Local Plan 2016-2030

Front cover: St Michaels and All Angels church, Lyndhurst.
Below: Thatched cottage, Lyndhurst.

Index of policies

Chapter 4: Strategic policies & development principles

• SP1 Supporting sustainable development
• DP2 General development principles
• SP3 Major development in the National Park
• SP4 Spatial strategy

Chapter 5: Protecting & enhancing the natural environment

• SP5 Nature conservation sites of international importance
• SP6 The natural environment
• SP7 Landscape character
• DP8 Safeguarding and improving water resources
• SP9 Green infrastructure
• DP10 Open space
• SP11 Climate change
• DP12 Flood risk
• DP13 Coastal development
• SP14 Renewable energy
• SP15 Tranquillity

Chapter 6: Protecting & enhancing the historic & built environment

• SP16 The historic and built environment
• SP17 Local distinctiveness
• DP18 Design principles

Chapter 7: Vibrant communities

• SP19 New residential development in the National Park
• SP20 Specialist housing for older people (Use Class C2)
• SP21 The size of new dwellings
• SP22 Land at Whartons Lane, Ashurst
• SP23 Land at Ashurst Hospital
• SP24 Land at the Lyndhurst Park Hotel, Lyndhurst
• SP25 Land south of Church Lane, Sway
• SP26 Land adjacent to the former Fawley Power Station
• SP27 Affordable housing provision within the Defined Villages and on allocated sites
• SP28 Rural exceptions sites
• SP29 New Forest commoners’ dwellings
• SP30 New Forest estate workers’ dwellings
• DP31 Agricultural and forestry workers’ dwellings
• DP32 Removal of agricultural occupancy conditions
• SP33 Gypsies, Travellers and Travelling Showpeople
• DP34 Residential character of the Defined Villages
• DP35 Replacement dwellings
• DP36 Extensions to dwellings
• DP37 Outbuildings
• SP38 Infrastructure provision and developer contributions
• SP39 Local community facilities
• DP40 Change of use from retail in the Defined Villages
• DP41 Retail development outside the Defined Villages

Chapter 8: A sustainable local economy

• SP42 Business and employment development
• SP43 Existing employment sites
• DP44 Redevelopment of existing employment sites
• DP45 Extensions to non-residential buildings and uses
• SP46 Sustainable tourism development
• DP47 Extensions to holiday parks and camp sites
• SP48 The land-based economy
• DP49 Re-use of buildings outside the Defined Villages
• DP50 Agricultural and forestry buildings
• DP51 Recreational horse keeping
• DP52 Field shelters and stables
• DP53 Maneges

Chapter 9: Transport & access

• SP54 Transport infrastructure
• SP55 Access

Coastal path, Lepe

Chapter 1

Introduction

The New Forest National Park

1.1 The New Forest National Park was designated in 2005 and covers an area of 220 square miles within the counties of Hampshire and Wiltshire. The National Park operates within a detailed planning policy and legislative framework which is set out below. National parks have two statutory purposes that set out the main reasons for their designation and describe the overall focus for their management. The two National Park purposes as set out in primary legislation are:

• to conserve and enhance the natural beauty, wildlife and cultural heritage of the New Forest; and
• to promote opportunities for the understanding and enjoyment of the special qualities of the New Forest by the public.

1.2 National park authorities also have a duty under Section 62(1) of the Environment Act 1995 in taking forward the two National Park purposes to seek to foster the economic and social wellbeing of local communities within the National Park. The New Forest is a living working area, home to 2,500 local businesses and 35,000 residents. More detail is set out in Chapter 2 – the profile of the New Forest National Park. All relevant authorities are required to take the two purposes into account in any work that may affect the area and make every effort to reconcile any conflict between the two. If such efforts fail, then only as a measure of last resort should the first purpose take precedence.

1.3 These statutory purposes and related duty form the golden threads running through this Local Plan. The vision for the National Park and strategic objectives (Chapter 3) are drawn from these purposes and duty.

1.4 The planning system plays a key role in keeping our national parks special and ensuring they remain living, working landscapes. It is for this reason that the Government has made national park authorities the sole planning authorities for their respective areas. As part of its statutory planning role, the New Forest National Park Authority is required to prepare, monitor and review a Local Plan for the National Park. Once adopted, the Local Plan forms part of the statutory ‘development plan’ (alongside any Neighbourhood Plans and the separate Minerals and Waste Local Plan) for the New Forest and is the principal guide for planning decisions within the National Park. The Local Plan focuses on the area within the National Park boundary and it is the responsibilities of New Forest District Council, Wiltshire Council and Test Valley Borough Council to prepare the development plans for their respective areas outside the National Park.

Pony at Boltons Bench, Lyndhurst

Chapter 2

Profile of the New Forest National Park

2.1 The New Forest is a place of outstanding natural beauty. First created around 1079 as a royal hunting forest, it has survived for over 900 years to become a highly valued part of the national heritage. It is a unique mixture of ancient woodland, heather covered heath, wide lawns, boggy mires, rivers and streams, picturesque villages and unspoilt coastline. The National Park extends from the wooded slopes of Wiltshire in the north across the central New Forest plateau to the open coastline of the Solent in the south. It has been formed through the close relationship between the land and its people over many thousands of years. A wealth of archaeological and historic features have been preserved and much of the area is still managed by traditional agriculture and a system of commoning.

Left: Beaulieu

2.2 The local communities within the National Park are continually changing and adapting to modern life, but remarkably the Forest has largely escaped the effects brought about elsewhere by large scale development and intensive agriculture. The villages retain their local character and distinctiveness and the medieval landscape of the ‘Nova Foresta’ – William the Conqueror’s royal hunting forest – is still clearly apparent. Today the National Park attracts large numbers of visitors each year, who come to enjoy the peace and quiet, natural beauty and wildlife of one of the last ancient, unspoilt and open landscapes in England.

Area and population

2.3 The National Park covers 567 square kilometres (220 square miles). In 2015 the National Park had a population of 35,260 people¹ and with around 62 people per square kilometre it is the second most densely populated national park after the South Downs. The housing stock within the National Park amounts to 15,582 dwellings (based on 2011 Census data), of which an estimated 6% are second homes or holiday lets. The main settlements of Ashurst, Brockenhurst, Burley, Cadnam, Landford, Lyndhurst and Sway have between 1,000 and 3,500 residents. Average house prices in the New Forest National Park are significantly higher than surrounding areas, with an average property price around 15 times higher than average annual earnings. This means the New Forest has the highest average house price of any of the UK’s National Parks.

¹ New Forest National Park mid-2015 Population Estimates. Office National Statistics (ONS)

Landscape character

2.4 The New Forest Landscape Character Assessment (2015) describes 19 character areas in the National Park. A Landscape Action Plan for the National Park extends the landscape assessment work and provides guidance for individuals and organisations wanting to help enhance and conserve the special landscape character of the New Forest. At the heart of the New Forest is an extensive area of unenclosed woodland, grassland and heath which is of international nature conservation importance and is maintained largely by the grazing of commoners’ stock. Recent figures show that 12,044 animals are depastured on the Open Forest by 771 practising commoners². This historic form of land management faces threats from the high land and property costs.

² Verderers of the New Forest data 2016

Nature conservation

2.5 In total 56% of the New Forest National Park is designated of international value for nature conservation – the highest proportion of land in any planning authority area in the country. The New Forest Special Area of Conservation (SAC), Special Protection Area (SPA) and Ramsar sites cover more than 300 square kilometres in the core of the New Forest, including the most extensive area of heathland and valley mire in lowland Europe. Much of the coastline is similarly designated, principally for the populations of wintering wildfowl and waders and a framework is in place along the Solent (including the National Park) to ensure the impacts of new residential development on the coast are mitigated.

Cultural heritage

2.6 The National Park contains a wealth of designated and non-designated heritage assets. There are more than 340 Bronze Age barrows, a number of fine Iron Age hill forts, and numerous remnants of medieval and later buildings, enclosures and other earthworks associated with the royal forest. The main rivers supported a boat and shipbuilding industry and the coastal salt workings were among the most important in the country during the 18th Century. The National Park has 214 scheduled ancient monuments, 624 listed buildings and 17 designated conservation areas, plus three which straddle the National Park boundary with New Forest District. In addition to the nationally listed buildings, there are a significant number of non-designated heritage assets. There are also seven registered historic parks and gardens, four of which are grade II*. The cultural heritage of the National Park extends beyond its rich built environment and includes the long history of commoning in the New Forest. Commoning has helped shape the mosaic of landscapes, biodiversity and character of the National Park.

Access and recreation

2.7 The New Forest has 42 kilometres of coastline, 325 kilometres of Public Rights of Way (PROW), and over 30,000 hectares of accessible land (more than 50% of the area of the National Park). The major attractions, including Buckler’s Hard, Lepe Country Park, Calshot Activities Centre, the National Motor Museum in Beaulieu, Paulton’s Park, and the villages of Lyndhurst, Brockenhurst, Beaulieu and Burley, attract people throughout the year.

2.8 Research by Tourism South East (2005) indicated that there were 13.5 million visitor days spent per annum in the National Park. 15 million people live within a 90-minute drive of the National Park. Research commissioned by the Authority, New Forest District Council, Natural England and Forestry England³ estimated that housing development in the period 2006-2026 within 50 kilometres of the New Forest will result in an additional 1.05 million visits per annum by 2026 – an increase of 8% over the period.

³ Changing patterns of visitor numbers within the New Forest National Park, with particular reference to the New Forest SPA’, Footprint Ecology, 2008

New Forest ponies grazing

Communities and Settlement Pattern

2.9 There are 37 parish and town councils wholly or partly within the National Park. The Local Plan retains the current settlement hierarchy within the National Park with Ashurst, Brockenhurst, Lyndhurst and Sway identified as ‘Defined Villages’ due to their character, population and the range of facilities and services they provide.

2.10 Other smaller settlements with a basic range of local services within the National Park include Beaulieu, Burley, Cadnam, East Boldre, Landford, Netley Marsh and Woodgreen. The surrounding urban areas of Southampton, Bournemouth and Salisbury are easily reached by rail or road from the National Park and provide a wide range of housing, shops, leisure facilities and employment opportunities. The towns of Lymington, New Milton, Ringwood, Totton and the Waterside are important local employment centres and provide services to meet most of the needs of National Park residents.

Economy

2.11 While the National Park is predominantly rural in nature, the economy is diverse and is highly integrated with its surrounding areas. In 2015 there were 2,540 businesses in the National Park, reflecting a very broad range and types of businesses, with the largest sector, in terms of the numbers of individual businesses, being professional, scientific and technical services. Residents of the National Park are employed in a wide range of businesses and services, with the health sector; tourism; wholesale and retail; professional and technical services; and education all being particularly important employers. Only a small proportion of employment is now found in traditional rural land-based activities such as farming, forestry and commoning, but these activities remain vital in maintaining the land use management practices that help conserve the landscape character of the National Park. Unemployment within the National Park has remained at lower levels than in the South East and the UK as a whole over the last decade and currently stands at 0.5%. Looking forward, a decline in the working age population is forecast.

2.12 In delivering the two statutory National Park purposes, the Authority has an important duty to foster the socio-economic wellbeing of the communities within the National Park. The English National Parks and the Broads UK Government Vision and Circular (2010) confirms that national park authorities should continue to focus their expenditure on the delivery of their statutory purposes, while seeking to maximise the socio-economic benefits available from such activity. Experience to date has shown that by harnessing the economy to environmental ends, tangible economic benefits can be delivered through the statutory purposes whilst at the same time achieving those purposes⁴.

⁴ Paragraph 66, English National Parks and the Broads UK Government Vision and Circular, 2010

Transport

2.13 The National Park is crossed by several major routes which carry high volumes of traffic. The A31, linking South West England with Southampton and the wider South East, is the most heavily used road in the National Park, carrying up to 77,000 vehicles daily and effectively cuts the area in two. The National Park is well-served for long-distance rail travel, with connections at Ashurst, Beaulieu Road, Brockenhurst and Sway. Lymington – located just outside the National Park - also has two train stations which link with the Isle of Wight ferry. There are a number of regular scheduled public bus services through the National Park, including a regular service between Southampton and Lymington, via Lyndhurst and Brockenhurst. However, many of the rural settlements are less well-served and here public transport is not a practical option for the majority of residents.

2.14 During the summer months the New Forest Tour bus operates three interlinked routes across the National Park and is aimed at both visitors and residents.

2.15 Southampton and Bournemouth Airports are located within close proximity to the National Park. Plans for the expansion of both airports are set out in the respective Airport Masterplans, with combined annual aircraft movements predicted to increase from circa 80,000 in 2016 to 146,000 in 2030. The scale of the impact of this increase of passenger aircraft flights will depend on future flight paths and the extent of improvements in aircraft engine technology.

2.16 Southampton is a major international gateway port with significant global and economic importance. Land at Dibden Bay, adjoining the National Park, has been identified as the only area of land physically capable of accommodating significant expansion of the port in the draft Port of Southampton Masterplan 2016-2035. Any future development proposals for Dibden Bay must have regard to the Government’s National Policy Statement on Ports; potential impacts on the adjacent New Forest National Park (as required by Section 62(2) of the Environment Act 1995); national planning policy on major development in national parks; and the legal requirements of the Habitats Regulations.

Local business, Bramshaw

Chapter 3

Vision and objectives

3.1 The Local Plan aims to deliver sustainable development within the context of a nationally protected landscape, in conformity with the statutory Park purposes; the objectives of national planning policy; and the ambitions in the New Forest National Park Partnership Plan 2015-2020. The vision and objectives for the Local Plan set out how the New Forest will look at the end of the Plan period in 2036.

3.2 The vision has been informed by the ‘Special Qualities’ of the National Park. The special qualities of the New Forest are those qualities that define it, make it unique and immediately recognisable and, when taken together, distinguish it from all other parts of the country. These qualities are fundamental to the two purposes of the National Park and are the underlying reason for its designation. The special qualities of the New Forest were identified through public consultation and are set out in Annex 1 of this Local Plan.

Left: cottages, Emery Down

Key challenges for the Local Plan

3.3 The Local Plan has a key role in addressing the planning challenges likely to affect the New Forest National Park over the next 20 years, including:

• conserving and enhancing the nationally protected landscape of the New Forest – the outstanding natural beauty of the New Forest’s landscape is the primary reason for its designation as a National Park and has the highest status of protection in the NPPF
• ensuring the impacts of new development on the nationally and internationally protected habitats of the New Forest are avoided or fully mitigated – over half of the National Park is designated as being of international importance for nature conservation and new development must not impact on the integrity of the New Forest and its coastal habitats
• developing a positive strategy for the conservation and enhancement of local distinctiveness and heritage assets within the New Forest’s built environment – the New Forest has a rich built and cultural heritage and its conservation is key to the delivery of the first statutory National Park purpose
• delivering new housing to help address local needs while at the same time ensuring development does not compromise the delivery of the two statutory National Park purposes – national planning policy recognises that national park authorities have an important role to play in delivering housing for local people within the context of a nationally protected landscape
• sustaining a diverse local economy – in delivering the two statutory National Park purposes, the Authority has an important duty to foster the socio-economic wellbeing of the 35,000 people living within the National Park
• supporting sustainable tourism and recreation within the National Park – the New Forest attracts millions of visitors each year and the Authority has a statutory purpose to promote the understanding and enjoyment of the National Park’s special qualities.

Strategic objectives

3.4 The vision and the key challenges facing the New Forest over the next twenty years have been translated into nine strategic objectives, which are consistent with those in the New Forest National Park Partnership Plan 2015 – 2020 and reflect the Authority’s overarching remit in delivering the two statutory purposes and the related socio-economic duty, namely:

1. to conserve and enhance the natural beauty, wildlife and cultural heritage of the New Forest; and
2. to promote opportunities for the understanding and enjoyment of the special qualities of the New Forest by the public.

The Authority also has a duty under Section 62(1) of the Environment Act 1995 in taking forward the two Park purposes to seek to foster the economic and social well-being of local communities within the National Park.

3.5 The policies within the Local Plan will contribute towards meeting the vision and strategic objectives and will also help deliver a range of priority actions identified in the New Forest National Park Partnership Plan.

Forest cottages

Local Plan policies

3.6 Section 38(6) of the Planning & Compulsory Purchase Act 2004 sets out the role of the ‘development plan’ in the planning system. This Local Plan forms a key part of the statutory development plan for the New Forest National Park. The policies in the Local Plan include both strategic policies (prefixed with ‘SP’) and more detailed development management policies (prefixed with ‘DP’). This Local Plan policy numbering enables local communities to understand which are the strategic planning policies that they should be in general conformity with in preparing Neighbourhood Development Plans. It should also be emphasised that all of the policies contained within the Local Plan have equal ‘development plan’ status within the British Plan-led planning system.

Chapter 4

Strategic Policies and Development Principles

Nomansland

Right: Lyndhurst high street

Supporting sustainable development

4.1 The NPPF states that Local Plans should contribute to the achievement of sustainable development. It sets out a presumption in favour of sustainable development, which should run through both plan making and decision taking. In addition, the National Parks Circular (2010) states that the national park authorities’ primary responsibility is to deliver their statutory purposes and in doing so, they should ensure they are exemplars in achieving sustainable development.

4.2 There are three dimensions to sustainability:

• a social role – supporting strong, vibrant and healthy communities, through the supply of housing, accessible local services and by creating a high-quality built and natural environment
• an environmental role – protection and enhancement of the natural, built and historic environment and adapting to climate change
• an economic role – contributing to a strong, responsive and competitive economy, by supporting local businesses and land managers.

4.3 The National Park’s statutory purposes, together with the duty, broadly reflect the three dimensions of sustainable development in the NPPF. Policy SP1 takes a positive approach to sustainable development in accordance with the NPPF, recognising the protection afforded to national parks in national planning policy and having full regard to the statutory National Park purposes and related duty.

4.4 There is also increasing recognition of the wider sustainability benefits that national parks offer to society. These benefits are commonly referred to as ‘ecosystem services’ and cover the services provided by the landscape and habitats of national parks. These include improving air and water quality; controlling water flow downstream; regulating pollution; and the benefits of national parks to the public’s well-being through their enjoyment of the special qualities. The sustainable development policy reflects the contribution these ecosystem services make to society.

⁵ The relationship between the two Park purposes is commonly referred to as the Sandford Principle. Every effort should be made to reconcile any conflict between the two purposes, but if such efforts fail, the first purpose takes precedence.

Village stores, Woodgreen

4.5 This approach is consistent with the NPPF which sets out a presumption in favour of sustainable development and indicates where development should be restricted. National policy is clear that objectively assessed needs should be met unless any adverse impacts of doing so would significantly and demonstrably outweigh the benefits, when assessed against the policies in the Framework taken as a whole. Specific policies indicating where development should be restricted include those relating to sites protected under the Habitats Directive, Sites of Special Scientific Interest (SSSI); and land within a national park.

4.6 The Authority will encourage and support the use of natural sustainable materials in the design of new development. To support the delivery of sustainable development in the New Forest, local sources of such materials should be sought wherever possible. The use of locally sourced materials also benefits the local economy and supports land managers in the National Park.

4.7 In line with the requirements of national policy, policy SP1 sets out the Authority’s overarching policy approach to the delivery of sustainable development within the context of a nationally protected landscape. This strategic policy is supported by a more detailed policy on general development principles that the Authority expects all development within the National Park to be considered against.

Major development in the New Forest National Park

4.8 National planning policy dating back many decades has contained a clear presumption against major new development in national parks because of the harm it would cause to the long-term national interest in conserving these landscapes. Major development is therefore only permitted within protected landscapes in exceptional circumstances and where it can be demonstrated that it is in the public interest, as outlined in the NPPF.

4.9 The NPPG states that it will be a matter for the relevant decision taker as to whether a proposed development within the National Park should be treated as major development, taking into account the proposal in question and the local context. For the purposes of the policy, the phrase ‘major development’ will not be restricted to the definition of major development in the Town & Country Planning (Development Management Procedure) (England) Order 2015 or to proposals that raise issues of national significance.

4.10 Major development is development of more than local significance (i.e. it would exceed the local-scale development needed to address the socio-economic needs of the New Forest’s 35,000 residents) which would have a long-term impact on the landscape, wildlife or cultural heritage of the National Park because of its scale and form. This can include major residential and commercial development, significant infrastructure projects and power generation. Major development can have a significant impact on the special qualities of the New Forest and the reasons why the National Park was designated – relating to its outstanding natural beauty; the variety of landscapes and habitats; and the opportunities provided for the public to enjoy the Forest.

Dibden Bay

4.11 Land at Dibden Bay, adjoining the National Park, is identified in the draft Port of Southampton Masterplan 2016-2035 as the only area of land physically capable of accommodating significant expansion of the port. The site is a designated SSSI and the foreshore is designated as a Special Protection Area (SPA) and Ramsar site.

4.12 Prior to the designation of the New Forest National Park in 2005, the Secretary of State refused a previous proposal for major port development at Dibden Bay, primarily on the basis that the environmental harm outweighed the predicted economic benefits.

4.13 Any future application for port use at Dibden Bay would likely be of a scale that would qualify as a Nationally Significant Infrastructure Project (NSIP) under the 2008 Planning Act. Consequently, the Authority would be invited to submit a Local Impact Report setting out the potential impacts of the development on the adjacent National Park, but would be a consultee rather than a decision maker. It would be the Planning Inspectorate who would consider and make a recommendation to the Secretary of State on whether a Development Consent Order should be issued. The Secretary of State would make the final decision.

4.14 As a strategic site located immediately adjacent to the National Park, it is appropriate for the Authority’s Local Plan to set out the range of factors to be considered should the site come forward for development. These include:

• any future proposals for Dibden Bay that include major development within the New Forest National Park would need to satisfy the national planning policy tests for major development in the National Park set out in the NPPF and the tests in Policy SP3 on major development
• section 62(2) of the Environment Act 1995 confirms that development proposals that could affect the New Forest National Park, including those located outside the Park that could impact on it, must have regard to the two statutory National Park purposes - namely the conservation and enhancement of the Forest’s landscape, wildlife and scenic beauty; and the understanding and enjoyment of the National Park’s special qualities
• meeting the legal requirements of the Conservation of Habitats and Species Regulations 2010 in terms of the likely effects on the internationally designated Natura 2000 sites in the area, including the Solent and Southampton Water Ramsar Site and SPA; the Solent Maritime SAC; and the New Forest SPA and SAC.

Spatial Strategy

4.15 Planning in the New Forest National Park is underpinned by the delivery of the two statutory Park purposes and the related socio-economic duty. These purposes and duty apply across the whole of the designated National Park. The emphasis of new development will be on small-scale proposals that reflect the area’s character and address the needs of local communities in the National Park, rather than catering for external demand.

4.16 The New Forest is a rural area with small, dispersed settlements that generally have a limited range of facilities. None of the villages within the National Park have populations greater than 3,500 people and higher order services are normally provided in the larger towns and urban areas that fringe the National Park. The Local Plan sets out where new development will take place in line with the principles of sustainable development and the statutory framework of the National Park purposes. National planning policy confirms that planning should actively manage patterns of growth to make the fullest possible use of public transport, walking and cycling and focus significant development in locations which are or can be made sustainable. The ‘New Forest National Park Partnership Plan 2015-2020’ includes a priority action to improve the connectivity of routes between settlements in the New Forest. Sustainable development in rural areas should be promoted by focusing development where it will enhance or maintain the vitality of rural communities and sustain the settlements over the long term.

4.17 The Spatial Strategy sets out the basic settlement hierarchy, with the villages of Ashurst, Brockenhurst, Lyndhurst and Sway identified as ‘Defined Villages’. Together these villages provide homes for around one third of all National Park residents and appropriate employment and housing development will be supported within the Defined Villages. In line with national policy, future development in the National Park is likely to be modest, but it will be important to ensure that the main villages continue to prosper. These Defined Villages are considered to be the most sustainable settlements in the National Park as they have the broadest range of community facilities, local employment opportunities, transport links and a good range of other services for residents and visitors. The strategic approach for the Defined Villages seeks to:

• sustain and enhance the local services in the villages
• support the important role of the villages in the local tourism economy
• support the provision of appropriate housing, employment, retail and community facilities
• conserve the distinctive character and heritage of the villages.

4.18 The remaining settlements in the National Park are smaller and have a more limited range of services, facilities and transport accessibility. The relatively small and scattered nature of these rural settlements means that the level of development will be more limited, but it is important that local communities across the National Park continue to thrive. The Spatial Strategy therefore supports the provision of affordable housing for local people in and adjoining these smaller settlements through the rural exception policy to help to address local housing needs. It also enables the delivery of housing specifically for New Forest commoners, Estate workers and dwellings tied to the rural economy, for example agricultural and forestry workers’ housing. In addition, the Local Plan supports the provision of employment opportunities and essential local community facilities to support the sustainability of local communities.

4.19 Provision is also made in the Local Plan for development in the National Park to support the redevelopment of the brownfield former Fawley Power Station site. This allocation has been informed by consideration of the Government’s major development test.

4.20 The Spatial Strategy also reflects the proximity of the National Park to surrounding urban areas which provide a range of services.

4.21 The Policies Map shows the boundaries of the Defined Villages which have been reviewed as part of the Local Plan process. It is essential that any new development within the Defined Villages safeguards their character. Any proposals for development within the Defined Villages will be considered against all of the planning policies in this Plan, including those relating to local distinctiveness and design quality.

Entrance sign to Ashurst

Chapter 5

Protecting and enhancing the natural environment

5.1 This chapter sets out the strategic objectives for protecting and enhancing the natural environment of the National Park. The natural environment of the New Forest supports a variety of habitats and wildlife and also provides multiple economic and social benefits. Protection of the natural environment can help tackle a wide range of challenges, including supporting biodiversity, improving public health, creating sustainable business, making better use of renewable resources and addressing climate change.

5.2 The New Forest is one of the last remaining extensive areas of unspoilt natural beauty with rare habitats and wildlife in lowland Britain. The heart of the Forest, with its mosaic of ancient pasture woodland, lowland heath, lawns and wetlands and river systems, are intimately connected to the small-holdings and farms of the surrounding countryside. The National Park extends from the wooded slopes of Wiltshire in the north across the central New Forest plateau to the open coastline of the Solent in the south. It has been formed through the close relationship between the land and its people over hundreds of years and much of the area is still managed by traditional agriculture and the historic system of commoning.

5.3 The New Forest National Park is a nationally protected landscape, which has the highest status of planning protection in the NPPF in relation to landscape and scenic beauty. National planning policy also confirms that great weight in decisions must be given to the conservation of wildlife and cultural heritage.

5.4 In addition, over half of the National Park is further protected by international nature conservation designations. The New Forest is home to a wide variety of important and often rare wildlife, habitats and species. The importance of these means that large areas of land in the National Park and its coastline have been designated as Special Areas of Conservation (SAC), Special Protection Areas (SPA), and Ramsar sites and they benefit from a high level of protection under international nature conservation directives. The NPPF also confirms that the presumption in favour of sustainable development does not apply where development could affect the integrity of these areas.

5.5 The New Forest National Park has a higher proportion of its land covered by international nature conservation designations than any other planning area in England, including all other English national parks. The National Park is also under intense pressure from development.

5.6 The New Forest’s natural environment is further protected by extensive areas designated as Sites of Special Scientific Interest (SSSI), reflecting their national nature conservation importance. National policies establish duties to both conserve and enhance these sites and avoid development having an adverse effect on them. These sites are complemented and supported by a landscape rich in regionally important habitats and species of principle importance for biodiversity, exemplified by the designation of around 400 local wildlife sites.

5.7 The sense of naturalness, peace and quiet and feeling of remoteness and tranquillity found within the National Park contrasts dramatically with the intensively developed residential and industrial environments close to its boundaries. Indeed, the Parliamentary Order⁶ which established the New Forest as a National Park recognised that over the years the Forest has come under increasing development pressure from surrounding urban areas and that there has also been pressure from heavy and growing recreational use. It highlighted that these national, regional and local pressures are threatening its future and the very qualities that make it special⁷. In the face of these pressures it is essential that the reasons for the designation of the New Forest as a nationally important landscape are retained and enhanced, whilst at the same time facilitating the enjoyment of the Park’s special qualities.

⁶ Explanatory Memorandum to the New Forest National Park Authority (establishment) Order 2005
⁷ The special qualities of the National Park are highlighted in the New Forest National Park Management Plan and are set out in Annex 1 to the Local Plan

Left: coast at Keyhaven

5.8 The condition of the National Park’s SSSI area has been gradually improving over the last decade, but currently about 43% is in unfavourable but recovering condition⁸ and only 22% of monitored watercourses are achieving good ecological status⁹. Trends in a variety of key species, such as the curlew, appear to show declines which reflect a variety of pressures and the densities of several protected birds, including nightjar, woodlark and Dartford warbler are relatively low compared with other lowland heathland sites. The Government White Paper, ‘The Natural Choice: Securing the Value of Nature (2011)’ recognises the need for decisions to reverse such declines and to undertake action to deliver ecological networks that are coherent and resilient. This requires activity to retain existing components of the ecological network, improve their quality and scale, provide buffers in the surrounding landscape, and stepping stones and corridors to ensure habitats are joined up. In doing so the ecosystem services that the natural environment provides will be enhanced and there will be concurrent benefits for society.

5.9 Measures to help the area adapt to and mitigate the impacts of climate change are also set out below, and include supporting small scale renewable energy generation, consideration of flood risks, and the provision of open space.

⁸ State of the Park Report 2016 and Hampshire Biodiversity Information Centre Annual Biodiversity Monitoring Reports
⁹ Protected Landscapes Monitoring Framework 2017, Environment Agency

Protection of internationally important nature conservation sites

5.10 Internationally designated nature conservation sites in the National Park are Special Protection Areas (SPA), Special Areas of Conservation (SAC) and Ramsar Sites (Wetlands of International Importance) and are shown on the Policies Map. These designated areas are large and incorporate more than 30,000 hectares. These cover much of the core of the Forest and the coastal areas, and in most areas are also protected by the national designation as Sites of Special Scientific Interest (SSSI). In accordance with the Conservation of Habitats and Species Regulations 2017 (as amended), these internationally designated sites enjoy the highest level of statutory and government policy protection. Specific and stringent tests within the Habitats Regulations are set to ensure that no development will harm the integrity of these areas, other than in exceptional circumstances.

5.11 A Habitats Regulations Assessment (HRA) has been completed to test whether developments in this Local Plan would affect the integrity of the National Park’s internationally designated sites. It assessed a range of potential impacts on the designated sites including the recreational impacts from new households and visitor accommodation, and ‘urban edge’ impacts such as cat predation and the effects on habitats adjacent to developments. Policy SP5 reflects the conclusions of this HRA and ensures that development complies with the Habitats Regulations. The main conclusions and resulting requirements of the HRA are:

• prior to mitigation, the HRA cannot rule out the recreational impacts of any new residential and visitor accommodation throughout the National Park having a likely significant in combination effect on the New Forest SPA and SAC sites. The HRA also supports the evidence from the Solent Recreation Mitigation Partnership (SRMP) that recreational impacts cannot be ruled out for any residential development within 5.6 kilometres of the Solent SPA, SAC and Ramsar sites that cover the coast. Consequently, mitigation is required for all proposals of these types of development for the recreational impacts on both the New Forest and the Solent coastal designated sites
• due to the expected small scale and wide distribution of individual windfall developments it is judged that these are not likely to give rise to significant urban edge effects on the New Forest SAC or SPA.

5.12 For development to comply with the Habitats Regulations, the Authority will need to be certain that there will be no adverse impacts on the integrity of any of the designated sites. To achieve this, the Authority will need to be satisfied that sufficient and effective measures to avoid or fully mitigate any likely significant adverse effects from a proposed development (either individually or in combination with other plans and projects) will be put in place.

Heathland, Deadman Hill

5.13 The Authority has devised a Mitigation Scheme which will fully mitigate the lifetime recreational impacts of certain development on the New Forest designated sites. Therefore, to ensure their proposals comply with the Habitats Regulations, developers can make a financial contribution to the Authority’s Habitat Mitigation Scheme in relation to the land based designated sites, and to the Solent Recreation Mitigation Partnership’s (SRMP) Scheme for development within 5.6 kilometres of the Solent based coastal designated sites. These contributions from developments will be used by the Authority and the SRMP (also known as Bird Aware, Solent) to implement a range of measures that will mitigate the recreational impacts of new development on the designated sites, and help protect and maintain these sites. The HRA of the Local Plan concludes that the National Park Authority’s Habitat Mitigation Scheme and the SRMP’s Scheme will adequately mitigate potential recreation pressures from development within the New Forest National Park.

5.14 However, due to the scale, type, or proximity of the proposed development in relation to the designated site, avoidance or mitigation and the use of financial contributions may not be possible in all cases. For example, if a larger number of windfall dwellings were to come forward on a single site, or a closely related cluster of sites, within 400 metres of the New Forest SAC and SPA, then the Authority will require the applicant to supply sufficient evidence for an appropriate assessment¹⁰ of the urban edge effects, as outlined in the HRA of the Local Plan.

5.15 Details of the mitigation measures can be found in the Authority’s Habitat Mitigation Scheme and those for the Solent Recreation Mitigation Partnership Scheme can be found in the Solent Recreation Mitigation Strategy Explanatory Note¹¹. The Authority’s Scheme is based on the evidence in the HRA that all residential and visitor accommodation throughout the National Park is likely to impact on the integrity of the designated sites if appropriate mitigation is not provided. The SRMP’s Strategy is based on evidence that residential development within 5.6 kilometres of the coast will require mitigation.

5.16 Applicants are not precluded from assessing the potential impact of their proposals on the designated sites and devising their own appropriate mitigation measures. When considering these measures, the evidence presented will need to allow the Authority to be certain that there will be no likely significant adverse effects from the proposed development throughout its lifetime on the designated sites. Applicants will need to provide sufficiently detailed information about the potential impacts of their proposed development on the designated features, species and habitats of all the internationally protected sites and affect their proposed mitigation measures to demonstrate conclusively to the Authority that it will comply with the Habitat Regulations and there will be no likely significant adverse effects on the designated sites. This will need to take into consideration the conclusions of the Habitats Regulations Assessment for the Local Plan and the proposal’s potential impacts in combination with all other planned development in the National Park and its surrounding areas. Under a precautionary principle, if the applicant does not demonstrate with certainty that the development, including any proposed mitigation, will not impact the integrity of the site, permission will be refused.

5.17 Developments covered by prior approval and permitted development, contained in the Town and Country Planning (General Permitted Development) (England) Order, are granted permission by central government and therefore a planning application is not required. These developments, however, must still comply with the Habitats Regulations and therefore must adhere to the principles set out in Policy SP5. Where mitigation and/or avoidance measures are required, these can either be provided by the applicant to the satisfaction of the Authority, or where appropriate, a financial contribution can be made to the schemes set out above.

5.18 Terrestrial waders and Brent goose sites located on land outside the boundaries of the Solent SPAs can support these birds, and details are outlined in the Solent Waders and Brent Goose strategy.

¹⁰ The applicant will need to provide sufficient evidence for an appropriate assessment (that is informed by the HRA of the Local Plan) that will allow the Authority to be certain that there will be no likely significant adverse urban edge effects from the proposed development throughout its lifetime on the integrity of the designated sites, and, therefore, will comply with the Habitats Regulations. Please contact the Authority to discuss the requirements.
¹¹ www.newforestnpa.gov.uk/planning/development-standards/

Protecting, maintaining and enhancing nationally and locally important sites and features of the natural environment

5.19 There are many nationally, regionally and locally important sites and features that characterise the New Forest and these should be protected, conserved and enhanced, together with the coherence of its ecological network. This includes development proposals that would affect Sites of Special Scientific Interest (SSSI), Sites of Importance for Nature Conservation (SINCs) in Hampshire, County Wildlife Sites in Wiltshire, Local Nature Reserves (LNRs), irreplaceable habitats such as ancient woodlands, species and habitats of principal importance and trees and hedgerows.

¹² ‘Nature in the New Forest: Action for Biodiversity’ – New Forest National Park Authority
¹³ In particular, for greenfield development, replacement dwellings, extensions affecting roof structures and those affecting identified biodiversity interests. The Authority’s biodiversity checklist provides guidance.

5.20 National planning policies also support the protection and enhancement of geological conservation and recognise the wider benefits of ecosystem services. They require that impacts on biodiversity should be minimised, net gains in biodiversity provided where possible, and coherent ecological networks should be established that are more resilient to current and future pressures. Development applications need to be accompanied by an appropriate level of biodiversity information to allow an assessment of impacts, and the efficacy of any proposed mitigation or compensation. It is recommended that applicants seek pre-application advice to establish what information is required.

5.21 Trees and hedges provide very important habitats for wildlife. Trees help to improve air quality, reduce the effect of heavy rain, provide shelter and are integral to the character of the New Forest. Trees also play a significant role in the sustainability of new developments and by retaining existing trees and carefully planting new trees in a well-designed layout, new developments can be successfully integrated as outlined in Policy DP2. The Authority’s Tree Guidance Leaflet¹⁴ provides advice on how this can be achieved.

5.22 Older mature trees, especially oak and beech, are a particular characteristic of the New Forest. They are a feature not only of the ancient woodlands of the Open Forest, but of the villages and other settlements that have developed over time as an integral part of the Forest landscape. The New Forest is recognised to be one of the most important sites in North-West Europe for ancient and veteran trees. The Authority will seek to conserve and protect mature trees in order to maintain the local landscape character, cultural history and wildlife value of the area.

5.23 All trees, regardless of their protected status, are deemed a material consideration in planning applications. The Authority can make Tree Preservation Orders (TPOs) when considering planning applications to either prevent the removal of significant trees, or to protect significant trees from damage.

5.24 Hedgerows provide corridors for wildlife and link together the patchwork of the many habitats that make up the countryside. They also protect soil and water, add beauty and character to the landscape, and provide a significant contribution to the local heritage and distinctiveness of the area. Hedgerows are of particular importance for the conservation of farmland and woodland birds and for mammals, but over recent years field and domestic boundaries in the New Forest have been changing. Creating links between habitats through a better network of hedgerows is an identified action of the Partnership Plan and the landscape and biodiversity value of hedges is outlined in the Authority’s Design Guide¹⁵, which, together with the New Forest Land Advice Hedgerow guide¹⁶ provide guidance on how to establish a hedge and what native species can be used. Opportunities to include new hedges in developments will be encouraged through Policy DP2. Hedgerows are protected by the Hedgerows Regulations¹⁷ and many require permission from the Authority if removal is being considered.

¹⁴ www.newforestnpa.gov.uk/planning/submit-tree-work-application/
¹⁵ www.newforestnpa.gov.uk/planning/design-guidance/
¹⁶ www.newforestnpa.gov.uk/conservation/landscape-partnership/projects/better-boundaries/
¹⁷ www.newforestnpa.gov.uk/planning/hedgerows/

Conserving and enhancing the landscape

5.25 The diverse landscape of the New Forest, including the ancient woodlands, mature trees and hedgerows, heathlands, unspoilt coastline, farmed landscapes and rural villages, are special qualities integral to the designation as a national park.

5.26 National planning policies are particularly important in the New Forest as they provide the highest status of protection to landscape and scenic beauty in national parks. The conservation of wildlife and cultural heritage are also given great weight when assessing planning applications. The whole of the New Forest National Park is designated as a nationally protected landscape and therefore all applicants will need to take account of this level of protection in any development proposal. The Authority will seek to ensure that the high quality, diverse, historic and distinct landscapes and seascapes of the New Forest National Park will be conserved and enhanced.

5.27 The National Parks Circular (2010) also recognises the significance of the living, working landscapes that have been created through history by local land management practices and, in the case of the New Forest, the ancient practice of commoning. Seeking opportunities to enhance large-scale landscapes and habitats that are characteristic of the New Forest is also one of the priority actions of the Partnership Plan (2015). Proposals include the restoration of land to lowland heathland and measures to improve the condition of Sites of Special Scientific Interest, such as wetland restoration. Restoration of landscapes where features have been lost or degraded will be supported by the Authority, where it contributes positively to landscape character.

5.28 Consideration of the landscape character of local areas throughout the National Park should inform planning applications. The New Forest National Park Landscape Character Assessment 2015 (LCA) provides an evaluation of the different areas and types of landscape character in the New Forest. It divides the New Forest landscape into a number of character areas which help to identify key attributes, differing pressures, trends and opportunities. It identifies those landscape features, such as variations in the natural environment, condition of the landscape, settlement pattern and land uses, that give a locality its ‘sense of place’ and pinpoints what makes it different from neighbouring areas. It also acts as a landscape framework to inform decisions regarding the location and design of development and the capacity of the landscape to absorb potential changes.

5.29 The New Forest’s unique landscape character is, however, under pressure from a number of trends and factors that are likely to affect the National Park over time. The Landscape Action Plan (LAP) details those issues and pressures and sets out objectives, management guidelines and actions for the next 20 years. It offers practical advice and guidance, aimed at both organisations and individuals, to help maintain the special character of the New Forest.

5.30 An important aspect of national policy is its recognition that planning should recognise the ‘intrinsic’ character and beauty of the countryside. Landscape character cannot be solely determined by what is visible from a publicly accessible location. It is the combination of all the various elements and features of the landscape described in the LCA that make the National Park’s landscape character special.

5.31 The following policy seeks to ensure that development avoids detrimental impacts on the intrinsic landscape character and its key features.

5.32 Proposals which are considered to be significant in terms of scale and/or impact should provide a professional landscape and visual impact assessment (LVIA) as part of the application submission.

Water resources

5.33 The Environment Agency (EA) monitor the water quality of rivers in the National Park, based on both ecological and chemical status. Of the total river length of 482 km, about 280 km are covered by Water Framework Directive monitoring stations. About one quarter of the rivers in the New Forest that are monitored are of good ecological status, but the majority are moderate, while a significant proportion are poor. There has been a decline in the length of rivers with ‘poor’ and ‘good’ ecological status between 2011 and 2014, and a rise in those in ‘moderate’ condition. The Environment Agency objective is to achieve high or good ecological status for 70% of the monitored rivers in the New Forest by 2027.

5.34 The New Forest Catchment Partnership was established in 2012. The Authority will continue to facilitate its work and seek to deliver collaborative projects that are in accordance with the partnerships aims. The Partnership complements the work of the Environment Agency by undertaking more widespread monitoring of waterbodies in the National Park, including standing water bodies which are often of national and international importance. This work highlights the need to address diffuse pollution which is preventing waterbodies across the National Park reaching their potential and delivering ecosystem services such as biodiversity quality. The Partnership’s Water Environment Improvement Plan identifies priorities for strategic action and localised project delivery.

5.35 The issues and pressures affecting the long-term quality of the region’s water resources include abstraction, pesticides, phosphates, nitrates, physical modification and transport pollution¹⁸. Opportunities will be sought to support diffuse pollution reductions and appropriate proposals to mitigate impacts and provide clean water environments (such as new pond complexes) will be supported. The Authority will also support the Environment Agency, Natural England, water companies and surrounding authorities in the development of any strategic solution to reducing nutrient inputs to the Solent and River Avon internationally designated nature conservation sites from wastewater discharges. Developments that could affect these sites will be considered under Policy SP5.

5.36 The EA have also defined Source Protection Zones (SPZs)¹⁹ for groundwater sources used for public drinking water supply. These zones show the risk of contamination from any activities that might cause pollution in the area, and the closer the activity to the source, the greater the risk of pollution.

5.37 National planning policy emphasises that sustainable drainage systems (SuDS) should be provided in new developments wherever appropriate. This particularly applies to new development in areas at risk of flooding and to planning applications for major development – developments of 10 dwellings or more, or equivalent non-residential or mixed development – unless it is demonstrated to be inappropriate or unnecessary.

5.38 Sustainable Drainage Systems (SuDS) are designed to mimic the natural drainage of surface water, typically managing rainfall close to where it falls. Surface water flows are then slowed down and discharged at a controlled rate before entering a watercourse. The Habitats Regulations Assessment for this Plan identifies that more specific mitigation may be necessary to ensure that contaminated surface run-off is not likely to have significant effects on any designated nature conservation sites.

5.39 In 2013 the Environment Agency²⁰ looked at the current and future water usage against climate change scenarios to provide an indicative stress situation for each water company. The Southern Water area is identified as being in both current and future water stress. The South Hampshire area of Southern Water’s operating area takes approximately two-thirds of its water from the Rivers Test and Itchen. Southern Water’s Water Resource Management Plan 2015-2040 sets out a number of initiatives to reduce water usage and improve efficiency in supply.

5.40 In addition to measures being put in place by water companies, new development should manage demand for water and make efficient use of this resource. All new homes currently have to meet the Building Regulations standard of 125 litres per person per day. However, given that part of the National Park water supply is classed as being water stressed, requiring the tighter optional Building Regulations requirement of 110 litres per person per day will help to manage water demand and make efficient use of this resource. Together with the potential for water abstraction impacts on nature conservation interests, the highest standards of water efficiency need to be adopted. There is more guidance on the implantation of this standard in the Government’s Approved Document G (Sanitation, hot water safety and water efficiency).

¹⁸ Environment Agency, South East River Basin – Significant Water Management Issues 2008
¹⁹ www.apps.environment-agency.gov.uk/wiyby/37833.aspx
²⁰ Water stressed areas – final classification’, Environment Agency, 2013

River at Balmer Lawn, Brockenhurst

Green infrastructure and open space

5.41 Green infrastructure can be defined as a planned and managed network of open spaces that perform a number of functions. It can bring a wide range of benefits to both communities and the natural environment, and particularly has a role to play in providing recreational opportunities, maintaining a good quality of life for local communities, and encouraging a healthy lifestyle. Green infrastructure includes such areas as parks and gardens, green corridors, amenity greenspace and allotments.

5.42 A study of accessible greenspace in the South East identified that the National Park has around 30,769 hectares of accessible natural greenspace, amounting to 54% of the area of the National Park²¹. Furthermore, it concluded that all households in the Park had access to natural greenspace using the definitions of the Accessible Natural Greenspace Standard (ANGSt). However, this does not take account of any effects from the high level of visitors to the Park.

5.43 The New Forest Open Space Study²² acknowledges the importance of open space and recreational facilities within, and close to, the National Park in protecting the National Park through potentially relieving some of the recreational pressures on it by directing recreation away from such areas and the provision of alternative greenspace in more suitable and robust locations.

5.44 Within the National Park, the Authority will continue to work with partners and communities to support opportunities to create or enhance green infrastructure. In recent years the Authority has supported a range of open space enhancements, including the provision of new equipment at open spaces in the main villages and the creation of new wildplay sites. Green infrastructure can provide additional opportunities for local communities to access open space and provides for healthy recreation. Provision or improvement of alternative greenspaces may also be considered along with a range of other measures²³ to mitigate the recreational effects of development within the National Park on the internationally important nature conservation designations. Suitable Alternative Natural Greenspaces (SANGs) are usually large greenspaces designed to provide mitigation for housing development. SANGs are typically part of the strategic mitigation package for larger scale residential development and therefore, are unlikely to be appropriate for the scale of development envisaged in the National Park.

5.45 To deliver its first purpose, the Authority believes that it is important to consider landscapes on a wider scale. The Authority is delivering, together with 10 partner organisations, the Our Past, Our Future Partnership scheme for the New Forest, which undertakes projects to restore lost habitats. The Authority has also brought together public, private and third sector organisations into the Green Halo Partnership to recognise the economic and social value of the natural environment – its natural capital and the ecosystem services it provides – and ensure this guides decisions about how we manage or develop our area. This will include exploring opportunities for new green infrastructure. For example, green infrastructure will be delivered as part of the Green Infrastructure Strategy for the South Hampshire sub-region that will be implemented by the Partnership for South Hampshire (PfSH).

²¹ An analysis of accessible natural greenspace provision in the South East, (McKernan & Grose, 2007)
²² New Forest Open Space Study, commissioned by the National Park Authority and New Forest District Council (2007)
²³ The Authority will decide what measures are acceptable for a development to comply with the Habitats Regulations – see Policy SP5 and accompanying text.

5.46 The Authority will also work with Natural England and other local authorities, as well as a range of relevant stakeholders, to develop a strategic approach to prevent adverse effects on internationally designated nature conservation sites in the New Forest.

5.47 With the population who live within an easy journey of the New Forest increasing rapidly, and planned development immediately surrounding the Park set to rise significantly, an increased number of visitors are likely to come to enjoy the National Park in the coming years. Clearly this will present challenges in how to balance the enjoyment of visitors with the conservation and enhancement of the special qualities of the National Park. Recreation management will be critical, and a review of the New Forest National Park Recreation Management Strategy (2010-2030) is being undertaken.

5.48 To take forward the actions within the Recreation Management Strategy (RMS) a RMS Steering Group comprising six organisations with statutory responsibilities for aspects of recreation, and an RMS Advisory Group, comprising the same six organisations plus 10 key other organisations, have adopted the following Priority Task: ‘…to agree an overall plan for where within and around the National Park we should encourage people to go to enjoy outdoor recreation, and how this should be achieved. The aim would be to both improve the New Forest’s recreational experience and enhance the other special qualities (including its rich wildlife, tranquillity and commoning tradition) and to avoid inadvertently damaging the special qualities which people come to the New Forest to enjoy.’

5.49 National planning policy defines open space as including all open space of public value, including not just land but also areas of water which offer opportunities for sport and recreation and can act as a visual amenity. It confirms the importance of access to high quality open spaces and opportunities for sport and recreation, and Policy DP10 supports this approach. The open space requirement of 3.5 hectares of open space per 1,000 population has been developed from the Open Space Study commissioned by the Authority and New Forest District Council. The standard comprises the 0.2 hectares per 1,000 population of designed play spaces for children and young people, 1.25 hectares of formal recreational space per 1,000 population and 2 hectares of informal open space per 1,000 population. Based on the open space requirement as set out above, the Authority requires 35 square metres of public open space to be provided per person.

5.50 New housing development should incorporate open amenity areas and features, preferably within its site boundary to enhance the quality of the environment for the benefit of residents, biodiversity and the locality. The requirement to provide public open space is separate to, and in addition to, the provision of alternative greenspace for mitigation against impacts on the internationally designated nature conservation sites.

Wild play site, Stanford Rise

Climate change

5.51 Climate change will be one of the most significant factors influencing change in all aspects of the National Park in the future. The government is now clear that climate change is happening, and it is due to human activity. The Committee on Climate Change has identified²⁴ six key areas of climate change risk that need to be managed as a priority:

• flooding and coastal change
• the impact of high temperatures on health and wellbeing
• risks to natural capital
• risks of future water shortages
• impacts on the global food system
• risks arising from new and emerging pests and diseases.

5.52 The main impacts from a changing climate in the National Park are expected to affect habitats, landscape, archaeology, property, human safety, recreation, land management, water resources and the rural economy.

5.53 The UK Climate Projections were published in August 2009 and estimated that by the 2080s Southern England could face an increase in average summer temperatures of between 2 and 7 degrees Celsius. There could be about a 40% decrease in average summer rainfall in parts of the far south of England. This emphasises that the UK’s climate is changing and that in order to prevent the problem becoming worse, carbon emissions in the UK need to be reduced.

5.54 Through the Climate Change Act the Government has set statutory targets to reduce UK greenhouse gas emissions by 80% on 1990 levels by 2050, and to achieve at least a 34% reduction by 2020, and 57% by 2030.

²⁴ UK Climate Change Risk Assessment 2017 Synthesis report

5.55 The Authority aims to minimise the vulnerability and maximise resilience to the impacts of climate change on the National Park, in particular on its special qualities.

²⁵ Consistent with the Government’s zero carbon buildings policy.

5.56 There is some uncertainty over how individual species and habitats in the New Forest will respond to climate change, but it is likely that some habitats will change or be lost, particularly coastal habitats, together with the appearance of new species. Maintaining a network of green infrastructure can help to increase the robustness of habitats by reducing their fragmentation by creating and restoring habitat and wildlife networks.

5.57 Measures to reduce the National Park’s vulnerability to climate change include sustainable transport, considering flood risks, supporting more energy efficient new development and local food production.

Cricket match, Cadnam

Flood risk

5.58 The Authority has no direct responsibility for flood protection or coastal defence. As the local planning authority for the coastline in the National Park, however, it is important that future strategic planning and development management decisions are consistent with the North Solent Shoreline Management Plan (2010).

5.59 Shoreline Management Plans are non-statutory plans that evaluate the known risks to people, property and the built and natural environment from the sea and coastal processes. They feature policies for each section of coast based on the findings. The coastline of the National Park is covered by the North Solent Shoreline Management Plan, and it sets out detailed policies for coastal management over the next 100 years.

5.60 Within the National Park the Shoreline Management Plan²⁶ proposes to ‘Hold the Line’ (i.e. maintain or upgrade the level of protection provided by existing coastal defences) on the coast between Hurst Spit and Elmer’s Court outside Lymington, between Sowley and Saltershill, and around Calshot, but proposes ‘No Active Intervention’ (i.e. a decision not to invest in providing or maintaining any defences) elsewhere. It also makes allowance for landowners to maintain their own defences where these already exist, even though landowners are advised to contact the Authority before undertaking any works. The Authority will consult New Forest District Council as the Coastal Authority on planning applications where necessary. The Authority will also continue to be a member of the Solent Forum, which considers and provides advice on strategic issues for authorities involved in planning and management of the coast in the Solent area.

5.61 Flood zones have been developed by the Environment Agency and their use is outlined in the National Planning Practice Guidance (NPPG)²⁷. Zone 1 is where there is little or no risk of flooding, in Zone 2 there is a low to medium risk and in Zone 3 there is a high risk. The Environment Agency publishes maps of flood risk on its website which shows the location of these zones and should be referred to as the most up to date source of information on flood risk. These maps are continually being updated and will be used in the consideration of policy DP12. The National Park is at most risk of coastal flooding, but there is also significant flooding from the Lymington River in Brockenhurst and to a lesser degree the Beaulieu River. The Cadnam area of the National Park is also affected by surface water flooding and part of the evidence base for this Local Plan includes a Level 1 Strategic Flood Risk Assessment (SFRA) commissioned jointly by the National Park Authority and New Forest District Council in 2017.

5.62 National Planning Practice Guidance sets out the ‘sequential test’ that will be used to assess all planning applications to direct development away from flood Zones 2 and 3 as the areas at highest risk of flooding. This will also need to take account of the broader considerations set out in the New Forest Strategic Flood Risk Assessment 2017, and consider all localised flood risk areas and all surface water flood risks. Only if there are no reasonably available suitable alternative sites can development in areas of higher risk (Flood Zones 2 and 3) be considered by applying the ‘exception test’ as outlined in National Planning Practice Guidance.

²⁶ www.northsolentsmp.co.uk
²⁷ See NPPG at www.gov.uk/government/collections/planning-practice-guidance and the Environment Agency’s Flood Maps at www.apps.environment-agency.gov.uk/wiyby/cy/151263.aspx

5.63 It will be necessary to ensure that the main settlements are given protection through carefully designed defences which do not adversely affect the sites of European nature conservation importance or create additional flooding issues for other parts of the coast. In addition to coastal protection works, other small-scale coastal development might include coastal access works, upgrading existing coastal car parks and replacing beach huts and existing mooring facilities. The aim of this approach is to maintain the character of the undeveloped coast, protecting and enhancing its distinctive landscape.

5.64 Policy DP13 seeks to protect the undeveloped nature of the National Park coastline. The policy ensures a level of protection consistent with the Government’s Marine Policy Statement (MPS) and the emerging South Marine Plan. Once adopted, the South Marine Plan will help integrate marine and land planning, contributing to vibrant coastal communities and consideration of cultural heritage, seascape and local environmental quality. The Authority will work with the marine planning authority to ensure that the seascape quality of the New Forest coastline is maintained and enhanced.

5.65 The England Coast Path (ECP) is a new national trail being created by Natural England through the Marine and Coastal Access Act 2009, and will extend along the coast of the New Forest. It will allow people to gain access along the coast and provide opportunities to enjoy one of the special areas of the National Park. Any small-scale proposals associated with the coast path will be considered against Policy DP13 on coastal development.

Watersplash, Brockenhurst

Renewable energy

5.66 The NPPF supports the delivery of renewable and low carbon energy and associated infrastructure and requires local planning authorities to have a positive strategy to promote energy from renewable and low carbon sources. The NPPF places the responsibility on all communities to contribute to energy generation from renewable or low carbon sources. In response to this requirement, the Authority has taken a positive approach to appropriate renewable energy proposals in the National Park. This includes the allocation of grant funding to support local community renewable energy projects; and the support offered through the planning system to proposals that respect their location within a nationally protected landscape.

5.67 National planning policy states that planning authorities should design their policies to maximise renewable and low carbon energy development while ensuring that adverse impacts are addressed satisfactorily, including cumulative landscape and visual impacts. In addition, the NPPF clarifies that great weight should be given to conserving landscape and scenic beauty in national parks. Consequently, the potential for renewable energy generation within the National Park will need to be balanced against the potential adverse visual and amenity impacts on the landscape, including views into and out of the Park.

5.68 To avoid compromising the landscape character and beauty of the National Park, the policy emphasis is on supporting appropriate, small scale renewable energy developments that provide energy for an individual household or business use, or for a small local community facility within the National Park. Proposals will be supported in appropriate areas of the National Park outside areas designated as nature conservation sites (including Natura 2000 sites, Sites of Special Scientific Interest and National Nature Reserves), where they do not cause damage to the natural beauty, wildlife, cultural heritage, tranquillity and other special qualities of the National Park, in accordance with the statutory purposes and national policy. The New Forest is not an appropriate location for on-shore wind development due to insufficient wind speed and the impact such development would have on the landscape and statutory National Park purposes. Similarly, larger renewable energy developments to meet a wider-than-local need are not appropriate within the National Park.

5.69 All forms of small-scale energy production will be supported where these meet the criteria set out in Policy SP14. Evidence suggests, however, that the most appropriate forms of renewable energy production in the New Forest are likely to be solar and biomass.

5.70 Some small-scale renewable energy development does not require planning permission, such as the use of solar panels in a domestic setting. However, domestic scale wind turbines do require planning permission and the above policy will apply. It is recommended that applicants seek advice on their proposals from the Authority before making an application.

5.71 Proposals should take account of the need to protect the natural historic and built environment, including consideration of potential visual and noise impacts of this type of development. The Authority’s Design Guide provides advice on the incorporation of energy efficiencies into the design of buildings.

Pollution

5.72 Lying as it does between the large urban areas of Southampton, the industrial areas along Southampton Water and the South East Dorset conurbation, the National Park is vulnerable to pollutants from industry, vehicles and many other sources which can harm human and other species’ health, together with general noise and light pollution associated with urban areas.

5.73 An unpolluted environment is recognised as one of the key ingredients to a good quality of life. There is an air quality problem in Lyndhurst, where an Air Quality Management Area has been designated due to the presence of excessive transport related pollutants. The Air Quality Action Plan for Lyndhurst²⁸ prepared by New Forest District Council sets out traffic management measures including the restriction of HGVs using the High Street, controlling traffic lights, and reviewing signage in Lyndhurst directing visitors into Lyndhurst’s main car park.

5.74 The impacts on air quality arising from the increased traffic generated by the development planned in this Local Plan has been assessed²⁹ to determine whether it would raise pollution levels that could affect the integrity of the internationally designated nature conservation sites in and around the New Forest. The evidence concluded that this would not be the case but highlighted that, when combined with traffic growth generated from surrounding areas, the impact of ammonia and acid deposition is uncertain and requires monitoring. Consequently, the National Park Authority will work with surrounding local authorities and other partners to monitor the in combination impacts on the protected habitats and to identify any changes that occur during the life of the Local Plan. If monitoring at any time shows that the change is likely to have a significant effect on the designated sites, the Authority will support other authorities in devising an appropriate strategic mitigation strategy.

²⁸ www.newforest.gov.uk/airquality
²⁹ See HRA of the Local Plan together with supporting air quality evidence documents

Solar panels, Lyndhurst

Tranquillity

5.75 The NPPF confirms that planning policies should aim to protect areas of tranquillity which have remained relatively undisturbed by noise and are prized for their amenity value. The tranquillity that can still be found in many parts of the New Forest National Park is cited as one of its valued ‘special qualities’ and therefore the Authority will seek to protect it. The National Park’s Management Plan describes tranquillity as the relative peace and naturalness, combined with the open and unfenced landscape of much of the area that gives a sense of space, remoteness and freedom. This contrasts with the increasingly built up and intensively managed landscape of southern England and provides a means of release from the pressures of modern life.

5.76 Tranquillity can be damaged by intrusive sights and sounds, particularly from man-made structures such as new roads, poorly-designed lighting and overhead power lines. To help protect tranquillity the Authority has developed a map highlighting the tranquil areas of the New Forest³⁰. It identifies areas in the north and south-east of the New Forest as being the most tranquil in the National Park. The key criteria used to determine the levels of tranquillity were the amounts of man-made noise and visual disturbance in the natural environment. In order to retain this special quality for future generations the potential impacts of noise and light pollution will be carefully controlled in Policy SP15. Visual intrusion and landscape character will also be protected through Policy DP2 and Policy SP7. The Authority will aim to acquire International Dark Sky Reserve status from the International Dark Sky Association.

³⁰ www.newforestnpa.gov.uk/planning/landscape-policy-documents

Chapter 6

Protecting and enhancing the historic and built environment

Right: St Michaels and All Angels church, Lyndhurst

6.1 This chapter takes forward the spatial objectives for protecting and enhancing the historic and built environment of the National Park.

6.2 The New Forest has a distinctive character which is made up not only of the numerous listed buildings, conservation areas and scheduled ancient monuments, but also the many and varied locally important features. Many unlisted cob buildings, simple brick cottages, and early bungalows give parts of the New Forest their distinctive character.

6.3 There is a variety of historic landscapes within the National Park that have been shaped by past human interaction with the land. Significant components of historic landscapes include field systems (including lynchets, ridge and furrow), historic woodland management, medieval settlements, traditional farmsteads and settlements, and networks of ancient routeways.

6.4 Archaeological sites and evidence in the New Forest range from finds that date from up to 500,000 years ago to observation posts from the Cold War period. Known sites and features are recorded on the publicly available Historic Environment Record, but it is likely that many still await identification and recognition.

6.5 Small-scale changes to the local landscape, buildings, settlements and sites take place almost constantly in responses to shifting values, fashions, availability of products and new technology. Although change is inevitable it is often at the expense of those features which give the New Forest its particular character. Over time this can cause a negative impact leading to suburbanisation and loss of character.

Heritage assets

6.6 The NPPF defines a heritage asset as a building, monument, site, place, area or landscape identified as having a degree of significance meriting consideration in planning decisions because of its heritage interest. Designated heritage assets in the National Park include scheduled monuments, registered parks and gardens, listed buildings and conservation areas.

6.7 However, the New Forest also contains a wealth of locally important historic interest that are not statutorily designated as heritage assets. These include sites on the Authority’s local list of buildings that contribute to the character and appearance of the National Park. There are at least 1,765 buildings that have been identified as locally important within the National Park. The Authority uses criteria set out by Historic England to determine whether a building should be included on the local list. At the moment the local list comprises buildings of local interest in conservation areas; but additional buildings of local interest have also been identified by local communities when developing Village Design Statements. The Authority intends to work with parish and town councils to identify additional buildings of local interest outside conservation areas, as well as with local groups through initiatives in the ‘Our Past, Our Future’ landscape scheme.

6.8 Where proposals for new development may have an impact on a heritage asset, applicants are required to produce a heritage statement setting out the significance of the asset, and justify the development proposals in relation to the character and setting of the heritage asset, in accordance with the NPPF. The more important the asset, the greater the weight, and any harm or loss should require clear and convincing justification, as emphasised in the NPPF.

6.9 National planning policy emphasises that where a proposed development will lead to substantial harm to, or loss of, a designated heritage asset the applicant must demonstrate that the harm or loss is necessary to achieve substantial public benefits that outweigh the harm or loss, or all of the following apply:

• the nature of the heritage asset prevents all reasonable uses of the site; and
• no viable use of the heritage asset itself can be found in the medium term through appropriate marketing that will enable its conservation; and
• conservation by grant funding or some form of charitable or public ownership is demonstrably not possible; and
• the harm or loss is outweighed by the benefit of bringing the site back into use.

Listed buildings and conservation areas

6.10 Listed buildings are buildings officially defined as being of special architectural or historic interest and there are 624 listed buildings in the National Park, which range from palaces and country houses to many smaller but more typical cottages and ‘hovels’ built of brick, timber frame or cob.

6.11 Conservation areas are ‘areas of special architectural or historic interest, the character or appearance of which is desirable to preserve or enhance’. There are 17 conservation areas wholly within the National Park, with a further three straddling the boundary with New Forest District Council. The boundaries of all these conservation areas are shown on the Policies Map.

6.12 In pursuance of its responsibilities under both National Park purposes and through the duty imposed by the Planning (Listed Buildings and Conservation Areas) Act, the Authority is developing a framework for the management of conservation areas in the National Park. This comprises:

• conservation area character appraisals, one for each conservation area, which identifies the special historic and architectural qualities of an area which justify its designation
• Conservation Areas Management Plan, covering all conservation areas (adopted October 2008)
• conservation area specific management plan covering individual conservation areas.

6.13 Development to listed buildings and in conservation areas, and their settings, will be carefully controlled to ensure that their character is retained. The Conservation Area Character Appraisals are important sources to refer to in making planning applications and they will be used in evaluating the appropriateness of development proposals in those areas.

6.14 On the Historic England register there are seven historic parks and gardens in the National Park³¹, whilst a much longer list of locally important sites is set out on the Hampshire Register of Historic Parks and Gardens³².

6.15 Where planning applications involve listed buildings Grade I or II*, scheduled monuments, registered parks and gardens, or a registered battlefield, Historic England must be consulted. In addition, the Authority is required to consult the National Amenity Societies³³ where the proposal would include full or partial demolition of a listed building.

³¹ Avon Tyrrell, Brockenhurst Park, Cadland House, Exbury House, Hale Park, Pylewell Park, Rhinefield.
³² ‘Hampshire’s Historic Parks and Gardens’, Hampshire County Council, 2007.
³³ See Glossary for full list of societies.

Archaeology

6.16 There are around 200 scheduled monuments in the National Park, but over 3,700 known non-designated sites recorded on the publicly available Historic Environment Record (HER)³⁴ many of which are yet to be fully understood. Some archaeological assets may not be scheduled but are still nevertheless demonstrably of equivalent significance to scheduled monuments and therefore will be subject to the policies for designated heritage assets, in accordance with the NPPF.

6.17 Historic England maintains the Heritage at Risk register that identifies sites most at risk of being lost as a result of neglect, decay or inappropriate development. On the register within the National Park there are currently 10 scheduled monuments and two buildings. The Authority will monitor buildings or other heritage assets at risk through neglect, decay or other threats, proactively seeking solutions for assets at risk through discussions with owners and willingness to consider positively development schemes that would ensure the repair and maintenance of the asset, and, as a last resort, using its statutory powers.

6.18 As part of ‘Our Past, Our Future’ the Authority aims to facilitate the conservation and enhancement of the historic built environment of the National Park, through raising awareness, developing specialist building skills, encouraging sensitive management and promoting availability and access to these skills.

³⁴ www.hants.gov.uk//historicenvironmentrecord

Tree landscape at Hale House

Mile post, Burley

Local distinctiveness

6.19 The different villages and landscapes in the National Park all have a distinctive character, although they are also all recognisably part of the New Forest, linked by its particular history, economy and culture.

6.20 The first National Park purpose, together with national planning policy, recognises the importance of conserving and enhancing an area’s local character. The level of development pressure within the National Park is evidenced by the level of planning applications received by the Authority each year. Since becoming a Local Planning Authority in 2006 the Authority has determined an average of just under 900 planning applications per year³⁵.

6.21 Whilst the vast majority of these applications entail minor development, increasing amounts of such small-scale household development can result in a creeping suburbanisation of the National Park, slowly eroding the Forest’s distinctive character³⁶.

6.22 Many of the grass verges within the Forest are designated as Sites of Special Scientific Interest (SSSIs) and are of national importance for nature conservation. They are therefore legally protected against damage. In addition, grass verges contribute to the appearance and rural character of the National Park. Parking, driving or storing building materials on the grass verges can cause serious damage and have a harmful impact on their landscape, ecological and grazing value. Much work has been undertaken on this issue in the Western Escarpment Conservation Area, and through the work undertaken by the Verderers of the New Forest and Forestry England as part of the Higher Level Stewardship scheme.

6.23 To build a new drive or access over a SSSI verge, planning consent from the National Park Authority and approval from Natural England and the Verderers of the New Forest is required, as well as consent from Forestry England if it is on Crown Land. In most cases, the Authority will consider the use of planning conditions restricting the storage of building materials and parking of contractor’s vehicles on the protected grass verges.

³⁵ Development management statistics, NFNPA 2017
³⁶ National Park Authority’s Annual Monitoring Report 2016

Design principles

6.24 Development, whether of a traditional or modern design, should be sympathetic and in keeping with its context and surroundings. New buildings should have a low (or no) carbon footprint and all new development should make a positive contribution to the National Park particularly through its design, size, scale, materials and layout.

6.25 Sustainable design and construction focusing on maximising a site’s natural resources and energy efficiency can include the use of passive design techniques, where this would not be inappropriate due to any impact it may have on the historic environment.

6.26 A Design Guide Supplementary Planning Document for the National Park was adopted by the Authority in 2011, which sets out more details on the characteristics of the New Forest and ways of maintaining local distinctiveness and embed the principles of good design into new development.

6.27 National planning policy emphasises that new development should create safe communities where crime and disorder, or the fear of crime do not undermine quality of life. Employing the principles of ‘Secured by Design’, which is a national police initiative focusing on ‘designing out crime’ in the design and layout of new residential and commercial development, can help address these concerns. Principles, which include places where publicly accessible spaces are overlooked and places that promote a sense of ownership and respect, should be taken into account in new development proposals.

6.28 In addition, several communities within the National Park have produced a Village Design Statement which sets out a statement of the individual character of a particular town or village. These are then adopted as Supplementary Planning Documents by the Authority and are used in assessing relevant planning applications. The Authority will continue to support parishes that wish to undertake a Village Design Statement.

Adopted Village Design Statements (as at 2018)

• Hordle Village Design Statement (2015)
• Sway Village Design Statement (2013)
• Boldre Parish Design Statement (2013)
• Ashurst & Colbury Village Design Statement (2013)
• Hyde Village Design Statement (2012)
• Landford Village Design Statement (2011)
• Wellow Village Design Statement (2011)

Breamore Mill

Sustainable design and construction

6.29 National planning policy expects all new development to adopt and incorporate sustainable construction standards and techniques.

6.30 New buildings should be designed to maximise energy efficiency and take account of landform, layout, building orientation, massing and landscaping to minimise energy use and CO₂ emissions. Innovative design and technologies, such as low carbon technology, will be encouraged, and the use of materials sourced as locally as possible will be preferred.

6.31 The National Park Design Guide Supplementary Planning Document sets out more details on how to incorporate sustainable design features into the design and layout of new development proposals.

Chapter 7

Vibrant communities

Sustainable new-build, Lepe

7.1 National planning policy recognises the need for small-scale, sustainably located development within national parks to support the socio-economic well-being of their communities. This includes the provision of local affordable housing and local community facilities. This chapter therefore takes forward the strategic objectives to promote affordable housing to meet local needs and to strengthen the well-being and sustainability of rural communities.

Housing

7.2 The provision of housing to meet the local needs of people living within the National Park is a key part of supporting the communities of the New Forest. The Local Plan establishes the level of new housing to be delivered in the National Park between 2016 and 2036 in a way that is consistent with the two statutory Park purposes and related duty.

National policy context

7.3 The Government’s National Parks Vision and Circular (2010) – cross-referenced within the NPPF - recognises that national parks are not suitable locations for unrestricted housing. The expectation is that new housing in national parks will be focused on meeting local affordable housing needs, rather than catering for external demands. National park authorities are expected to work with local housing authorities and other agencies to ensure that the needs of local communities in the national parks are met and that affordable housing remains so in the longer term. Previous strategic and local plans for the New Forest have acknowledged the sensitivity of the New Forest and its landscape and the area has been protected from large scale new development.

7.4 The NPPF confirms that local plans should meet ‘objectively assessed needs’ identified for Housing Market Areas unless the adverse impacts of doing so would outweigh the benefits. Specific policies in the NPPF indicate development in national parks should be restricted. These include policies relating to national parks, sites protected under the European Birds and Habitats Directive, Sites of Special Scientific Interest, and designated heritage assets. The New Forest National Park is covered by a wide range of national and international landscape and ecological designations and therefore national planning guidance on meeting housing needs must be considered alongside the protection afforded to the New Forest’s landscape and habitats in primary legislation. Within this context, and when considered against the NPPF, meeting the area’s full housing need is not achievable within the National Park without having a detrimental impact on the reasons for its designation and the statutory National Park purposes.

7.5 The NPPF also states that planning authorities should plan for a mix of housing based on current and future demographic trends, market trends and the needs of different groups. One of the roles of a Local Plan is to identify the size, type, tenure and range of housing required.

New Forest Strategic Housing Market Assessment and objectively assessed housing needs

7.6 In line with Government policy, the process for determining the amount of housing to be delivered in the National Park starts with the identification of the ‘objectively assessed need’ for new housing. This should be informed by a Strategic Housing Market Assessment (SHMA), which in the case of the New Forest was jointly commissioned by the National Park Authority and New Forest District Council in 2014. This Assessment concluded that the National Park falls within three separate housing market areas centred on the Southampton, Bournemouth and Salisbury urban areas, but that there is no specific ‘New Forest Housing Market Area’.

7.7 In 2017 the National Park Authority and New Forest District Council jointly commissioned an updated assessment of housing needs in the New Forest based on the latest household projections. This report