance that contribute to its attractiveness for residents and tourists, and adds to its competitiveness as a business location

* the diverse nature of the South West is of key importance, and requires adversity of local policy approaches within a region-wide framework

* a scattered population, predominantly in small towns and rural areas

* relatively few previously developed (“brownfield”) sites

* a number of Principal Urban Areas (PUAs) that play a key regional role and which may have characteristic urban problems such as deprivation and congestion, and may have important constraints

* the peninsular nature of the Region influences economic investment, and largely explains significant differences in levels of prosperity and employment opportunities between the west and east

* the national policy presumptions that travel by car should be minimised and if possible reduced.

Policy 1: Spatial StrategyAt the Regional level, development should,wherever possible, be accommodated within orclose to urban areas. In particular:- * most development should be within or close

to the Principal Urban Areas (Policies 4-17)* development at other towns should be

primarily to promote and support self containment (Policy 18)

* development in rural areas should be primarily to address local needs (Policy 19).

Policy 2: The Sequential ApproachIn order to achieve more sustainable travelpatterns and to protect and conserve areas ofrecognised environmental and amenityimportance, Planning Authorities in each part ofthe Region should adopt the following sequentialapproach towards the identification of locations fordevelopment:-i. the reuse of previously developed land and

buildings (“brownfield” sites) within urban areas

ii. new locations within urban areas subject to the need to protect and conserve areas of recognised environmental and amenity interests

iii on other sites and locations which are well located to achieving sustainable developmentand reducing the need to travel

Policy 3: Achieving the Spatial StrategyDevelopment Plans, Funding Agencies, andInfrastructure Providers, should set out clearstrategies, policies and proposals for the locationof development and investment to accord withPolicies 1 and 2 above.

The Key Strategy Diagram4.3 The main elements of the spatial strategy areshown on the Key Strategy Diagram.

The Principal Urban Areas (PUAs)4.4 The RPG identifies the 11 largest urban areas(approximately 50,000 population or above) asPUAs. These will play key roles in the pattern offuture development. Such areas offer the greatestpotential to accommodate change and newdevelopment in a sustainable way. They offer thepotential for a high quality of life, with access to awide range of services, and relatively good publictransport networks with the scope for furtherimprovement. Significant changes to current policyfor these areas will need to be considered.Principal Urban Areas are: The Bristolconurbation, Bath, Weston-super-Mare, Swindon,Gloucester, Cheltenham, the Bournemouth/Pooleconurbation, Exeter, Taunton, Plymouth and Torbay.

4) Patterns of Future Change


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Development Within the PUAs4.5 A process of “urban renaissance” inenvironmental, economic and social terms,together with a high priority for new investment, isrequired. The revitalisation of urban centres, ashubs of commercial activity well served by publictransport, is integral to this process. Policies needto reverse recent patterns of low densitydevelopment in the urban fringe, which have led tosubstantial growth in road traffic and the loss ofenvironmental assets.4.6 New development should be a positive forcefor change. It should facilitate regeneration andrestructuring, particularly of pockets ofdisadvantage in urban areas, and help provide ahigh quality, flourishing, and attractive urbanenvironment. Development within the PUAs shouldbe located where it can be served by existinginfrastructure, including public transport, wherethere is spare capacity, or where capacity can becreated. Suburban communities should provide formixed use, higher density development, viableshopping, educational and community facilities,public open spaces, and good public transportlinks. Existing land use allocations should bereappraised where alternative uses would helpcreate mixed and balanced communities.

Policy 4: Principal Urban Areas (PUAs)Policies should:* achieve “urban renaissance”, in

environmental, economic and social terms* recognise the regional importance of

Principal Urban Areas, and their potential to accommodate change and new development in a sustainable manner

* promote and enhance economic efficiency and competitiveness

* give high priority to new investment particularly for public transport

* locate development where adequate infrastructure exists or can realistically be provided.

The Need for Green Belt Review4.7 Studies show that the levels of development tomeet future requirements for housing, employment andother uses cannot be met entirely within the PUAs.The Region has relatively little “brownfield” land.4.8 Where it is not possible to accommodatefuture growth within the PUAs, the next bestoption, generally, is to locate developmentadjoining them. Provision needs to be made forwell designed new development in urban fringelocations. Low density development, of the typeseen in recent decades, should be discouraged.

4.9 Five PUAs (Bristol, Bath, Bournemouth / Poole,Gloucester and Cheltenham) are partly or whollysurrounded by Green Belt. The principles of GreenBelt policy (as set out in PPG2), includingpreventing urban sprawl, maintaining the separationof towns, protecting the open countryside aroundurban areas from encroachment, and assistingurban regeneration, are an essential part of RPG.4.10 The need to ensure that future patterns ofdevelopment are more sustainable means that theboundaries of these Green Belts should bereviewed in the next round of Structure Plans.

Policy 5: Green BeltsThe RPG supports the strategic principles of GreenBelt policy (including preventing urban sprawl,maintaining the separation of towns, protecting theopen countryside around urban areas fromencroachment, and assisting urban regeneration).Nevertheless Green Belt boundaries need to bereviewed in the next round of Structure Plans.These reviews should consider removing land fromthe Green Belt for development if, on balance, thiswould be more sustainable than locatingdevelopment beyond the Green Belt. At the sametime the reviews will consider whether theboundaries should be altered to include additionalland as Green Belt.

Principal Urban Areas in theNorth of the Region(Bristol, Bath, Weston-super-Mare, Swindon,Gloucester, and Cheltenham)4.11 This area contains over 1.8 million people,almost 40% of the region’s population in about 20%of the area, and contains 6 PUAs. It has good inter-regional communications and strong relationshipswith adjoining regions. Many of the transportcorridors linking the west of the Region to theremainder of the country pass through it.4.12 The sub-region is relatively prosperous butcontains areas of special need, such as the Forestof Dean and parts of urban areas. It has extensiveareas of environmental importance including theCotswolds, other AONBs, and the Severn estuary.These are under pressure, and their protection isimportant. Some of the major urban areas, notablythe World Heritage Site of Bath, and many smallertowns and villages, are of great environmentalquality.4.13 The area has the potential to continue to bea major focus of growth. Studies suggest thateconomic expansion here is likely to be at orabove the regional average, especially in financialservices and communications. Fostering economicgrowth in this area, to maintain its performance inrelation to the EU average, is an essential part of


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the Strategy. Development plans will need toidentify strategic employment sites, in accordancewith the criteria set out in Section 5B.4.14 Provision needs to be made to meet futuredevelopment requirements within and around thePUAs, in order to strengthen their roles and fosterurban renaissance. It is necessary to address andminimise infrastructure constraints in the area.Equally, however, it is no longer acceptable to allowpast rates for the outward expansion of theseurban areas to continue in an unsustainablemanner.4.15 The area has a high density of smaller townsthat are important in their own right as servicecentres for their surrounding areas. Any strategicapproach towards the sub-region needs to takeaccount of these towns, and their relationships toPUAs, and acknowledge that, in some cases, theymay have potential to develop stronger sub-regional roles. Particular consideration should begiven to examining the potential for developmentto achieve greater self containment in the towns ofwestern and northern Wiltshire, around Bristol, inthe former industrial areas of north easternSomerset, and in the Forest of Dean.4.16 The hinterlands of the PUAs overlap. Pastpatterns of development have tended to increasetravel distances. New approaches to accommodatedevelopment should reverse these trends, andcreate more sustainable patterns of development.The next round of Development Plans must takefull account of this RPG to achieve this. In additiona sub-regional study needs to address the futurelonger term distribution of development inlocations that offer the prospect of balanceddevelopment. These locations will usually be eitheradjoining, or related to, the PUAs. This studyshould involve the strategic planning authorities ofthe former Avon area, Wiltshire, Gloucestershireand Somerset, and also consider the relationshipsbetween the area and neighbouring Regions.

Policy 6: A Study of Sustainable Development Patterns in the North of the Region.Strategic planning authorities should jointlyundertake a study to provide an overview ofsustainable patterns of development toaccommodate future growth in the longer term,and to inform the next round of Structure Plans.The study should accord with the general principlesoutlined in this RPG.

The Bristol Conurbation4.17 The Bristol conurbation is the largest urbancentre in the Region. It is a major focus forregional services, shopping, cultural activities,education, and tourism. It also has substantialdeprivation, both in inner areas and some outer

estates. The conurbation provides employment fora wide area, and its port and airport act asgateways for the Region. In the ‘North Fringe’ area(ie adjoining the M4 and M5 motorways north ofthe city boundary), there has been considerabledevelopment in recent years for employment,housing, retailing and other uses. 4.18 As the largest urban area in the UK southwest of Birmingham, Bristol’s location and statusmeans the area will play a key role for economicgrowth regionally and nationally. Policies for thisarea must recognise its advantages as a keylocation for future investment, which cannot bereplicated elsewhere in the Region. Securinggrowth that contributes to regional prosperityrequires an adequate supply of employment land,and an emphasis on the role and attractiveness ofthe conurbation in order to achieve “urbanrenaissance”.4.19 Constraints to physical expansion of theurban area include risks of coastal flooding, thelimited number of crossings of the River Avon, andareas of ecological and agricultural importance. AGreen Belt surrounds the conurbation. In recentdecades there has been substantial housingdevelopment resulting in commuting into andaround the urban area, particularly by road.4.20 There is growing traffic congestion withinthe City, in surrounding areas particularly the‘North Fringe’, and on radial and orbital corridors.There needs to be a high priority to secureimprovements to the public transport system thatare critical for continued investment within theurban area in order to resolve existing problemsand to help the area fulfill its regional role.

Policy 7: The Bristol ConurbationPolicies should:* recognise and promote the regional and

national role of the Bristol conurbation, and accommodate further growth in ways that best accord with the principles of sustainable development

* give high priority to investment in programmes for environmental, social, economic and physical regeneration

* be associated with a high national priority fornew resources for public transport and for other measures to reduce road traffic and congestion

* seek to enhance the City centre and maintain and improve its standing as a centrefor business, cultural activities, and retailing

* seek to resolve infrastructure constraints on further sustainable development adjoining the urban area, while acknowledging critical environmental constraints

* promote the regional role of Bristol


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International Airport (subject to the outcome of the Air Services Study) and link this to the opportunities to promote economic regeneration in south Bristol

* review the Green Belt in accordance with Policy 5.

Bath4.21 Bath is an important regional centre. It has avibrant tourist economy, and an important role asa business, cultural and shopping centre. Theentire City is designated as a World Heritage Site.It is surrounded by Green Belt and also, largely, bythe Cotswolds AONB.4.22 A balance needs to be struck betweenpreserving and enhancing the City’s architectural,historic and landscape quality and encouraging andaccommodating sustainable development. Bath is aliving city, not a museum. It is important to addressrecent job losses by broadening the economicbase, safeguarding employment sites, and wideningthe visitor base. Traffic within and around the Citydetracts from the environment and needs to bereduced.

Policy 8: BathPolicies should :* ensure that Bath’s unique environment is

conserved and enhanced* recognise the need for economic

development that enhances its role as a centre for business, cultural activities, retailing and tourism

* encourage limited and sensitive development for housing, employment and other uses within the City, in circumstances where it canbe achieved without significant damage to environmental quality

* be associated with a high priority for new resources for public transport, and other measures to reduce road traffic and congestion within the City, including that arising from road traffic between the M4 and the south

* review the Green Belt in accordance with Policy 5

Weston-super-Mare4.23 Weston-super-Mare is a major coastalresort, and a commercial centre for surroundingareas of northern Somerset. Substantial residentialexpansion has taken place over recent decades,without an equivalent increase in jobs. This has ledto high levels of commuting by car, particularly tothe Bristol area, and pockets of highunemployment. The town has spread inlandtowards the M5, and substantial further

commitments for development exist in that area.4.24 There is a need for regeneration, resolutionof traffic problems within the town centre andolder residential areas, and for the enhancement oftourist facilities. The future development of thetown also needs to take account of the close linkswith the Bristol area.

Policy 9: Weston-super-MarePolicies should:* increase employment opportunities* enhance the town’s environment and its

surroundings* support investment to enhance tourist and

business visitor facilities and accommodation to aid economic regeneration

* focus transport related investment on improved public transport, especially improvements to the rail network and services linking the town with the Bristol area.

Swindon4.25 Swindon is a major growth centreaccommodating inward investment and locallygenerated expansion. The town has successfullydeveloped its role as a major economic and servicecentre, well served by main transport routes. It hasa high rate of inward investment, and generally lowlevels of unemployment.4.26 The locational attractions for investmentmust continue to be recognised. Commitments forfurther expansion already exist. However, thereare local concerns about the impact of continuinggrowth, particularly on congestion within the townand on losses of surrounding countryside todevelopment. The Environment Agency isconcerned about the need to identify a newstrategic water resource to serve Swindon andadjoining areas in the South East Region, and newwaste water treatment facilities, if developmentwere to continue at past rates. Substantial furtherinvestment in public transport and otherinfrastructure is necessary in the event of majorexpansion.

Policy 10: SwindonPolicies should:* support Swindon as a focus for continued

economic investment and associated development

* recognise the need for investment in public transport, water resources and treatment, and other infrastructure provision

* support development beyond the urban area where it can help achieve sustainable patterns of development. The rural buffer


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policy should be reviewed in order to allow all options for development adjoining the urban area to be considered.

Gloucester and Cheltenham4.27 Gloucester and Cheltenham are major urbanareas. They are important economic, social,cultural, and service centres with relatively goodtransport links by road and rail to most parts ofthe country. Gloucestershire airport is a localasset. The economies of the two towns areinterrelated.4.28 Gloucester is an important historic city witha strong industrial heritage. Future expansion isconstrained particularly by the floodplain of theSevern. There is a need for investment in urbanregeneration, and in transport and socialinfrastructure. Despite inward investment,employment growth has fallen behind expectationsand there are pockets of high unemployment.4.29 Cheltenham contains areas of higharchitectural quality. It is an important centre fortourism and shopping. Its development isconstrained by the Cotswolds AONB. Furthersites for development within or adjoining the townare limited, although there is a recognised need foreconomic diversification.

Policy 11: Gloucester and CheltenhamPolicies should:* focus economic and housing development at

and well related to the two major centres of Gloucester and Cheltenham

* give a high priority to new resources for public transport, and other measures to reduce road traffic and congestion, both within and between the two urban areas, andon routes linking them with surrounding areas

* review the Green Belt in accordance with Policy 5.

Principal Urban Areas in theSouth East of the RegionThe Bournemouth/Poole conurbation

4.30 The Bournemouth-Poole conurbationdominates the south east of the Region. It is themain centre for that part of the Region andadjoining south west Hampshire. It is a sub-regional centre for employment, and service,shopping, cultural and education facilities. Its sea(Poole) and air (Bournemouth International) portsare important and its tourist industry is of nationaland international importance. A highly attractiveenvironment surrounds the area. The resort

facilities offered by Bournemouth, add to thequality of life of its residents.

4.31 This has been one of the fastest growingurban areas in the country for many years and hasa diverse economy based on tourism, hightechnology engineering, financial services andeducation. The principal cause of the growth ofthe area has been in-migration of both people andcompanies substantially from London and theSouth East. The buoyancy of the economy isattractive to companies seeking to relocate fromother parts of the country and abroad, and theconurbation has seen major inward investment,particularly in financial services. There are howeverpockets of high unemployment and socialdeprivation within the conurbation. 4.32 The area is relatively well served bytransport links to other areas, particularly road andrail links to the South East Region, but links to theSouth West are poor. Bournemouth InternationalAirport has seen significant passenger growth inrecent years and has potential for further growthat the sub regional level, as a transport facility andfor employment growth, subject to the provision ofsustainable transport links to the conurbation andbeyond. The Port of Poole offers both freight andferry services, but suffers from poor links to thenational road network.4.33 The principal issue is whether, in the contextof sustainable development, theBournemouth/Poole area can continue to expandat a rate commensurate with the past given that itis one of the main economic centres of growth inthe Region. The conurbation is likely to remain apopular area for retirement, and this will continueto be a significant component of the housingmarket. There is a significant supply of land foremployment, although its suitability and availabilityneed to be reviewed. It is unlikely thatemployment land availability will constrain theeconomic prospects of the area. The area needs tomake the best use of existing resources. Achievinggrowth in a sustainable manner means that thereshould be less reliance upon an unconstrainedsupply of labour and a greater emphasis onmeasures leading to an increased productivity andbusiness performance, the application of moderntechnology, continuing education of the labourforce and reducing unemployment.4.34 However, housing land supply has reached acritical point. National and international natureand landscape designations severely limit thefurther release of greenfield land, and areas offlood plain are a further constraint. The pastoutward rate of physical expansion by theconurbation will not be able to continue into thefuture. Future physical development should be


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focused within the built up area, although a reviewof Green Belt boundaries, to identify opportunitiesfor sustainable development should be undertaken.This review should be by a sub regional studyundertaken jointly by the strategic planningauthorities within this area and in south Hampshireand south Dorset. This study will also examineoptions to relieve growth pressures on theconurbation as well as economic regeneration.4.35 The approach in this RPG will result in alower level of housing development in and aroundBournemouth and Poole than in the past. Duringthe 1990s, rates of development have beensignificantly lower than in the 1980s, and somefurther reduction may be anticipated.

Policy 12: Bournemouth/PoolePolicies should:* provide for the further economic expansion

of the area by relying more on increases in productivity than on increases in labour supply

* recognise the constraints to physical expansion set by national and international designations, and the need to minimise the use of natural resources

* increase the prospects for a better and more viable public transport system

* make maximum use of land and buildings within current urban boundaries including significantly increasing residential densities

* support the further growth of Bournemouth International Airport as a sub regional airport and employment location (subject to the outcome of the Air Services Study); and

* support the Port of Poole and associated regional and local transport links, particularlythe A31 Poole link.

A sub regional study should be undertakenexamining sustainable approaches toaccommodate future development, to inform thenext Dorset and Hampshire Structure Plans andprovide a context for the longer term review ofRPG. This study will include a review of the GreenBelt in accordance with Policy 5.

Principal Urban Areas in theCentre of the RegionExeter and Taunton

4.36 The centre of the Region is predominantlyrural with a settlement pattern based on a largenumber of small and medium-sized towns, many ofwhich have an industrial as well as a market towneconomy. It has seen considerable recentemployment growth with the main economicdrivers being public sector services. The ruralnature of much of the hinterland means there is a

dependence on agriculture, and a need to diversifythe rural economy. There is some evidence ofgrowth in manufacturing, especially precisionengineering where there are emerging linksbetween Yeovil, Exeter and Bournemouth/Poole. 4.37 The area has some potential for furthergrowth due to its good communication links andrelatively few physical constraints. It has a pivotalrole to help to spread economic developmentwestwards through the Region. Exeter and Tauntonare key locations, with other towns playing asupporting role. There is a need to develop thelocal economic and service functions of othertowns such as Bridgwater, Wellington andTiverton, so as to foster self-containment, and toprovide important local linkages to the rural areasthey serve. A sub regional study should beundertaken to examine longer term patterns forsustainable development in these parts of Devonand Somerset, and to help identify any possible keylocations for sustainable growth and investment.

Policy 13: A Study for Sustainable DevelopmentPatterns in the Centre of the RegionStrategic Planning Authorities should jointlyundertake a sub regional study to examine thelonger term patterns for sustainable developmentin the centre of the Region, and to inform the nextround of Somerset and Devon Structure Plans.The study should accord with the general principlesoutlined in this RPG.

Taunton 4.38 Taunton’s central location and role as anadministrative centre makes it an importantlocation for service industries. Although modest insize, the town has seen considerable growth inrecent years. Its strong transport links means thatnearby towns face difficulties in maintaining theirindependent roles. 4.39 Substantial investment, including measures toovercome traffic congestion, will be required toaccommodate long term development, if the town’srole is to grow. Physical constraints are bringingthe search for development land towards criticalthresholds. Nevertheless, provided developmentand infrastructure provision can be phased there isthe scope to accommodate additional developmentto both consolidate its role as an important PUA inthe centre of the region, and enhance its longerterm prospects as a regional centre of significance.4.40 To aid economic development westwardthrough the Region this RPG supports theenhancement of Taunton’s role as a focal point foreconomic activity, and the diversification of itseconomic base.


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Policy 14: TauntonPolicies should:* enhance the role of Taunton as a focal point

for economic activity, and as a commercial, cultural and service centre

* plan for balanced housing and economic development, facilities and services consistent with its sub regional role

* ensure investment in transport and other infrastructure and facilities to support the enhanced role of Taunton as a strategic centre within the central part of the Region.

Exeter4.41 Exeter is the administrative and distributivefocus for much of Devon and has a growing role asa regional service centre. The city has a strongservice based economy and is a tourist centre. Itsposition at the hub of a major communicationsnetwork provides a considerable potential foreconomic growth, but it is important to preservethe city’s historic character and high qualityenvironment. There is a need to broaden theeconomic base.4.42 In the context of helping to spread economicdevelopment down the Region, RPG supports thecontinuing development of Exeter’s sub-regionalrole as the employment and service centre. To dothis will depend on securing adequate land supply,particularly for economic development, andcapitalising on the opportunities offered bydevelopment to the east of the city.

Policy 15: ExeterPolicies should:* develop the role of Exeter as the main

commercial, cultural and service centre for the central part of the Region

* develop its role as a focal point for strategic economic investment, having regard to the need to expand and diversify the local economy and economic base

* provide for additional housing so far as necessary to support this enhanced role whilst also recognising the supporting role ofother towns in the area and of the planned new community development in the area

* recognise its strategic location in the relation to the regional road, rail and air networks, and the opportunities for intermodal transport development

* reduce peripherality by supporting Exeter Airport (subject to Air Services Study), the TENS rail network, and enhancement of the Exeter-Waterloo line.

Principal Urban Areas in theWest of the Region4.43 Strong policies and action are needed toovercome long term and deep seated economicand social problems in this area. There is a need tostimulate economic growth and increaseprosperity. A momentum of growth should besustained so as to underpin the necessary servicesand facilities, which are essential to retain localpeople and serve the needs of the surroundingarea. A key factor is remoteness that can bealleviated through investment in communicationsbut RPG recognises this to be only a part of thesolution.4.44 Plymouth, because of its size and potential forsound economic growth is large enough to act as afocus for future development. The role of smallercentres, both in Cornwall and Devon, with thepotential to form complementary clusters tosupport the overall aim of spreading economicprosperity down the Region, needs to berecognised.4.45 Torbay is an important sub-regional centre.Its economy is over dependent on tourism andthere is a need to diversify.

Plymouth4.46 Plymouth is the main urban centre in thewest of the Region. It is a major employment anddefence centre with a long tradition as a naval andcommercial port, and it benefits from the holidaytrade. There have, however, been substantial joblosses in the defence service sector and there areserious pockets of urban deprivation. The overalleconomy is low wage and there is a continuingneed to diversify the city’s economic base.4.47 Plymouth has inherent potential for soundeconomic growth and has proved an attractivelocation for industry. RPG considers thatPlymouth’s role, as the major urban centre in thearea and the focus for the economic and social lifeof the communities within and around it, should bestrengthened. This would benefit a wider area andimprove the economic well being of easternCornwall and south west Devon. It also supportsCornwall’s Objective 1 aims by offering a strategiclocation for regionally significant economicinvestment. Measures to promote and supporteconomic investment in the City and nearbytowns, and improve transport linkages are neededas is a clear programme to phase in new andexpanding industries and to reduce dependence onthe Dockyard. Policies will need to ensure abalanced level of development with a housingprovision that is consistent with meeting economic,social and environmental objectives.


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4.48 There is recognition that the capacity ofPlymouth to accommodate future growth is limitedand that there are some physical and importantenvironmental constraints to development beyondits boundaries. The local authorities concernedwill need to co-operate to achieve this overarchingaim for the Plymouth area, through a sub regionalstudy that identifies sustainable patterns of futuredevelopment.

Policy 16: PlymouthPolicies should:* strengthen the role of Plymouth as a focal

point for economic activity and development within the west of the Region, and the opportunities this gives for increasing economic well being in the sub-region

* encourage diversification of the economic base by inward investment and support morelocally based economic activity

* improve links to and from the surrounding hinterland so that the benefits of economic investment can be disseminated throughout the sub region

* prioritise investment in infrastructure to reduce peripherality by supporting Plymouth airport (subject to Air Services Study), the TENS rail network and the ferry port

* capitalise on the advantages offered by the location of the City as the regional gateway to the Objective 1 and Objective 2(bid) areas

* support the planned new community east of Plymouth in South Hams

* recognise the supporting role of other towns and take advantage of other planned development in the area (the new community).

The Local Authorities within the Plymouth subregion must undertake a sub regional study toconsider possible locations for future developmentalong the East /West axis. This study should be aninput to the next round of structure plans, buildingon existing commitments. It should take an overview of sustainable development patterns foraccommodating future development in the subregion, and accord with the general principlesoutlined in this RPG.

Torbay4.49 Torbay (comprising the three towns ofTorquay, Paignton and Brixham) is an importantsub-regional centre, a premier tourist resort,conference centre and fishing port. It is a populardestination for inward migration. However, theeconomy is over-dependent on tourism with aneed to restructure and diversify. There are

significant deprivation issues which need to beaddressed through substantial regenerationmeasures. Its connections to the main road andrail networks need improvement and areas ofenvironmental importance restrict the potential forexpansion. In particular, the coalescence of theindividual towns within and around Torbay needsto be prevented, to retain their individuality.4.50 RPG supports the development of Torbay asa premier tourist resort, the maintenance anddevelopment of the sector as a key economicdriver; the role of Torbay as a sub-regional centreserving as a focus for the economic and social lifeof the communities in and around it; and Brixham’srole as a national fishing port.

Policy 17: TorbayPolicies should:* recognise the need to diversify the economic

base, encourage more locally based economic activity, and provide investment in appropriate strategic facilities for the development of the tourist industry

* support social and economic restructuring through regeneration, especially in town centres and at key focal points, and bring forward high quality development land to attract inward investment.

* reduce the adverse effects of a peripheral location by improving transport linkages

* ensure a balanced level of development with a housing provision that is consistent with meeting the areas economic objectives.

Other Locations Offering theProspect of BalancedDevelopment (including NewSettlements)4.51 Where development cannot beaccommodated within or around PUAs it shouldbe located where it contributes to existing or newcommunities. These should be of sufficient scaleand located so as to be substantially balanced orself-contained in terms of their relationshipbetween homes, jobs, and local services andfacilities. There should be a realistic prospect of abalance between jobs and homes, to discouragecommuting.4.52 Rather than encouraging economicdevelopment in locations where it would inevitablygenerate additional road traffic, it should draw onestablished and new economic clusters linking urbanand other areas, and the potential of some townsand areas to act as “stepping stones” to spreadinvestment and prosperity to all parts of the Region.


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4.53 There are a number of substantial towns,smaller than the PUAs, which are relatively self-contained in terms of the relationship betweenhomes and jobs, and which are located at somedistance from the larger urban areas. Theygenerally act as centres for wider rural areas andoffer a good range of services and facilities. Initialstudies have indicated that the following towns(shown on the Key Strategy Diagram) havepotential for further development as selfcontained settlements which will contribute tomeeting the requirements of the Region as awhole:Weymouth/Portland, Dorchester, Salisbury, Yeovil,Barnstaple, Truro, and Camborne/Redruth.This list is not exhaustive and may be reviewedthrough further work.4.54 Options for development at the sub-regionalor local levels should include the expansion ofselected towns and villages, and/or thedevelopment of new settlements. This may beappropriate to accommodate development thatcannot be provided either within or adjoining thePUAs themselves, or at substantial towns whichoffer the prospect of balanced development. Suchdevelopments should be based around the realisticprospect of containing sufficient employment, inscale and type, to form a balanced community, andshould not lead to high levels of travel by road.New or expanded settlements should be identifiedthrough the structure plan process, and throughcross-boundary studies where necessary. It mayalso be appropriate to provide for smaller new orexpanded settlements, or “urban villages” wellrelated to the major urban areas, where a goodlevel of local employment and facilities is available,or elsewhere if a very good level of publictransport exists with major centres.

Policy 18: Other Locations for BalancedDevelopment (including New Settlements)Where sub regional or Structure Planrequirements for development cannot beaccommodated within or adjoining the PUAs,development plans should:* encourage the balanced development of

substantial towns, smaller than the PUAs, which offer the prospect of contributing towards meeting regional as well as local development needs without generating high levels of additional road traffic

* consider the scope for accommodating development in or around other towns, or new settlements, where balanced development can be achieved in terms of the relationship between homes, jobs, local services and facilities, and which are less likely to become principally dormitory towns.

Rural Areas 4.55 The South West is the most rural of allEngland’s Regions, with a high quality natural, builtand cultural environment. Outside the PUAs theRegion has a matrix of small towns and villagessurrounded by attractive countryside. Over halfthe population of the Region lives outside themajor urban centres4.56 The nature of rural areas varies across theRegion. For example:* those with past dependence on particular

industrial sectors, such as the Forest of Deanand north eastern Somerset

* remote rural areas with a high dependence on agriculture

* areas with high proportions of retired residents, often in attractive coastal areas

* affluent commuter areas and accessible countryside close to and strongly influenced by urban areas.

4.57 Many rural areas are recognised nationallyand, in some cases, internationally for theirenvironmental importance. These StrategicEnvironmental Areas are shown on the KeyStrategy Diagram and Map 2; environmentalpolicies are set out in Section 5A.4.58 Historically, the rural settlement pattern wasbased on the need to service a labour intensiverural economy. Its role now reflects moderndemands of a mobile population; the rise of theservice based economy, and globalisation of trade.Many smaller towns have expanded, aided byinvestment in the road network which has madeaccess to large urban areas easier.4.59 Village shops have closed and service deliveryhas become confined to larger towns. Remoterural areas (particularly in the far south west)experience difficulties in accessing jobs andservices. This contrast in opportunity createspockets of rural deprivation, compounded by a lowwage economy, which further constrains choice inhousing and lifestyle.4.60 Remoter rural areas have a greaterdependency on agriculture, and forestry, mostnotably in West Devon, West Somerset, Cornwalland North Dorset. Such areas are likely to sufferfrom the impact of agricultural restructuring andthe review of the structural fund regime. The factthat Cornwall has been granted Objective 1 statusmeans that adjoining remote rural areas may qualifyfor Objective 2 funding, or benefit from transitionalfunds. 4.61 Pressures on the agricultural sector arehaving economic, social and environmental impactsacross the Region. Agriculture has been severelyhit by the recent BSE crisis and economic trends.Declining farm incomes, and loss of employment


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opportunities in the sector mean there is greaterpressure on farmers to diversify intocomplementary activities. The 1999 reform of theCAP is likely to be modest in its effects and theRegion as a whole will continue to receive highpayments from the EU. RPG seeks to build on theadvantages of funding reform, by encouragingenvironmental improvements, and exploiting thepotential for local production and marketing aswell as diversification. It is envisaged that theproposed Rural Development Plans will also aidthis process. Other land based industries, such asforestry, have a role to play in expanding the ruraleconomy, and offering opportunities for leisure andrecreation, particularly close to urban areas.4.62 The rural areas are characterised by moreself employment, more part time working, and agreater proportion of small firms. Wage levels alsotend to be lower than average, particularly in thefar west. In areas that will lose Objective 5b statusthere will be a detrimental effect in the longerterm after the transitional funds expire. There isa general need to diversify the local economy andto ‘add value’ to local primary products byprocessing locally, and improving distribution andmarketing networks.4.63 In rural areas affected by economic decline,there is a particular need to regenerate thephysical as well as the social and economicenvironment. Community led regenerationpartnerships can help identify solutions andpriorities at the local level, and can help overcomeproblems of social and physical isolation.Regeneration initiatives should command a widerange of community support, and delivermeasureable improvements to the physical, socialor economic infrastructure through partnershipdelivery. Partnership agencies need to recognisethe continued need for funding and help withcommunity development.4.64 Development in rural areas, necessary toensure quality of life and opportunity for residents,must not be at the expense of the environment.The countryside will continue to be protectedfrom unnecessary development, with priority goingto those areas which are designated as nationallyimportant (see Map 2) Maintaining local identityand distinctiveness is also important to retain theRegion’s character. It is best achieved by promotingpatterns of development and designs that draw onlocal features of importance, and respect landscapesetting.4.65 The environment is also affected by thegrowth in motorised traffic; this growth has beenfastest on rural roads. The impact of trafficgrowth on the environment of villages and thecountryside has been severe. Other road users -pedestrians, cyclists and riders - may be adversely

affected and their access constrained. Althoughthe rural areas of the Region will remaindependent on private transport for many of theirjourneys, there is a need to examine the extent towhich rural public transport services can beimproved. Attention should focus on improvingpublic transport links between town and country,integrating transport links, and supportingcommunity initiatives.

Policy 19: Rural Areas Policies should:* ensure the protection of environmental

assets, such as designated landscapes and habitats

* facilitate restructuring of the rural economy* locate development to support rural areas

primarily in small towns and some key villages, avoiding scattered forms of development.

* achieve a balanced mix of homes (including affordable housing), jobs and facilities

* build on complementary activities that widenthe economic base of town and country, and enhance the role of towns as service centres

* retain essential village shops and services, and the integrated delivery of services at the local level

* increase access to jobs, housing (including affordable housing) and services through improved and integrated public transport, communications and service delivery

The Coast4.66 The South West has the longest stretch ofcoastline of any English Region. It is a key resourcein terms of its natural assets and has a major roleto play in:* port development, including ferry links to

Europe, fishing, leisure, imports/exports and boatbuilding and related marine industry

* tourism, including resorts and marine and green tourism

* quality of life, including leisure and recreationand attractive locations for residential and economic development

* the extraction of natural resources, including fish, aggregates and, possibly, oil.

4.67 Much of the Region’s coast is protected bynational and international landscape and wildlifedesignations. However, its attractiveness as a placeto live, work, have a holiday or spend leisure andrecreation time means that development pressurescontinue. In some instances these pressures aremutually conflicting and threaten the very qualitiesthat make the coast so attractive in the first place.A key issue is the balance between the economicand social development needs of coastal


21

communities, many of which are in decline, andconserving and enhancing the natural assets of thesea, the littoral zone, and the urban and ruralcoastal fringe.4.68 There is an urgent need, recognised by anEC Directive, for pollution of the sea to be tackledthrough integrated waste water treatment and thecontrol of other forms of effluent. This willimprove the bio-diversity of the sea and the littoralzone, and also enhance bathing water quality,improve health and quality of life. The mostsensitive landscape and wildlife coastal areas needto be protected and, where appropriate, enhancedthrough management regimes.4.69 Major new tourism development isnecessary to sustain the tourism industry andregenerate areas of decline or areas in need ofenvironmental enhancement. Scope exists for thisdevelopment to be located in existing urban areaswhere the bulk of holiday accommodation islocated and where public transport potential isgreatest.4.70 Some aspects of the economy, such as portdevelopment, shipbuilding, marine engineering,fishing and aspects of mineral exploitation require acoastal location, which must be recognised indevelopment plan policies. 4.71 Many coastal areas, including several longestablished resorts, some ports and many ruralareas, have seen serious economic decline with therun down of traditional industries such as tourism,defence, agriculture and fishing. There is a needfor regeneration schemes and partnerships in manyof the coastal settlements. Ports such as Brixhamand Newlyn have been affected by changes toEuropean fisheries policy, and there is a need toassist the industry with diversification andmeasures to add value to fish landed, by localprocessing and marketing. Some ports and resorts,suffer from poor landward communications andinterchange facilities, for example, the A354 link toWeymouth/Portland.4.72 There are continuing pressures for leisure,recreation, tourism and housing developments onthe undeveloped sections of coastline. Futurepolicies should aim to keep these areassubstantially undeveloped, provided that thelegitimate development needs of these areas can bemet within the urban areas or in less sensitivelocations away from the coast.4.73 The coastline is changing. Future sea levelsare predicted to rise mainly through the effects ofglobal warming. Marine erosion and flooding occurnaturally, but can be exacerbated by coastaldefences and increased run off from development.Planning for the location of new developmentneeds to be informed by these trends.

Policy 20: The CoastPolicies should:* protect coastal areas as a strategic

environmental resource, recognising their role in underpinning the tourist economy

* support development of facilities for waste water treatment and the disposal of other forms of effluent through environmentally acceptable means

* support the regeneration of resorts, port improvements, agricultural, fishing and tourism diversification

* support integrated coastal management based on geographic features such as estuaries or AONBs to secure environmentalenhancement, maximum biodiversity and appropriate location and development of uses which require a coastal location.

* protect areas liable to flood or at risk of coastal erosion.

Cornwall and the Isles of Scilly:Objective 1 Area4.74 Cornwall and the Isles of Scilly have anoutstanding natural environment, and are culturallydistinctive, but have a weak and vulnerableeconomy. The population and settlement patternis dispersed. Nine small towns have a populationover 10,000 and none has a population muchabove 20,000. Truro is the sub-regional shoppingand administrative centre for the County. Most ofsouth-east Cornwall looks eastwards, forming partof the Plymouth sub-region.4.75 Levels of in-migration and population growthhave been among the highest in the UK, but haverecently slowed. The area has a very low GDP percapita, relatively high unemployment, very lowearnings per head, a fragmented industrialstructure, inadequate infrastructure and hassuffered a severe decline in traditional employmentsectors.4.76 Communication links between Cornwall andthe rest of the Region are poor. The main A30/A38 trunk roads are still single carriageway inparts, and they are both restricted by low bridges.Also, the main railway line is single track in placesand a journey from Penzance to Exeter currentlytakes 3 hours.4.77 Agriculture and the holiday trade willcontinue to be a staple part of the Cornisheconomy. However, while there are prospects forimproving economic performance, it is recognisedthat these industries cannot support theregeneration of the area that is required.4.78 The Isles of Scilly are a uniquely peripheralpart of England, with an environment of high


22

quality. With a population of only 2000 there is acontinuing struggle to maintain viable and balancedcommunities on the islands. There is a need toensure that housing is available for local people, todiversify the local economy (which is heavilydependent on tourism), maintain and improve theair and sea links to the islands, and protect theenvironment.4.79 Objective 1 status gives Cornwall and theIsles of Scilly the opportunity to promotesustainable economic growth, to restructure thearea’s economy, creating wealth, stemming declineand retaining distinctiveness. It is important thatthis restructuring process is primarily directedtowards addressing current unemployment and lowwage issues, by increasing economic activity and bytargeting jobs that add value. Wherever possiblethis should occur through sustainable indigenousgrowth, as well as some inward investmentprovided that this is not of a scale or nature whichwould be likely to add to inward migration on alarge scale.4.80 A buoyant Plymouth and south eastCornwall should play their part in accommodatingdevelopment in the Plymouth sub-region, assistingin the process of restructuring and strengtheningthe sub-region’s economy, which in itself isimportant for the whole of Cornwall.

Policy 21: Cornwall and the Isles of Scilly Objective1 AreaPolicies should:* maintain an attractive and culturally

distinctive environment alongside the need topromote a high value added economy

* promote indigenous employment opportunities

* maximise the opportunities of Objective 1 funding primarily to invest in people, enhancecompetitiveness of small and medium-sized enterprises, assist appropriate rural and community development, and support business development opportunities

* reduce the adverse effects of a peripheral location of Cornwall & the Isles of Scilly by improving transport linkages

* focus new development in towns to enhance their roles as service centres and improve their fabric, appearance and vitality.

* provide for development within the Plymouthsub-region as part of the sub regional study required by Policy 16

* facilitate a collective approach by towns in mid and west Cornwall to retain and attract investment beyond the Plymouth sub region

* maintain Truro’s role as a sub-regional shopping and administrative centre and promote investment in Camborne/Redruth

Other Areas of SpecialEconomic and Social Need4.81 At present all EU Structural funds and UKAssisted Areas are under major review. Althoughthe Government has produced its draftrecommendations on Assisted Areas, furtherannouncements on Objective 2 are not expectedbefore the Autumn. Both will be subject to EUapproval. Funding for the Rural Development Areasis not guaranteed beyond 2000/2001 and in termsof the RPG’s timescale their designation may notbe significant.4.82 Except with respect to the Objective 1 area,existing designations are unlikely, therefore, to behelpful in defining the funding priorities in thisRPG. Indeed designations made against EU and UKGovernment criteria may not necessarily beappropriate in a Regional context, particularlywhen judged against the priorities of this RPG. The1998 national Index of Local Deprivation (ILD)which overcomes some of the urban bias inprevious criteria, may still be inadequate to defineareas of special need in the South West.4.83 A number of criteria have been identified,provisionally, against which Regional priorities canbe judged. Given that there are limitations with anyindividual measurement, the choice of indicatorswill vary according to circumstances. The list,therefore, should not be seen as definitive. Thesuggested criteria are:* GDP per Capita - a number of areas in the

South West, although not at the level of Cornwall still have a GDP some 10 points ormore below the Regional average

* Average Weekly Earnings - low income is again a significant issue in some parts

* Economic Activity Rates - low rates can imply lack of opportunity

* Unemployment Levels - both registered and ILO rates

* Industrial Structure - significant imbalance andan over reliance on Manufacturing/Agricult-ure/Fishing in different parts of the Region

* Population - actual population decline, poor demographic structure and health problems are again significant in some areas

* Lack of Access to Opportunities, including training

4.84 These criteria are included to provide aguide to identifying future areas of special need. Atthis stage RPG can only make an interim judgementabout these Areas of Special Need, made primarilyon the basis of the separate and individual bidsmade by local authorities and others for futureAssisted Area and Objective 2 Status. This Sectionof RPG will be reviewed following announcements onObjective 2, EU decisions and the latest review ofthe Index of Local Deprivation by Oxford University.


23

Regional Priorities for InvestmentArea RDA Actions/Other implementing agencies

Throughout the Region * develop and support key individual economic sectors in each sub region* promote, support and invest in projects in key individual economic

sectors in each sub region* promote innovation, creativity, skills, flexibility, and the area’s key assets,

while ensuring the protection of the sub-region’s unique environmental resources* invest in education, including higher education, further education and

skills training* encourage a learning culture in people and businesses* identify and develop a portfolio of about 30 strategic sites for economic

development across the Region in accordance with this RPG* invest in new water resources schemes, water treatment infrastructure

and flood defences* invest in intermodal freight facilities* promote partnership working between authorities and agencies to

secure common objectives * secure matched funding

North of the Region * promote and support investment in public transport infrastructure in and around theBristol conurbation

* increase the capacity of the rail network for commuter traffic & freight including dualling of the Swindon-Gloucester line

* address social and economic imbalances in the area, particularly in Bristol* develop linkages between the PUAs themselves and between them and

surrounding areas, including the Forest of Dean, the smaller industrial towns of western Wiltshire and north eastern Somerset, and Wales.

South East of the Region * improve the economic competitiveness of the area by developing and supporting key sectors, including tourism, financial services and advanced manufacturing and engineering

* ensure the delivery of related skills training to ensure that the area reduces its reliance on imported labour, improves productivity and improves the quality of jobs on offer;

* promote, support and invest in projects that address pockets of economic and social disadvantage in the area

* meet the access and infrastructure needs of Bournemouth International Airport and the Port of Poole

Centre of the Region * early delivery of improvements to the A30/A303* improvements to the Exeter-Waterloo rail link and associated freight facilities* improvements to communications, including TENs and Exeter Airport (subject to

the outcome of the Air Services Studies).* measures to ameliorate east-west traffic flows at M5 junction 25.

West of the Region * Social and economic regeneration within Plymouth and Torbay* measures to improve communications, including TENs and Plymouth Airport

(subject to Air Services Studies)* improved access to Torbay through completion of the A380 Kingskerswell by-pass.

Other Locations Offering the * infrastructure improvements to promote balanced development in identifiedProspect of Balanced Development settlements, including the completion of the Barnstaple Western by-pass.

* regeneration of Weymouth / Portland including the A354.

Rural Areas * invest in economic and agricultural diversification* invest in improved marketing through regional branding and co-operative ventures* invest to develop local supply and demand chains* improve public transport* improve access to modern communications and technology

Coast * invest in the regeneration of coastal towns* invest in coastal management and water quality improvements

Cornwall and the Isles of Scilly * secure measures to reduce peripherality including TENs improvements to the A30 (Bodmin to Indian Queens) and improved links to the Isles of Scilly

* measures to regenerate Camborne- Redruth* invest in education and skills training

Other Areas of Special Need * measures to address social exclusion and economic disadvantages and imbalancesespecially in the urban areas


24

Policy 22: Areas of Special NeedOutside the Objective 1 area, funding byinvestment agencies and partnership bodies shouldgive priority to measures for economic and socialrestructuring to Plymouth, Torbay, Bristol,Weymouth/Portland, rural parts of northern andwestern Devon, western Somerset, and the Forestof Dean.

Regional Priorities forInvestment(See Table opposite).

Achieving Strategic Objectives 4.85 If the RPG’s Vision, Aims and Objectives areto be achieved it is essential that all regionalstakeholders (including all those who live, work,visit and have executive, investment, fundingresponsibilities for the area) participate to the fullto achieve a sustainable future for the Region. Thisrequires that adequate and appropriate resourcesare available to ensure that new developmentsachieve these objectives, particularly where new orinadequate infrastructure needs to be provided orimproved and to protect and enhance the natural,cultural, historic and built environment.

Policy 23: Achieving Strategic ObjectivesIn order to achieve Strategic Objectives policiesand proposals should ensure the provision ofessential physical and social infrastructure tosupport new development and measures tomitigate or compensate for environmental Impacts.Developers and landowners will need to contributeto the infrastructure needed to serve theirdevelopments both by direct provision on-site andthrough Planning Agreements where infrastructureis off-site.

Monitoring the Spatial Strategy4.86 In monitoring the effective implementation ofthe spatial strategy outlined above, it will beparticularly important to ensure that the indicatorsset out in Section 6 can be interpreted in terms ofstrategic patterns of change.4.87 The indicators relating to housingdevelopment (indicator 11), job and employmentland provision (indicators 6 and 8), and funding(indicator 10) will need to be related to thedifferent elements of the spatial strategy.4.88 Other indicators such as those relating toaccessibility (indicator 16), the use of land notpreviously developed (indicator 21), and trafficvolumes (indicator 24) will provide a broadermeasure of the RPG’s effectiveness in achieving itsobjectives. Full details are set out in the MonitoringTechnical Report.


25

5A1 The environment of the South West is a keystrength which sets it apart from other Englishregions. The varied and dramatic landscapes, therich and diverse wildlife, the attractiveness of manyof its cities, towns and villages, and the overallsense of place and quality of life for which theRegion is renowned, are of immense value to thepeople who live in, work in and visit the area. 5A2 At the heart of this RPG is the question ofhow best to accommodate development whichmeets the social and economic objectives of asuccessful Region, while ensuring that the SouthWest’s stock of environmental assets is maintainedand expanded. Environmental protection must beintegrated with other policy objectives. It isestimated that environment related activitycurrently contributes around 100,000 jobs and £1.6billion to the Region; there is a direct relationshipbetween the Region’s environment and itseconomic health; the environment has beenidentified as a key driver of the regional economyby the SWRDA.

Landscape and Biodiversity5A3 The Region is rich in areas, sites andstructures which contribute to its distinctivecharacter. The Key Strategy Diagram shows theStrategic Environmental Areas of the South Westwhile important national and internationaldesignations are shown on Map 2. A key Objectiveof the RPG is to safeguard and enhance the qualityand diversity of the natural, cultural and builtenvironment across the Region, giving the highestlevel of protection to designated areas and featuresof national and international importance. Adviceon achieving such protection is given in PPG9.5A4 The landscapes of the Region range fromhigh moorlands, heath and grasslands, to limestonehills, deep gorges and wooded valleys, and a verydiverse and attractive coastline. These rural andcoastal landscapes are important for tourism, aswell as often forming important biodiversityresources. Many areas have qualities that makethem special to their locality. The open greenspaces within around and between towns all haveparticular value and large tracts of north and westDevon and east Cornwall form one of the largestremaining “areas of tranquillity” in England.

Policies towards development in rural and coastalareas are set out in Section 4.5A5 A recent regional study of environmentalcapital, building on the national CountrysideCharacter Initiative undertaken by the CountrysideCommission (now incorporated into theCountryside Agency) and English Nature, hasidentified and mapped 11 character types acrossthe Region and set out their distinctivecharacteristics. It offers an integratedmethodology for policy development at the locallevel, and its use is commended to local authoritiesand agencies.5A6 The maintenance and enhancement ofbiodiversity - the variety of life - is essential toachieving the overall aim of sustainabledevelopment. The objectives of the UKBiodiversity Action Plan are being taken further atthe regional level, and by local Action Plans. It isnecessary to ensure that change does not result innet loss in either the quality or quantity ofbiodiversity in the region and instead, whereverpossible, contributes positively to its enhancement.5A7 Areas benefiting from statutory protection asnatural resources represent a selection of the bestexamples of wildlife habitats, maritimeenvironments, geological features and landforms.The list of protected sites, however, does notrepresent the full extent of remaining natural andsemi-natural habitats in the South West. It istherefore important that development planscontinue to protect important sites and usinginformation in local biodiversity action plans andnatural area profiles refine regional biodiversitytargets to give more specific local targets. Thecontext for such targets is set out in EnglishNature’s document ‘Natural Areas in the SouthWest Region - helping to set the regional agenda’.

Policy 24: Landscape and BiodiversityDevelopment plans and Biodiversity Action Plansshould continue to encourage the maintenance andenhancement of the landscape and biodiversityresources of the Region (by particular reference toMap 3 and Table 1), recognise and foster localcharacteristics, and encourage new opportunitiesfor landscape restoration and habitat creation.

5a) Environmental Protection andResource Management

The Environment


Map 3 - Selected Areas for Priority Habitats and Natural Areas


27

Table 1 - Targets for Protection & Restoration of Habitats


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Sour

ce:

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Bio

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of t

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outh

Wes

t: an

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the

Sou

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ogica

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brua

ry 1

996.

- Act

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Plan

for

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a S

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Hab

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and

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de D

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997.

28

Rural Land Uses5A8 More than 75% of the Region’s land is inagricultural holdings, and the farming industry is amajor influence on the natural environment.Farmers are supported in environmentalmanagement through measures such asCountryside Stewardship, and payments forEnvironmentally Sensitive Areas, and set-aside land.Changes to the CAP will also introduce more agri-environment support measures. This RPG supportsthe integration of rural development programmesand agri-environment measures to benefitlandscape features and characteristics. Policiesaiming to assist the rural economy are set out inSection 4.5A9 National policy continues to protect the bestand most versatile agricultural land - defined byMAFF as Grades 1, 2 and 3A - as an importantresource for future generations. (see PPG7)Significant areas of such land adjoins urban areas.Elsewhere, land of lower agricultural or soil qualitymay have greater value on other environmentalcriteria. In these circumstances, development plansshould consider whether overall sustainabilityobjectives would, on balance, be better achievedthrough the development of best and mostversatile land in preference to other land.

Policy 25: Protection of Agricultural Land and SoilsIn planning the distribution of development, thequality of agricultural land and soils should betaken into account. The best and most versatileagricultural land and soils should only be developedif the proposal represents the most sustainablealternative, and there is no appropriate land oflower grade available.5A10 Forests and woodland are important fortheir commercial potential, for recreation, wildlifeconservation, the protection of soils andgroundwater, and their place in the landscape.Increasing woodland cover can also help to lockthe carbon dioxide emissions that contribute toglobal warming. Two Community Forests are beingestablished in the Region, around Bristol andSwindon, which will give recreational opportunitiesto nearby residents as well as offering landscapeand nature conservation improvements.

Policy 26: Community Forests and WoodlandLocal Authorities and other agencies shouldsupport:* Community Forests, and the identification of

other opportunities for the planting and management of woodland where it would assist rural regeneration, offer recreational opportunities, and contribute positively to the landscape.

* protection and management of ancient woodland

The Built and HistoricEnvironment5A11 The South West has settlements andindividual buildings of great historic andarchitectural quality and interest, as well as a widerange of archaeological resources, historiclandscapes, parks and gardens and features ofindustrial heritage importance. It contains twoWorld Heritage Sites - Stonehenge / Avebury, andthe City of Bath, as well as many outstandingcathedral cities, spas, seaside resorts and markettowns. These, containing a wealth of formal andvernacular architecture, and the many attractiveand historic villages, all form integral elements ofthe character, heritage and richness of the Region.5A12 Listed Buildings and Scheduled AncientMonuments are protected by national policy.Conservation Area legislation also aims to managechange within the context of historic settlements.However, it is important for the character anddistinctiveness of all settlements, not just thosespecifically designated as important, to beprotected and enhanced. The conservation of thecultural and historic resource must take account ofthe landscape context and setting of buildings andsettlements; of building materials; and of thepatterns of fields, hedgerows and walls which alsodistinguish one area from another. It is alsoimportant that new development recognisescharacteristics of local significance, and thatbuilding designs acknowledge or where possibleimprove their surroundings.

Policy 27: The Built and Historic Environment:Plans, policies and programmes should aim toprotect the built and cultural heritage and managechange in a way that respects local character anddistinctiveness, by conserving and maintaininghistoric and archaeological resources, and byensuring that new development respects andenhances local character and is of a high standardof design.

The Urban Environment5A13 A high proportion of future development inthe Region will be located within and around urbanareas. It is critical to the successfulimplementation of the RPG to ensure that theRegion’s cities and towns are attractive to live in,and offer no quality of life disadvantages incomparison with smaller towns and rural areas.As set out in Section 4, what is required is an“urban renaissance”. Where development occurs


29

opportunities for positive environmental gains mustbe taken through design, layout and landscaping.While developed land within urban areas should bere-used, this process of urban regeneration mustnot be at the expense of adversely affecting openspaces such as parks, playing fields, allotments,green wedges and river corridors, whichcontribute significantly to both biodiversity andquality of life within our towns and cities.

Policy 28: The Urban EnvironmentDevelopment Plan policies and agencies shouldmaintain and improve the urban environment by:* identifying and protecting open space* the creation of urban environments that are

attractive, help combat social exclusion and foster community safety.

Air Quality5A14 Although the Region as a whole hasrelatively low levels of air pollution, pockets ofpoor air quality exist especially in urban areas,often arising from traffic congestion combined withother emissions. Reducing the need to travel, byconcentrating development in and around urbanareas, and placing greater emphasis on movementby foot, cycle and public transport, will beimportant in helping to reduce air pollution overall.The Environment Act 1995 provides a statutoryframework for work by local authorities to developair quality strategies.

Water Resources5A15 The prudent use of natural resources is anAim of the RPG. The demand for water per headof population is predicted to increase. To managewater resources in a sustainable way newdevelopment should only be permitted whereadequate resources already exist, or where newprovision can be made without harm to theenvironment. New development must alsoincorporate water conservation measures.5A16 According to water company forecasts offuture demand there is sufficient water to meetpredicted water supply needs in the Region overthe period of the RPG, and to cease abstractioncausing environmental damage. To achieve this will require:* Appropriate water efficiency, conservation

and leakage control measures to reduce demand;

* New water resource schemes being developed in the Wessex Water supply area (the first by 2005), primarily to address low flow problems which are causing environmental damage;

* New development in the Thames Water supply area (Swindon) to be phased to ensure demand does not exceed supply within the plan period and beyond.

5A17 At current levels of population growth anddemand management, there is sufficient wateravailable for Swindon until about 2015/16. To

meet future demand, Thames Water advocate thedevelopment of a new strategic resource; theEnvironment Agency does not consider the needto be proven, and has requested Thames Water toincrease levels of demand management.5A18 Water Companies and the EnvironmentAgency have agreed plans to cease usingabstractions causing low flows in the followingrivers: Wylye (Wilts), Tavy (Devon), Allen andPiddle (Dorset), Upper Bristol Avon, and TawMarsh. Investigations continue at other sites.

Policy 29: The Sustainable Use of Water ResourcesTo achieve the long term sustainable use of waterthe demand on water resources and supplyinfrastructure, together with the need for newwater resource schemes, should be minimisedthrough:* maximising demand management* appropriate location, scale and programming

of development across the Region.

Water Quality5A19 Poor surface water and groundwaterquality affects the availability of water supplies, costof water treatment, and ecological diversity ofwater systems. Groundwater pollution isparticularly difficult to remedy. The quality ofdrinking water and recreational waters also has animpact on the health of residents and visitors.

Water


30

5A20 Development should only occur wherethere is sufficient waste water treatment capacity,or where this additional capacity can be provided,and where there is no detrimental impact ongroundwater.5A21 At present inadequate waste watertreatment facilities are likely to constrain futuredevelopment at Swindon, and may do atCheltenham and Gloucester. Significantinfrastructure improvements may be needed priorto development. The provision of adequate wastewater treatment is also essential for the reductionof sea and beach pollution to acceptable levels, aspart of maintaining and improving the waterenvironment. The practice of pumping untreatedwaste directly into the sea is no longer acceptable.5A22 The location and design of newdevelopment must take account of groundwatervulnerability and proximity to GroundwaterProtection Zones.5A23 Although the re-use of previouslydeveloped land in urban areas is supported by thisRPG, such land may be contaminated, and it isessential that remediation takes place as part ofredevelopment in order to protect both theenvironment and the health of future users of theland.5A24 To safeguard water quality agricultural andother land use practices should be undertaken inaccordance with Good Agricultural Practice Codesproduced by MAFF.

Policy 30: Water QualityThe quality of inland and coastal waterenvironments must be maintained and, wherepossible, enhanced because of their importance forpotable water supply and biodiversity; recreationalactivities; tourism and fishing industries. Decisionson the location, scale and programming ofdevelopment must take account of * the availability of waste water treatment

facilities and the need to provide infrastructure in advance of development

* the need to protect groundwater resources* the need to identify and remedy any land

contamination.Development will not be supported where it has anunacceptably detrimental impact on water quality,or would fail to remedy contamination

Flooding5A25 Built development in river and coastal floodplains is unsustainable. Flooding can lead to loss oflife, damage to property, and economic disruption.

Climate changes may lead to rising sea levels,greater amounts of winter rainfall and flashflooding.5A26 Floodplains are a natural part of the waterenvironment, and their flooding is a valuable aspectof the aquatic ecosystem. Indeed, any opportunityto restore floodplain capacity should be taken.Significant investment in the next 5 years shouldinclude the following:* Somerset (to include Baltmoor Wall and

Stanmoor Bank and others)* West Bay, Poole, Weymouth Harbour* Twerton and Pulteney (Bath/Bristol)* Bodmin5A27 The role of floodplains has been erodedover time as engineering solutions have been usedto protect built development. To avoid theconsequences of flooding and the need for furtherpublic investment in defence works, the risk offlooding must be a significant factor in the location,design and scale of development.

Policy 31: Flood RiskThe location, scale, type and design of newdevelopment must take into account the need tominimise flood risk, in particular by directingdevelopment away from river and coastalfloodplains and by the use of sustainable drainagetechniques in designing surface water drainage

Monitoring the Environmentand Water Resources5A28 In order to monitor the effectiveness ofenvironment and water resources policies, thefollowing indicators will be of particularimportance:1 Levels of development within areas of

landscape importance2 The extent and diversity of wildlife habitats3 The populations of key wildlife species4 Water quality5 Air quality18 Overall water and energy consumptionThese indicators, together with an outline of themonitoring process are set out in Section 6.


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5A29 Significant mineral resources in the Regionare: Aggregates (crushed rock/sand and gravel),coal and hydrocarbons (oil and gas), china clay, ballclay and building stones. The contribution ofmineral extraction to the economy and its effectson the environment are not uniform across theRegion.5A30 Mineral extraction must be managed in away that achieves a balance between economicvalue, the finite character of minerals and theadverse effect that their extraction can have onother critical natural assets and specific localities.

Policy 32: The Approach to Minerals PlanningMineral Planning Authorities (MPAs) should:* balance the international, national and

regional needs for the minerals produced in the Region and the economic and employment benefits of mineral working against the environmental impacts of extraction and associated activities

* safeguard mineral resources for extraction tomeet proven need.

Policy 33: Transport of Minerals and MineralProductsThe transport of minerals and associated products(and materials required for the reclamation ofworkings) by water/rail/pipeline is supported wherethis would be environmentally beneficial. Whereroad transport is the only option availablemaximum use should be made ofMotorway/Trunk/Principal Roads unless the use ofother roads is more acceptable environmentally.The wider implications of using alternatives to roadtransport (eg rail and water) should also be takeninto account.

Policy 34: Reclamation of Mineral WorkingsThe reclamation of exhausted mineral workings forbeneficial uses is considered essential.Development Plans should indicate the uses towhich former mineral sites could be put and localauthorities should collaborate on the identificationof proposed uses.5A31 The South West is the second largestEnglish region for the production of crushed rockand the fourth largest producer of land won sandand gravel. Current guidelines on the provision ofaggregates in the Region are contained in MPG 6‘Guidelines for Aggregates Provision in England’(1994) but these are being reviewed. Followingpublication of a revised MPG 6 it will be necessaryto review the guidance on minerals in this RPG.Until this time, MPAs should continue to test thecurrent regional apportionments through MineralsLocal Plans.

Sub Regional Apportionment of MPG 6Aggregates Demand 1992-2006.

MPA Crushed rock Sand and Gravel (mt) (mt)

Avon 97.6 0Cornwall 44.5 1.5Devon 95.2 25Dorset 11 39Gloucester 47.6 19.4Somerset 314.2 Included with

CornwallWiltshire Included

with Dorset 20.2Total 610.1 105.1

Secondary/recycled aggregates supply assumed to be 60mtMarine dredged aggregates assumed to be 15mtSource: SW Regional Aggregates Working Party.

5A32 Regional targets for the use of secondaryaggregates (mineral wastes and by-products) andrecycled aggregates (construction and demolitionmaterials) were identified in MPG 6 (1994).Secondary materials in the Region are primarily thesand and rock wastes associated with theextraction of china clay. All Mineral PlanningAuthorities should undertake an assessment of theprospects for bringing aggregate recycling facilitieson line over the period of this RPG.5A33 The Port of Bristol, could play a broaderrole in the import of marine dredged or otheraggregate materials. The city offers scope forrecycling aggregates; it has good transportinfrastructure and a strategic position with respectto markets for aggregates in the South West andbeyond. 5A34 The Carboniferous Limestone quarries inthe north of the Region in Somerset and in theformer Avon area have substantial reserves,account for most of the Region’s crushed rockproduction and are well placed to serve the urbanareas in the north of the Region.5A35 In the long term the production of sharpsand and gravel from the Upper Thames Valley andfrom South East Dorset is likely to becomeincreasingly constrained by environmental consider-ations. Alternative sources of supply will thereforeneed to be considered to replace or supplementsand and gravel production from these areas.

Policy 35: Primary Land Won AggregatesIn order to reduce the overall extraction ofprimary land won aggregates in the Region: * the construction industry should continue to

review technical specifications and should identify targets for the greater use of secondary and recycled aggregates in significant construction projects

Minerals


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* Mineral Planning Authorities through their Development Plans should make appropriate provision for the production of secondary and/or recycled aggregates and should identify and protect sites suitable for recycling operations in proximity to major centres of demand

* Mineral Planning Authorities should support and provide for the importing of crushed rock by rail or water from outside the Region for use within the South West or for onward movement to supplement or replace supplies of South West aggregates to other regions and should identify and protect rail and wharf sites

* Mineral Planning Authorities and industry should undertake aggregate utilisation and source assessments in the formulation of Development Plans and in the preparation and consideration of planning applications forsignificant development projects and considerthe cost/benefits of alternative sources of aggregate supplies

Policy 36: Conservation of High Quality PrimaryAggregatesSuppliers and specifiers of aggregates, and otherinfluencing bodies, should seek to conserve per-mitted reserves of high quality primary aggregatesfor high specification uses and ensure that primaryaggregates are processed to achieve maximumvalue.

Policy 37: Aggregates SupplyMineral Planning Authorities and industry shouldliaise to provide demand and supply forecasts foraggregates. These will assist in the apportionmentof revised MPG 6 figures to the sub-regional leveland ensure that the future pattern and mechanismof aggregates supply recognises an increasedcontri-bution to be made from non traditionalaggregate sources and the environmental andcommercial ability of existing and potentialcrushed rock and sand and gravel production areasto continue, supp-lement and/or replace supplies toidentified markets.

5A36 The Wareham and Wytch Farm Oilfields inDorset comprise the largest onshore oilfield inwestern Europe and the sixth largest producer ofcrude petroleum in the UK. While further sensitiveonshore development may be possible, offshore andlandfall facilities could have environmental impacts.

Policy 38: Oil/Gas ProductionOnshore oil and gas production is supportedprovided its environmental effects are acceptable;offshore oil and gas production is not supportedunless any above water facilities are located well

out to sea, such that their visual intrusion isminimised, and any associated onshore installationsare either located in existing industrialised ports or,if sited elsewhere, do not have an adverse effect onother interests.

5A37 Although there are extensive coalresources in the north of the Region, coal is minedonly on a small scale and only in the Forest ofDean in Gloucestershire. Large scale exploitationof coal resources would be environmentallydamaging and there is a general presumptionagainst opencast or deep mine extraction.

Policy 39: Coal MiningOther than the small scale extraction of coal fromdrift mines, coal mining in the Region is notgenerally supported.

5A38 Both china clay and ball clay, which arefound only in the South West in restrictedlocations, are of national importance and haveconsiderable economic value.5A39 Building stones are important in maintainingthe historical fabric of the Region and elsewhere,and an extensive range is available in the Region.These include the limestones of the Cotswolds,Portland and Purbeck and the granites and slates ofCornwall.

Policy 40: China Clay and Ball ClayThe implementation of comprehensive extractionand reclamation programmes by Mineral PlanningAuthorities and industry for the china clay and ballclay resources of Cornwall, Devon and Dorset toavoid or minimise conflict with significantenvironmental interests is supported.

Policy 41: Traditional Building StonesMineral Planning Authorities should develop andimplement policies that will help to conserve theRegion’s traditional building stones for buildingpurposes whilst recognising that resultant mineralwastes may be useful as secondary aggregates.

Monitoring Minerals5A40 In order to monitor the effectiveness ofminerals policies, the following indicators will be ofparticular importance:1 Levels of development within areas of

landscape importance4 Water quality20 Mineral extraction and use of secondary

materials22 Levels of waste production24 Road traffic volumesThese indicators, together with an outline of themonitoring process, are set out in Section 6.


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5A41 The draft waste strategy for England andWales “A way with waste” (1999) sets out targetsfor the management of most wastes; MPG6 (1994)sets targets for the use of secondary/recycled mat-erials for aggregate purposes. In 1996 a tax onlandfill was introduced to reflect more closely thetrue environmental cost of this method of disposal;most recently the EU has adopted the LandfillDirective, that also sets targets for reducing the amountof waste that goes to landfill. National policy guidanceis being reviewed and will be set out in PPG10.5A42 The current targets set out below shouldbe used in the Region, until newer targets areadopted nationally and in the South West WasteManagement Strategy.

“A way with waste” / MPG6Targets: By 2005 to reduce the amount of industrialand commercial waste going to landfill to 85% of 1998levels; to recover 45% of municipal waste by 2010and to recycle or compost 30% of household waste bythe same date (25% by 2005); to recycle a third ofhousehold waste by 2015 and to recover value fromtwo thirds of our waste by 2015 with at least half ofthat amount being through recycling or composting; toincrease the use of secondary and recycled wastematerials as aggregates in England to 55mt by 2006.

Landfill directiveBiodegradable municipal wastes to landfills. Targetreduction of 1995 total amount (by weight) or thelatest year before 1995 for which standardisedEUROSTAT data are available.

Target UK Deadline (including 4 yearderogation (delay) for the UK)75% 201050% 201335% 20205A43 In “A way with waste” the principles thatunderlie the Government’s vision of sustainablewaste management are identified as: the BestPracticable Environmental Option (BEPO, the KeyPrinciple), the Waste Hierarchy i.e. reduction, re-use, recovery and safe disposal, and the ProximityPrinciple i.e. disposal close to the point ofgeneration. These had previously been set out bythe Government in “Less Waste More Value”(1998) which also contained 7 key commitments:* Substantial increases in recycling and energy

recovery* Engagement of the public in increased reuse

and recycling of household waste* A long term framework with challenging

targets underpinned by realistic programmes* A strong emphasis on waste minimisation* Using the waste hierarchy as a guide, not as a

prescriptive set of rules* Creative use of economic incentives like the

landfill tax

* Increased public involvement in decision making.

5A44 These principles and commitments shouldbe incorporated in an integrated wastemanagement strategy for the South West, and usedby appropriate local authorities in wastemanagement and waste planning. The ProximityPrinciple should be used as a tool in theconsideration of Regional Self Sufficiency. TheRegional Technical Advisory Body on waste(RTAB), will advise on options and strategies formeeting targets and on the integrated managementof waste within the Region, thus informing a futurerevision of this RPG.5A45 Most of the waste in the Region isgenerated in the Principal Urban Areas; most of itis taken elsewhere for treatment or disposal, andthere is a heavy reliance on landfill. Waste is often‘exported’ across local authority and regionalboundaries. This may have financial andenvironmental advantages for those authoritiesconcerned or may, in the short term, be the bestoption available. However, it may not be the mostsustainable option in the regional and sub regionalcontexts in the longer term.5A46 The intensity and duration of theenvironmental repercussions of waste managementvary according to the use, nature and location ofthe different types of facilities and practices thatare employed. Environmentally sensitive workingpractices are required, and there may be scope fortransport by more sustainable means.5A47 In some cases waste disposal by landfill canassist in reclaiming derelict land (e.g. exhaustedmineral workings or other industrially damaged land)for other uses, or simply by improving itsappearance. Recycling and composting will becomerelatively more important as more sustainableoptions to landfill, as may energy recovery fromincineration, but it will always be necessary for thisfinal disposal option to be available in order to dealwith the remaining last vestiges of waste.

Policy 42: Waste Management and PlanningPoliciesLocal Authorities should collaborate to developsub-regional waste management and planningpolicies that are environmentally sensitive.

Policy 43: Transport of WasteLocal Authorities should support the transport ofwaste by modes other than road. Where roadtransport is the only option available, maximumuse should be made of Motorway/Trunk/PrincipalRoads unless the use of other roads is moreacceptable environmentally. The wider implic-ations of using alternatives to road transport (e.g.rail and water) should also be taken into account.

Waste


34

5A48 Waste minimisation is at the top of theWaste Hierarchy and should be afforded the highestpriority. Local planning authorities, especially in theirconsideration of major or other specified types ofdevelopment, should have regard to the nature ofwastes to be generated by the development duringthe construction phase and thereafter during the useof the site, and should require developers andoccupiers to undertake a waste audit and to managethe wastes consistent with the Waste Hierarchy,Proximity Principle and BPEO.Policy 44: Waste Implications of DevelopmentLocal Authorities in their planning role should

develop and implement policies that require thewaste implications of major and other specifieddevelopment proposals to be audited and for thewaste arisings to be dealt with consistent with theWaste Hierarchy, Proximity Principle and BestPracticable Environmental Option.

Monitoring Waste5A49 In order to monitor the effectiveness ofwaste policies, the following indicator will be ofparticular importance:22 Levels of waste productionThe indicators, together with an outline of themonitoring process, are set out in Section 6.

Energy Generation and Use5A50 The South West accounts for between 8-9%of the UK’s energy consumption, estimated at about117,000Gwh, and in line with national and global trends,demand is growing.5A51 Energy production and consumption,including transport, is responsible for 57% ofgreenhouse gas emissions in the UK. The UKGovernment, as a signatory to the ClimateConvention, committed the UK at the 1997 KyotoConference to achieve a reduction of 20% on 1992carbon dioxide emission levels by the year 2010.The reduction of such emissions is strongly desirablefor a range of environmental and health reasons.5A52 The development of renewable sources ofenergy, the use of energy efficient measures in newbuildings (through appropriate siting, design and useof materials), giving priority to locating newdevelopment in or adjacent to urban areas, and theintroduction of measures to reduce the need totravel and increase the use of public transport, willall help to ensure consumption of energy is reduced.5A53 The infrastructure associated with energytransmission can have a significant visual impact.The peninsular part of the Region is at presentserved by two major 400 kV electricity transmissionlines, which have the capacity to cater for develop-ment needs over the period of this RPG. Anyfurther development is likely to cater for specificneeds, for example, sub station development andthe demands of industry. Such demands will needto be weighed against their environmental impact.5A54 The use of renewable energy sources offersthe opportunity of increasing the diversity ofenergy supply; it can also reduce harmfulemissions to the environment and preserve finitefossil fuels for future generations. The potentialfor the exploitation of a range of renewable energyresources in the Region includes tidal, wind andsolar power. The current Government nationaltarget is for 10% of electricity production to derivefrom renewable sources by the year 2010.5A55 In developing renewable energy schemes itis important to ensure they are compatible withother environmental objectives for the Region.The impact of such schemes on the landscape hasbeen an issue, particularly in Cornwall, and the

exploitation of the potential within the SevernEstuary for harnessing tidal power would havemajor environmental impacts.5A56 Energy generation from waste has the advan-tage of reducing the volume of waste entering landfill.Rural development opportunities can be enhancedthrough use of biomass fuels to generate energy.5A57 A detailed appraisal of renewable energypotential in the Region has not been undertaken.Until further information is available the RPGsupports Government energy and emissionstargets as set out below.

Policy 45: Targets for Energy and EmissionsThis RPG supports the following Governmentcommitments:* a 20% reduction (from 1992 levels) in carbon

dioxide emissions by 2010* for 10% of electricity production to be from

renewable sources by 2010.

Policy 46: Energy GenerationThe principle of diversifying the location and formof energy generation within the Region is suppor-ted where appropriate. Development of renewableenergy production is supported where this iscompatible with other environmental objectives.Policy 47: Efficient Use of EnergyPlanning policies and the development industryshould develop and implement measures thatpromote efficient energy use through design,orientation and construction techniques.

Monitoring Energy Generationand Use5A58 In order to monitor the effectiveness of theenergy resources policies, the following indicatorswill be of particular importance:-5 Air quality18 Overall water and energy consumption19 Renewable energy generation22 Levels of waste production 23 The use of energy efficient travel modes24 Road traffic volumes - particularly car and

freight volumesThe indicators, together with an outline of themonitoring process, are set out in Section 6.


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The South West Economy5B1 One of the four Aims of this Guidance is toimprove the prosperity of the South West. Thiscan be achieved in a number of ways. One is toimprove the Region’s competitiveness. SWRDAwill play a significant part in this process, but theplanning regime is also critical. Another way ofachieving prosperity is by encouraging the growthand development of economic activities, such ascommunity-based economic development and theinformal economy, which can be overlooked byconventional measures of economic performance. 5B2 Section 2 of this Guidance drew attention tothe relatively healthy state of the economy of theSouth West, but pointed out that there weresignificant imbalances within the Region. In broadterms, the north and east have experienced higherlevels of growth than the west, and forecastssuggest that this broad pattern is likely to continue.5B3 While forecasts of the future of the economyare reasonably optimistic, future prosperity cannotbe taken for granted. SWRDA has undertaken aSWOT (Strengths, Weaknesses, Opportunities andThreats) analysis of the South West. It identifiesthe recent performance of the economy and thehigh quality of the environment as strengths. Italso includes as strengths the highly skilledworkforce, the fact that information andcommunication technology (ICT) use andpenetration is high, and deprivation levels aregenerally low. Weaknesses include the sub-regionaldifferences in economic performance andperceptions of remoteness, which hinder theRegion’s ability to attract investment. Increasingglobalisation will present significant opportunitiesfor the South West, but could also pose a threat.Other opportunities lie in building upon theRegion’s existing strengths, such as capturing “greentourism”, attracting lifestyle Small and MediumEnterprises (SMEs), and in developing new marketsfor environmental products and services. Threatsinclude reductions in the level of public spending asexisting European programmes come to an end,and greater pressure is placed on public servicesdue to the increasing number of elderly people.5B4 Other commentators have drawn attentionto the future prospects of key sectors in theRegion. The economy is largely service based,with around 65% of GDP arising from this sector.Financial and business services are particularlysignificant, and during the 1980s the South Westbenefited from major inward investment in thissector. Views are mixed about their long-term

prospects in the Region. Tourism is another keysector, accounting for up to 10% of the Region’sGDP. If the South West is to benefit from theforecast growth of the industry worldwide, it mustrespond to changing market needs. More is saidabout this in Section 5E. Linked to tourism arethe Region’s land-based industries, and particularlyagriculture. The landscapes of the South West areclosely linked to the activities of farmers. Theeffect of future reforms of CAP could have majorrepercussions in the South West, not only forthose who look to agriculture for their livelihood,but also because of the knock-on effects for otherindustries such as food production and tourism.Further discussion of the land-based industries isfound in Section 4 in relation to Rural Areas.5B5 The conclusion is that the future prosperityof the South West cannot be taken for granted.Planning authorities must respond positively andflexibly to the changing needs of the economy.This RPG seeks to play its part in helping toimprove the competitiveness of the Region. Itdoes so in a number of ways. In recognition of thediversity of the South West, “Patterns of futurechange in the Region” (Section 4) sets out howeconomic needs at sub-regional level are to beaddressed. Section 5A sets out policies toconserve and enhance the Region’s environmentalassets, recognising that these are a key economicdriver in the South West. The relationshipbetween housing provision and the economy isexplored in Section 5C. Section 5E covers tourism,while energy generation and minerals are coveredin Section 5A. The issue of transportation isaddressed in Section 5D.5B6 This Section is principally concerned with theprovision of land for employment and issuesconcerning retail development.

The Provision of Land forEmployment5B7 It is essential that Development Plans in theSouth West provide for a sufficient choice andrange of employment land to meet the varyingdemands for different types of economic activity inthe Region. They should provide choice in terms oflocation, tenure, site size and potential occupationaluse. In making provision for employment land, localplanning authorities should take into account boththe relatively long lead times needed and cautiousapproach of the market in bringing forward anddeveloping employment land.

5b) The Economy


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5B8 Development Plans should take into accountthe needs of various parts of the economy:* the needs of clusters.The future economic prosperity of the Region isstrongly linked to broad groupings of activities inwhich the Region has, or is gaining, competitiveadvantage. These clusters will deliver not only thenext generation of jobs in already known activities,but also the creativity and entrepreneurship thatwill create new activity. By focusing on clusters,local supply chains can be developed and thus amore sustainable pattern of economic relationshipsfostered. Clusters exist at regional level - forexample, telecommunications, bio-technology,multi-media, business services, food processing andtourism - and at local level. Regarding the latter, asbackground analysis for this RPG, preliminary worksuggests a number of sectors which are importantin certain areas. Local planning authorities willneed to work together with SWRDA, localeconomic partnerships, and academic institutionsin the Region to review this work and identifyother locally important sectors. They will alsoneed to understand the land requirements of thosesectors. * the needs of other sectors. All sectors of the economy, including “dirty”industries, need space to develop and expand. Itwould be wrong and dangerous to make provisiononly for clusters. While there is merit inspecialisation, there are also dangers in over-reliance on one sector. * the needs of the public sector.The public sector is a major employer in the SouthWest, partly because of the rapid increase inpopulation growth, and partly because of therelatively high numbers of retired people residentin the Region. Its development needs must betaken into account.* the needs of training establishments

and centres of learning.To increase the competitiveness of the SouthWest, it is essential that the skills of the workforceare constantly upgraded. In the Regional Strategyprepared by SWRDA, skills are identified as one ofthe four economic drivers of the Region. A highly-skilled workforce will reduce reliance on importedlabour, and therefore reduce pressures for housingdevelopment.5B9 Land will be required both for the expansionor relocation of existing businesses and for inwardinvestors. Local planning authorities should alsoensure that an adequate supply of employment landis available to assist the regeneration of areas ofdisadvantage, in urban and rural areas and coastaltowns.5B10 Local planning authorities should reviewexisting employment land commitments, togetherwith unused or under-used employment land, andsatisfy themselves that all such sites will continue

to meet employment needs and are compatiblewith Government guidance on development.They should take a realistic view of the availabilityof land, taking account of factors such as theattractiveness of land to the market andconstraints (physical, servicing and legal) to itsdevelopment. Where land meets these criteria, itshould be safeguarded for employment purposes.Where land does not satisfy these criteria oralternative uses would achieve a more sustainablebalance of uses in an area, its use for otherpurposes should be considered.5B11The identification of employment land shouldgenerally follow the approach set out in Policies 1and 2. Such land should be well served by publictransport and communications networks. However,flexibility is needed. Local planning authoritiesshould take account of the needs of particularsectors - for example, edge of town sites may bemore appropriate for uses which have high roadfreight transport requirements or high operationalparking requirements. They should also recognisethat in rural areas the priority is for economicdiversification, and that transport and communi-cations criteria will often need to be relaxed.

Policy 48: Provision of Employment LandIn preparing or reviewing Development Plans, localplanning authorities should ensure that a range andchoice of employment sites is available to meet thecurrent and projected needs of the economy.These needs will take account of the requirementsof regional and local economic clusters with growthpotential, the expansion requirements of otherbusinesses, the public sector, trainingestablishments and centres of learning.

Major Strategic Sites5B12 Local planning authorities should identify ahierarchy of employment sites:* major strategic sites - suitable for major

inward investment and large-scale re-investment by existing companies;

* locally significant sites - suitable for more smaller scale inward investment and local re-investment by SMEs;

* small-scale opportunity sites, suitable for small/micro businesses.

5B13 Major strategic sites will need to beidentified to meet the needs of key sectors,including industry, tourism and higher educationThe location and size requirements will varyaccording to the needs of the user. Ideally, thecharacteristics of major strategic sites are:* minimum site area of 12 hectares, but

preferably over 50 hectares. This criterion should relate to a single site, although clusters of several sites in close proximity could be considered.


37

* flat land, free from contamination (or with realistic prospects of clean-up) and constraints, with an attractive environment.

5B14 Major strategic sites should be located inclose proximity to a large pool of labour; othermajor employers; and areas which have sparecapacity in terms of social and serviceinfrastructure, or where that infrastructure can bereadily provided. They should also have goodaccessibility to docks, airports and world marketsand good existing or potential accessibility bypublic transport.5B15 It is likely that most major strategic siteswill be:* adjacent to areas of economic drive;* in and close to the Principal Urban Areas* in locations determined by the needs of the

particular sector;* at regional gateways;* where appropriate, in areas of special need,

including high density sites in urban areas.5B16 In total the Region should have a portfolioof about 30 major strategic sites. A number ofmajor sites already exist in the Region, but not allof them meet the above criteria. It would reducethe competitiveness of the South West and, insome cases, inhibit regeneration, to abandon thesesites. When new sites are identified, they shouldgenerally conform to the above criteria. TheRegional Planning Body and the SWRDA need towork together to identify these sites.5B17 There is a temptation to break up somevery large sites into smaller parcels, in order tomaximise early returns. This process defeats thebenefits of having available large strategic sites.The public and private sectors should worktogether to explore how strategic sites can besafeguarded from incremental development. Thiscould be achieved by public ownership of strategicsites or setting up public/private partnerships toensure joint development.

Policy 49 : Major Strategic SitesThe Regional Planning Body and SWRDA shouldwork together to identify a portfolio of majorstrategic sites in the South West, and prevent thesub-division of such sites.

Development ofTelecommunications Networks5B18 Information and communicationstechnologies (ICT) are already a strength of theRegion, but the increasing importance of suchtechnologies will require greater application of ICTby businesses, households and institutions in theSouth West. The development of effective IT

communications networks will enable business todevelop markets over a wider area, help to linkbusinesses for their mutual benefit, and supportthe growth of business and financial services,tourism and technology-based manufacturing.

Policy 50: Development of CommunicationsNetworksPlanning policies should support the continuousRegion-wide improvement and development ofeffective IT communications networks.

Physical Regeneration5B19 Some of the Region’s urban areas, par-ticularly in their centres, are suffering from physicaldegeneration. This can have a negative impact onpotential investors as well as residents, and thusreduce the competitiveness of the South West.

Policy 51: Physical RegenerationLocal authorities should initiate programmes ofphysical regeneration in areas suffering frominadequate investment in the built environment,particularly in town centres.

Retail Development5B20 The varying density of settlements andpopulation across the South West is reflected inthe dispersed hierarchy of retail centres. Whilemost parts of the Region have access to higherorder retail centres, the catchment areas areconsiderably more extensive in the south and westof the Region than in the north and east. Trendsin retailing have tended to favour existing higherorder centres at the cost of declining localservices, in both rural and urban areas. In manyareas the development of out-of-centre retailing invarious forms has tended to divert expenditureand investment from traditional centres.5B21 Despite the more recent out-of-centredevelopments, including the Regional ShoppingCentre (RSC) at Cribbs Causeway north of Bristol,most of the Region’s main centres have continuedto attract development. The sequential test setout in PPG6 has assisted this process. Thepotential exists for further investment in retail andleisure development in the Region’s main centresto meet anticipated needs.5B22 It is anticipated that growth in comparisongoods floorspace will significantly outpace that forconvenience goods. However, a critical issue is thetrend towards larger units with wider catchmentareas heavily reliant on car use.5B23 For convenience shopping, a distribution ofprovision that minimises the lengths and frequencyof trips means that dispersal of provision should be


38

maintained as much as possible, so that anysettlement of reasonable size has access to allnormal day to day necessities. Such provisionshould be in keeping with the scale of thecatchment that it conveniently serves so as not toencourage longer trips or to undermine theviability of other nearby centres.5B24 Provision for a good range of comparisongoods shopping requires a much larger customerbase. It is in this area that the potential fordevelopment of a strategic scale is more likely.Similar considerations apply in terms of ensuring asuitable level of provision in locations whichminimise the number and length of car trips. Thusit is essential to support the established hierarchy ofcentres which currently serves the Region, andwhich is well related to catchment areas andtransport networks, particularly public transport.No developments that would undermine the vitalityand viability of any centre identified in the hierarchy,or which would create a distortion in the ranking ofthe hierarchy unless supported by significant levelsof population growth, should be allowed.

Policy 52: Retail HierarchiesIn preparing Development Plans, local planningauthorities should establish retail hierarchies fortheir areas which maintain a good quality level ofprovision for retail needs whilst minimising theneed to travel. This hierarchy should recognise theregional and sub-regional roles of city and towncentres, as listed below, in providing for higherorder provision for large catchment areas:

Regional Centres Sub Regional CentresBristol GloucesterExeter CheltenhamPlymouth SwindonBournemouth Salisbury

BathWeston super MareTauntonYeovilTorquayTruroPoole

Policy 53: Opportunities for Retail DevelopmentIn preparing Development Plans, local planningauthorities should have regard to anticipated levelsand locations for population growth in order todetermine opportunities for retail development.Provision should not be made for further newRegional Shopping Centres.5B25Research on future shopping needs acrossthe Region supports the assumption that thepotential for floorspace growth in comparisongoods will be proportionately greater in areas of

greater economic activity and household growth.Local planning authorities should continue to directgrowth to the main centres identified, and shouldput in place policies both to enable centreexpansion and to facilitate access by a range oftransport modes. This need will be greater incentres in the north and east of the Region, butmay also emerge in other parts. In all cases,authorities should commission independentassessments of impacts on the other centres in thehierarchy where such proposals are of sufficientscale. All retail floorspace should be subjected tothis consideration and bulky goods/retailwarehouse schemes and factory outlet styledevelopments will be included. The aim is toensure that the regional hierarchy is safeguardedand any wider impacts taken into account.

Policy 54: Comparison Goods ShoppingThe current hierarchy of regional and sub-regionaltown centres in Policy 52 provides a welldistributed basis for the provision of futurecomparison goods shopping needs to 2016. Thevitality and viability of these identified centresshould not be undermined by developmentselsewhere and developments in one centre shouldnot draw trade from another. Any significantcomparison shopping needs will be met in thesecentres.

Monitoring the Economy5B25 In order to monitor the effectiveness ofeconomy policies, the following indicators will beof particular importance: 6 Changes in job numbers and levels of

unemployment7 Household incomes and GDP8 New employment land provision and

development9 Diversity of job opportunities and economic

structure10 Funding and investment secured within areas

requiring economic regeneration14 Long term and youth unemployment15 Skills training and the attainment of

educational qualifications17 Disparity between different parts of the

Region24 Road traffic volumes - particularly car and

freight movements

The indicators, together with an outline of themonitoring process, are set out in Section 6.


39

Housing Objectives5C1 The following objectives underpin thehousing policies set out in this RPG:* the need to provide everyone in the South

West with the opportunity for a decent home;

* giving priority to the re-use of previously developed land, bringing empty homes back into use and promoting the conversion of existing buildings within urban areas in preference to the development of greenfield sites;

* creating and sustaining mixed communities, including providing a greater choice and a better mix of the size, type, tenure and location of housing in all areas;

* creating more sustainable patterns of development by building in ways that deliver accessibility by public transport to jobs, education and other facilities and local services.

5C2 Draft PPG3 (“Housing”) sets out guidanceon how the planning system should help to achievethese objectives. It includes advice on planning tomeet the requirements of the whole community,the use of previously developed land and buildingsin urban areas for housing; the sequential approachtowards housing land supply; the location of newresidential development; the quality of livingenvironments; and the creation of mixedcommunities. Draft PPG3 forms the backgroundto the housing policies contained in this RPG.

A Decent Home for EveryoneThe Level and Distribution of Housing5C3 In determining the level and distribution ofhousing in this RPG, attention has been given toboth demand and supply-side factors. The 1996-based DETR household projections were used asthe starting point for demand-side considerations.These are based on the continuation of trends in avariety of variables. They are not policy-based, andtake no account of economic forecasts for theRegion or supply-side considerations.5C4 Economic considerations are important indetermining the requirement for housing. A sub-stantial amount of net in-migration to the SouthWest is of people of working age. They areattracted by the relative economic prosperity of theRegion. However, improved prosperity, a principalaim of this RPG, is not dependent on the contin-uation of past levels of net in-migration. It would bebetter achieved through improved productivity,

which in turn, should be achieved through innov-ation, the application of leading-edge technology andan existing workforce which is constantly re-skilled.Nevertheless, the economy will still need some in-flow of labour to maintain its buoyancy.5C5 Economic forecasts suggest that the numberof jobs which will be created in the South West willoutstrip the labour supply which would be availableif the Region did not experience population growththrough net in-migration. In general terms, thelabour supply which arises from the ONS 1996-based population projections matches the forecastincrease in the number of jobs. However, in onearea - Dorset - the labour supply arising from trend-based population projections significantly exceedseven the most optimistic forecasts of job creation.Here it would be unreasonable to provide for thegrowth suggested by trend projections, becauseeconomic migrants will no longer be attracted tothe area at past rates.5C6 The level of housing for which provision ismade should also take account of supply sidefactors, so that the implications of theaccommodation of growth are fully understood.At the time of preparing this RPG, some work hadbeen undertaken on this aspect - notably a study ofurban housing potential. Further work is in handto assess the potential for development around thePUAs and smaller towns. The results andimplications of this work will be considered by theSouth West Regional Planning Conference in thelate autumn of 1999, and may lead to a revision ofthe housing provision set out below.5C7 In summary, the provision for additionalhousing set out in Policy 55 takes into account:* the projected level and distribution of demand

and estimated needs in the period 1996-2016;* the forecast performance of the regional

economy, and particularly its demands for labour, including the distribution of that demand;

* the potential for development within the urban areas

* the possible effect of the urban renaissance measures recommended by Lord Rogers’ Urban Task Force. The RPG assumes that if urban areas are made more attractive places in which to live, net migration nationally and, by extension, into the South West will reduce.

5C8 The figures in Policy 55 set out additions tothe dwelling stock from the beginning to the end ofthe RPG period. In preparing development plans,strategic and local planning authorities should makeadditional allowances for dwelling losses that willoccur during that time.

5c) Housing


40

Policy 55: Levels of Housing Development 1996 -2016Subject to detailed appraisal in the preparation ofStructure Plans, the levels of additional housing forwhich provision should be made in the Region’sStructure Plan areas are as follows:

Proposed Proposed annualadditional housing average rateprovision 1996- (dwellings per 2016 (dwellings) annum)

Former Avon area*CornwallDevonDorsetGloucestershireSomersetWiltshireSouth West

* Note: a further 5,000 dwellings will be providedin the former Avon area if the strategic planningauthorities, in that area, are satisfied that (a)sufficient investment has been made ininfrastructure to address existing deficiencies andto meet the needs associated with the housingrequirement set out in this Policy, and (b) furtherinvestment will be made commensurate with needsassociated with the additional 5,000 dwellings.

Affordable Housing5C9 Many households in the South West do nothave sufficient resources to buy or rent on theopen market. If the future supply of affordablehousing in the Region is insufficient, an increasingnumber of residents will find that they are unableto obtain housing suitable to their needs, andproblems of homelessness and people living ininadequate housing will be magnified.5C10 “Affordable housing” encompasses both low-cost market and social housing (irrespective oftenure, ownership (exclusive or shared) or financialarrangements) which is available to people whocannot afford to rent or buy houses generallyavailable on the open market. Affordability variesfrom one locality to another and from one year toanother. It depends on income levels, house prices,rents, the cost of housing finance and supportavailable to households through mortgages andother mechanisms. The South West is charac-terised by relatively low earnings but house priceswhich overall are close to the national average.5C11 Over the past few years, the number ofhouseholds on housing waiting lists and in housingneed in the Region has remained relatively constantat between 60,000 and 70,000. The number ofhouseholds in acute housing need has beengradually increasing - about 7,000 in 1987 to over9,000 in 1998. These figures ignore households

ineligible for “social housing” but unable to affordgeneral market housing - notably single people.5C12 The South West has a relatively lowproportion of social rented housing - 16% of thehousing stock is for rent from a local authority ora Registered Social Landlord (RSL), compared with24% nationally. The number of local authority andRSL social rented homes has fallen from 334,000 in1987 to 310,000 in 1998, as right-to-buy purchasesoutstripped new additions to the stock.Nevertheless, many right-to-buy purchases docontribute to the stock of low-cost market housingwhen they are re-sold.5C13 The need for affordable housing is expectedto remain significant. At present it is not possible toput a precise figure on the number that will berequired for the Region during the period coveredby this RPG. Future changes in the rate of socialand other affordable housing “relets”, in therelationship between housing costs and income, andany changes in the Housing Benefit regime couldhave significant impacts on the amount of housingrequired. Monitoring these factors, along with arange of other indicators which demonstratechanges in demand levels, consumer preferences andthe nature and type of housing supply, is thereforeessential in maintaining an up-to-date picture of therequirements for affordable housing.5C14 At the local level, housing needsassessments provide essential information onaffordable housing requirements. In preparing suchassessments, local authorities should pay particularattention to forecast changes in demographicstructure, compared with the types of housingbecoming available from existing and new stock.Particular regard should be given to the needs ofthe elderly. Development Plans, in addition todescribing the overall number and proportion ofaffordable homes required, should indicate thedifferent types of affordable housing needed byhouseholds of different characteristics, and thecontribution that the existing stock is expected tomake to help meet needs. A realistic view abouthousing finance needs to be taken in deciding howmuch affordable housing can be delivered duringthe plan period. RSLs can buy dwellings on theopen market and provide them for rent orsubsidised sale. This ability can be particularlyhelpful in smaller communities, where the need foraffordable housing is limited and sporadic.5C15 DETR Circular 6/98 “Affordable Housing”indicates that it will normally be inappropriate toseek affordable housing on sites below 25 dwellingsor 1 hectare, for settlements of over 3,000 people.However, many sites, which are well located inrelation to schools, employment, shops, publictransport and other facilities, are well below onehectare in size. - brownfield land sites tend to bebelow this limit, for example. In these


About 69,000About 36,000About 85,000About 52,000About 40,000About 40,000About 51,000

About 373,000

About 3,500About 1,800About 4,300About 2,600About 2,000About 2,000About 2,500

About 18,700

41

circumstances, local planning authorities shouldconsider whether a reduction of the site sizethreshold to the minimum set out in Circular 6/98would allow for a more appropriate distribution ofaffordable housing and encourage the developmentof more mixed communities.

Policy 56: Affordable HousingDevelopment Plans should include targetsindicating the levels of affordable housing requiredin the area. In determining the amount of newbuild affordable housing required, local authoritiesshould undertake assessments of the affordablehousing needs of their areas, and take account ofboth need and supply-side considerations, as well asa realistic estimate of the finance available.Development Plans should contain policies relatingto exceptional development to meet affordablehousing needs in rural areas.

Housing in Rural Areas and theIsles of Scilly5C16 The settlement policies set out in this RPGseek to locate the majority of new development inand around urban areas, and to restrict the amountof development in villages. This approach maymake it difficult for local people in smallersettlements to find the housing they need -whether market or social - because of the limitedstock available and the competition for that stock.In some areas, particularly the coastal parts ofCornwall, Devon and Dorset, and the Isles of Scilly,the high proportion of second and holiday homesexacerbates the problem. About 3% of theRegion’s dwelling stock is used for these purposes,but in many parts the proportion is much higher -over 40% in some instances. Given the needs tosupport a living countryside, with a balanced mixof homes and jobs in order to limit unsustainablecommuting, and to preserve family and other socialrelationships in these areas, special provisionshould be made to ensure that local people haveaccess to housing in these locations.

Policy 57: Housing in Rural Areas and the Isles ofScillyPlanning authorities should ensure that additionalhousing in and around villages and in the Isles ofScilly, should be limited to circumstances where:* it will support local services which could

become unviable without some modest growth

* it is essential, for operational purposes, to enterprises which will help diversify the rural economy and/or

* where it is required to meet local needs.

Maximising the Reuse of Previously Developed Land and Buildings5C17 This RPG advocates a sequential approachto development (see Policies 1 and 2). Such anapproach is particularly important in allocating landfor housing in Development Plans. Its applicationin relation to housing is explained in draft PPG3“Housing”. Important first steps in this approachare to make best use of the existing stock byreducing vacancies, and to realise the potential ofpreviously used land and buildings.

Vacancies5C18 Best use needs to be made of the existinghousing stock. Reducing the number of vacantproperties will lower the need for the constructionof new dwellings and the demands made ongreenfield sites. It may also help the regenerationof some areas. 5C19 At 1991, the regional vacancy rate(excluding vacant second homes and holidayhomes) was 4.7%. The Government’s target is thatthis rate should be reduced to 3%.

Policy 58: Vacant HousingLocal planning and housing authorities, workingwith central government, should take measures toreduce the stock of vacant housing.

The reuse of PreviouslyDeveloped Land and Buildings5C20 The objective to maximise the reuse ofpreviously developed land and buildings should bepursued in the context of the sustainabledevelopment of both urban and rural areas. 5C21 In rural areas, the South West has anumber of large brownfield sites, principally formermilitary sites. These are not all suitable forresidential use. Where they are isolated fromsupporting facilities and cannot be developed asself-contained communities, they are notappropriate for housing.

Policy 59: Previously Developed Land and BuildingsThe development of previously developed land andbuildings for housing should take place only where:* the quality and character of the environment

is maintained, and preferably enhanced * a balance of land uses is achieved* the infrastructure is commensurate with the

demands of existing and future housing* the location of the housing reduces the need

to travel and improves accessibility, particularly by public transport, walking and cycling


42

* it will assist the maintenance and development of community life

* valued open spaces and habitats are protected from development.

In rural areas, major previously developed sitesshould be used for housing only where they can bedeveloped as self contained communities. Theyshould not be used for housing where they wouldgenerate substantial traffic flows, particularly bycar, such as in locations which have good roadaccess but which are distant from major sources ofemployment, local education, shopping, leisure andother facilities.5C22 A study of urban potential undertaken forthe South West Regional Planning Conference andthe Government Office for the South West,revealed that between 136,000 and 170,000dwellings could be provided in the Region onpreviously developed land and buildings. The lowerend of the range assumed an average density - 35dwellings per hectare - higher than is currentlybeing achieved. Within the period covered by thisRPG, it is unlikely that average densities will beachieved higher than this lower figure. The targetset out in Policy 60 therefore assumes that 136,000dwellings will be built on previously developed landand buildings. This represents 36% of the housinglevels set out in Policy 55.5C23 Given the diversity of the South West,particularly in terms of its settlement pattern andthe characteristics of its settlements, the target setout in Policy 60 should not be applied uniformlythroughout the Region. Local planning authoritiesshould take account of the particular character-istics of their areas, including rural brownfieldopportunities, in determining the proportion ofdevelopment that should take place on these sites.For indicative purposes only, the study of urbanpotential suggested the following levels ofdevelopment on such sites, by structure plan area.

Former Avon area 26,600-34,900Cornwall 8,500-10,100Devon 29,800-37,000Dorset 28,100-33,900Gloucestershire 14,500-18,400Somerset 11,000-13,500Wiltshire 17,100-22,000

The lower end of the range assumes 35 dwellings per hectare,and the top of the range 50 dwellings per hectare.

Policy 60: Targets for Previously Developed Landand BuildingsFor the Region as a whole, 36% of total housingprovision should be on previously developed land(including the conversion of existing buildings).Within the Region, for each Structure Plan area,

the target will vary to reflect the settlementpattern, the characteristics of settlements and theopportunities for the development of previouslyused sites in rural areas.

Providing a Mix of HousingTypes and Densities5C24 If everyone is to have the opportunity of adecent home, it is essential that a variety of housingis provided to reflect the differing needs of people.Requirements will vary across the Region, dependingon the age and composition of the existing stock andthe needs of the area. In some parts, a shortage ofexecutive housing may be as critical to the economyas the shortage of housing for key workers is inothers. Homes for families will continue to beneeded. Household projections suggest that therewill be a significant increase in single personhouseholds. Some will be content with smallerproperties. However, many will seek two or threebedroom dwellings, in many cases remaining inpreviously shared dwellings, high density urban livingmay not be attractive to all such households. TheSouth West has a relatively high proportion ofelderly, and these are likely to increase numericallythrough the period covered by this RPG. Provisionmust be made to ensure that their housingrequirements are met. Finally, housing should beprovided for those with special physical needs orrequiring community care. To meet all these needs,local planning authorities should be flexible in theirapproach to densities and car parking standards.

Policy 61: Mix of Housing TypesProvision should be made for a wide mix of typesof housing which reflects local conditions, includinghousing for executives and key workers; homes forfamilies and small households; housing for elderlyhouseholds and other households with specialphysical needs; and provision for people requiringcommunity care.

Monitoring Housing5C25 In order to monitor the effectiveness of thehousing policies, the following indicators will be ofparticular importance:11 The provision of housing - including

affordable and social housing12 Unfit housing13 Housing vacancy16 Accessibility of facilities and services17 Disparity between different parts of the region21 The use of land not previously developed -

including agricultural landThe indicators, together with an outline of themonitoring process, are set out in Section 6.


43

The Regional TransportStrategy5D1 The regional transport network is shown onThe Regional Transport Strategy Map.

The Regional Transport Strategy has 6 keyobjectives:* to reduce the impact of transport on the

environment, (which is threatened by growth in road traffic, noise, and pollution) by reducing the need to travel, encouraging travel by more sustainable means (particularly by walking and cycling), and locating development at accessible locations, particularly by public transport.

* to support the Spatial Strategy of the RPG, and to service existing and new development efficiently and in an integrated fashion.

* to secure improved accessibility to work, facilities and services

* to create a modern, efficient and integrated transport system that will meet the demandsof a dynamic regional economy, help overcome regional peripherality, and meet alltravel needs.

* the safe use of the Regional transport network and its associated facilities.

* to add value to previous investment by completing missing links in transport infrastructure.

These key objectives are explored below in thecontext of the RPG’s Spatial Strategy. The policiesmust recognise the concerns about unrestrainedroad traffic growth and establish a framework formanaging this and setting targets under the RoadTraffic Reduction Act.

The Principal Urban Areas(PUAs)

5D2 Within the Principal Urban Areas, quality oflife is a key issue. The maintenance of accessibilityto, and within, these dynamic areas is vital if “urbanrenaissance” is to occur.5D3 For these areas, making efficient use of theexisting transport network and traffic restraintmust be priorities. With their greaterconcentration of population and employment,there are better opportunities for public transportservices, whilst the proximity of facilities results inshorter journey distances, ideal for travel on footor by bicycle.

5D4 In most cities and large towns, bus travel willbe the main form of public transport, althoughsome opportunities exist to make fuller use oflocal rail networks and to explore the potential ofLight Rapid Transit (LRT). The interaction of thestrategic road network with the PUAs should beaddressed in Multi Modal Studies.5D5 Traffic restraint needs to be tackled througha variety of measures including parking controls,and road user charging, where appropriate.Income raised through such measures should bere-invested in sustainable alternatives such as publictransport, cycle and pedestrian routes.

Policy 62: The Principal Urban Areas (PUAs)Development Plans and Local Transport Planpolicies, transport operators and agencies should:* ensure all new development facilitates

journeys to work, shopping, education and leisure by walking, cycling and public transport.

* manage, maintain and where appropriate improve the highway network so as to gain maximum efficiency from existing infrastructure, including giving priority for road space to public transport and commercial vehicles.

* manage demand for highway capacity, including the use of private non residential parking (PNR) charging and road user charging, whilst avoiding destructive competition between competing centres

* support the development of public transport services, to enable the proportion of journeys within the urban area made by sustainable modes to be maximised .

* control the availability and pricing of on street and off street parking so as to reduce congestion and traffic levels.

5D6 The implications of this policy for PUAs are:* the development of accessibility profiles for

urban areas to maximise the opportunities for transport integration, modal split and development at key nodal points

* the management of parking to maintain a balance between commercial interests, accessibility, and the environment.

* the development of appropriate targets in response to Road Traffic Reduction Legislation.

* the preparation of “Green” travel plans and measures for disseminating information aboutpublic transport services.

5d) Transport and Communications


44

* the greatest scope for maximising the use of heavy rail to assist urban movement is in and around the Bristol conurbation and Exeter. There is also scope in the Plymouth sub-region and Bournemouth/Poole.

* urban densities are less likely to favour the development of LRT, except in Bristol. Here the principle of LRT is supported provided it can make a significant contribution to delivering the spatial strategy, and is financially viable, for example, through the use of support mechanisms such as PNR or road user charging.

Other Urban and Rural Areas5D7 In many of the Region’s other urban areastransport issues are similar to those found in thePUAs. The degree of similarity depends on theirsize and scale. Smaller towns are less likely tosupport advanced forms of public transport.Other than for seasonal tourist locations, park andride may only be viable at the upper end of thepopulation range.5D8 A key transport issue is management ofdemand for access and parking in such a way thatharmful competition for custom does not occurbetween centres. The size of these towns suggeststhat, in addition to local bus services, the emphasisshould be on walking and cycling.5D9 These towns are often the focus for anextensive rural hinterland; the private car willcontinue to play an important role for transport,especially in remote rural areas. However,retention and enhancement of existing publictransport systems, including rail, is important.There is scope to improve links to market townsand higher order centres, as well as developingcommunity transport solutions to problems.These links will rely primarily on buses.5D10 In some rural areas growing traffic volumesand congestion on strategic routes are leading tothe transfer of traffic to less suitable rural roads.This can lead to safety problems, as well asenvironmental concerns.

Policy 63: Other Urban and Rural AreasDevelopment Plan and Local Transport Planpolicies, transport operators, and agencies should:* ensure all new development facilitates

journeys to work, shopping, education and leisure by walking, cycling and public transport

* manage, maintain and where appropriate improve the highway network so as to gain maximum efficiency from existing infrastructure, including giving priority for road space to public transport and commercial vehicles

* support a range of demand management measures to avoid destructive competition between centres

* support the development of public and community transport to maximise the potential for non-car alternatives and to reduce social exclusion

* support the retention of local retail, education, healthcare and leisure facilities so as to minimise the need to travel by vehicle, and to foster the integrated delivery of services at the local level

* encourage the development of management measures to improve safety on rural roads

* support investment in modern telecomm-unications and information technology which will facilitate business and social interaction whilst reducing the need to travel.

5D11 The implications of this policy for otherurban and rural areas are:* a need for local authorities to work with

other agencies to deliver sustainable transport solutions in rural areas.

* the development of rural transport strategiesto explore ways of managing rural routes so as to improve safety for pedestrians and cyclists, and to transfer heavy traffic to more appropriate strategic routes

* the development of profiles of accessibility and parking standards to reflect the size and role of the settlement concerned and the availability of public transport services

* the need for continued financial support to ensure retention of essential rural bus and rail services, including branch lines.

* Cooperation between local authorities to address issues of congestion in a coordinatedmanner.

Inter Urban and Inter RegionalTransport5D12 The Region’s geography, and its ruralcharacter and settlement pattern, means thatjourneys between urban areas, and to otherregions, can cover a considerable distance.5D13 Multi Modal Studies (MMSs) consideringroad and rail, are planned for:* London to South West/South Wales corridor* A36/A46/A350/A31, from the M4 to the

south coast corridor (ie Bournemouth/Poole,Portsmouth, Southampton)

5D14 These studies will consider appropriatealternatives for infrastructure investment, and arelikely to trigger an early review of the RegionalTransport Strategy element of this RegionalPlanning Guidance.


5D15 Studies (TENs, SELCA) have also beencarried out for the Bristol/Reading-Penzance andExeter-Salisbury railway lines to help informinvestment decisions.5D16 The peripherality of the western part of theRegion, and the economic disadvantage suffered byCornwall and the Isles of Scilly has been recognisedwith the award of EU Objective 1 status.

Policy 64: Inter Urban and Inter Regional TransportDevelopment Plan and Local Transport Planpolicies, transport operators and agencies should:* optimise the use of existing infrastructure for

all modes and determine the most appropriate improvements to strategic infrastructure on major transport corridors, through MMSs and other studies

* support transport infrastructure proposals toimprove the competitiveness of the Region by reducing inter-urban journey times, reducing network congestion, and improving service reliability and frequency in order to reduce peripherality and support the tourismindustry.

5D17 The implications of this policy for inter-urban and inter-regional transport are:

Rail* the implementation of the recommendations

of the EU TENs study so as to achieve journey time improvements between Londonand Penzance of 37 minutes, by upgrading theGreat Western main line network from Reading to Penzance via Newbury, and Bristol to Taunton

* the appropriate enhancement (to W10W gauge - see glossary) of the rail freight gauge on the main Great Western route through Swindon, Bristol, Exeter, Plymouth to Mid Cornwall to facilitate the carriage of inter-modal freight.

* the provision of a series of inter-modal freight terminals across the Region

* increasing line capacity where there are long single line sections or bottlenecks, and provision of sufficient loop capacity for freight and slow trains.

* the upgrading of the Waterloo to Salisbury to Exeter railway so as to enable anhourly interval passenger service to be oper-ated and to support the proposals of South West Trains to provide increased frequencies

* supporting the proposals by Cross Country Trains to provide hourly interval services from Birmingham to Plymouth and Bournemouth, and for Great Western from London to Plymouth, together with services between London and Bristol at 15 minute intervals.

* the need for a study into improvements to the Cheltenham-Gloucester-Swindon rail line,linked to the road based study for the A419/A417 at Blunsdon, in order to facilitateenhanced services for passengers and freight.

* management of local and inter-city services to facilitate rail borne commuting.

Coaches* express coach services are an important

element of the Region’s public transport network. Good interchange facilities, information and reliability of journey time areimportant criteria; the latter requires effective management of the strategic road network with capacity constraints being addressed.

Regional Roads* unless supported by the outcome from the

MMSs listed above, improvements to the regional road network are likely to be limitedto that required for operational, environmental or safety reasons

* management of the motorway network in the Region to maintain reliable levels of service and where necessary giving priority to public transport, freight and through traffic, using traffic management measures, including access control where appropriate. Also, in order to deliver the Spatial Strategy capacity and access constraints at particular motorway junctions will need to be addressed

* subject to multi-modal studies the A36/A46/ A350/A31 corridor should be tested against the Spatial Strategy linking Bristol/Bath/Swindonto the ports of Poole and Southampton/ Portsmouth

* the A30/A303 route is one of only two strategic road routes in the South West to and from London and the Channel Tunnel. Prior to the completion of the multi modal corridor studies, the presumption of the Regional Transport Strategy remains that thisroute will generally be to dual carriageway standard. Design standards will need to reflect the quality of the environment, including consideration of on-line solutions

* the proposed improvement at Stonehenge is part of the national road programme

* the A38 Exeter to Plymouth road is currentlyto dual carriageway standard and further improvements should be limited to safety, operational or environmental reasons. Other than the Dobwalls Bypass, improvements west of Plymouth will be limited to safety, operational or environmental reasons

* the A30 Exeter to Penzance road is the key strategic road link for west Devon and


Cornwall. The route is currently of dual carriageway standards to Penzance except fora number of sections in mid and west Cornwall. The most important of these is the Bodmin Bypass to Indian Queens section and a high priority should be given to the completion of this section to dual carriageway standards to help Cornwall achieve its Objective 1 goals

* A417/A419: Subject to the road based studyfor Blunsdon, further improvements are required to this route, including the section from Nettleton Bottom to Air Balloon.

National and InternationalLinks: An Outward LookingRegion

Rail5D18 The improvement of rail links between theRegion and The Channel Tunnel, and thedevelopment of through and connecting passengerand freight services from the Region to Europe issupported.

Ports5D19 The Region has an important location in theperipheral maritime Region of the European AtlanticArc, and has good sea links with Brittany,Normandy, Ireland and Spain. Many ports of theRegion are also important for recreation and leisure.5D20 Of the ports in the Region, Bristol is thelargest, and is the principal regional entry port forinternational traffic; other ports with TENs statusare Poole, Plymouth and Fowey.5D21 Support is given to the individual roles ofthe non-TENs ports. In particular there is thelonger term potential to develop the deep waterfacilities at Portland.5D22 The Isles of Scilly are primarily dependenton ship services from Penzance for freight. Shipand air services provide passenger links and sustainthe tourist trade.5D23 There is a need to sustain the roles of theRegion’s ports, to encourage investment to ensurethe prosperity of the local economy, and todevelop coastal ferries and services, where this canbe done without environmental damage. Supportis given to the A354 link to Weymouth andPortland, to aid regeneration.

Policy 65: PortsDevelopment Plan and Local Transport Planpolicies, operators and agencies should:* subject to the outcome of MMSs support the

improvement of land based links to the Region’s ports, with the emphasis on the most sustainable means of transport

* support the development of each port in its

individual roles where such development provides economic benefit and can occur without environmental damage

* support the maintenance and enhancement of reliable services to the Isles of Scilly.

5D24 The implications of this policy for ports are:* the improvement of land based links to ports

will require the integration of road and rail transport, and the development of intermodal freight facilities at ports of regional significance , within the context of developing the Trans-European Networks. Wherever possible, priority should be given to facilitating rail based links; MMSs will assist investment decisions in respect of transport links from the north of the Region to the ports of Poole, Southampton and Portsmouth

* the degree to which port improvements can occur, and the impact of improvements to land side infrastructure requires assessment against environmental constraints. This may be particularly pertinent in the case of Poole.Air Travel

5D25 Airports are important national andinternational gateways for the Region. Improvingair services and enhancing the Region’s links tointernational destinations will help to reduceperipherality and limit the number and length ofjourneys to larger airports in other regions.5D26 Future determinants for the Region’sairport development depend on prospects forincreased air traffic; airport capacity; local surfaceaccess; and the degree to which trips toincreasingly constrained airports in the South Eastneed to be diverted to regional airports.5D27 There may be limited scope to divert someair traffic serving inter-regional business needs tohigh quality rail services, assuming rail speeds areimproved in line with TENs proposals. Levels offuture demand and prospects for air travel in theRegion have been the subject of the recent AirServices and Thin Routes studies, the findings ofwhich will need to be incorporated into this RPGat a later date.5D28 Regional airports have complementaryroles: Bristol, Bournemouth and Exeter have themost traffic in terms of international destinations.Plymouth, Newquay, Penzance and Gloucestershireairports have roles in meeting regional businessneeds particularly by feeder services to LondonHeathrow and Gatwick, in maintaining air links tothe Isles of Scilly, and helping to reduce the effectsof peripherality.5D29 As scheduled air traffic grows at the aboveairports, the complementary role of the Region’ssmaller airports and aerodromes for generalaviation must be protected.


Policy 66: AirportsDevelopment Plan and Local Transport Planpolicies, operators and agencies should:* support the existing airports and aerodromes

in the Region to develop complementary roles to serve air travel needs

* improve public transport surface links to airports, particularly at Bristol, Exeter and Bournemouth.

5D30 The implications of this policy for airportsare:* there will be a need to examine the role of

the Region’s airports within the context of prospects for the catchment area each serves

* the largest throughput in the Region is at Bristol where the relationship of the airport with south Bristol may help regeneration

* significant scope exists at Exeter to generate improvements to local economic prospects, and to service development by sustainable means.

* Plymouth and Newquay airports have an important role in supporting economic growth and regeneration for the far South West.

* the expansion of Bournemouth International airport to serve a sub regional role, and improvement of surface links must be weighed against environmental constraints.

* all airports must address surface access issues and look at opportunities to improve links by sustainable means.

Accessibility and ParkingStandards5D31 It is important that all new development isless dependent on access by motor vehicles inorder to assist the general approach to reducingtraffic impact. All new non-residentialdevelopment should be located, and provided withsufficient transport services, to ensure that themajority of potential users have a choice of modeof travel to the site. Residential developmentshould be located so that basic facilities can beaccessed easily by public transport.5D32 In order to encourage a reduction in theuse of motor vehicles it is essential that developersof major sites are required to implement GreenTransport Plans and manage reduced levels of carparking. The detailed requirements of the newapproach to accessibility and car parking standardsproposed by this RPG will be published separately,following publication of Government guidance.

Cycling and Walking Networks5D33 Walking is a sustainable means of enjoyingthe outstanding environment of the South West.Recreational walking and cycling brings manyvisitors to the region and they make an importantcontribution to the tourism economy. The SouthWest Coast Path is of particular prominence, andsustainable transport links are an important meansof gaining access to it.

Policy 67: Cycling and Walking NetworksDevelopment Plan and Local Transport Planpolicies, operators and agencies should:* support completion of the National Cycle

Network in the Region, including the provision of links to local and Regional cycle networks and adjoining settlements

* support maintenance and development of the South West coastal footpath and other long distance footpaths, and the provision of sustainable access to them.

Priorities for Investment inTransport5D34 The following are given in broad Regionalpriority order, to reflect the spatial strategy. It isimportant to recognise that investment is drawnfrom a wide range of sources, including the publicsector, operators and developers. Investment isneeded simultaneously across the range ofelements listed below, if the Spatial Strategy andvision for the Region are to be delivered.1. Sustainable transport systems in and aroundthe PUAs that both enable the management ofcongestion and release the potential fordevelopment.The Spatial Strategy aims to focus development onPUAs. Investment in walking, cycling and publictransport systems, combined with demandmanagement policies to restrain the need and demandfor use of the private car, is necessary to support thisand to reduce congestion.2. Inter-urban transport networks infrastructureto reduce peripherality and to aid economicgrowth and regeneration in areas of specialneed.Investment should take place in road and rail transportlinks for passengers and freight to other parts of theRegion and beyond. Air links from the far South Westto London are also important.3. Subject to MMSs and other studies, supportfor targeted investment on key regional andinter-urban transport axes in order to achieveeconomic, efficient, safe and integratedaccessibility for people and freight.


First priority should be given to the improvement of raillinks for passengers between PUAs in the Region andmajor centres in surrounding Regions, particularlyLondon, and for freight for longer distance journeys. Limited road improvements, coupled with demandmanagement on congested sections, may be necessaryon the main transport axes, dependent on the outcomeof MMSs.4. Infrastructure and services in urban areasother than PUAs, and rural areas that reducethe need to travel by private car and improveaccess to services.Investment in sustainable modes in these areas,particularly walking and cycling within the smallersettlements and public transport in larger towns andbetween towns and their rural hinterlands is necessaryto reduce the need and demand to travel by car andsupport the spatial strategy.5 Investment in facilities that enable modalshift from road to rail or water for people andfreight.An objective of Regional transport policies is to reducethe impact of transport on the environment.Investment in these facilities will help to achieve thisand support national policy objectives for transport.6 Investment in passenger interchange facilitiesand information systems.Investment is required to reduce the need and demandfor travel by private car and support national policyobjectives for transport.

Monitoring Transport5D35 In order to monitor the effectiveness oftransport policies, the following indicators will beof particular importance:

5 Air quality10 Funding and investment secured within areas

requiring economic regeneration16 Accessibility of facilities and services18 Overall water and energy consumption23 The use of energy efficient travel modes24 Road traffic volumes - particularly car and

freight movements

These indicators, together with an outline of themonitoring process, are set out in Section 6.


5E1 The South West Region is one of the UK’smajor tourist destinations, based on the strengthand diversity of its natural and built resources.These include the high quality natural environment;the National Parks of Dartmoor and Exmoor;distinctive areas such as the Cotswolds, Mendips,Somerset Levels and Isle of Scilly; and a long,varied and attractive coastline. The Region hastwo World Heritage Sites at Stonehenge/Aveburyand the City of Bath. The built environment, andcultural and leisure facilities offered by towns andresorts is also a major attraction. The Regionsupports a wide range of tourist attractions;historic houses and museums, gardens, farm parksetc attract around 40 million visitors a year.5E2 Tourism is one of the Region’s mostimportant industries, employing around 140,000people, with perhaps another 85,000 supportedindirectly, accounting for around 10% of emp-loyment. Tourism spending is 10% of the Region’sGDP (compared with 7% nationally) and accountsfor a sixth of all tourism spending in England.

The Nature of Tourism in theSouth West5E3 Visitors to the Region spend an estimated£5.754 million per annum. Growth sectors arebusiness tourism, short breaks and activity basedholidays. International visitors are also increasing inimportance. Visits to language schools areimportant, particularly in some resort towns suchas Bournemouth, and Torbay.5E4 Commercial accommodation can host600,000 tourists. Around 70% of the capacity is inthe self-catering sector. Provision isoverwhelmingly concentrated around the coast.55% of total provision is caravans and tents,demand for which is relatively stable and arisesmostly from the domestic market.5E5 Since 1989 the hotel and guesthouse sectorhas suffered a 5% decline in the number of hotelnights. The trend is mirrored in the Bed andBreakfast sector. The decline in servicedaccommodation is most marked in small andmedium sized resorts. New investment in hotelaccommodation has tended to be at the budgetend of the market, close to the motorway andtrunk road network.

5E6 Holiday villages account for 6% of stock.There has been recent new investment, particularlyin Wiltshire, as well as investment in some existingfacilities.5E7 There are broad differences in tourismbetween the north and south of the Region. Thenorth has less economic dependency on tourism, ahigher proportion of short breaks and businessvisits, more investment in new hotel accomm-odation, and less seasonal variation in roomoccupancy. In contrast, the industry in the southand west of the Region is more dependent onholiday visits from UK tourists, exhibits strongseasonality, has the greatest concentration ofaccommodation for rent, and slower rates ofgrowth in second homes.

Future Challenges5E8 The Government wish to see the Britishtourism industry match and exceed the rate ofglobal growth in the industry by the end of 2010.5E9 Although tourism and leisure is necessary forrelaxation and health, and generates wealth for theRegion, it is not without social, economic andenvironmental costs. Employment is often seasonaland of low quality, it can break down a sense ofcommunity, particularly in settlements with heavyconcentrations of holiday lets and second homes.The impact of visitor numbers can destroy theresource that attracted the visitors in the firstplace. Visitor pressure can create trafficcongestion, and place great demands on otherinfrastructure, such as water supply and sewagetreatment.5E10 “Tomorrow’s Tourism” (the Government’stourism strategy) and the West County TouristBoard’s Strategy for the Region support a moresustainable approach to the promotion of tourismin the South West.5E11 The award of environmental sustainabilitystandards such as EMAS, Nordic Swan and GreenGlobe, and use of measures such as the GreenAudit kit should be encouraged and taken up byoperators and providers within the industry, andtied to applications for funding assistance whereappropriate. Opportunities should be taken,where possible, to increase public awareness ofenvironmental issues.

5e) Tourism and Leisure, Sport and Healthcare

Tourism and Leisure


5E12 The Government is committed to improvingaccess to the countryside. Access agreements,footpaths and access to farms under agri-environment schemes have opened up thecountryside to visitors. Long distance footpathsand cycleways have increased quiet enjoyment ofthe countryside. Close to urban areas, countryparks and community forests offer benefits forresidents and visitors.5E13 In the South West the leisure market alsoincludes attractions such as multiplex cinemas,sport and leisure centres, skating rinks, bowlingalleys etc, which are used by both tourists andresidents. The location of such leisure uses shouldhave regard to the same tests as retaildevelopment, set out in PPG6.5E14 Policies are aimed at meeting the followingkey objectives for tourism:* To make the South West a flagship for

sustainable tourism* To protect and enhance environmental assets* To increase the economic and social benefits

of tourism for the Region’s residents* To develop sustainable means of tourist travel

to and within the Region

Policy 68: Tourism FacilitiesProposed facilities to improve the quality and rangeof attractions and accommodation in the Region,including those which promote culture, heritage andcountryside will be encouraged, provided that they:* are sited in a location that will minimise the

need to travel, are well served by public transport, and can be integrated into cycle and pedestrian routes

* complement or enhance the local environment, and are of a scale appropriate to the location and setting

* can demonstrate environmentally sound practices in construction and operational practice

* offer economic and social benefits for local residents.

Policy 69: Areas Under Tourism PressureRegional tourism agencies and local authoritiesshould jointly identify and review areas which areunder pressure from visitor numbers with a viewto:* ensuring additional development does not

increase visitor pressure* identifying and implementing management

measures and actions which will relieve pressure on such areas.

Policy 70: New Flagship AttractionsNew flagship attractions should be supportedwhere they can substantially expand the tourismmarket away from areas already under pressure,are readily accessible by public transport, and canprovide opportunities for secondary attractions tolocate nearby.

Policy 71: Small Scale Tourism DevelopmentSmall scale tourism development should beencouraged in areas where it will assist thediversification of the rural economy, and aid theregeneration of towns and resorts as part of anintegrated package of measures. Tourism facilitiesshould also be considered when developingregeneration initiatives in larger urban areas.

Policy 72: Access to Informal Leisure FacilitiesThe following measures are supported:* to improve access to the countryside through

access agreements; and, close to urban areas, the creation of country parks and Community Forests

* to safeguard former rail routes with potential for leisure or transport re-use

* the integration of national long distance footpaths, cycle ways and bridle paths, including canal towpaths, with local networks,particularly where they link town and country.

Sport5E15 For many people, participating in orwatching sporting events is important for quality oflife. The philosophy of “sport for all” recognisesits contribution to the health and well being of thepopulation. Nationally there is recognition of theneed for a focused approach towards achievinghigh standards of excellence in individual and teamperformance. The South West Region of SportEngland (the English Sports Council) is currentlyreviewing the 1994 Regional Strategy for Sport andRecreation, and this will need to be taken intoaccount before RPG is finalised. PPG17 setting outnational policy on sport is also due to be revised.5E16 Particularly important activities in the SouthWest include yachting and surfing, for which theRegion has venues and facilities of international

importance. Proposals for new Olympic standardsailing facilities at Weymouth and other high qualitydevelopments at Falmouth and Plymouth aresupported.5E17 The UK Sports Institute is promoting, atBath University in conjunction with facilities inExeter and Cheltenham, a National networkCentre, aimed at sports development and quality.However, the Region lacks one or moreinternational-standard sporting arenas for majorspectator sports. Sport England (South West) isconsidering a joint study to assess options for thistype of development in the Region. The studyshould involve the Regional Planning Body, SWRDAand Sport England. If completed before finalisationof the RPG, its findings will be incorporated.


Policy 73: Protection of Recreation and SportingFacilitiesPolicies should support the protection ofrecreational open spaces and playing fields, and theprovision of new community sports facilities,particularly in areas of major new development oridentified underprovision.

Policy 74: Major National Sporting InitiativesMajor national sporting initiatives in the Regionshould be recognised and promoted, including the

UK Sports Institute National Network Centre andthe proposed new national sailing facility atWeymouth.

Policy 75: Inland and Coastal WaterwaysLocal authorities and relevant agencies shouldjointly prepare management strategies for inlandand coastal waters of major recreationalsignificance, which take into account recreationaldemands and the need for environmentalprotection.

5E18 The benefits of good health are obvious toeveryone and improvements in the health andwellbeing of the people living in the South West willbe significantly determined by how other elementsof this RPG are working. The provision of effective,accessible and high quality services that promotehealth and wellbeing are also important in improvingthe quality of life within the Region but also make itan attractive location to live, work and visit.5E19 The South West has one of the lowestoverall death rates of any Region in the UK andsome of the lowest rates of early death, and deathby lung cancer. Nevertheless, the Region hasspecific needs; for example, it has the highestproportion of residents of pensionable age in theUK, and amongst the highest levels of teenageparenthood in Europe. In other areas, specifichealth issues arise, for example, in addressing thematter of radon gas in new and existing homes.5E20 The Government’s White Paper “SavingLives: Our Healthier Nation” identifies fourpriority health areas: heart disease and stroke,accidents, cancer and mental health, and has settargets to reduce death and disability from thesecauses by 2010. The White Paper also recogniseshealth is affected by a range of other factors,including provision of a safe, secure and sustainableenvironment; reducing pollution; adequate housingprovision; access to leisure and recreation; red-ucing social exclusion and increasing employmentopportunities. It proposes a contract indicating hownational, regional and local bodies and individualscan participate in achieving better health. Inaddition it supports an increased role for healthimpact assessments in the context of local, regionaland national policy development and planning.5E21 The RPG fully supports these aims andobjectives. It also recognises that the locations oflocal health care facilities (including pharmacies,dentists and opticians) and hospitals can besignificant in providing a higher quality of life andfostering a sense of community. Such facilities needto be well located so they are accessible to thewhole community, and all sections of it, and helpcontribute to reducing the need to travel by car.

Policy 76: Healthcare Objectives, Priorities andTargetsThe RPG supports the national objectives set outin “Our Healthier Nation”, the setting of localpriorities and targets via Health ImprovementProgrammes, Health Action Zones, and thedevelopment of policies which implement them.

Policy 77: Services that Promote HealthLocal authorities, health authorities and other localpartners should develop policies to ensure existingand new communities have health and healthcareservices which promote health and wellbeing,accessible by the whole community, and inlocations which promote sustainable development.

Policy 78: New Development and HealthIn considering proposals for new development, thefollowing should be taken into account:* the impact of the proposal on public health

and the opportunities provided to promote better health

* the need to provide for and safeguard facilities that promote a safer and healthier environment including facilities and opportunities for leisure and recreation.

Monitoring Health and Healthcare5E22 In order to monitor the effectiveness of thetourism and leisure, sport and healthcare policies,the following indicators will be of particularimportance:1 Levels of development within areas of

landscape importance2 The extent and diversity of wildlife habitats3 The populations of key wildlife species4 Water quality5 Air quality6 Changes in job numbers and levels of

unemployment9 Diversity of job opportunities and economic

structure16 Accessibility of facilities and services17 Disparity between different parts of the Region24 Road traffic volumes - particularly car and

freight movements.The indicators, together with an outline of themonitoring process, are set out in Section 6.

Health and Healthcare


Implementation6.1 It is important to monitor the imple-mentation of the strategy and policies and to usethis monitoring work as a basis for future review ofthe RPG.

Private Sector6.2 The RPG and its wider vision, can only beimplemented through action and investment by theprivate sector, with individual businesses anddevelopers working to achieve their own objectiveswithin the guiding framework of the strategy forland use and for transportation.6.3 Of particular importance are housingdevelopers and builders; housing associations andregistered social landlords; employers in all sectors;developers of, and investors in, employment land;retailers; operators of tourism, recreation andleisure enterprises; minerals and waste companies;public transport operators; farmers and estatemanagers; and owners of land or property.

Central Government6.4 Among the key roles of Central Governmentin relation to implementing the RPG are supportfor:* planning policies at Structure Plan

Examinations in Public and Local Plan Inquiries and through the appeal system.

* transport policies and by resource allocation through the Local Transport Plan process

* economic prosperity through help to the Region’s companies, assistance with promotion and inward investment work and the provision of grant aid where necessary (including support for bids for European funding);

* policies for the rural environment through the policies and grant regimes of Ministry of Agriculture, Fisheries and Food / Farming andRural Conservation Agency.

Local Councils6.5 Through their Development Plans, localauthorities must make proper provision for thedevelopment of land for housing, employment andother uses to the extent, and in the generallocations, indicated by the RPG, and must definethe detailed criteria for the control ofdevelopment. Policy implementation through thedevelopment control process is crucial.6.7 Local authorities also have other roles.

Those that are housing authorities have a key rolein ensuring that housing needs are met, inparticular (working with housing associations) theneeds for affordable housing. They can also usetheir powers and resources in fields such aseconomic development, tourism and recreation,together with other public and private agencies, tohelp meet employment, leisure and other needs.Local authorities as providers or facilitators oftransport infrastructure and through their recentlyacquired duty to prepare Local Transport Plans playa significant role in implementing the RPG.

Utilities6.8 The water, electricity, gas andtelecommunications companies have importantroles in meeting the needs of the community. Inaccordance with the principles of sustainability,their focus must increasingly be on demandmanagement, recycling and conservation ofresources. Their facilities and networks need tosupport the distribution of development indicatedin the spatial strategy.

Other Organisations and Agencies6.9 Many organisations and agencies have veryimportant functions in relation to implementing theRPG, in accordance with their duties andresponsibilities. These include:* SWRDA * The Countryside Agency * English Nature* English Heritage* Environment Agency* Health Authorities and Trusts* Housing Corporation and Housing

Associations* Training and Enterprise Councils6.10 In terms of both policy and resources, theEuropean Union has an important role to play indirecting funding support (eg Objective 1 funding)and supporting the improvement of strategic roadand ferry links, the regeneration of the economy(particularly in rural and defence-dependent areas),tourism development and environmental protection.

Voluntary Sector6.11 Voluntary organisations working in the fieldsof community and social services can help to meetneeds in line with the RPG, while environmentalgroups such as the county Wildlife Trusts canprovide valuable specialist advice and action.

6) Implementation and Monitoring


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Protection of the EnvironmentThe effectiveness of environmentalconservation

1 Levels of development within areas of landscape importance

2 The extent and diversity of wildlife habitats3 The populations of key wildlife species4 Water Quality5 Air Quality

Prosperity for CommunitiesThe level of economic performance

6 Changes in job numbers and levels of unemployment

7 Household incomes and GDP8 New employment land provision and

development9 Diversity of job opportunities and economic

structure10 Funding and investment secured within areas

requiring economic regeneration

Progress in Meeting Society’s NeedsThe level of access to facilities andopportunities

11 The provision of housing - including affordable and social housing.

12 Unfit housing.13 Housing vacancy14 Long term and youth unemployment15 Skills training and the attainment of

educational qualifications.16 Accessibility of facilities and services17 Disparity between different parts of the

Region

Prudence in the Use of ResourcesThe use of finite resources

18 Overall water and energy consumption19 Renewable energy generation.20 Mineral extraction and use of secondary

materials.21 The use of land not previously developed -

including agricultural land22 Levels of waste production.23 The use of energy efficient travel modes.24 Road traffic volumes - particularly car and

freight movements.

Monitoring6.12 The RPG monitoring process has three mainaims. Firstly, to assess the extent to which it’sstrategy and policies are being implementedthrough the Development Plan system; secondly, toevaluate whether the RPG is effective; and finally toidentify those external factors that are outside thescope of RPG but which may have a bearing on itssuccessful implementation.6.13 The monitoring of RPG requires a clearlydefined monitoring programme that reflects thepriorities of the strategy. This programme willinclude the gathering of information associatedwith a series of indicators or performancemeasures. The range and detail of the indicators

selected to do this is detailed in the TechnicalReport on monitoring. Essentially these compriseindicators that measure the output of RPG policyand indicators that measure the outcomesassociated with the strategy. They are designed sothat their data collection requirements may be meton a consistent year on year basis by both SouthWest local authorities and other bodies whereappropriate.6.14 Advice on the form and frequency of datacollection is set out separately from this RPG, inthe Technical Report. Producing an annualmonitoring statement will be required from ananalysis of a consistent flow of data, and of otheravailable data sources.

Indicators Related to Strategic Aims



Appendix A: Planning Policy Guidance Notes

A1 The Government regularly issues PlanningPolicy Guidance Notes PPGs. These give detailedguidance on current national planning policyconcerning topics such as housing, transport,nature conservation etc. A full list of PPGs is givenbelow. Such guidance informs the preparation andpolicies contained in Regional Planning Guidance,such as this, and development plans prepared byLocal Authorities, and is a material consideration indetermining individual planning proposals.A2 As the PPGs establish national policy this RPGreflects, but does not duplicate in this document theadvice and the polices within them. It is importantthat all those interested and involved in land useplanning for the Region are aware that these PPGsexist and indeed may be added to or amendedduring the production and lifetime of this RPG.

PPG1 General Policy and Principles

PPG2 Green Belts

PPG3 Housing

PPG4 Industrial and Commercial Developmentand Small Firms

PPG5 Simplified Planning Zones

PPG6 Town Centres and Retail Development

PPG7 The Countryside, Environmental Qualityand Economic and Social Development

PPG8 Telecommunications

PPG9 Nature Conservation

PPG10 Waste (expected shortly)

PPG11 Regional Planning Guidance (draft atpresent)

PPG12 Development Plans

PPG13 Transport

PPG14 Development on Unstable Land

PPG15 Planning and the Historic Environment

PPG16 Archaeology and Planning

PPG17 Sport and Recreation

PPG18 Enforcing Planning Control

PPG19 Outdoor Advertisement Control

PPG20 Coastal Planning

PPG21 Tourism

PPG22 Renewable Energy

PPG23 Planning and Pollution Control

PPG24 Planning and Noise

A3 Central Government has also issued a seriesof 15 Mineral Planning Guidance Notes to provideguidance to Mineral Planning Authorities andrelevant industries. In the South West, MPGs - 1 (General Considerations); 2 (Applications, Permissions and Conditions); 6 (Guidelines for Aggregates Provision in England);and 7 (Reclamation of Mineral Workings) are likelyto be of most use.A4 In addition national policy and guidance is alsoset out in numerous Acts, Statutory Instruments,Departmental Circulars as well as in statements toParliament and Ministerial announcements. Theseare too numerous to list here but useful referencesto these more detailed documents are usuallycontained in the relevant PPGs.

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Appendix B: Glossary


Word DefinitionAffordable housing Both low cost and social housing that will be available to people who

cannot afford to compete for housing in the open market.Aggregates Naturally occurring bulk materials suitable for use in the construction

industry as concrete, mortar, roadstone or for use as constructional fill or railway ballast.

Agricultural Land Classification A classification used by the Ministry of Agriculture, Fisheries and Food (MAFF), Grade 1,2, and 3A being the best and most versatile grades.

Air Services Study A Government funded study on air services in the South West at Bristol, Bournemouth, Exeter, Plymouth and Newquay airports.

Allocations Land selected for development in local plans, but as yet without planning permission.

Areas of Outstanding Natural Areas of attractive and unspoilt countryside designated under the NationalBeauty (AONB) Parks and Access to the Countryside Act 1949.Areas of Tranquility Areas defined by the Countryside Commission (now the Countryside

Agency) and CPRE as being largely unaffected by high levels of development.Atlantic Arc Grouping of European Regions along the Atlantic coast with common

characteristics.Avon (or former Avon area) The area containing the unitary authorities of Bath & NE Somerset,

Bristol, North Somerset, and South Gloucestershire and which formerly was the County of Avon.

Biodiversity The range of plant and animal species present in an area. BPEO (Best Practicable The option that provides the most benefits or the least damage for theEnvironmental Option) environment, as a whole, at acceptable cost, in the long term as well as the

short term. (defined in the 12th report of the Royal Commission on Environmental Pollution)

Brownfield Development sites which have been previously built upon.Commitments All land with current planning permission or allocated in local plans.Community Forests A joint initiative between the Countryside Commission and the Forestry

Commission to promote the creation, regeneration of well-wooded landscapes around major towns and cities.

Common Agricultural Policy A system of subsidies throughout the European Union to maintain(CAP) farming incomes, and facilitate rural development. Comparison goods Clothing and footwear; DIY goods; household goods, recreational goods;

and other goods.Conservation area Areas of special architectural or historic interest, designated under s69 of

the Planning (Listed Buildings and Conservation Areas) Act 1990.Conurbation A continuously built up urban area, normally extending beyond the

administrative boundaries of a single town or city.Convenience goods Food, alcoholic drink, tobacco, newspapers, magazines, matches, soap and

other cleaning materials.Derelict land Land so damaged by industrial or other development that it is incapable of

beneficial use without treatment.Development The carrying out of building, engineering, mining or other operations in, on,

over or under land, or the making of any material change in the use of any buildings or other land.

Development Plan Structure Plans and Local Plans (district wide plans, minerals and waste local plans) prepared by Local Authorities as a framework for development and land use decisions in their area.

Economically active People aged 16 or over who are either in employment or ILO unemployed.

Economic Activity Rate The percentage of people aged 16 or over who are economically active.

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Employment uses The use (and development) of land for office, research and development, industrial and storage and distribution activities as identified in the Use Classes Order of 1987.

ESAs (Environmentally Areas, designated in England by MAFF, where the wildlife and landscape are Sensitive Areas) of special importance and are particularly vulnerable to change arising from

agricultural intensification.European Spatial Development A publication adopted by all EU member states which brings togetherPerspective (ESDP) land use, transport and economic strategies under a single spatial strategy,

and provides the context for a number of European initiatives.EU 15 The 15 member states that currently form the European UnionGOSW Government Office for the South West; the integrated Government office

for the region, based in Bristol and Plymouth. Green Belt A planning designation designed to prevent urban sprawl by protecting

open land around, or between, urban areas.Greenfield Land which has not been previously developed, most often land last used

for agriculture and located outside the existing built up area of a settlement.

Green Transport Plan A plan addressing initiatives to be taken to encourage the use of more sustainable modes of travel (usually undertaken by an employers or occupier of premises).

Groundwater Rain water that is held underground in water bearing, porous rock and sub-soil.

Heavy Rail The conventional railway system (as opposed to light rapid transit).Health Action Zone Zones established since 1998 by the Dept. of Health to promote cross

boundary working between organisations to provide health services. Cornwall and Plymouth are designated HAZ.

Health Improvement Programmes drawn up by each health authority to indicate howProgrammes national health objectives are being implemented. They will also involve

local authorities, other NHS bodies, local businesses, groups and education bodies As well as overall health issues for the local population, they will focus action on addressing the needs of the those who are socially excluded.

Heritage Coast Stretches of undeveloped coast defined by the Countryside Commission (now incorporated in the Countryside Agency) as being of outstanding scenic value, with special management schemes.

ILO International Labour OrganisationInfrastructure The utilities, transport and other communication facilities required to

support housing, industrial and commercial activity, including schools, shopping centres and other community and public transport services.

Intermodal freight terminal Site equipped with facilities to transfer freight between road, rail, sea or air.LTP Local Transport Plans: Plans which outline a Local Authority’s strategy for

dealing with transport in their area, designed to coordinate and improve local transport provision; they are used as the basis for allocating resources and transport capital expenditure.

Mixed use development Developments that include a mixture of more than one of the following: housing, employment, leisure, shopping and community facilities.

Multi Modal Study A study examining the roles of different modes of transport along a transport corridor.

National Nature Reserve Sites of national importance declared under s19 of the National Parks and Access to the Countryside Act 1949 or s35 of the Wildlife and Countryside Act 1981.

National Park Countryside selected for its natural beauty and the opportunities afforded for open air recreation, designated under the National Parks and Access tothe Countryside Act 1949.

Non operational parking Parking spaces which may be provided for office/business/employment development, but which is not essential to the running of any business at the premises itself eg commuting employees and business visitors.

Nodes Town centres and other locations which form a focus for transport routes or are important destinations.

North Fringe of Bristol The area of land in South Gloucestershire adjoining the northern part of the Bristol city boundary bounded by the M5, M4 and M32.

56

57

Objective 1 An EU structural fund aimed at helping regions “lagging behind” whose per capita GDP is less than 75% of the community average.

Objective 2 An EU structural fund to support areas undergoing economic and social change in the industrial and service sectors, declining rural areas, urban areas in difficulty and depressed areas dependent on fisheries.

ONS Office for National StatisticsOperational parking Parking which is essential to the operation of a business being carried out

at premises eg servicing and delivery vehicles.Park and Ride An arrangement whereby car users are encouraged to leave vehicles in car

parks on the periphery of a town or city and complete the remainder of their journey by public transport.

Peripheral areas Parts of the Region that are considered remote from and economically disadvantaged when compared to the central and more prosperous regionsin Europe.

PPG Planning policy guidance note issued by DETR (sometimes in conjunction with other government departments) which sets out the national planning policy contexts for Local Authorities to take into account in their planning work. Guidance on minerals is contained in a series of Minerals Planning Guidance Notes or MPGs.

PNR Private non residential parking - usually in conjunction with office or business use.

Precautionary Principle Requires that where there are significant risks of damage to the environment, precautionary action to limit the impacts is taken, even wherescientific knowledge is incomplete.

Primary Route A road (not a motorway) which forms part of the primary national network for long distance traffic , and is distinguished by green backed traffic direction signs.

Proximity Principle The disposal of waste close to the point of generation PUA Principal Urban Area (urban areas in excess of approx. 50,000 population)Ramsar Site A wetland SSSI designated under the Ramsar convention as being of

international importance.Rapid Transit Fast modern tram system running on rails or concrete guideways, often

using cars coupled together.RAWP Regional Aggregates Working Party; established in the 1970s to identify

and consider likely problems in the supply of aggregate minerals. The South West RAWP is one of 10 nationally.

Regional Chamber Organisation established under the Regional Development Agencies Act 1998, comprising representatives of local authorities and social and economic partners, in order to promote the economic, social and environmental wellbeing and interests of the Region and, in particular, to oversee the work of the RDA.

RDA (Also SWRDA) South West Regional Development Agency; - one of the Agencies set up in1998 by Government in each Region with powers to coordinate and promote regeneration and encourage inward investment.

RPB Regional Planning BodyRPG Regional Planning GuidanceRegional Shopping Centre Out of town shopping centres generally over 50,000 sq m gross retail area,

typically enclosing a wide range of clothing and other comparison goods, such as the Mall at Cribbs Causeway.

RTAB Regional Technical Advisory Body on wasteRural Development Plans An EU requirement under the Rural Development Regulations which

provides the legal base for CAP funding for measures to support environmental action and rural development.

SAC Special Area of Conservation under the EU directive on the Conservation of Natural Habitats and of Wild Flora and Fauna (the Habitats directive)

SELCA Salisbury to Exeter Lineside Consortium of Authorities; a group of local authorities, transport operators and Railtrack, set up to examine the feasibility of line improvements between Salisbury and Exeter.

58

SPA Special Protection Area designated under the EC directive on the Conservation of Wild Birds.

SSSI Sites of Special Scientific Interest designated under the Wildlife and Countryside Act 1981, designated to protect geological or wildlife features.

Structural funds The principal means by which funding is directed to areas of the EU requiring support to further economic and social cohesion.

SWRPC South West Regional Planning Conference. A grouping of representatives of all local planning authorities in the region responsible for advising GOSW on the content of RPG. It is expected to be subsumed into the Regional Chamber in 2000.

Sustainable Development Development which meets the needs of the present without compromisingthe ability of future generations to meet their own needs (World Commission on Environment and Development 1987 - the Brundtland Commission).

Thin Route Study An economic assessment of air services between London and a regional airport where traffic on a route is low in comparison to other domestic services. The route from Newquay - Plymouth to London is subject to sucha study.

Townscape Those elements of the natural and built environment that together give urban areas their sense of identity and distinctiveness.

TENs Trans European Networks - high speed passenger and freight transport routes (plus communications and energy links) which link the Region and UK with central Europe.

Trunk Roads Long Distance Routes (including most motorways) for which the Government Minister is the Highway Authority.

Traffic Management Schemes to regulate traffic speeds, alter road capacity or increase safety within the existing highway width. Includes traffic signals, bus priorities, parking controls, traffic calming, pedestrian crossings, one way systems, road closures etc.

Urban Fringe The area of land immediately adjacent to the outer edge of large built up areas.

W10W An enhanced freight loading gauge to take containers of 2.90m (9’6”) high and 2.5m across, on wagons of 1m deck height ( universal standard gauge U1C+)

Windfall sites Individual sites arising on an unpredictable basis and not identified in local plans or through other formal planning policies.

DRAFT REVISED REGIONAL PLANNING GUIDANCE FOR THE SOUTH WEST – AUGUST 1999

COMMENTS FORMPlease send your comments to:The Panel Secretariat Fax: 0117 925 2098RPG Public Examination Panel E-Mail: [email protected] Floor,The Gaunts HouseDenmark StreetBristol, BS1 5DR

Notes: Please indicate by ticking the box(es) below the policies on which you are commenting. Comments should be provided on the sheet overleaf (or a copy of the sheet). Please us a separate sheet for

each policy. All responses will be made available for the public to read. Completion of this form does not convey any automatic right to give evidence at the public examination of the

draft revised Regional Planning Guidance. In due course, the RPG Public Examination Panel will publish a list ofmatters for discussion at the Public Examination and will invite individuals / organisations to give evidence.

Visions, Aims and Objectives

Policy Numbers 1 – 23: Patterns of Future Change

1 2 3 4 5 6 7 8 9 10 11 12 13

14 15 16 17 18 19 20 21 22 23

Policy Numbers 24 – 47: Environmental Protection and Resource Management

24 25 26 27 28 29 30 31 32 33 34 35

36 37 38 39 40 41 42 43 44 45 46 47

Policy Numbers 48 – 54: The Economy

48 49 50 51 52 53 54

Policy Numbers 55 – 61: Housing

55 56 57 58 59 60 61 Policy Numbers 62 – 67: Transport and Communications

62 63 64 65 66 67

Policy Numbers 68 – 78: Tourism and Leisure, Sport and Healthcare

68 69 70 71 72 73 74 75 76 77 78

Implementation and Monitoring

Comments submitted by / on behalf of :Name:…………………………………………………...Organisation:.…………………………………………..Address:…………………………………………………………………………………………………...Postcode:……………………………………...Tel:…………….………..Fax:…….…..…………..E-Mail………………………………………………

Agent contact details (where appropriate):Name:………………………………………………………Organisation:.……………………………………………..Address:…………………………………………………………………………………………………………Postcode:……….…………………………………Tel:…………..………..Fax:…….…...………….…..E-Mail………………………………………………….

COMMENTS TO ARRIVE NO LATER THAN

MONDAY, 1 NOVEMBER 1999

Representation Name

Representation Number

Date received:

Acknowledged:

If there is insufficient space on this form for your comments please continue on a continuation sheet, stating the policynumbers to which your additional comments/evidence relate. Please complete each sheet with your name and theorganisation you represent.

DRAFT REVISED REGIONAL PLANNING GUIDANCE FOR THE SOUTH WEST – AUGUST 1999COMMENTS FORM

POLICY NUMBER:

Representation Name

Representation Number /

SEPARATE SHEET FOR EACH POLICY ON WHICHYOU WOULD LIKE TO COMMENT.HOWEVER IF YOUR COMMENTS RELATE TO THERELATIONSHIP BETWEEN TWO OR MOREPOLICIES PLEASE USE ONE COMMENTS SHEET TOCOVER THIS AND INCLUDE A REFERENCE TO THEPOLICY NUMBERS

Comments Number

planning conference

south west regional

SecretaryDavid Radford Ph.D

Room C101, County Hall, Taunton TA1 4DY

Telephone 01823 355017Fax 01823 351359

E Mail: [email protected]

The SouthWest Regional Planning Conference is constituted by theCounty Councils and Shire District Councils of

Cornwall, Devon, Dorset, Gloucestershire, Somerset and Wiltshire.

The Unitary Councils ofBath and North East Somerset, Bournemouth, Bristol, North Somerset,

Plymouth, Poole, South Gloucestershire, Swindon and Torbay.

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