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| 9 |
TOURISM |
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INTRODUCTION |
| 9.1 |
Tourism is a major element in the City
of Durham's economic and social life. This Chapter examines the contribution
visitors make to the local economy and considers the implications
of tourism on the District and its infrastructure. |
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GENERAL BACKGROUND |
| 9.2 |
Durham City is recognised as the major
tourist centre in the Region. With its superb setting, outstanding
townscape, and World Heritage Site, encompassing the Cathedral and
Castle, it has been estimated that the District attracts approximately
1.8 million visits per annum. Durham can claim to be an all-year-round
destination in that its attractions are not dependent on the weather
and accommodation is available throughout the year. There is, however,
a peak of visitors during the summer months. |
| 9.3 |
Apart from the Cathedral and Castle, the
main attractions for visitors to the City are the Durham Light Infantry
Museum and Art Gallery, the Oriental Museum, the Museum of Archaeology,
Durham Heritage Centre, Durham Botanical Gardens. Pleasure boat trips
on the River Wear and walks along the riverbanks are also very popular.
There are a number of impressive churches and ecclesiastical remains
throughout the District including the 13th century Benedictine Priory
at Finchale, and the Churches of St. Oswald (Church Street), St. Lawrence
(Pittington) and St. Helen (Kelloe). The District also contains many
areas of scenic beauty including the Browney Valley, the Upper Deerness
Valley and Cassop Vale. Due to its central location within the County,
the City of Durham is very accessible to the major regional tourist
attractions such as Beamish Museum, The Metro Centre, the Durham Dales
and the recently opened National Glass Centre in Sunderland. |
| 9.4 |
It has been estimated that 2.5 million
people live within 60 minutes drive of Durham, giving the City a guaranteed
market for day trip visits. Tourism directly and indirectly assists
the local economy by creating employment for some 2,500 people and
provides a valuable source of income particularly in retailing and
catering. A study by the Northumbria Tourist Board in 1996 estimates
that the total visitor spend in the City, based on 1993 expenditure
data, was in the region of £52m. |
| 9.5 |
Whilst visitors to Durham have a positive
impact on the City's economy, indiscriminate expansion of tourism,
particularly within the City Centre, could create the environmental
and social conflicts of interest between visitors and residents that
are being experienced in some of the more traditional tourist destinations.
The Council will, therefore, seek to avoid this problem by developing
a strategic approach to visitor management as recommended in the Northumbrian
Tourist Board 'Strategy for Tourism in Northumbria 1998-2002'. The
preparation of a Visitor Management Plan for the City Centre will
ensure the co-ordination of future action on matters relating to visitor
information, public art, further pedestrianisation, signposting, car
and coach parking, public transport and traffic management. It will
complement the Transport Strategy referred to in the Transport Chapter
and Town Centre Management referred to in the City Centre Chapter. |
| 9.6 |
The Council recognises, however, that
the tourist potential of Durham is limited by two important factors.
The first relates to the physical constraints of the historic centre
since the major visitor attractions of the City are confined to the
Peninsula area and the narrow shopping streets in the City Centre.
The second relates to the fact that Durham lacks a base of secondary
attractions creating the perception that although it is a worthwhile
stop-over point between York and Edinburgh, it provides only sufficient
interest for a relatively short visit. |
| 9.7 |
Although it is a fundamental objective
of the Council to encourage more visitors to the District as a whole,
it is recognised that further tourist development must embody the
principles of sustainability if it is to flourish. This means ensuring
that in assessing any new tourism activities and developments within
the District, the City Council will need to balance the economic benefits
with environmental protection in order to ensure that even when, in
exceptional circumstances, economic benefit might prevail environment
gain will always be sought and that the net environmental loss will
be exceptional and always fully justified. |
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LOCAL PLAN OBJECTIVES
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| 9.8 |
The Council's objectives for Tourism,
to be pursued through the Policies and Proposals contained in this
section of the Plan are: |
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- to take advantage of the economic benefits derived from visitors
without adversely affecting the traditional character and environmental
quality of the District or the overall commitment of the Plan
to the principles of sustainable development;
- to balance the needs of residents of the District with those
of visitors;
- to improve the range and quality of attractions for visitors;
- to ensure that visitor attractions are accessible to all modes
of travel;
- to encourage visitors to stay longer in the City of Durham;
- to encourage the development of sensitively designed and located
visitor accommodation.
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| 9.9 |
In formulating its planning policies relating
to tourism the Council has recognised the advice given in PPG 21 (Tourism)
that they should confine themselves to use of land and, as such, should
be aimed at facilitating tourist development, rather than promoting
or publicising tourism. |
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POLICIES |
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TOURIST FACILITIES
AND ATTRACTIONS |
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Sites for the Development
of New Tourist Attractions |
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| POLICY V1 |
A VISITOR CENTRE AND A NEW TOURIST
INFORMATION CENTRE ARE TO BE PROVIDED WITHIN THE DURHAM MILLENNIUM
CITY PROJECT AT NORTH CLAYPATH. |
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Justification |
| 9.10 |
The City of Durham is the focus for most
of the tourist activity within the County. The development of a Visitor
Centre and a new Tourist Information Centre within the City Centre
would complement this role and has the support of Durham County Structure
Plan Review, the County Durham Tourism Partnership 'Tourism Strategy
for County Durham 1997-2001' and Northumbria Tourist Board 'Strategy
for Tourism in Northumbria 1998-2002'. It would ensure that visitors
received not only the best possible presentation of what the District
has to offer but also what is available in other parts of the County
thereby spreading the benefits of tourism more widely. A site for
a Visitor Centre and new Tourist Information Centre has been included
within the Durham Millennium City Project at North Claypath. As a
City Centre location, the site at North Claypath would be accessible
for visitors using all modes to travel. It is also important to ensure
that the design of new buildings complies with the criteria set out
in Policy E6. |
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| POLICY V2 |
THE FOLLOWING SITES ARE PROPOSED
FOR THE DEVELOPMENT OF APPROPRIATE NEW ATTRACTIONS: |
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BEAUREPAIRE |
INTERPRETATION OF REMAINS AND PICNICKING |
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COXHOE HALL AND WOOD |
STABILISATION AND INTERPRETATION OF REMAINS,
WOODLAND MANAGEMENT, PARKING AND PICNICKING |
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OLD DURHAM GARDENS |
INTERPRETAION, PARKING AND PICNICKING |
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LUDWORTH TOWER |
INTERPRETATION, PARKING AND PICNICKING |
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BRANDON HILL |
INTERPRETATION, PARKING AND PICNICKING |
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Justification |
| 9.11 |
The Proposals Map identifies five sites
on which the Council considers the development of new attractions
would be appropriate. The rural location of these sites, however,
means that they are suitable only for the development of small scale
attractions which could be based on the interpretation of the history
of each site. |
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- Beaurepaire Manor House is the ruined mediaeval home
of the Priors of Durham, situated within the Priory's park of
Beaurepaire, just north west of Durham City Centre. The site is
in the guardianship of the City Council who sponsored excavations
and consolidation in 1979-84 to reveal substantial remains of
the hall, private apartments and service rooms.
- Coxhoe Hall Wood is a young mixed woodland on Magnesian
limestone, planted over the remains of the eighteenth century
Coxhoe Hall and its walled and woodland gardens. The City Council
as owner has established a woodland management plan and permitted
partial public access to the restored hall, lawns and woodland
walks. The hall was the birthplace of the poet, Elizabeth Barrett
Browning.
- Old Durham Gardens are the seventeenth and eighteenth
century terraced gardens of the former mansion belonging to the
Heath and Tempest Family. The gardens have been conserved and
restored by the City Council with a contemporary planting layout
to recreate the gardens during the 1635-1740 period. There are
fine views of the Cathedral from the terrace and gazebo.
- Ludworth Tower is a ruined fifteenth century tower, once
part of a larger mediaeval manor house. The Magnesian limestone
ruin lies within a larger site that includes the manorial complex,
all now open to public access. The City Council consolidated the
ruins about 15 years ago and after acquiring guardianship are
now owners of the monument.
- Brandon Hill is a ridgeline of historical importance
with panoramic views overlooking the City. Although in private
ownership, the area has potential for the provision of lay-bys,
picnic sites and interpretation material in order that the historical
and visual importance of Brandon Hill can be appreciated by both
residents and visitors.
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Development of Tourist
Attractions |
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| POLICY V3 |
PLANNING PERMISSION WILL BE GRANTED
FOR THE DEVELOPMENT OF NEW, OR THE EXTENSION OF EXISTING, TOURIST
ATTRACTIONS WITHIN THE BOUNDARIES OF SETTLEMENTS PROVIDED THAT
THE PROPOSAL: |
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1. |
DOES NOT ADVERSELY AFFECT THE
CHARACTER OF THE AREA IN WHICH IT IS LOCATED; AND |
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2. |
IS ACCESSIBLE TO ALL
TYPES OF VISITORS, INCLUDING THE ELDERLY, DISABLED AND THOSE
WITH CHILDREN; AND |
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3. |
IS ADEQUATELY SERVED BY THE EXISTING
ROAD NETWORK; AND |
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4. |
IS ACCESSIBLE TO PEDESTRIANS,
CYCLISTS AND USERS OF PUBLIC TRANSPORT; AND |
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5. |
DOES NOT ADVERSELY AFFECT THE
AMENITY OF NEIGHBOURING OCCUPIERS OF LAND OR PROPERTY. |
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| POLICY V4 |
PLANNING PERMISSION WILL BE GRANTED
FOR THE DEVELOPMENT OF NEW, OR EXTENSION TO EXISTING, TOURIST
ATTRACTIONS OUTSIDE THE BOUNDARIES OF SETTLEMENTS PROVIDED THAT
THE PROPOSAL: |
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WILL NOT ADVERSELY AFFECT THE
OPENNESS OF THE GREEN BELT; AND |
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2. |
WILL NOT ADVERSELY
AFFECT THE NATURAL OR PHYSICAL CHARACTER OF THE AREA IN WHICH
THEY ARE LOCATED; AND |
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3. |
WILL NOT CONFLICT WITH THE INTERESTS
OF NATURE CONSERVATION AS SET OUT IN POLICIES E16-E20 OF THE
PLAN; AND |
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4. |
IS ADEQUATELY SERVICED BY THE
EXISTING ROAD NETWORK; AND, EXCEPT WHERE THE LOCATION OF THE
ATTRACTION IS DEPENDANT UPON THE HISTORICAL ASSOCIATIONS OR
PHYSICAL NATURE OF THE SITE, IS ACCESSIBLE BY A CHOICE OF TRANSPORT
MODES; AND |
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5. |
DOES NOT MATERIALLY ADVERSELY
AFFECT THE AMENITY OF NEIGHBOURING OCCUPIERS OF LAND OR PROPERTY
OR THE OPERATION OF EXISTING NEARBY USES; AND |
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6. |
WILL NOT CONFLICT WITH POLICY
E9. |
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Justification |
| 9.12 |
Although the Council wishes to continue
to promote Durham as a tourist destination, it recognises that such
a course of action can jeopardise the intrinsic quality, which attracts
visitors in the first instance. This is of particular relevance to
areas within the City Centre such as the peninsula, where access limitations
restrict its capacity to absorb additional tourist facilities. |
| 9.13 |
Whilst the Visitor Management Plan referred
to in paragraph 9.5 will help to address this conflict of interest
within the City Centre, it is important that new tourist attractions
respect the existing character of the area in which it is located.
In order to safeguard this fundamental requirement, the Council will
assess any new proposal against the criteria set out in Policies V3
and V4. The Millennium Scheme referred to in detail in Chapter 11
affords the Council a unique opportunity to enhance facilities for
visitors in manner, which is compatible with the Policy V3. |
| 9.14 |
Proposals for tourist, recreational or
leisure developments in the countryside will be assessed according
to other Policies of the Plan, particularly those in the Chapters
relating the Environment (E1, E8, E9 and E16-E20) and Recreation (R10).
As a general guide, they must not result in damage to the intrinsic
character of the area in which they are located. |
| 9.15 |
Wherever possible, new tourist attractions
outside the boundaries of settlements should be capable of being served
by public transport, footpaths and cycle paths. |
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VISITOR ACCOMMODATION |
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Hotel Development
at Framwelgate Waterside |
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| POLICY V5 |
PLANNING PERMISSION WILL BE GRANTED
FOR HOTEL DEVELOPMENT ON LAND AT FRAMWELGATE WATERSIDE. |
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Justification |
| 9.16 |
The strategic planning policies contained
in both the Durham County Structure Plan Review and County Durham
Tourism Partnership's Tourism Strategy for County Durham identify
Durham City as a suitable location for additional high quality hotel
development. The City Centre Masterplan which was adopted by the City
Council in 1998 addresses this issue by recommending the site of the
former Electricity and Gas Depots at Framwelgate Waterside should
be reserved for the development of a high quality hotel (see Policy
CC2a). Policy V5 of the Local Plan, therefore, allocates this site
for that purpose. Due to its environmental sensitive location fronting
the River Wear, any hotel development will need to be of a scale and
design that will enable it to be satisfactorily assimilated into its
immediate surroundings in accordance with Policy V6. It is also important
to ensure that the design of the new hotel complies with the criteria
set out in Policy E6. |
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Within Settlement
Boundaries |
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| POLICY V6 |
PLANNING PERMISSION WILL BE GRANTED
FOR NEW VISITOR ACCOMMODATION OR EXTENSIONS TO EXISTING VISITOR
ACCOMMODATION WITHIN THE BOUNDARY OF SETTLEMENTS PROVIDED THAT
THE DEVELOPMENT IS APPROPRIATE TO THE SCALE AND CHARACTER OF
THE AREA AND SUCH A PROPOSAL DOES NOT CONFLICT WITH OTHER POLICIES
CONTAINED WITHIN THE PLAN. |
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Justification |
| 9.17 |
Durham's dual role as a tourist and business
centre assists in the provision of visitor accommodation within the
District and ensures a high level of occupancy throughout the year.
It appeals to both the leisure market with an interest in historic
cities, and the business market attracted by its conference facilities
and its proximity to the commercial and industrial centres of Tyneside,
Wearside and Teesside. In general terms, business visitors generate
a stable year-round demand for accommodation particularly during the
week, and leisure visitors fill the gaps at weekends and school holidays.
This creates a welcome stability, which is not often shared by larger
cities, with their bias towards the business market or seaside resorts
with their very seasonal leisure market. |
| 9.18 |
In addition to the usual range of accommodation
(hotels, motels, guesthouses, bed and breakfast and self-catering),
the City has the capacity to provide approximately 4,000 bed spaces
in the Colleges of Durham University. The level of occupancy achieved
by the University for this accommodation, which is restricted to vacation
periods, is much higher than the national average, indicating the
success that Durham has in satisfying the demand for this sector of
the visitor market. |
| 9.19 |
The Council recognises the need for a
broad range of accommodation to be made available for visitors to
the District in order to encourage them to stay longer. Extensions
to Ramside Hall Hotel and the development of Travel Lodges at Bowburn
and Pity Me together with the new hotel site at Framwelgate Waterside
allocated in Policy V5 indicate the Council's commitment to support
proposals, which seek to fulfil this objective. |
| 9.20 |
The Council does, however, recognise that
the provision of visitor accommodation can create amenity problems
for the occupiers of neighbouring properties through vehicular and
other activities associated with these developments. It must also
ensure that it is of a scale which will have no detrimental affect
on the intrinsic character of the area in which it is located. Policy
V6 seeks to ensure that any proposal for additional visitor accommodation
will only be approved if these problems are resolved to the satisfaction
of the Local Planning Authority. |
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In the Countryside |
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| POLICY V7 |
PLANNING PERMISSION FOR NEW VISITOR
ACCOMMODATION IN THE COUNTRYSIDE WILL BE GRANTED IF: |
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1. |
IT IS AN EXTENSION TO AN EXISTING
ESTABLISHMENT CATERING FOR VISITORS; OR |
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2. |
IT INVOLVES THE CONVERSION
OF AN EXISTING BUILDING ACCEPTABLE UNDER THE CRITERIA SET OUT
IN POLICY E8; OR |
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3. |
IT WOULD NOT BE CONTRARY TO POLICIES
E1, E8, E9, E10 AND E24 OF THE PLAN. |
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WHERE PLANNING PERMISSION IS GRANTED
FOR NEW VISITOR ACCOMMODATION IN THE COUNTRYSIDE, SUCH APPROVAL
MAY BE SUBJECT TO A PLANNING CONDITION OR AGREEMENT WILL BE
SOUGHT WITH THE APPLICANT TO ENTER INTO A PLANNING OBLIGATION
LIMITING THE OCCUPATION BY ONE OR MORE PERSONS TO NOT MORE THAN
12 WEEKS IN ANY ONE CALENDAR YEAR. |
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Justification |
| 9.21 |
It is anticipated that most new visitor
accommodation will be provided within the built-up areas of the District.
Such development is rarely acceptable in the countryside because of
its impact on the landscape and distance from other amenities. The
Council accepts, however, that there are exceptional circumstances
when consideration might be given to approving such development. For
example, if the development in the countryside represented an extension
to an existing establishment catering for visitors as has previously
occurred at The Ramside Hall Hotel. |
| 9.22 |
The conversion of existing buildings in
the countryside to provide visitor accommodation may also be acceptable
as long as the proposal complies with the criteria set out in Policy
E8. In order to prevent the permanent occupation or use of visitor
accommodation within the countryside by one or more persons, and therefore
the effective creation of new residential property, approvals for
such developments will only be acceptable if they include a restrictive
occupancy condition or a planning obligation to that effect. |
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Camping, Caravan and
Chalets |
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| POLICY V8 |
PLANNING PERMISSION FOR THE DEVELOPMENT
OF NEW OR EXTENSIONS TO EXISTING SITES FOR CAMPING, CARAVANNING
(BOTH TOURING AND STATIC) AND CHALETS WILL NOT BE GRANTED IN
THE DURHAM CITY GREEN BELT UNLESS THEY COULD BE DEMONSTRATED
TO PRESERVE THE OPENNESS OF THE GREEN BELT AND NOT TO CONFLICT
WITH THE PURPOSES OF INCLUDING LAND WITHIN IT. ELSEWHERE PLANNING
PERMISSION WILL BE GRANTED PROVIDED THAT: |
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1. |
THE SITE IS NOT PROMINENT, IS
ADEQUATELY SCREENED AND PITCHES ARE LAID OUT IN A MANNER WHICH
WOULD NOT ADVERSELY EFFECT THE CHARACTER OF THE AREA; AND |
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2. |
THE PROPOSAL WOULD
NOT ADVERSELY EFFECT THE AMENITIES OF NEIGHBOURING OCCUPIERS
OF LAND OR PROPERTY; AND |
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3. |
THERE IS A SATISFACTORY MEANS
OF ACCESS TO THE SITE WHICH DOES NOT RESULT IN CONGESTION OF
THE LOCAL ROAD NETWORK; AND |
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4. |
THE SITE IS SERVED BY ADEQUATE
INFRA- STRUCTURE; AND |
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5. |
THE SITE IS NOT LOCATED WITHIN
AN AREA WHICH IS SUBJECT TO FLOODING; AND |
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6. |
THE SITE IS ADEQUATELY SERVED
BY PUBLIC TRANSPORT, FOOTPATHS AND CYCLEPATHS; AND |
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7. |
THE PROPOSAL WILL NOT CONFLICT
WITH POLICIES E9 AND E16-E20. |
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SITES FOR STATIC CARAVANS AND CHALETS
WILL IN ADDITION BE REQUIRED TO BE ADEQUATELY SCREENED ALL THE
YEAR ROUND. THE DESIGN, MATERIALS AND COLOUR OF STATIC CARAVANS
AND CHALETS SHOULD BE CHOSEN TO MERGE WITH THE SURROUNDINGS
OF THE SITE. |
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Justification |
| 9.23 |
Whilst the Council does not wish to preclude
the needs of visitors with caravan or camping equipment, it is important
that sites for their occupation should be carefully located and landscaped
in order to minimise their impact upon the local environment. This
is of particular relevance to the Durham City Green Belt where the
most important attribute is the retention of its openness. The development
of caravan sites will only be considered where the layout has been
comprehensively planned, the caravans can be adequately screened throughout
the year, they are not located within the Durham City Green Belt and
the scale of the development would not adversely affect the character
of the area in which it is to be located. Any proposal for new holiday
touring and/or static caravan and/or camping site or extension to
an existing facility within the District will, therefore, be assessed
against the criteria set out in Policy V8. |
| 9.24 |
Sites for static caravans and chalets
will not only be assessed against the criteria set out in Policy V8
but must, in addition, be able to provide screening that is effective
throughout the year. They should also be of a material and colour
which can be easily assimilated into the surrounding area. |
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Occupancy |
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| POLICY V9 |
PLANNING PERMISSION FOR STATIC
HOLIDAY CARAVANS AND CHALETS IN THE COUNTRYSIDE WILL ONLY BE
GRANTED IF OCCUPATION BY ANY ONE PERSON OR GROUPS OF PERSONS
IS LIMITED TO NOT MORE THAN 26 WEEKS IN ANY ONE CALENDAR YEAR. |
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Justification |
| 9.25 |
Static holiday caravans and chalets which
are used for visitor accommodation are not normally designed, built
or located for permanent residential use. In order to ensure that
visitor accommodation is prevented from becoming a permanent dwelling
within the countryside the Council will impose a planning condition
on all new sites which are approved limiting occupation by one person
or groups of persons to not more than twenty six weeks in any one
calendar year. |
| 9.26 |
The occupation of static caravans for
permanent residential use is not considered appropriate unless they
are located within an established static caravan park specifically
developed for that purpose. |
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