17.07/0019/FUL - Outline Application: Demolition of workshop, small store and disused bungalow and the erection of a steel framed building to be used as a Farm Shop with associated office, storage and preparation area at WOODLANDS POULTRY FARM, WOODLANDS ROAD, NASH MILLS for MrRBrazier

(DLE)

Parish: Abbots Langley / Ward:Bedmond and Primrose Hill
Expiry Statutory Period: 5 March 2007 / Officer: Mrs K Rowley

1.Relevant Planning History

1.18/521/80 - 29 Detached Houses and service road (Outline). Refused.

1.28/242/81 - (Outline) Proposed conversion of farm buildings into industrial units with ancillary car parking and access. Refused.

1.38/765/86 - Erection of 50 dwellings with associated access roads parking etc. Refused.

1.406/1907/OUT - Outline Application: Demolition of workshop, small store and disused bungalow and the erection of a steel framed building to be used as a Farm Shop with associated office, storage and preparation area. Withdrawn.

2.Detailed Description of Proposed Development

2.1This application has been called to Committee at the request of Abbots Langley Parish Council.

2.2Woodlands Farm was originally run as a pig and poultry farm although now is part of a larger farming enterprise owned by Mr Brazier and run as a cattle and sheep farm. Specifically the farm is used for lambing. There are a collection of agricultural buildings occupying the site including what is referred to as the bungalow. This was originally the main farmhouse but subsequently number 30 Woodlands Road was built and the bungalow has been left to fall into disrepair, vacant since 1978. The site was acquired by the present owner, Mr Brazier, in 1978. Mr Brazier’s farm manager occupies no. 30 Woodlands Road.

2.3The current proposal seeks outline planning consent (access and layout) to demolish 3 agricultural buildings and erect one building in its place occupying a similar siting. The existing buildings to be demolished are a timber clad disused building previously used as a residential building but now vacant and falling into disrepair, a brick/timber clad building with a corrugated roof currently used as a workshop/store building and a further vacant single storey corrugated building. These buildings have a total floorspace of 198sqm with a maximum height of 3.8m.

2.4The proposals to build a farm shop are illustrative only but detail a single storey building comprising a farm shop with meat storage and processing area, small office and toilets. The building is shown to have a floor area of approximately 268sqm, an increase of 70sqm on the existing floorspace. The building is shown with a ridge height of 4.2m. The agent has confirmed the size of building shown in the application is the smallest that will be required to provide sufficient storage space to produce the quality of beef and lamb demandedby the potential consumers.

2.5Customer parking for 5 cars is shown adjacent to the building on an existing hardstanding turning area. This existing access/turning area would be improved and formalised with space for overflow parking when the need arises. There would also be a designated loading bay. The existing access to Woodlands Road would be utilised.

2.6The proposed opening hours would be 10am to 4pm Monday to Friday, Saturday 9am to 3pm and closed on Sundays and Bank/Public Holidays. Two full time and one part time members of staff are envisaged.

2.7In terms of deliveries the applicant’s agents have confirmed that there would be 3 deliveries a week of local produce in a transit van type vehicle (including fruit, vegetables, dairy products, sauces, flour, bread, drinks and meat). This vehicle would travel from a local collection centre in Ware, Herts. This would be on alternative week days. There would be one delivery per week of meat carcasses in a vehicle up to 7.5 tonnes. The retail area would sell 60-65% meat from Woodlands Farm and their sister farms and 35-40% made up from locally sourced produce.

2.8In support of the application the agent has stated, “all farming is currently going through a difficult period and many farmers are looking to diversify their business activities, a move which is being encouraged by the Government and now also the opposition. Unless there is a massive upturn is agriculture in the next few years, which is highly unlikely, the continuing use of this site as a farm is in great doubt. Some form of diversification needs to be allowed to keep the site operating and one associated with the existing farming business is preferable from our client’s point of view.”

2.9The agent has confirmed the initial concept was solely to sell some of the applicant’s lambs and cattle from the shop, produced at Woodlands Farm and their sister farms, but in speaking with an advisor from ADER (Agricultural Development in the Eastern Region) the applicant was encouraged to include sales of other locally produced farm produce. A letter of support has been received from an advisor from ADER and from Mr Goodman of the Meat and Livestock Commission. The reuse of the existing buildings was considered but in order to meet stringent health and safety requirements the applicant was advised by his representatives to apply for a purpose built structure. Other farm diversification options were considered by the applicant such as light industrial and storage use of existing buildings but the uses were dismissed by the applicant.

2.10The site is within the Metropolitan Green Belt.

3.Consultation

3.1Abbots LangleyParish Council–Members were concerned about the safety of the access and the potential increase in traffic that could be generated by such development in the Green Belt. Significant development in the Green Belt, close to a residential area, and off a narrow road.

3.2Hertfordshire Highways- the application form indicates the development does not involve a new access or alteration of an existing access to the highway, Section 8 indicates there will be 4 car parking spaces for customers. I am aware that the development will increase movements on the existing access. Putting forward a case for highway safety on a cul de sac is always difficult as traffic on these roads is very low & we have not received support from appeal inspectors in these type of cases. Whilst the development will increase movements the development is unlikely to result in a significant impact on the safety and operation of the adjacent highway, so whilst I cannot object to the principle of the development, I would like to see more done to encourage local people to use the shop without using their cars, I therefore have no objection subject to conditions to the grant of permission.

3.3TRDC Environmental Health Officer – no objection subject to a condition concerning land contamination investigation.

3.4Site/Press Notice

3.4.1Not applicable.

3.5Neighbourhood

3.5.1Number consulted: 46

Number of responses: 18 (expiry 16 February 2007)

Any additional comments will be reported verbally

4.Summary of Representations

4.112 letters of support stating: look forward being able to buy fresh produce locally; people will benefit from local supplier providing good quality food; will be good for local community; will help keep the farm open and will support small business; will ensure retention of the farm use; alternative source of produce; do not think additional traffic will cause major problems as will be generated at non-peak times; future concerns that land would be sold off for development; too may farms are disappearing; would be an asset to the area; no where to buy bread/milk within walking distance of us;

4.26 letters of objection stating: increased traffic from staff, customers and deliveries; Hyde Lane and Woodlands Road are not suitable in width, layout or construction to accommodate regular use by medium to large size delivery vehicles; Woodlands Road is a private unadopted road in a poor state of repair; residents and their visitors park on the corner of Hyde Lane and Woodlands Road already resulting in a dangerous corner to negotiate –additional traffic to shop would increase the risk of an accident on this corner; increased use would accelerate the erosion of the road surface; Woodlands Road has no pavements, streetlights, drainage is poor and sub base of road not suitable for heavy vehicles; safety risk of larger vehicles and more frequent traffic; already lots of on street parking which would be worsened by increased traffic generation; people further up the road nearer the farm do not experience the traffic and parking problems experienced by those living nearer to junction with Hyde Lane; lots of children play on Woodlands Road and would be greater risk of an accident to these children; potentially high volume of traffic generation through the day and at weekends; concern about costs on where and tear of the road.

4.3Consider there should be a Traffic Impact Assessment carried out prior to determination; introduction of commercial business in a residential area will cause numerous problems; Woodlands Poultry Farm moving away from its original agricultural use towards a more commercial enterprise which will have significant impact on surrounding residential properties.

5.Reason for Delay

5.1Not applicable.

6.Relevant District Plan Provision

6.1Policies N13, N14, N23, GB1, T7, T8 of the Three Rivers Local Plan 1996-2011.

7.Analysis

7.1Government guidance contained in PPS7: Sustainable Development in Rural Areas supports farm diversification. PPS7 was published in 2004 and follows the advice given in the superseded PPG7: The Countryside: Environmental Quality and Economic and Social Development with regard to farm diversification. Prior to PPG7 being superseded it was revised in March 2001 following the publication of the Rural White Paper published in 2000. At the time former Planning Minister, Nick Raynsford, said;

“PPG7 recognises the increasing importance to farmers of diversification into non-agricultural activities in order that they may supplement their incomes, which is essential in achieving a competitive and sustainable agricultural industry …the new guidance is being updated to reflect the new context, and make clearer to local planning authorities that they should take a positive approach towards farm diversification proposals.”

7.2PPS7 recognises the Governments strengthening of their commitment to farming and particularly rural diversification and specifically states;

“recognising that diversification into non-agricultural activities is vital to the continuing viability of many farm enterprises local planning authorities should:

…be supportive of well conceived farm diversification schemes for business purposes that contribute to sustainable development objectives and help sustain the agricultural enterprise, and are consistent in their scale with their rural location …

where relevant, give favourable consideration to proposals for diversification in Green Belts where the development preserves the openness of the Green Belt and does not conflict with the purposes of including land within it. (Where farm diversification proposals in the Green Belt would result in inappropriate development in terms of PPG2, any wider benefits of the diversification may contribute to the ‘very special circumstances’ required by PPG2 for a development to be granted planning permission).

7.3Woodlands Farm occupies a secluded position to rear of existing linear residential development within the Metropolitan Green Belt. The site is accessed via an existing hard surfaced road between 2 bungalows, 30 Woodlands Road (which is connected to the farm) and 28 Woodlands Road and leads off Woodlands Road, a privatecul de sac. The farm operates as a productive business enterprise but as is the case with many established farms the use of the site has decreased since the 1970s and many of the buildings are falling into disrepair.

7.4The proposals seek to demolish existing buildings and construct a new building to be used for a farm shop with associated facilities. Green Belt policy contained in PPG2 does not support new buildings within the Metropolitan Green Belt unless they are for agriculture or forestry use. The farm shop is connected to the farming activity on Woodlands Farm and to the sale of fresh and local agricultural products. However, it is acknowledged that many of the agricultural products brought onto the site are from other farms and indeed the produce from Woodlands Farm would have to be transferred off site to be slaughtered before it was brought back onto site for processing and selling.

7.5Notwithstanding this connection to agriculture the proposals would introduce a commercial use to the site and due to the need to erect new buildings would be considered to constitute inappropriate development in the Green Belt. In addition, the floorspace of the new build would be greater than that to be demolished.

7.6However, PPS7 supports farm diversification despite recognising it may be inappropriate development in the Green Belt provided very special circumstances can be proven. The state of the British farming industry is recognised and increasingly farms are turning to rural diversification to supplement their income. Indeed, British farms would continue to decline without these alternative sources of income and lead to further disrepair of buildings and subsequent adverse visual impacts of vacant farm sites. With regard to Woodlands Farm the applicant’s agent has confirmed “Unless there is a massive upturn is agriculture in the next few years, which is highly unlikely, the continuing use of this site as a farm is in great doubt. Some form of diversification needs to be allowed to keep the site operating and one associated with the existing farming business is preferable from our client’s point of view.”

7.7Whilst the reuse of existing buildings would have been preferable a large number of the existing buildings on site are falling into disrepair and would require extensive alteration and rebuild to be reused for the intended purposes. The new building would not encroach beyond the existing boundaries of built development at the farm and would be designed to limit its impact in terms of height and general appearance. These latter factors would be carefully considered as part of an Approval of Details application. The modified parking area is already the main turning/manoeuvring area on site and whilst it would be formalised, provided appropriate surfacing materials are used, this would enhance the appearance of the site.

7.8In terms of activity at the site whilst the use of the site has diminished compared to its former use as a pig and poultry farm it is still in productive agricultural use and indeed agricultural activity could increase at any time. The proposals for a farm shop would continue the current agricultural use of the site in addition to increased use involving 2/3 additional employees, 4 deliveries per week of produce and customer activity.

7.9The actual built form and activity at the site would not have an adverse impact on the residential amenities of neighbouring properties due to the existence of current buildings and agricultural activities. The new activity would be over 20m from the residential properties and at a lower ground level due to the slope of Woodlands Road. The new activity associated with the farm shop could be controlled by condition, specifically the deliveries and hours of opening, and is not considered to introduce levels of activity significantly beyond what one would normally associate with a productive farm.

7.10The use of Woodlands Road and Hyde Lane may increase current traffic movements through a residential area but the traffic generation is not considered to be significant in terms of that one would normally associate with a farm. Whilst there is local concern about heavy vehicles the applicant’s agent has confirmed the use of vehicles less than 7.5 ton and detailed minimal delivery requirements. In addition, the Highways Authority has raised no objection to the proposals and has stated, “Whilst the development will increase movements the development is unlikely to result in a significant impact on the safety and operation of the adjacent highway.” The fact that the road is a private road is a matter between the owner of the road and the applicant. There obviously exists a right of way to cross Woodlands Road and any contribution required towards its upkeep is a civil matter. The Highways Authority would like to ensure encouragement is given to local people to use the shop without using their cars and this can be controlled by condition.

7.11On balance the proposal is considered acceptable although it would need to be carefully controlled by conditions. A temporary consent was considered but due to the nature of the proposals was not considered a reasonable condition to impose. The proposals represent inappropriate development in the Green Belt but very special circumstances exist to outweigh any harm to the Green Belt not least the ability of an existing agricultural enterprise to continue. The introduction of a shop for local produce in a residential area not served by any other similar local services would also contribute towards the objectives of sustainable development and provide local residents with an alternative to travelling to the urban centres for local and daily produce.

7.12Other forms of diversification have been considered by the applicant including reuse of buildings for light industrial and storage uses. These are often recognised as appropriate farm diversification projects provided traffic impacts can be kept to a minimal. In the circumstance of Woodlands Farm these uses, potentially involving large vehicles are not considered appropriate, but a carefully controlled farm shop proposal involving one large delivery a week and three smaller deliveries a week are considered to provide an alternative source of farm income without significant traffic and residential amenity impacts.