Chapter 15
COUNTRYSIDE AND THE RURAL ECONOMY
THE COUNCIL WILL SAFEGUARD AND ENHANCE THE ECONOMIC VITALITY AND ENVIRONMENTAL QUALITY OF THE COUNTRYSIDE. ACTIVITIES AND DEVELOPMENT WHICH HELP TO REGENERATE OR DIVERSIFY THE RURAL ECONOMY, SUPPORT THE WELL BEING OF RURAL COMMUNITIES, OR INCREASE THE RECREATIONAL AND TOURISM POTENTIAL OF RURAL AREAS WILL BE PERMITTED, IN PARTICULAR:
a.AGRICULTURAL DEVELOPMENT AND APPROPRIATE FARM DIVERSIFICATION ENTERPRISES;
b.THE ESTABLISHMENT OR EXPANSION OF RURAL BUSINESSES AND ACTIVITIES;
c.OUTDOOR RECREATIONAL PURSUITS AND PROPOSALS WHICH FACILITATE IMPROVED ACCESS TO AND WITHIN THE COUNTRYSIDE; AND
c.FACILITIES FOR TOURISTS OR VISITORS.
PROPOSALS WILL BE EXPECTED TO RESPECT AND WHERE POSSIBLE ENHANCE THE NATURAL, CULTURAL AND VISUAL QUALITIES OF THE LANDSCAPE AND THE CHARACTER OF THE COUNTRYSIDE.
15.1The protection of the countryside and the need to sustain its socio-economic vitality is a clear priority in Government planning policy and in the policies and programmes of a range of Government departments and agencies.
15.2The countryside in the Borough includes a diversity of activity such as agriculture, minerals extraction and waste disposal, tourism and leisure and a range of industrial operations. These uses both reflect and impact on the particular characteristics of Rochdale's countryside: its distinctive landscape character, its cultural heritage, its natural assets, and its relationship with urban areas and communities. It is therefore important to ensure that future uses and developments, which draw on the qualities and assets of the countryside, also help to safeguard them. The positive encouragement of appropriate uses and developments can help to maintain a viable rural economy which is vital to protect employment, provide local facilities, assist the care and management of the landscape, the regeneration of degraded sites, and the re-use of, or investment in existing buildings.
15.3With continued and increasing economic pressure on the agricultural sector, it is vital that new rural enterprise to support existing agricultural uses and employment and further diversify and sustain the rural economy is encouraged and facilitated. The Plan will support development of appropriate rural enterprises based on such activities as tourism, sport and recreation, forestry, environmental education, conservation and other business ventures which do not conflict with the objectives of protecting the openness, character and quality of the countryside. Consideration will be given to the provisions of policies relating to Green Belt and Protected Open Land where relevant.
15.4The policy also acknowledges the considerable potential for enhancing and extending recreational provision appropriate to a rural area where those activities would not conflict with other land uses such as agricultural operations and nature conservation.
Development proposals that help to sustain or regenerate the economic vitality and environmental quality of the countryside in and around the main urban centres will be supported. Development proposals will be permitted where they assist agricultural diversification, regenerate areas despoiled by previous industrial uses and revive poor quality landscapes. Proposals should be of an appropriate scale and type for the location and should take full account of opportunities to:
a.Protect or restore landscape character and quality in respect of visual appeal, and cultural and historic features;
b.Protect and enhance recreational access to the countryside and strategic trails from surrounding urban areas;
c.Conserve and enhance biodiversity through appropriate protection of habitats and wildlife corridors and the creation of new interest;
d.Develop community forestry in appropriate locations; and
e.Safeguard and enhance green wedges and open spaces which have existing value or potential for countryside recreation.
Development in or adjacent to river valleys should be of limited scale, should not sever the open parts of the valley and should not detract from the wider landscape setting. Developments should also take account of Policy EM/7 ‘Development and Flood Risk’. In areas designated as Greenspace Corridors, the provisions of Policy G/8 will apply.
The Council will also encourage and carry out proposals for environmental improvements and recreational uses appropriate to the countryside around towns having regard to nature conservation interests and existing uses. Within the Green Belt, the provisions of Policy D/4 ‘Control of Development within the Green Belt – General’ will apply.
15.5The countryside around towns is often described in negative terms as ‘urban fringe’. The areas of countryside which lie in and adjacent to the urban parts of the Borough do contain areas of dereliction and poor environments but also many areas of attractive and historic landscapes in the upland fringes and river valleys, providing opportunities for a variety of recreational pursuits close to the main centres of population and with a rich diversity of wildlife. These areas are an important resource for the local community providing a gateway between the core of the urban areas and the wider countryside.
15.6The policy recognises that the countryside around towns is also an economic entity where agriculture, other industrial and commercial uses and public utilities e.g., water and sewage facilities are based. Its continued viability is important for both the local economy and for its effective environmental management and well being. It is envisaged that in most cases, development proposals will be small scale or limited extensions or reuse of existing buildings except where there could be larger scale proposals put forward to address problems of significant derelict or vacant sites. The policy, in conjunction with other policies of the Plan seeks to help ensure that the countryside in and around towns can accommodate necessary development whilst also achieving the conservation or regeneration of its environmental qualities and value to the local community on the doorstep.
15.7This approach is consistent with Natural England’s advice for the countryside in and around towns contained in the document ‘Planning Tomorrow’s Countryside’, in addition to the ‘England Forest Strategy’ as published by the Forestry Commission and other local area strategies such as those of the Environment Agency.
15.8The Council is also actively involved in managing significant areas of the 'countryside around towns' through its Countryside Service and rights of way management. There are key ‘gateway’ sites between town and country, many waymarked routes and trails are promoted and managed, and many woodlands and other open spaces are managed for their recreational, wildlife and amenity value often in partnership e.g., with United Utilities. The Council will continue to develop integrated greenscape management which will include the production of a Greenscape Strategy and the development of further initiatives and partnerships at all levels where resources and opportunities permit.
Development will not be permitted if it would result in the loss of the best and most versatile agricultural land (Grade 3a and above) unless the following criteria are met:
a.An overriding need for the development can be demonstrated;
b.There is a lack of development opportunities in already developed areas;
c.There is little land in grades below 3a which does not have a recognised environmental designation; and
d.The development is proposed on land of the lowest practical grade.
Any development which is permitted should not:
i.Involve the severance or fragmentation of substantial tracts of open farmland;
ii.Sever communications between parts of viable farm units; or
ii.Give rise to pollution or other environmental disturbance likely to adversely affect farm operations.
15.9Most farmland, other than some areas of land in the western part of the Borough around Castleton, Middleton and Heywood is of a relatively low grade and not considered by the Department of Environment, Food and Rural Affairs (DEFRA) to be the best and most versatile land for which a general presumption against development should apply. There is however a notable amount of Grade 3b, 4 and 5 land which is still a locally valuable resource and high productivity is often achieved by good husbandry and investment in the farm operation which maximises the more limited potential of the land. In addition to its value for farming operations, much of this farmland, in particular that in the South Pennine fringes has a high local landscape value and often a significant value for nature conservation e.g. upland birds.
15.10The Council will be seeking to encourage the retention of farm holdings with a sound farm structure unless there are overriding and proven strategic considerations as set out above. The policy recognises that there are substantial areas of uninterrupted farmland, the integrity of which it is desirable to maintain. The policy also seeks to ensure that development does not create access difficulties between different parts of a farm unit or holding, or reduces the viability of that unit. The suitability of proposals for farm and other rural diversification enterprises which involves the redevelopment or reuse of farm land and buildings is further dealt with in policies RE/4 (below) and D/9 (Chapter 7).
Proposals for the diversification of farm enterprises and small scale business development will be supported where they help to sustain or regenerate the rural economy and meet the following criteria:
a.Any new buildings must be appropriate to their rural setting in terms of scale, location and design:
b.Existing buildings must be of permanent and substantial construction, capable of conversion without major reconstruction;
c.The site has good road access, adequate for traffic likely to be generated;
d.The proposal helps to sustain or restore the character of the surrounding countryside by virtue of its design and location and has no detrimental effects on landscape, ecology (including protected species) or historic buildings and features;
e.The proposed use will not include requirements for open storage, parking, or other associated development that would detract unacceptably from the character of the area. Suitable screening, boundary treatments and landscaping should be used where this would enable the proposed use to be carried out without being intrusive in the countryside;
f.The proposal will not cause harm to local amenity by virtue of factors such as noise, dust or traffic generation;
g.The site is well contained by clear boundaries; and
h.The proposal satisfies the provisions of Green Belt and protected open land policies where appropriate.
15.11It is important to protect the countryside for its own sake and the vitality and viability of the rural economy is an important factor in helping to achieve this. With increasing economic and structural pressures affecting agriculture both nationally and locally, it is important to facilitate the diversification of the rural economy where this is required to safeguard existing rural jobs, provide wider employment opportunities and help to sustain rural communities and the character and environmental quality of the countryside. This reflects the objectives of Natural England and the objectives and initiatives of the Government’s Rural Development Programme for England. The guiding principle for development in the countryside is that it should benefit the rural economy and communities and maintain or enhance the environment.
15.12Farm related diversification opportunities are varied and can include the sale of agricultural services to other farmers, provision of tourist accommodation (e.g., bed and breakfast, self catering units, camping), provision of leisure facilities (e.g., fishing, golf, riding) and the sale of produce (e.g., farm shops). Other opportunities may include forestry or renewable energy production (e.g. biomass).
15.13Although farm diversification is a major component of the rural economy, the role of other enterprises in promoting healthy rural economic activity is also recognised by the policy. Many small-scale enterprises could for example utilise existing rural buildings for employment use with few alterations, whilst also complementing agricultural and other rural activities. This could include certain types of tourism, high technology manufacturing, arts and crafts and service enterprises which do not generate high levels of traffic or require larger business units. The Pennine Way and Pennine Bridleway National Trails may also present opportunities for tourist accommodation and other service provision.
15.14The Council will apply criteria (a)-(h) listed above in all cases and will require appropriate details of existing buildings forming part of a proposal which may include structural reports, plans detailing new or replacement components and the presence or otherwise of protected species. The provisions of Policy D/9 ‘Re-use and Adaptation of Buildings in Rural Areas’ will be applied in all relevant cases. In addition as a high proportion of rural land is within the Green Belt, the provisions of Policy D/4 “Control of Development in the Green Belt - General” will also be applied where appropriate.
Development proposals that protect, improve and extend access to the countryside on foot, cycle or horseback will be permitted. Planning agreements and planning conditions will be used where appropriate to secure improvements. Development proposals and infrastructure improvements should wherever possible improve opportunities for access by maintaining, improving and extending the existing rights of way network and improving signposting and waymarking.
Priority should be given to:
a.Existing definitive rights of way, footpaths and bridleways;
b.The protection and development of strategic routes such as the Pennine Way, Pennine Bridleway, Rochdale Way and routes linking to them;
c.Existing or potential routes within or linking with Greenspace Corridors (see Policy G/8);
d.Schemes which improve access to and within Recreational Management Areas (see Policy RE/7) and the wider Southern Pennines;
e.The adaptation of key routes at major facilities to enable use by people with impaired mobility;
f.Common Land and land identified as open country under the Countryside and Rights of Way Act 2000 by Natural England; and
g.Other routes which may be identified within a future Recreation Strategy prepared by the Council.
Proposals should minimise problems of trespass, reduce conflicts with farming interests and should be subject to consultation with farmers and landowners. The Council will also seek to minimise conflict between recreational users through measures to enhance recreational management.
15.15The rights of way network is a vital facility in ensuring that people have access to the countryside. The policy aims to encourage people to experience the countryside at first hand, near to their homes, at popular places or attractions and in the Southern Pennines and therefore priority will be given to the access network in those areas.
15.16There is already an extensive rights of way network in the Borough including sections of the Pennine Way and Pennine Bridleway national trails. The Rochdale Way is a locally designated strategic circular route and there are other significant local routes such as the Rochdale Canal towpath. The Council, in partnership with Natural England and others has sought to improve recreational access from the urban areas to the wider countryside and with partners in Pennine Prospects, the South Pennine Rural Regeneration Company the Council is seeking to further improve opportunities for access within the wider region.
15.17Rights of way are not just about the major recreational routes. The local network of paths (statutory and non-statutory) is a valuable and often underused resource and there is a need to safeguard these routes, remove blockages, maintain them in a satisfactory condition, extend them where appropriate and ensure they are clearly defined and waymarked. Facilities for horseriders, cyclists and trailbike riders are limited and the Council will seek to establish new routes (especially circular bridleways and link-routes between existing bridleways). It is also important to ensure that the network of routes in and around urban areas which may include safe routes to school and ‘green’ travel to work routes is linked in appropriate ways with recreational routes in the countryside through promotional activities and physical improvements.
15.18In establishing, extending and improving rights of way in accordance with an overall strategy, it will be possible to help minimise conflict between users, landowners and managers and discourage accidental damage and trespass.
15.19The Council intends to continue its efforts to make as much of the network as possible accessible to people with impaired mobility, including those with various disabilities and carers with prams and pushchairs. Work to facilitate such use has been carried out at various sites to date including Hollingworth Lake Country Park, Watergrove Reservoir, the former Healey Dell - Cronkeyshaw Common railway line and the Rochdale Canal towpath. Further works will be carried out as opportunities and resources permit.
15.20The Countryside and Rights of Way Act 2000 makes provision for the establishment of a general right of access on foot to large areas of open country. The areas are mapped by Natural England and managed by the Council in terms of access and recreational matters. Rochdale already has the highest proportion of ‘Urban Common’ in the Southern Pennines concentrated largely in the moorland areas of the Southern Pennine fringe. Urban Common provides a right of access for air and exercise on foot and for horse riders in many parts of the moorland fringe. The Council will seek to identify opportunities and resources to protect and enhance access and reduce trespass and conflict with other moorland uses where practicable which will include partnerships with landowners and other interests.
The Council will develop, in partnership with other agencies, bodies, occupiers and landowners, a system of strategic recreational rights of way as identified on the Proposals Map. The intention will be to secure the protection, development and improvement of these routes to link areas of managed and accessible countryside and establish links with routes in the wider region. The Council will encourage and implement high quality links with such routes from urban areas.
Where appropriate and practicable, the Council will support schemes which facilitate the greater use of these routes by cyclists, horseriders and those people with impaired mobility. Where opportunities and resources permit, the Council will support and implement enhancement schemes such as waymarking, picnic, interpretation and other facilities along the routes. The routes on the Proposals Map include:
a.The Rochdale stretch of the Pennine Way;
b.The Rochdale stretch of the Pennine Bridleway;
c.The Rochdale Way;
d.The Rochdale Canal;
e.Routes forming a part of an emergent Southern Pennines recreational network; and
f.Other primary countryside routes linking urban areas and local route networks with strategic routes and trails in adjoining districts such as the Oldham Way, Calderdale Way and Rossendale Way.
In the implementation of this proposal, the Council will take account of the conservation of the countryside including the buildings within it, the protection of agricultural interests, areas of nature conservation importance (including designated areas) and the character and purpose of the route where appropriate.
15.21An accessible and varied recreational network is important for the quality of life in urban areas, its contribution to the rural economy and for conserving the character and heritage of the countryside. This is clearly reflected in the objectives of Natural England and others and is a major theme in the Southern Pennines Heritage Strategy being implemented by Pennine Prospects and partners in the region.
15.22The policy reflects the Council’s priorities for improving access to and within the countryside (see Policy RE/5 above). The development of a strategic network of recreational rights of way linking town and country and areas of managed countryside is also consistent with the Council’s approach in ‘Recreational Management Areas’ (Policy RE/7) and tourism policies. Where opportunities and resources permit, the Council will develop both countryside and urban links which connect with those identified on the Proposals Map, in line with Policy G/8 ‘Greenspace Corridors’ and as part of its responsibility to maintain the definitive footpath network.
15.23Many sections of the routes identified on the Proposals Map are already established paths although some gaps or obstructions exist and the legal status of routes varies across the proposed network including a limited number of stretches where there is currently no legal right of way. Whilst the Council wishes to encourage greater use by walkers, horseriders, cyclists and people for whom mobility is a problem, it will be necessary to adapt management and improve appropriate sections of the network through specific measures to facilitate such use. The Council will also seek to secure the provision of signposting, picnic and other facilities along routes in appropriate places through its own resources and with the assistance of other agencies and organisations including Natural England, the Forestry Commission and United Utilities. The Council’s Countryside Service has prepared a Strategy outlining its commitment to meet such objectives. In seeking to develop cross boundary links to connect with strategic routes in adjoining areas, the Council will work closely with partners in Greater Manchester, Pennine Prospects and the West Pennine Moors Area Management Committee. Areas of nature conservation importance will be given full consideration in implementing this policy, in particular those routes within the Rochdale Canal and South Pennine Moors Special Areas of Conservation and the network of Local Nature Reserves and Sites of Biological Importance. Consultation with Natural England and Greater Manchester Ecology Unit will be carried out where required.
The Council will, as resources and opportunities permit, develop the recreational potential of the areas shown on the Proposals Map and listed below, through effective management:
a.Hollingworth Lake Country Park and environs;
b.Healey Dell Local Nature Reserve and environs;
c.Piethorne Valley;
d.Watergrove Reservoir;
e.Hopwood Woods Local Nature Reserve;
f.Ashworth Valley;
g.Greenbooth and Naden Reservoirs;
h.Alkrington Woods Local Nature Reserve;
i.Roch Valley (west of Rochdale Town Centre);
j.Roch Valley, Heywood; and
k.Bowlee Community Park and environs.
Within these areas, the Council will promote outdoor recreational uses including both specialist sports and active outdoor pursuits and passive recreation (e.g., nature appreciation and related educational pursuits) that are consistent with the conservation and enhancement of the local landscape and ecology. Such uses should not be detrimental to the amenity or character of the area or lead to conflict with other recreational or land management interests. Management measures will include the provision of visitor facilities such as footpaths, nature trails, car parks, picnic areas, visitor interpretation points, play areas, events areas etc. (as appropriate to the area) and management services. Existing land uses and resources will be safeguarded and access to areas sensitive to visitor usage restricted.
New built development will not generally be permitted unless it is in connection with an existing building or use, or is ancillary to an outdoor use, and is of an appropriate scale, design and layout.
The types of recreational activities, visitor facilities, landscaping works and management regimes will have regard to the particular character and potential of the area, local needs and opinions and the effect on surrounding uses.
15.24The areas listed in the policy represent the areas of greatest potential for outdoor recreation in terms of their accessibility, existing attractions, features and facilities and the opportunities they present for consolidating and expanding recreational activities. They provide the potential for high quality countryside and natural greenspace close to the main urban areas and are a ‘gateway’ to the wider countryside which contains long distance trails and significant areas of urban common and open country as defined in the Countryside and Rights of Way Act 2000.
15.25The Council believes that a co-ordinated ‘management’ approach to recreational provision within each area is essential to ensure that recreational development is sensitive to the natural character and attributes of each area and other land uses in the vicinity e.g., it does not generate excessive noise, pollution or danger to the public or wildlife. As areas differ in character and the opportunities they offer, more detailed and individual site and area management is required. The Council’s Countryside Service will work with landowners, key national and regional agencies (including funders), community and recreational interests to develop such plans as outlined in their Service Strategy. The policy is intended as a long term framework for promoting and facilitating future management plans, investment programmes and to further guide the control of development in conjunction with other policies such as ‘Landscape Protection and Enhancement’(NE/6) and ‘Countryside around Towns’ (RE/2) in addition to Green Belt policies which apply in many locations.
15.26It may be that further recreational and landscape based developments will give rise to new areas to be managed as Recreational Management Areas and included in the Plan at a future date.
The Council will promote and extend opportunities for countryside recreation by securing the provision of visitor facilities in appropriate locations. The purpose of such facilities will be to:
a.Establish and enhance recreational gateways between the urban areas and the countryside;
b.Provide managed and sustainable access to major recreational routes and facilities, designated open country and areas of scenic or natural interest;
c.Make appropriate provision for visitors such as car parks, cycle and horse parking, toilets and shelter, educational and interpretative resources, picnic sites and play areas and equipment;
d.Facilitate the use and enjoyment of the countryside for people with impaired mobility; and
e.Assist the conservation and enhancement of appropriate habitats and access to natural greenspace.
The design and layout of schemes providing facilities will have regard to the character of the landscape, farming and other land and utility management interests, nature conservation, residential amenity, safety and security, and the needs of all users.
15.27The countryside around the Borough, especially in the Southern Pennine fringe contains a wealth of opportunity to experience and enjoy the countryside whether it is for quiet relaxation, access to longer distance routes and trails or specialist activities. The growth in demand, and opportunities for countryside recreation and leisure pursuits requires appropriate facilities to be provided so that a high quality experience of visiting the countryside can be open to as many people as possible regardless of their abilities and without increasing pressure on sensitive habitats, landscapes and other land use interests. This includes a range of sites and services such as car parking, amenities such as toilets and shelter, information and activity based facilities.
15.28By developing ‘gateway’ sites to the countryside, the Council and other local authority and recreational management interests in the Southern Pennines aim to increase their ability to effectively manage and promote such a range of usage and create an environment where access to the countryside and visitor facilities can be enhanced for all sections of the community. Such gateway sites include Hollingworth Lake Country Park, Watergrove Reservoir, Piethorne Valley and Healey Dell Local Nature Reserve. Provision of facilities is dependent on the appropriateness of the location and can range from a small information point or seating area to a major visitor centre with a wide range of services. The Council is working with Pennine Prospects and other local authorities and partner organisations to identify the potential for a regional network of sites and facilities from major sites to smaller local sites as part of the implementation of the Southern Pennine Heritage Strategy called the South Pennine Heritage, Education and Access Network (HEAN).
15.29It is important to ensure that all developments providing countryside visitor facilities are well designed and located and appropriate in their scale and nature to the character of the area. Facilities should not lead to conflict with surrounding land uses or result in pressure on the local environment e.g. wildlife and habitats or local amenity e.g., through traffic generation or noise, which cannot be successfully managed.