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5. LAND USE POLICIES

GENERAL OVERVIEW

As previously stated, our Neighbourhood Plan has a significant percentage of land that is within the Green Belt and the Flood Plain. In the main, we are restricted from being able to develop in any meaningful way to satisfy an increase in population in our ward.

The most common form of building that has taken place over the past few years has been redevelopments of properties and domestic extensions, and this is the most likely form of future development.

In Wraysbury, there may well be pockets of land that could be developed, particularly on dry islands with a recognised escape route. Whilst in Horton, it is recognised that there is greater potential for development.

The community has expressed strong views about its desire to retain the character of the area and to protect our green and leafy environment. The following policies have been designed to respond to these demands.

a) SUSTAINABLE DEVELOPMENT

REASONED JUSTIFICATION

The intention of this policy is to indicate the overall support for development that is sustainable within the community and that reflects the presumption in favour of sustainable development contained in the National Planning Policy Framework.

The Plan supports a collaborative approach to development and, in particular, subscribes to the principle of early engagement of the public and stakeholders in the preparation of major residential developments that will affect their community in the long term. The NPPF states:“Early engagement has significant potential to improve the efficiency and effectiveness of the planning application system for all parties. Good quality pre-application discussion enables better co-ordination between public and private resources and improved outcomes for the community.”

MANAGEMENT OF THE WATER ENVIRONMENT

REASONED JUSTIFICATION

With the rivers Colne, Thames and the Colne Brook being nearby, severe flooding has happened on several occasions over the past few years. It is necessary, therefore, for the design and layout of new development to show how it will address the specific requirements of our area in relation to flood risk, especially since our vacuum operated sewerage system is vulnerable to flooding.

The experience from the recent 2014 floods has put the importance of flood risk management at the forefront of the community’s mind when considering new development in the Plan area. National planning policy regarding flooding is set out in paragraphs 100–104 of the NPPF 2012, which is further elaborated in the Planning Practice Guidance.

The thrust of national policy is to avoid putting vulnerable development, which includes residential development, into areas that are at risk of flooding. The approach is that wherever possible, such development should be placed outside Flood Zones 2 and 3, as shown on the Environment Agency’s Flood Maps, thereby avoiding putting more people and property at risk. This is known as the sequential approach i.e. identifying locations for new development which lie outside the Flood Plain. This would require any allocation in the Plan area to be where the buildings or structures will not be at risk of flooding.

This is complicated by the fact that so much of the Neighbourhood Plan area lies within the Green Belt. At the wider Royal Borough level, the opportunity arises of locating new development elsewhere in areas that do not flood. This is the approach that was identified in the Royal Borough’s Strategic Flood Risk Assessment. The avoidance of flood risk areas is one of the strategic policies set out in the adopted local plan which, while it predates the NPPF, has followed established national advice on flood risk. Recent national advice in the Planning Practice Guidance recognises that some constraints outweigh the benefits of providing more housing developments and specifically quotes locations where development is to be restricted as those at risk from flooding along with other examples that include Green Belt and Local Green Space.

The relevant Local Plan policy is Policy F1 of the adopted Local Plan which includes a general presumption against residential and non-residential development if, by itself or cumulatively with other development, it will:

• Impede the flow of flood water
• Reduce the capacity of the Flood Plain to store flood water
• Increase the number of people or properties at risk of flooding

These principles are reflected in the Neighbourhood Plan policy on this important topic. Policy F1 does allow the replacement of homes on a site, allowing for a floorspace by floorspace basis, but also allowing for the property to be extended by a maximum of 30 ²m. A similar limit applies to those extensions that require planning permission.

This Neighbourhood Plan reflects both national advice and local plan policy by including general presumption against all new buildings in areas liable to flood unless it is infrastructure or facilities that have to be located by the river such as boathouses. This is to ensure that no additional people are placed at risk when flooding reoccurs nor should the placing of new buildings in the floodplain take up flood storage capacity which could lead to the flooding of areas not currently liable to flood.

New development in the Plan area can be allowed in terms of flood plain policy if it can be demonstrated that the levels of the site are above the level of water in the 1 in 1000-year flood event – these are known as Dry Islands.

However, to be allowed, the applicant will be expected to demonstrate that any residents will have a safe exit route to land which will remain outside the flood area in serious events, as the flood water can remain in place for many weeks. Experience of recent floods has demonstrated that there is a viable evacuation route down Staines Road.

It is likely that in the context of flood plain policy the only acceptable residential development in Flood Zones 2 and 3 will be replacement dwellings and the extension of dwellings. Current policy allows a 30²m increase in floor space. However, notwithstanding the national and local policy presumption against inappropriate development in flood areas, existing properties generally still have permitted development rights (unless previously withdrawn) which now allow sizeable extensions and the construction of large ancillary buildings within the curtilage. The extent of an enlargement built using the permitted development route can be greater than allowable under planning policy and additionally imposes no controls over the method of construction and floor levels. This could allow solid substructures which do not allow water to flow or be stored under the living accommodation thereby displacing flood water and increasing flood risk to neighbouring properties.

The Neighbourhood Plan wishes to encourage development that is as flood resilient as possible and recognises that pushing residents to utilise their permitted development rights will generally result in less sustainable development. This can be achieved by a policy that allows properties still to be extended to the extent allowable by the permitted development rights but must be constructed in a way that maximises flood resilience and resistance through the exercise of planning control.

b) HOUSING

GOOD QUALITY DESIGN

REASONED JUSTIFICATION

This Neighbourhood Plan supports the NPPF’s objective to achieve excellence in design, especially design that will help establish a “strong sense of place” and “create attractive and comfortable places to live, work and visit” (NPPF para 58).

We already have a rich variety of architectural styles in the area and we would like to see new development contribute to this variety, while at the same time being sympathetic to the existing character of the area and natural environment (as is also reflected in our policy NP/DG2 regarding density, scale and bulk of new builds).

Our policies do not restrict development; instead they challenge applicants to deliver innovative development of high quality design that responds to its surroundings and is appropriate for our area.

Our Character Assessment should be used to inform the design approach in a planning application. The extent to which this is demonstrated in the development proposals should determine whether the proposal is in keeping with the character of an area.

FOOTPRINT, SEPARATION, SCALE & BULK

REASONED JUSTIFICATION

The trend in the last few years has been for new developments to be built to a much larger scale than that which is the general norm in our area. This is typified also where houses are built much closer to the boundaries of properties, resulting in loss of green frontage, space around the buildings, loss of privacy to surrounding properties and, when repeated, has a negative impact on the overall streetscape and the built environment.

The bulk and scale of the houses in new developments in the residential neighbourhood has also frequently been much greater than the properties they replace, so that they dominate their surroundings. There is serious concern within the community that this is harming the character of the area which we strongly want to protect and is adversely impacting on the amenity of neighbouring properties.

In the event of new homes being permitted, RBWM will consider the appropriateness or otherwise of a condition being imposed removing permitted development rights to erect side extensions without planning permission.

SMALLER PROPERTIES & HOUSING MIX

REASONED JUSTIFICATION

As typical of villages across the country, a big issue in Horton and Wraysbury is to provide and protect the supply of smaller properties to meet the needs of our community.

It is important to the sustainability of the social fabric of our village community that we ensure a continued mix of housing types that allow people of all generations to live here. Evidence shows there is a demand for smaller units for both first time buyers and those wishing to downsize which is also backed up by the evidence contained within the Berkshire Strategic Housing Market Assessment (Chapter 9). This was a strong and consistent theme that emerged from the public consultation responses and which is one of the key themes that the Neighbourhood Plan needs to address.

Allocation in our neighbourhood of new developments to supply smaller houses is hugely restricted by the Green Belt and the Flood Zones, and recent years have seen the loss of two or three bedroom homes to much larger replacement dwellings. We want to encourage the provision of small houses where possible. In the event of new homes being permitted, RBWM will consider the appropriateness or otherwise of a condition being imposed removing permitted development rights to erect side extensions without planning permission.

CHANGE OF USE

REASONED JUSTIFICATION

Because of the difficulties of identifying housing sites to meet local needs, both within and outside the Green Belt, the Plan encourages the redevelopment of previously developed land, i.e. brownfield sites, for housing purposes (so long as there is no greater impact on the openness of the Green Belt). In addition, it also seeks to support the conversion of existing commercial premises, especially if the existing use is no longer viable, or is unneighbourly, to new homes. This could be a ready source of a supply of smaller properties which the Plan is seeking to promote. Such proposals would need to comply with other policies in the development plan, including those related to flooding.

WATER SUPPLY, WASTE WATER DRAINAGE, SURFACE WATER AND SEWERAGE INFRASTRUCTURE

REASONED JUSTIFICATION

It is important that with any new development within the Horton and Wraysbury area there is existing capacity for both the water supply and sewerage/wastewater infrastructure. Applicants will be expected to show that there will not be a net increase in demand as a result of the development unless it can be shown that sufficient capacity exists and it will not cause problems for existing residents and businesses. This may require discussions with Thames Water to establish:

• The development’s demands for water supply and network infrastructure, both on and off site, and how they can be met.
• The development’s demands for sewerage treatment and network infrastructure, both on and off site, and how they can be met.
• The surface water drainage requirements and flood risk of the development, both on and off site, and how they can be met.

c) BUILT ENVIRONMENT & COMMUNITY ASSETS

EDUCATION

REASONED JUSTIFICATION

Wraysbury Primary School on Welley Road primarily serves Horton and Wraysbury and whilst it has recently been extended, the Neighbourhood Plan is mindful of any future need for further expansion e.g. an attached nursery.

PROTECTION OF BUILDINGS VALUED BY THE COMMUNITY

REASONED JUSTIFICATION

Heritage assets are defined 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”. Heritage assets include designated heritage assets and assets identified by the local planning authority (including local listing) (Annex 2, NPPF).

Throughout the Plan area there are buildings and structures that, while not of specific special historic or architectural interest to warrant designation as listed buildings, have a distinct and valued local character and/or appearance that are worthy of retention as part of any proposal.

Remenham House, The Drive, Wraysbury: Part of the Mansion of Remenham and Cow built around 1884.

North Lodge, The Drive, Wraysbury: One of the Remenham lodges built around 1884.

The Windmill, The Splash, Wraysbury: Built in 1995 using timber salvaged from Tilbury Docks Tall Ships sidings by prisoners from the Napoleonic Wars. The windmill is similar in design to one built at Lacey Green near High Wycombe c1650.

The Grange, Windsor Road, Wraysbury: Dating back to the 14^th century and used as a vicarage until the late 17^th century when it became privately owned. The Great Hall includes large stained glass windows and a minstrels’ gallery.

The former school, Horton Road, Horton: Originally a Church of England Primary School built in 1878 with the aid of a grant from St. Michael’s Church. It remained the school for children from Horton village until it was finally closed in 1973. Since then the building has been renovated and used as offices.

Wraysbury High Street Area: Many of these buildings are Victorian, as recognised in the RBWM Townscape Assessment, which recommends the conservation of the historic gateways of the High Street/Station Road/The Green and High Street/Staines Road/Windsor Road, plus the views along the historic High Street, which includes the Baptist Church and the Perseverance Public House.

Any planned changes will also be given consideration and advice by the established ‘Wraysbury & Horton Heritage Committee’.

Listed buildings (see panel below) are already afforded protection by national policy and existing local plans as well as enjoying statutory protection, so there is no need for a separate Neighbourhood Plan policy.

PROTECTION OF COMMUNITY FACILITIES

REASONED JUSTIFICATION

This policy identifies those built community facilities that will be protected from a change of use that will result in a loss of their community value. Some may already have protection from demolition given they are designated heritage assets but this policy seeks to ensure their community value is sustained.

Further, it encourages proposals to enable the facilities to remain viable community facilities, in line with the 2003 Borough Local Plan CF1.

d) OPEN ENVIRONMENT

LANDSCAPE

REASONED JUSTIFICATION

To protect and maintain our existing green spaces, footpaths and the natural environment for recreation and wellbeing, taking the opportunities offered by the River Thames Scheme to enhance the accessibility, leisure and ecological amenities where possible whilst working in conjunction with the National Trust, Natural England and the Colne Valley Regional Park.

PROTECTION OF ECOLOGICALLY IMPORTANT SITES

REASONED JUSTIFICATION

The Horton and Wraysbury Plan area has a wide range of ecologically important sites ranging from the Ramsar Sites (e.g. Wraysbury Lakes which are sites of international importance linked to the migration of birds) and nationally designated SSSIs such as Wraysbury & Hythe End Gravel Pits.

PROTECTION & MAINTAINING OF FOOTPATHS

REASONED JUSTIFICATION

There exists a network of public rights of way around the two villages which provide access into the countryside and are a valued recreational resource. However, this network is limited compared to other parishes in the Colne Valley and opportunities should be taken to enhance the network and create circular walks for the benefit of local residents. The network of footpaths and bridleways must be protected, maintained and enhanced through such initiatives as the River Thames Scheme and by negotiations with private landowners.

The network of lakes between Horton and Wraysbury are disused gravel pits which are now used for leisure pursuits. They form private fishing lakes, sailing clubs, and a dive centre. There are some lakeside public footpaths, while over time other paths have developed as locals regularly used them for walking and bird watching.

Most of the lakes benefit from designation as Sites of Special Scientific Interest (SSSI) and European Ramsar protection, as the landscape is colonised by a variety of birds and wildlife habitats.

It is the Parish Councils’ intention to keep public footpaths accessible by walking the routes (sometimes referred to as “Beating the Bounds”). In addition, the Wraysbury Walking Group has been formed to ensure established routes and footpaths are regularly used and enjoyed around Horton and Wraysbury by residents of the villages.

LOCAL GREEN SPACES

REASONED JUSTIFICATION

Under the NPPF, Neighbourhood Plans have the opportunity to designate Local Green Spaces which are of particular importance to the local community. This will afford protection from development other than in very special circumstances.

Paragraph 77 of the NPPF says that Local Green Spaces can be designated:

“where the green area is demonstrably special to a local community and holds a particular local significance, for example because of its beauty, historic significance, recreational value (including as a playing field), tranquillity or richness of its wildlife; and is not an extensive tract of land.”

Green spaces have been identified in the villages of Horton and Wraysbury as detailed below.

1. Horton Village Green: A small grassed island in front of the Crown Public House. The Green is distinguished by the War Memorial, a flag pole, Memorial Rose Garden and a maturing oak tree. It is the focal point for formal and informal Village occasions including Christmas carols and a Remembrance Day service.
2. Horton Village Play Area: Located next to Champney Hall in Stanwell Road this secure play area for children contains a number of both traditional and modern pieces of play equipment.
3. Wraysbury Village Green: The Village Green is designated common land and lies between Windsor Road, The Green (road) and the Colne River. The Cricket Pavilion and Scout Hut are situated at the end of The Village Green and cricket matches take place at weekends and mid-week during the summer months. The Village Green is also used by residents all year round as an area of recreational space and hosts the annual Village Fair.
4. Wraysbury Children’s Play Park: This secure play area lies at the South Eastern corner of the Village Green and contains an array of traditional and modern play equipment including swings, climbing frames and slides.
5. Ankerwycke National Trust Land: One hundred and ninety acres of farm, park and woodland owned and managed by the National Trust and forming part of the Colne Valley Regional Park. Ankerwycke Island is home to an ancient 2,500-year-old yew tree – one of the Queen’s Jubilee Trees and fabled to have been a courting hideaway for Henry VIII and Anne Boleyn – and the ruins of a 12th Century St. Mary’s Priory, also documented as instrumental to the sealing of the Magna Carta. Both are visible from Runnymede on the opposite side of the River Thames. There are footpaths from the Thames to St. Andrew’s Church which encompass Magna Carta Lane, and it is a haven for flora and fauna.
6. Wraysbury Memorial Ground: The Memorial Ground is located at the end of The Green behind the Village Hall. Its rear boundary is the Wraysbury 1 Lake. It provides vista and recreational space for the Wraysbury Village Hall residents as well as being home to the Wraysbury Football Club who host regular football games throughout the season.
7. The Kayles, Old Ferry Drive: An area of woodland and grass adjoining Thames field.
8. Arthur Jacob Nature Reserve: A wetland reserve of 4.6 hectares situated adjacent to the Colne Brook River. There are four lagoons, some with islands, and the site has been extensively planted with trees, shrubs, wildflower meadows and aquatics. Dipping platforms and a bird hide are provided.
9. Poyle Poplars Woodland: This 15 acre woodland site is located next to the Arthur Jacob Nature Reserve in Stanwell Road, Horton. It is owned by the Royal Borough of Windsor & Maidenhead and is planted with native trees including black poplar. It attracts wildlife and provides a secluded shaded walking area.
10. The Swimming Area (land owned by the Scouts leading down to Wraysbury 1 lake): This piece of land is used for outdoor lakeside events including barbecues and for November 5th every year.
11. Green area in Waylands: An important green space in the northern part of Wraysbury near to the Primary School.
12. Bunded area between 94a and 98 Welley Road: An area with set plants and bulbs making a pleasant entry to the village along Welley Road.
13. Eight Yards either side of River Colne: Wraysbury residents enjoy regular walks on this side of the river as a result of an Enclosure Act award.

Policy OE4 designates Local Green Spaces and applies the approach in the NPPF to their long-term maintenance. The very special circumstances where development may be supported within Local Green Spaces will be a matter for RBWM to determine on a case-by-case basis. However, these circumstances may include proposals which enhance the role and function of a designated Local Green Space and where the proposal would result in the development of appropriate community infrastructure.

e) BUSINESS & ECONOMY

RETAIL BUSINESSES

Reasoned Justification

Horton has a single convenience store and Wraysbury has a number of shops that provide services to the villages which are highly valued and which avoid longer trips by car to neighbouring towns and villages. In addition they provide valuable employment to the villages. The protection of local facilities through neighbourhood plans is commended in national planning guidance.

COMMERCIAL PREMISES

REASONED JUSTIFICATION

The Plan recognises the importance to the balance of the community of the importance of existing businesses in the Plan area, both in terms of the services they deliver and also the employment and economic benefits they provide. The policy recognises that often businesses will need to redevelop their property or alter or extend them and the Plan generally supports that investment so long as the proposals comply with other relevant development plan policies.

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