Committee Report – R09/0122/PLN
Erection of a building and use as an abattoir, cold store and meat processing plant with associated offices, formation of a yard area, provision of parking facilities, formation of a vehicular access and roadway, and associated works.
Daventry Road, Woolscott, Grandborough
Authorised Use
Agricultural.
Relevant decisions
None.
Technical Consultations
Third Party Consultations
Other relevant information
The application site lies within an open field adjacent the existing Prison driveway in the countryside, set back approximately 180 metres from the A45. It is approximately 3km south east from the centre of Dunchurch village, 0.5km south of Onley Prison complex and 400 metres south west of the main part of Onley Park. Along the south-western and south-eastern edges of the site is a relatively low level hedgerow whilst to the immediate south of the proposed building and incorporated into part of the site is a small pond surrounded by willow and hawthorn trees.
Approximately 200 metres north west from the Prison drive junction with the A45 a new access will be created to serve the application site, including the provision of a right hand turning lane on the A45. The access road will be approximately 220 metres in length and serve an abattoir, cold store and meat processing plant with a floorspace of 915 square metres and the associated yard. The access road will be 7.3 metres wide with a 2 metre wide pavement. The facilities will be provided in a purpose built building rising to approximately 5.2 metres to the eaves on one side and 6.5 metres on the other. The ridge line of the building would be approximately 10 metres high. The sides and roof of the building will be constructed from green plastic coated profile sheeting. The building will include the provision of a preparation room, store room, chillers, lairage, bone crusher and casualty detained room. A wash down area for lorries and trailers will also be provided on site. It is intended that the site, including the access road, would be surrounded by new soft landscaping. A total of 18 car parking spaces will be provided on site.
The applicant’s agent considers that the proposal will create 10 jobs with the premises operating Monday to Fridays only 6.00am to 6.30pm. However, a 24 hour call out service would operate 365 days a year for casualty and fallen stock killing.
The facility is designed to slaughter up to 40 cattle and 90 sheep a day (200 cattle and 450 sheep a week) and would give rise to 68 vehicle movements, including two way movements associated with deliveries of livestock, employees, distribution of carcasses, meats and collection of daily waste products. It is envisaged that the abattoir will meet the requirements of the applicants as well as other regional farmers.
A Design & Access Statement, Planning Statement, Ecological Appraisal, Landscape & Visual Appraisal, Transport Access Statement, Road Safety Audit Stage 1, Environmental Noise Assessment Reports, Animal By-Products & Waste Food Document, Meat Hygiene Service Manual for Official Controls and a Statement of Need (including supplementary reports and statements) were also submitted as part of the application.
Several of the Local Plan Policies referred to in the agents submissions have not been saved and therefore national planning policy guidance and statements should be considered instead.
Planning Policy Guidance
Planning Policy Statement 1 – Delivering Sustainable Development
Planning Policy Statement 4 – Planning for Sustainable Economic Growth
Planning Policy Statement 7 – Sustainable Development in Rural Areas
Planning Policy Statement 9 – Biodiversity & Geological Conservation
Planning Policy Guidance Note 13 - Transport
Planning Policy Guidance Note 16 - Archaeology
Planning Policy Statement 23 – Planning & Pollution Control
Planning Policy Guidance Note 24 – Planning & Noise
Planning Policy Statement 25 – Planning & Flood Risk
Determining Considerations
General Policy Principles:
The site lies within the countryside on greenfield land. The Local Plan steers development towards previously developed land within the urban area and settlement boundaries. Therefore as the site lies outside such areas it would not accord with the principles of Policy S1 and would therefore represent an unsustainable form of development. Nevertheless, it is acknowledged that such a facility is unlikely to sit comfortably in the heart of a built-up area where it is likely residential properties could be close-by. Whilst development is restricted in such countryside locations a balance against the needs of the rural economy and the contribution some developments can have towards supporting rural communities needs to be considered.
PPS7 focuses on the need for the planning system to recognise the important and varied roles of agriculture and support proposals that will enable farming and farmers to become more competitive, sustainable and environmentally friendly; adapt to changing markets and comply with legislation; diversify into new agricultural operations; and ‘add value’ to their primary produce. However, whilst the abattoir, cold store and meat processing plant is linked to the agricultural industry it is not an agricultural operation.
PPS4 states Local Planning Authorities should ensure that the countryside is protected for the sake of intrinsic character and beauty, the diversity of its landscapes, heritage and wildlife, the wealth of its natural resources and to ensure it may be enjoyed by all. PPS7 does recognise that the diversification into non-agricultural activities is vital to the continuing viability of many farm enterprises. However, PPS4 states that in rural areas development needs to be strictly controlled and that new development should be in or close to existing settlements. It also states that proposals for diversification need to be consistent in their scale and environmental impact with their rural location. Whilst PPS4 does consider small-scale economic development in more remote locations, it primarily focuses on the conversion and re-use of existing buildings in rural areas.
It is accepted that the proposal would provide a small number of jobs and that there would be associated businesses that would benefit including the ability for the premises to serve agricultural enterprises in the locality. However, this source of rural employment and the service it potentially provides needs to be balanced against its impact on the wider countryside, particularly from a visual context. The supporting text to Policy E1 reiterates this point particularly the need to conserve and enhance the countryside.
Design & Appearance:
The existing site is an open and farmed arable field of some considerable size. Apart from a few trees by a small pond adjacent the Prison Drive there are extensive relatively unobstructed views across the site, especially from the A45.
The agents consider that the design and appearance of the building would resemble a typical modern farm building found in open farmland. They consider that the agricultural character of the countryside will be retained as the workings of the abattoir would be contained within the sealed building. In addition, they have confirmed that the large expanse of hard surfacing around the proposed abattoir is needed to separate dirty and clean areas; to ensure adequate turning space for all vehicle types, including lorries, tractors and trailers; and to enable sufficient distance from the tree planting to avoid excessive shading and root issues affecting the building.
Although the proposed building will be set back approximately 200 metres from the A45 it will remain extremely prominent and very exposed. This is exacerbated by the lack of any distinguishing landmark features in the immediate vicinity. It is accepted that the Prison Complex and Onley Park do have a distinct visual presence within the countryside however, they are set significantly further back from the A45 (approximately 800 metres). Therefore, the development will appear as an isolated feature that does not relate to its surroundings with the impact of the long access road that will serve the development carving its way through the existing open field for approximately 220 metres in length from the A45.
PPS7 states that Planning Authorities should continue to ensure that the quality and character of the wider countryside is protected and, where possible, enhanced. PPS1 refers to design which is inappropriate in its context, or which fails to take the opportunities available for improving the character and quality of an area and the way its functions and thus should not be accepted.
The building, associated yard and parking area and the access road are not considered to be in harmony with their surroundings and will cumulatively have an adverse impact upon the character and appearance on the countryside. Whilst street lighting already exists on part of the A45 near the site as well as along the Prison Drive together with floodlighting at the Prison complex the introduction of more lighting at the proposed development site will further erode the character and appearance of this part of the countryside. Any new lighting could be strictly controlled by a planning condition and it is accepted that additional landscaping in the area over time will assist in softening the impact of any proposed lighting as well as the existing lighting in the area, however, this does not overcome the principle concerns raised regarding the impact on the overall development on the countryside.
Although it is acknowledged that within the proposals it is intended to comprehensively screen the site over time, this does not then make what is considered to be an unacceptable development in planning terms acceptable. The extent of landscaping required to screen the site would have a dramatic visual impact on the existing open countryside and further compounds the unsuitability of the development in this location. On this basis it is not considered that the proposal would comply with Policies GP1, E1 & E5 of the Local Plan and PPS1.
The precise internal details will be a matter for the Meat & Livestock Commission who the applicant’s will require a licence from to operate. The agent has confirmed that the proposed building is large enough to facilitate a modern abattoir but as legislation in such matters is constantly changing and planning permission for the abattoir has not been secured, it is accepted that internal alterations may be required to satisfy other rules and regulations associated with the industry if planning permission was forthcoming.
Landscaping & Trees:
The landscape and visual appraisal submitted by the applicant’s states that whilst the landscape is not well wooded there is a strong network of hedgerows with mature trees and that there are open views towards the site from the A45. Nevertheless it does consider that the pattern of hedgerows does provide an element of visual containment of the site on generally flat topography. It also considers that urban influences are present in the locality including the Prison complex, Onley Park houses and street lighting.
However, the Council’s Landscape Officer acknowledges that the proposed development will have a significant impact on the existing landscape, which is characterised by its openness with far reaching views.
Extensive planting is proposed around the proposed building and parking areas. This will be approximately 15 metres wide and will extend along the access road varying between 6 metres and 45 metres in width. Larger areas of planting are also proposed to the immediate south-west of the intended building and south-east of the access road. A mix including oak, beech, lime, pine, birch, holly and hawthorn will be used. Approximately 50% of the banks of the existing pond, including the willow will be cleared to provide an open water element.
The Council’s Tree Officer considers the existing trees on site do not represent a significant amenity feature and that the removal of some of the Willow by the pond habitat and establishment of new native planting will enhance this feature and increases its biodiversity and amenity potential. Therefore, the proposal would accord with Policy GP2.
The agent’s consider that the additional landscaping will also help reduce the visual prominence of the Prison complex from the A45. They have also stated that as the applicants control a significant proportion of the adjoining land they will allow the existing hedgerows to grow up to provide an effective screen.
Whilst the provision of such an extensive soft landscaping scheme is commendable it does reconfirm that the building would be extremely prominent in such an exposed location, particularly if all the suggested soft landscaping measures are not implemented. As stated above, whilst it may be considered that the site could be comprehensively screened over time this does not then make what is considered to be an unacceptable development in planning terms acceptable. The extent of landscaping required to screen the site would have a dramatic visual impact on the existing open countryside and further compounds the unsuitability of the development in this location.
Ecology:
An Ecological Appraisal was submitted with the application and no physical evidence of newt species or any other protected species was discovered. The ecological appraisal refers to the additional landscaping enhancing the nature conservation of the area and providing places of rest and shelter for species. However, Natural England, Warwickshire Wildlife Trust and Warwickshire County Council Ecology Unit have stated that the presence of the pond and surrounding area could potentially be suitable for the habitation of great crested newts. Therefore, whilst none of these ecological bodies object to the proposals they are seeking the imposition of a condition to safeguard any potential protected species and their habitats. A comprehensive wildlife survey has been received from several third parties and both Natural England and Warwickshire County Council Ecology Unit were informed of its content. In both instances, they have requested that an additional condition is imposed seeking the submission of an ecological management plan prior to works commencing on site.