A5 Chapter 2 - Local Plan Objectives

Introduction

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2.1

In defining the Local Plan objectives, the Council had regard to:

• the planning framework created by:

the Government's objectives of ensuring that development and growth are sustainable, and its Planning Policy Guidance notes (PPGs) which set out its policies on different aspects of planning; the Government's Regional Planning Guidance for East Anglia (RPG 6); and the Structure Plan; and

• the planning characteristics of North Norfolk.
  

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Sustainable Development

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2.2

Since the publication of the Government's Environment White Paper - 'This Common Inheritance' - in September 1990, environmental issues have become firmly established on the agenda for national debate and policy making. The increasing concern for the environment expressed by the UK Government - and other countries - led to the UN Conference on Environment and Development (the 'Earth Summit') held in Rio de Janeiro in 1992.

2.3

At Rio, leaders and representatives from over 150 states (including the UK Prime Minister) adopted a declaration committing themselves to the goal of achieving 'sustainable development'. A widely quoted definition of this concept is 'development that meets the needs of the present without compromising the ability of future generations to meet their own needs'. In essence, the concept of sustainable development builds upon the traditional concerns for our built heritage and areas of landscape and nature conservation importance to embrace the overall issue of global environmental change, and to address the threats posed to mankind by global warming, pollution and the depletion of natural resources. Consequently, sustainable development can be helpfully thought of at three levels: global sustainability, the husbanding of natural resources and the conservation of local environmental quality.

2.4

It should be noted that a good local environment is not just a contribution to national and, indeed, international goals. Good environmental quality is an important element in creating the right circumstances for local economies to restructure and expand. In itself it cannot make things happen, but it can give the comparative advantages which will make one location preferable to another.

2.5

In support of its declaration on sustainable development, the Earth Summit adopted 'Agenda 21', a comprehensive action plan for the pursuit of sustainable development into the next century. Agenda 21 recommended the establishment of a new Commission on Sustainable Development (CSD) under the aegis of the UN to monitor progress. It also called on governments to prepare national strategies for sustainable development, and to submit reports to the CSD on action to implement Agenda 21, on the problems faced and on any other relevant environment and development issues.

2.6

Local government is now developing its own policies and programme responses to many of the issues raised in Agenda 21 and the EC 'Fifth Environmental Action Programme' through its 'Local Agenda 21 Initiative'. As part of this Initiative, local government produced its own 'Declaration on Sustainable Development' in 1993 - to which the Council became a signatory in May 1994. The Council has facilitated the establishment of the North Norfolk Environment Forum. The Forum is a partnership of a wide variety of organisations and individuals committed to progressing Local Agenda 21 in North Norfolk.

2.7

In response to Agenda 21's call to national governments, the UK Government published 'Sustainable Development - The UK Strategy' in January 1994. The Strategy set out in that document is the Government's strategy, but it identifies the part that will need to be played by other bodies - local government, business, the voluntary sector and individual citizens - and seeks their active participation. The Strategy emphasises that a key objective of environmental and sustainable development policy is to prevent the environment being treated as a 'free good', which can be damaged with impunity and whose enhancement secures no economic return. It can do this by ensuring that environmental costs and benefits are properly and fully taken into account in public and private sector decisions.

2.8

In addressing the subject of economic development and sustainability, Chapter 24 of the Strategy focuses on the issue of 'development in town and country'. It states in paragraph 24.2:

'Land is a finite resource. Changes in its use, and new buildings, must respect environmental priorities. Development provides for people's needs, whether for food production or minerals extraction, for homes or workplaces, for transport or recreation. It is mainly initiated by the private sector to meet market demands. But it must respect the interests of the community as a whole in making the best use of the land resource. Government, at national and local level, seeks, therefore, to influence the way in which development takes place, and the way in which land is used. It can do this in different ways. The protection of the most sensitive areas demands the use of regulatory instruments, in particular the land use planning system.'

2.9

Furthermore, the Government acknowledges that the planning system is a key instrument in delivering land use and development compatible with the aims of sustainable development. Paragraph 35.4 states:

'The preparation of development plans, and the exercise of development control, enable decision-makers to weigh and reconcile priorities in the public interest. They can ensure that the development needed to help the economy grow, and to provide people with jobs and homes, takes place in a way that respects environmental capacity constraints and other conservation interests.'

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Sustainability and Development Plans

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2.10

The strengthening of the plan-led system (see paragraph 1.5), together with the requirement that local planning authorities should take account of the environment in its widest sense when preparing their development plans, has potentially enormous benefits for the environment. It means, for example, that the quantity of development should be only that envisaged in the Local Plan and take place in the intended locations, and that critical aspects of the environment can be protected from adverse development.

2.11

Since 1990 the Government has reviewed all planning guidance to reflect environmental priorities. Accordingly, the Government has made clear in PPG 12, and other PPGs, its intention to work towards ensuring that development and growth are sustainable, and that development plans have a key role to play in achieving this goal by ensuring that future generations are not denied the best of today's environment.

2.12

Of particular significance is the Government's PPG on 'Transport' (PPG 13), published in March 1994. This states in its Preface that:

'The key aim of the guidance is to ensure that local authorities carry out their land-use policies and transport programmes in ways which help to:

• reduce growth in the length and number of motorised journeys;
• encourage alternative means of travel which have less environmental impact; and hence
• reduce reliance on the private car.

In this way, local authorities will help meet the commitments in the Government's Sustainable Development Strategy to reduce the need to travel; influence the rate of traffic growth; and reduce the environmental impacts of transport overall. These policies will also make a significant contribution to the goal of improving urban quality and vitality, and to achieving a healthy rural economy and viable rural communities.'

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Regional Planning Guidance for East Anglia (RPG6)

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2.13

The current Regional Planning Guidance note for East Anglia (published in July 1991) states, in paragraph 2, that the Government's general objective for the region must be:

'to achieve environmentally sustainable growth, that is development that meets the needs of the present without compromising the ability of future generations to meet their own needs'.

2.14

The Government believes that care and respect for the environment is essential to the future economic prosperity of East Anglia. That prosperity must underpin the continuous effort to enhance the environment of the region.

2.15

Having regard to its objective of achieving sustainable growth, the Government sets out a 'development framework' for the region that provides for:

• some dispersal of investment in jobs from the most prosperous and congested areas in the west, and Cambridge in particular, to those areas to the east and the north where the improvement in trunk roads is expected to increase their attractiveness for economic development and growth; and
• the maximum use of the opportunities presented by reductions in remoteness of the less prosperous areas to enable those areas to attract investment in jobs.

2.16

The Government expects the region's planning authorities to reflect this development framework in the policies of new structure and local plans. These policies should make clear the locations where growth will be encouraged and the locations that will be subject to a degree of restraint.

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The Structure Plan

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2.17

The Structure Plan interprets the Regional Planning Guidance by adopting a County strategy that:

• outside areas selected for development, seeks to protect, conserve and enhance the character of the Norfolk landscape, its natural and wildlife features, settlements, urban amenities and historic buildings;
• encourages a high standard of design for all new development reflecting, where appropriate, local styles, character and materials;
• accommodates major commercial and housing development in the Norwich, Great Yarmouth, and King's Lynn areas, and in selected locations along the strategic routes of the A10, A11, A47 and A140 (south of Norwich);
• elsewhere in the County, provides for commercial and residential development in selected towns consistent with the role of the town as an employment centre, the environmental acceptability of additional development and infrastructure considerations. (In North Norfolk, the Structure Plan identifies such towns to be Cromer, Fakenham, Holt,
  North Walsham, Sheringham, Stalham and Wells-next-the-Sea); and
• encourages the retention and development of social and community facilities in rural areas, and the maintenance and improvement of accessibility to these services.

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Planning Characteristics of North Norfolk

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2.18

North Norfolk District (including that part of the Broads Local Plan area lying within its administrative boundary) is a large rural area of some 96,547 ha (373 square miles). The District is bounded by some 73 km (45 miles) of North Sea coastline between Holkham in the west and Horsey in the south-east.

2.19

The District had an estimated resident population of 98,399 in mid-1997 (source: Office for National Statistics [ONS]). The principal settlements of the District are its seven towns, namely:

Estimated resident
population in mid-1997

North Walsham 11,435
Cromer 7,920
Fakenham 7,295
Sheringham 6,915
Holt 3,780
Stalham 2,935
Wells-next-the-Sea 2,425

Source: Norfolk County Council

2.20

However, most of the District's population (57%) lives in the many villages, hamlets and scattered dwellings that are dispersed throughout rural North Norfolk.

2.21

North Norfolk's landscape exhibits considerable variety, from the open, elevated farmlands in the west to the intimate fenland on the edges of the Norfolk Broads. Most of the area's landscape is recognised as being of either County or national importance.

2.22

As well as being of generally high landscape quality, the North Norfolk countryside provides a habitat for a variety of flora and fauna. Indeed, significant parts of North Norfolk, particularly along its coast, are nationally, and in many instances internationally, important to nature conservation.

2.23

The varied landscape and geology of North Norfolk has led to the development of local architectural styles and traditions which are still prevalent today. The quality and distinctive character of the built environment derived from these architectural styles and traditions is reflected in North Norfolk's large number of Listed Building and Conservation Area designations.

2.24

It is this quality and distinctive character of North Norfolk's rural scene which is greatly appreciated by local residents and is a main attraction for visitors. Indeed, during the ten-year period to 1991, the population of North Norfolk grew by over 10%. With more deaths than births in North Norfolk, this population growth was due entirely to net inward migration.

2.25

In recent years, the popularity of North Norfolk as an area in which to live has served to force up house prices. Together with the reduction in social housing provision, this has given rise to a significant shortage of affordable housing for those local residents with modest incomes (see Part E, Annex 2: North Norfolk Housing Needs Survey).

2.26

Many people moving into North Norfolk are retired, and because of this and the national trend towards a more elderly population some 24% of the District's population is now aged over sixty-five (source: 1991 Census). Concern has been expressed about the need to ensure that provision of local health-care facilities and other social services keeps pace with the requirements of this growing sector of the population.

2.27

Of the population aged over-sixteen, 26% are retired and 54% are economically active (source: 1991 Census). Traditionally, agriculture has been a major employer in North Norfolk; however, since the Second World War, technical advances and changes in agricultural policy have led to large job losses in the industry. Now, the service and manufacturing sectors both employ more people and tourism, in particular, makes a significant contribution to the local economy. Nevertheless, it is still necessary to promote the diversification of the rural economy so as to provide a wide variety of employment opportunities for local people, including those formerly employed in agriculture and related sectors.

2.28

Car ownership levels are particularly high in North Norfolk, with 78% of households having access to at least one car (source: 1991 Census). This reflects the dispersed population pattern and a poor public transport infrastructure, and thereby the reliance upon the private car for most journeys.

2.29

North Norfolk has no motorway or trunk road links but does have principal road connections with King's Lynn to the west, Norwich to the south and Great Yarmouth to the south-east. A rail passenger service links the towns of Sheringham, Cromer and North Walsham, and several villages, with Norwich.

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The Issue of Housing Provision

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The 'Housing Boom'
2.30

The previously noted rise in the District's population since 1981 was assisted by a boom in house building which started in the mid-1980's and continued through to the early 1990's. Running parallel - and to a large extent sustaining this building boom - was a significant rise in the number of proposed dwellings granted planning permission.

The Structure Plan Housing Requirement
2.31

The Structure Plan requires land to be provided for about 69,000 new dwellings in the County as a whole during the period mid-1988 to mid-2006.

2.32

Of the 69,000 new dwellings to be provided for in the County, the Structure Plan apportions about 8,700 new dwellings to North Norfolk District. (NB: In the context of the Structure Plan housing provision figure, references to North Norfolk District include that part of the Broads Local Plan area lying within the North Norfolk District Council administrative area.) This figure was decided by the Secretary of State after having considered the District's:

'high proportion of environmentally sensitive land, particularly in the coastal areas, to be a limiting factor.'

2.33

In approving the Structure Plan the Secretary of State was keen to insist, through the use of the term 'about', that the housing provision figure for the County, and in turn the figure for North Norfolk District, should not represent an inflexible limit. However, any provision for housing in North Norfolk over the 8,700 new dwellings must be within reasonable bounds. This is essential if the environmental objectives of both the Structure Plan and the Local Plan are to be achieved.

2.34

An assessment of the availability of housing land in North Norfolk District as of June 1994 (detailed in Fig. 3) showed that the provision figure of 8,700 new dwellings had already been exceeded by some 10% with twelve years of the Structure Plan period remaining. Consequently, in order to ensure that the Local Plan would be in general conformity with the Structure Plan - as required by statute - one of its principal objectives had to be to keep any increase in the identified excess provision for housing to a minimum. This view was later confirmed by comments made by the County Council. On 23 June 1995 the County Council issued a 'Statement of General Conformity' with the Structure Plan in respect of the Deposit Draft version of the Local Plan, but added:

'However, the County Council is concerned about the extent to which housing development in North Norfolk District could exceed Structure Plan housing provision.'

2.35

The distribution of those houses in the District built between mid-1988 and mid-1994 and the proposed dwellings with extant planning permission as of mid-1994 is illustrated in Fig. 4. This clearly demonstrates that a significant proportion of completed and proposed housing development had related to areas outside North Norfolk's seven towns.

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Local Plan Objectives

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2.36

Consideration of the above issues led the Council to define the following objectives for governing the preparation of the Local Plan proposals set out in Part B:

(a) to protect North Norfolk's countryside for its own sake;

(b) to conserve and enhance North Norfolk's landscape and wildlife heritage, especially as recognised in the Area of Outstanding Natural Beauty, Historic Parks and Gardens, and Sites of Special Scientific Interest;

(c) to conserve and enhance North Norfolk's architectural heritage, especially as recognised in Conservation Areas and Listed Buildings;

(d) to conserve and enhance North Norfolk's archaeological heritage;

(e) to seek to reduce emissions of greenhouse gases that lead to global warming by:

• guiding new development to locations that reduce the need for car journeys and the distances driven, or which permit the choice of more energy-efficient public transport - without encouraging more or longer journeys - as well as cycling and walking, as alternatives to the private car;
• where appropriate, encouraging the development of renewable energy systems; and
• optimising energy efficiency through the design and layout of new development;

(f) to reduce conflicts between conservation and development by the reuse of existing urban land, and rural and urban buildings;

(g) to minimise the provision for housing in excess of the Structure Plan requirement for about 8,700 new dwellings in North Norfolk in the period 1988 to 2006;

(h) notwithstanding (g) above, to accommodate housing development that helps meet local needs for 'affordable housing';

(i) to encourage and maintain a healthy economy in North Norfolk;

(j) to make provision for adequate community, leisure and shopping facilities;

(k) to make provision for an effective transport system;

(l) to ensure the economic, efficient and environmentally-compatible location of new development;

(m) to ensure a high standard of design in all new development;

(n) to minimise the exposure of people and property to the risks of flooding, subsidence and accidents relating to hazardous installations and substances; and

(o) to protect the water environment from pollution and inland waters and groundwater sources from over-abstraction arising from development.

2.37

These objectives give rise to a Local Plan that is environmentally led. To a large extent development objectives are subordinate to the conservation and enhancement of the natural and built environment. In this way, the Local Plan creates a firm basis for ensuring that development and growth in North Norfolk are sustainable

2.38

The Local Plan's 'development strategy' (see Chapter 3: Development Strategy) translates these objectives into a policy framework that places emphasis on the need to conserve the essential features of North Norfolk's rural character.

2.39

The Environmental Appraisal in Part C sets out the implications of the Local Plan's proposals for North Norfolk's environment.

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