In spite of Sunderland's image as an industrial city, its 'rural' areas are extensive - some 5,700ha.- a figure second only to Gateshead amongst the Tyne and Wear districts.  The City comprises a number of towns and villages which have over the years become increasingly linked by extensions of the urban fabric.  With the development of Nissan and associated firms between Sunderland and Washington, the basic urban area of the City is assuming a 'horseshoe' shape.  Within this, the policies of the old development plans have operated to maintain important open breaks between many of the constituent communities of the City.  Agricultural areas surround the constituent towns, giving a long 'urban fringe' boundary, susceptible to urban development and community pressures.

The City contains some 13km of the lower reaches of the River Wear.  From its mouth to the A19 Bridge, the river cuts through the densely developed urban area, where the predominant riverside land use has been, and to a great extent remains, industry.  Recent developments have been carefully designed to make a positive contribution to the urban riverside's appearance.  Between the A19 and Fatfield, the Wear takes on a more rural character.  This area is within the Green Belt.

The topography of the City varies, with several points over 150m in the west and south and significant points over 100m at Hastings Hill, Tunstall Hills and Penshaw Hill.  This river valley and the rolling, hilly topography allow long distance and panoramic public views to be had from, to and within the City.  Many are punctuated by natural or built landmarks such as the Tunstall Hills, Penshaw Monument and the City Centre churches; all are worthy of protection against development which would obscure or detract from their appearance.  Similarly, views of the unique topography and landscapes associated with the Permian limestone (i.e. the magnesian limestone escarpment, which extends from Downhill to Hetton-le-Hole and High Moorsley) need to be protected and opportunities taken for their enhancement where possible.

The rural landscape is made up of several distinct areas, each with its own character:-

• The Don Valley is extensive intensively managed pastoral/ arable farmland to the north of Nissan.  It is generally flat and has poor tree cover; 
• The Wear Valley is an area of contrasts; the deeply incised and well wooded river valley opens out as it runs westwards, generally taking on a gentler, more arable appearance; west of the City boundary are the extensive woodlands of the Lambton Estate; 
• Houghton Downs extends southwards from the Wear Valley to the City boundary at Easington Lane.  It is a strongly rural landscape of open, rolling countryside.  Tree cover is scarce and the several existing clumps of woodland are therefore prominent in the landscape.  The magnesian limestone escarpment, which is a notable geological feature, is influential on the flora, fauna and farmland characteristics; 
• South Sunderland is a relatively small area of gently undulating farmland fringing the built-up area of Sunderland City.  Centred on Burdon Village and dissected by the wooded Burdon/ Ryhope Dene it presents an attractive rural landscape of scattered farmsteads and individual tree groupings and high quality hedgerows;
• The Western Scarp, open farmland to the west of Hetton-le-Hole, forms part of the undulating topography of the Durham Plain.  Predominantly arable in nature with scattered small woodlands, the landscape character becomes increasingly rural to the west, towards Durham City’s urban fringe.

Overall, the City has a low level of mature tree cover (3.7%), though landscaping of larger reclamation schemes is greatly contributing to the overall level of woodland planting, including a significant proportion of native shrubs and trees.  The Great North Forest - a joint initiative between the Countryside Commission and Forestry Authority and five local authorities to improve the countryside around the south Tyne and Wear conurbation - will make a major contribution to new woodland in the City. 

The City’s rural area - as well as the urban - has many sitesof botanical and geological interest and a variety of habitats of value to wildlife; these are classified as Sites of Special Scientific Interest (SSSI’s) 16 of which are located in the City, Local Nature Reserves (LNR’s (1)), Sites of Nature Conservation Importance (SNCI’s (68)) or Regionally Important Geological/ Geomorphological Sites (RIGS (4)).  Certain linear features (e.g. open breaks and disused railway lines) play an important role as wildlife links and corridors.

Locally, the Tyne and Wear Structure Plan (1981) contained several policies to restrain the spread of the built-up area, to protect agricultural land, wildlife and the landscape and to enhance features of natural history value.  The Plan also outlined a Green Belt for the County, subsequently defined in the adopted Green Belt Local Plan (1985).  These form the previous long-term sub-regional context.

In 1988 the City Council, with the other metropolitan districts, endorsed the Tyne and Wear Nature Conservation Strategy (updated 1994) which provides a guide to the County’s nature conservation resources, together with recommendations for action to safeguard and protect them.  Additionally, the City has compiled a Nature Conservation Site Register containing all the City’s designated sites (SSSI’s, LNR’s, SNCI’s and RIGS).

Strategic Guidance (1989) provides that:-

• a secure Green Belt should be established - broadly on the lines of that already existing - which takes proper account of likely development needs well into the 21st century;
• positive action should be sought to conserve and enhance the attractiveness of the countryside and improve public access;
• areas of exceptional value which present a positive, high quality image and identity, should be enhanced, with special attention to cross-boundary areas of strategic environmental importance;
• consideration should be given to the land use implications of the changes occurring in agriculture;
• areas and features of heritage importance should be defined, protected and enhanced;
• wildlife corridors should be protected and enhanced. 

The recent White Paper ‘Rural England’ (1995) sets out the Government’s environmental strategy/ policies for the countryside.  These are based on the protection of the rural heritage and on creating the conditions for a healthy and growing rural economy.  Its main aims are to:-

• conserve the countryside’s natural assets;
• protect the best and most versatile agricultural land;
• promote rural diversification;
• reverse the decline in wildlife, sustaining the wealth of flora and fauna across the countryside and conserving rare species;
• maintain the diversity of rural landscapes;
• increase opportunities for people to enjoy the countryside for recreation.

These aspects are further developed in national planning guidance (PPG7 and PPG9).

The City’s annual Countryside and Access Strategy addresses a number of issues including access, recreational facilities, promotion and community involvement.  The document co-ordinates the Council’s countryside policies and programmes and forms the basis of an annual bid to the Countryside Commission for funding.

The countryside is a very special asset in this urbanised area which needs protecting and enhancing for its own sake and for the benefit of present and future generations.  Attempts will be made to secure the conservation of the City’s biodiversity (primarily through the preparation of a Biodiversity Action Plan). Biodiversity refers to the full range of living organisms; genetic, species and ecosystem variation.  More simply it is the variety of life.  Improvement and protection of the environment must, however, be balanced with urban regeneration aims.

To attain the objectives for the countryside and nature conservation set out in Part 1, the UDP policies are aimed to:-

• generally maintain the approved Green Belt boundary, with only minor alterations, and consider additions in areas of urban pressure;
• conserve the best and most important areas of the countryside for its heritage and wildlife habitats;
• allow for the continuation of rural activities and give support to the continuation of farming practices on the best land especially where these are influential in maintaining important landscapes and features;
• consider concentrating major new recreational facilities in certain localities, thereby protecting the remaining and most sensitive rural areas from the intrusion associated with relatively intensive use;
• take into account the City’s broader urban regeneration needs, and the specific rural locational needs e.g. minerals extraction;
• give maximum encouragement to the development of the Great North Forest in sympathy with the existing landscape and habitats.

The rural, largely agricultural, areas of a City such as Sunderland are always subject to pressure for urban development.  Between 1978 - 1994, some 490 hectares of ‘rural’ land have been developed for housing, industry and retailing (this includes the exceptional 370 ha Nissan development), a loss of nearly 9% of the total.

Change is ever present in the countryside; its physical, social and economic elements are in constant interplay and have combined to create the unique beauty and variety evident.  However, the countryside is changing more now than at any other time, coming under increasing pressure for ‘non-rural’ activities.  Although farming remains the major force in shaping of the City’s countryside, over the years new technologies and production methods have had an impact on its appearance, as has the growing incidence of ‘Set Aside’.

It is important that this change is fully assessed; the rural areas must not be regarded as an ‘empty space’ into which developments and activities can be fitted.  Development must be acceptable to the overall environment.

The Countryside Commission’s “Planning for a Greener Countryside” (1989) sets out a number of guiding principles in which town planning should operate:-

• natural beauty and landscape diversity should be conserved;
• ‘new’ countryside should be created wherever possible;
• green belts should serve a wider purpose, i.e. enhancing the natural beauty of the countryside and increasing opportunities for its quiet enjoyment;
• maximum environmental benefits should be secured from development that has to take place in the countryside;
• new housing in the countryside must make a positive contribution to the rural scene;
• rural enterprise is welcome if it is developed harmoniously with the countryside;
• major developments in the countryside should be strictly controlled and of the highest standard of design and landscaping. 

The guiding principle in the wider countryside is that development should benefit the rural economy and maintain or enhance the environment.  ‘Urban’ uses, such as housing or industry will not normally be appropriate in the open countryside.  Appropriate new development - essential accommodation for farm workers, small scale buildings for leisure pursuits, etc. - should be sensitively related to existing settlement patterns and to the historic, wildlife and landscape resources of the City.  The scale, detailing and the materials used in the construction of new buildings should respect surrounding existing development.  Particular emphasis will be placed on ensuring that any development is appropriate - and well related - to its landscape setting; any development in outlying areas will be expected to retain a large measure of those landscape features which give value to the area e.g. tree and hedgerow cover, walls and other field boundaries, etc.  Some operations (e.g. mineral extraction) will require a rural location and in such cases, where considered appropriate under Policies M1 to M3, it will be necessary to lessen the impact on the surrounding area for example by the incorporation of screening or appropriate heavy landscaping.  This could mitigate both visual and aural aspects of this development.

Implementation of the particular elements will largely be achieved by exercising development control powers, but certain aspects may be brought about by Council financial assistance e.g. grants for listed buildings, or by the Council’s management of land in its ownership.  Other sources of funding could include the Countryside Commission and the National Rivers Authority.

The statutory Green Belt formed an integral part of the broad strategy of the County Structure Plan to restrain the further spread of the Tyneside/ Wearside conurbation, concentrating investment within the existing built-up area.  Sunderland’s Green Belt was intended to prevent the merging of Sunderland with Washington, Houghton-le-Spring and Tyneside.  The Green Belt included in the Tyne and Wear Local Plan covered 3,750 hectares - almost two-thirds of the rural area.  There was no Green Belt in County Durham, which had preferred to operate other countryside protection policies.  However, the Regional Guidance for Durham, Cleveland and Northumberland (1993)suggested that Durham County Council should examine the case for an extension to the approved Tyne and Wear Green Belt to the west and south of the City Council area and this is included as a proposal in the County Council’s Structure Plan review and in the proposed plans of both Durham City and Chester-le-Street.

DoE national guidance sets out the five main purposes of a Green Belt which are reflected and interpreted in this Policy.  The note also stresses that the essential characteristic of Green Belts is their permanence and their protection must be maintained as far as can be seen ahead; once the general extent of a Green Belt has been approved it should be altered only in exceptional circumstances.  Strategic Guidance states that the broad extent and purpose of the approved Tyne and Wear Green Belt remains valid and should be maintained.  The Council will therefore continue to safeguard the statutory Green Belt defined in the 1985 Tyne and Wear Green Belt Local Plan with limited modifications to accommodate specific important material considerations/ uses.  The broad extent of the Green Belt, however, remains valid and this is maintained.

South Hylton/ Claxheugh (2ha) - consolidating the existing Green Belt, this addition will prevent the merging of Pallion and South Hylton

East of A19 (306ha) - this major addition will significantly enhance the separation of the built-up area of Sunderland with neighbouring settlements in Easington and also prevent encroachment on the countryside to the west of Cherry Knowle.

Cut Throat Dene (2.5ha) - this minor addition will ‘round off’ the existing Green Belt and assist in checking the spread of the urban area to the north.

Washington Riverside (50ha) - extending along the riverbank it will prevent the urban area sprawling into the river corridor and will complement the Green Belt on the adjacent river bank.

Southern Area Playing Fields (19ha) - complementing the proposed Durham County Green Belt, this designation, to the south of Bonemill Lane, will strengthen the separation between Washington and Chester-le-Street.

Penshaw (84ha) - the Green Belt will maintain the break betweenWashington (Mount Pleasant) and Houghton (Penshaw).  To the west it will prevent the further urban sprawl of Penshaw.

West of Pallion (0.8ha) - a minor amendment was required to allow the creation of a testing area necessary for the continued economic viability of the adjoining crane manufacturer.

North Hylton Riverside (4ha) - the Green Belt boundary has been amended to accommodate part of the Hylton Riverside development which is important to the regeneration of the riverside area.

The Green Belt is not all-encompassing, leaving land available in some fringe areas for necessary urban growth and regeneration during the Plan period.  The proposed deletions from the existing Green Belt only total some 4 hectares and thus will not diminish its strategic value.  An additional 463 hectares of land will be formally designated as Green Belt - a net gain of 12% - resulting in a Green Belt of almost 4211 hectares, i.e. almost 70% of the City’s rural area.  These additions will assist in strengthening the strategic aim of providing separation between settlements and assisting urban regeneration.  The alterations to the Green Belt are detailed in the Area Proposals of this document and indicated in Fig.11.2.

SOURCE: Environment Department

Several small settlements are included within the Green Belt, e.g. Burdon and Offerton and will be subject to detailed criteria outlined in CN3.  However, the large village of Springwell is excluded from the Green Belt and its more stringent controls so as to accommodate within its defined settlement boundaries, change appropriate to its size.

Most of the aspects of this Policy reflect those of the 1985 Tyne and Wear Green Belt Local Plan.  They also accord with PPG2 (1995).  The City Council will impose strict controls on the nature and form of development within the Green Belt, in order to protect its purpose and character, whilst recognising the need to diversify the rural economy by encouraging its positive use.  Control of development will seek to achieve the following objectives for the use of land in Green Belts:-

• to provide opportunities for access to the open countryside for the urban population;
• to provide opportunities for outdoor sport and recreation near urban areas;
• to retain attractive landscapes and enhance landscapes near to where people live;
• to improve damaged and derelict land around towns;
• to secure nature conservation interest; and
• to retain land in agricultural, forestry and related uses.

Within the Green Belt approval will not be given except in very special circumstances for the construction of new buildings or for the change of use of existing buildings for purposes other than agriculture, forestry, or other uses which preserve the openness of the Green Belt.  Since its adoption in Sunderland (and generally within the County) it has effectively controlled inappropriate development (since 1986 in Sunderland only 11 approvals (totalling 36ha) have been given out of 40 submitted applications).

Inappropriate development is, by definition, harmful to the Green Belt, it is therefore for the applicant to show why permission should be granted.  The ‘very special circumstances’ required to justify inappropriate development will not be considered to exist unless the harm (by reason of inappropriateness, and any other harm) is clearly outweighed by other considerations.

The following factors will apply to development in the Green Belt:-

Agriculture and Forestry - At present a wide range of agricultural and forestry developments do not require planning permission as they are ‘permitted development’.  In certain instances it may be necessary to withdraw their development rights when granting planning permission for new farm buildings so as to avoid a proliferation of buildings - particularly in locations where such development could have a detrimental effect on the openness of the Green Belt.

Recreation and Essential Facilities - Each application for essential facilities will be considered on its merits, bearing in mind the purposes of including land in the Green Belt, to establish whether or not any proposed building is genuinely required.  In terms of outdoor sport appropriate facilities might include small changing rooms, small stables or unobtrusive spectator accommodation.   Because of the size of the structures involved, major football stadia cannot be regarded as appropriate development within an approved Green Belt.

Developed Sites - The main consideration is the securing of jobs without further prejudicing the openness of Green Belt.  Only limited infilling in, or redevelopment of, existing sites in the Green Belt may be permitted, and this should have no greater impact than the existing development in terms of the height of buildings or the proportion of the site that is developed (the ‘footprint’).  The redevelopment of isolated employment sites - such as the car showrooms on the A690 at Stoneygate - will be carefully controlled.

Minerals - Minerals can be worked only where they are found, however their extraction need not be incompatible with the purposes of including land in Green Belts, provided that high environmental standards are maintained and that restoration is of high quality.

Building Conversions - The conversion or re-use of an existing building is not inappropriate providing:

• it does not have a materially greater impact than the present use on the openness of the Green Belt and the purposes of including land in it;
• strict control is exercised over the extension of re-used buildings, and any associated uses of land surrounding the building which might conflict with the openness of the Green Belt and the purposes of including land in it (e.g. because they may or can involve extensive external storage, or extensive hardstanding, car parking, boundary walling or fencing);
• the buildings are of permanent and substantial construction, and are capable of conversion without major or complete reconstruction; and
• the form, bulk and general design of the buildings are in keeping with their surroundings.

Development must be compatible with the character of the surrounding area in terms of siting, design, form, scale and appearance (e.g. use of local materials).

In preparing or revising development plans PPG2 advises that local authorities are required to satisfy themselves that Green Belt boundaries will not need to be altered at the end of the Plan period.  In some cases this will mean safeguarding land between the urban area and the Green Belt to meet longer-term development needs.

The statutory definition of development includes engineering and other operations, and the making of any material change in the use of land.  The carrying out of such operations will be regarded as inappropriate development unless they maintain openness (i.e. keep land permanently open) and do not conflict with the purposes of including land in the Green Belt as set out in policy CN2.

The appearance of the Green Belt may be further enhanced by ensuring strict control of the form and ‘footprint’ of the development within or adjoining its boundary.  Much of the Green Belt comprises attractive landscape (e.g. the rolling countryside to the south of Burdon village, the river valley and the extensive plain of the magnesian limestone escarpment) and therefore where development is permitted, its design will need to take account of potential impact on the wider landscape.  The visual amenities of the Green Belt should not be injured by proposals which, although not prejudicial to the purposes of the Green Belt, might be inappropriate by reason of their scale, siting, materials or design.

The retention of open breaks between settlements are long-standing elements of planning policy for the City.  The Sunderland Periphery Town Map (1965) included policies to maintain the separate identity of Ryhope, Silksworth and Doxford Park by protecting the open land between.  The Tyne and Wear Structure Plan also resisted intrusion into open countryside.  These concepts remain relevant for a number of reasons, namely that they:-

• help to retain the distinct physical characteristics of the City's constituent communities
• assist in the regeneration of the older or poorer quality urban areas by focusing resources and investment into the built-up area
• provide open space lungs, sometimes incorporating leisure/recreational facilities which help to alleviate local deficiencies (e.g. the Ryhope-Silksworth crescent)

The protection and enhancement of the character of open and semi-rural areas formed by large tracts of amenity and recreational open space, agricultural land and areas of nature conservation interest, also is one of the main themes of this Plan.  Area policies elsewhere in this document assist in the retention and enhancement of these open breaks.

In the much narrower open breaks and wedges, built development is likely to be restricted to the particular needs associated with specific proposals of the UDP or minor extensions to existing uses.  Many breaks are also subject to tree-planting schemes or fringe enhancement, financed by the Council or Great North Forest initiatives.  Exceptions to this policy will only be considered where a necessary facility cannot be accommodated within the urban framework.

Despite the strict control of urban sprawl, the City has an urban fringe where the built-up area and the surrounding countryside meet.  This area of transition is often characterised by trespass or pressure for informal recreation; it is characterised by poor quality or even degraded landscapes, resulting from vandalism and fly-tipping.  Problems can be so severe that farming becomes unprofitable and agricultural land left to deteriorate.  During 1991, the Agricultural Development and Advisory Service (ADAS) carried out a study of farming problems in the City’s urban fringe.  The subsequent ‘Field Penalty Assessment’ revealed widespread trespass and associated damage with localised severe problems, for example adjoining the urban edge of North Sunderland.  The main financial losses resulted from crop trampling (both by pedestrians and vehicles) and from arson of arable fields.  Farmers had in some cases been forced to switch to less vulnerable enterprises as a result of these urban fringe problems.  Trespass onto agricultural land may be reduced or avoided by the sensible design of new development.  New proposals will be required to show that measures have been taken to minimise unauthorised access onto nearby agricultural land.

An attractive and accessible urban fringe can be important for the amenity of both the urban and rural population.  The countryside around Sunderland has an increasingly important role to play offering easily accessible countryside and opportunities for recycling unused land to serve the needs of the City’s population.  Fringe areas require a positive approach to planning and management, aimed at securing environmental improvement and beneficial use of land, yet allowing increased public access.  In its consultation response, MAFF requested the inclusion of such a ‘fringe’ policy.  This policy provides a general basis for dealing with the urban fringe and is supported by more specific proposals where appropriate (see area proposals).  The Great North Forest will make a significant contribution to the enhancement of the urban fringe through woodland planting and the provision of access and recreational facilities. Any new developments will be carefully controlled so as not to introduce visually incongruous features into the sensitive fringe landscape.  Apart from schemes financed by the City Council, other possible sources of funding for fringe initiatives include the Countryside Commission, Forestry Authority and derelict land grant from English Partnerships.  Tree planting within former colliery settlements could be funded via the Single Regeneration Budget/ Coalfield Area Renewal Strategy.

The last available agricultural census for the City was prepared by the Ministry of Agriculture, Fisheries and Food (MAFF) in 1993.  This showed farming use as covering some 4000 hectares, almost 60% (2290 ha) of which comprised cereal cropping.  Most of the remainder (about 16%) comprised ‘Set Aside’ land.

MAFF has classified agricultural land by grade according to the extent to which its physical or chemical characteristics impose limitations on agricultural use for food production.  The Land Classification System ranks land into five grades, with Grade 3 being divided into two sub-grades.  The best and most versatile land falls into grades 1 and 2 and sub-grade 3a; this is the most flexible, productive and efficient land, comprising well drained loam/sandy soils and is best suited to adapting to the changing needs of agriculture.  Land in sub-grade 3b is of moderate quality with lower yields and/or a more restricted cropping range.  Grades 4 and 5 have severe and very severe limitations respectively.

Available MAFF agricultural land classification information indicates a predominance of good to moderate quality land throughout the City.  Much of the better quality land is found on the areas underlain by Magnesian limestone to the east of Houghton le Spring.  This represents some of the highest quality agricultural land in Tyne and Wear.  Land is currently being resurveyed on an ad-hoc basis with some areas being revised to Grade 2.  MAFF policy in any particular area is to protect the best and most versatile agricultural land from irreversible development.  Grade 2 and 3a in the City’s case have this special importance and should not be built on; this land is a national resource for the longer term and therefore is in general to be protected from irreversible developments.

One of the few circumstances in which isolated residential development in the countryside may be justified is when accommodation is required to enable farm or forestry workers to live at or in the immediate vicinity of their place of work.  Despite the general overall reduction in agricultural employment the demand for such development remains high; however, many schemes are speculative and stem purely from the desire for a residence in a countryside location.

Rural areas are undergoing great changes at present in response to changes in agricultural policy and financial support systems.  The emphasis with regard to agriculture has changed from increasing food production to the diversification of the rural economy.  The ‘Set Aside’ scheme now encourages the temporary removal of some agricultural land from production in order to reduce food surpluses; some farmers therefore desire to develop non-agricultural enterprises on their farms.  The main `diversification’ in the Sunderland area is into equestrian related activities.  The guiding principle in PPG7 in the wider countryside is that development should benefit the rural economy and maintain and enhance the environment.  Changes could adversely affect sensitive rural areas as could the conversion of redundant farm buildings into alternative uses, many traditional buildings being significant features in the landscape.  The following factors will therefore be taken into account when considering planning applications:-

• the need to encourage rural enterprise;
• the need to protect landscape, wildlife habitats, historic features and distinctive landscape characteristics;
• the quality and versatility of land for use in agriculture and other rural enterprises;
• the need to protect other non-renewable resources

With the changing patterns of farming and rural life considerable numbers of buildings such as barns, stables and even farmhouses are becoming surplus to requirements (but with potential for re-use).  Greater pressure to change such buildings is likely during the Plan period as a result of Government policies.  Many buildings represent an important element in the rural landscape.  Their re-use and sympathetic conservation are therefore important in maintaining the rural economy and its character.  Re-use can help reduce demands for new development, encourage new enterprises and provide new jobs as well as housing necessary to a functioning rural area.  Furthermore, there should normally be no reason for preventing the adaption or restoration of existing or derelict buildings for new uses, provided that their form, bulk and general design (including the use of materials) are in keeping with their surroundings.  Applications for changes to residential use will, however, be treated with particular care, especially where such buildings are unsuitable for conversion without extensive alteration or rebuilding or where they involve a historic farm building; residential conversions can often have a detrimental effect on the fabric of such buildings.

Generally, any alteration to the exterior of a building should be kept to a minimum and dictated by its overall shape and fabric.  Advice on the design standards expected will be given in the Council’s Development Control Guidance.  Any rebuilding should not exceed the ‘footprint’ of the original building.  New openings such as doors and windows should be kept to a minimum and be sympathetic to the building.  Domestic elements such as dormer windows and chimneys should generally be avoided.  Particular care is also required to ensure that the setting of farm buildings themselves is not harmed as this can erode their character. 

The policy takes into consideration factors associated with re-use which can be of note, where semi-industrial activities or the expansion of an enterprise is of a scale which erodes the landscape setting or tranquillity of the countryside.  Intensification of uses such as farm shops (See Policy S14) or vehicle storage compounds could generate significant increases in vehicular movements and could lead to increased traffic using rural roads.  Such developments will normally be resisted where there is an adverse effect on the surrounding area.

Because the appearance and landscape compatibility of the development are the essential considerations in the implementation of this policy, detailed applications for planning permission (rather than outline) will normally be required.

The characteristics of the countryside which attract visitors include its natural beauty, its landscape diversity, its nature conservation interest, and those various natural resources which may be used for sport and recreation.  Whilst the conservation of this environment is important, consideration must be given to the extent to which the public can enjoy it and to the contribution recreational uses can make to its conservation.  Countryside recreation is increasingly popular - the Countryside Commission estimated that in 1990 80% of the population of England visited the countryside at some time during that year; in the case of the City this would equate to a figure of almost 240,000 people, though usage may be higher due to the relative closeness of other urban centres of population. 

Active and passive recreation is a significant land use within the open areas of the City.  Activities include walking, cycling and picnicking; provision for both horse riding and golf is fairly extensive but still fails to meet demand.  A large number of recreational activities are to be found in the broad area between the River Wear and New Herrington particularly in the vicinity of Penshaw Monument, also around Springwell Village.

Control of the scale of such activities is important in achieving a balance between the retention of the countryside for its own sake and turning it into a ‘theme’ landscape.  PPG17states that sport and recreation activities in "rural" areas should be appropriate to, and in harmony with, the countryside.  It stresses furthermore, that in assessing recreational proposals, local planning authorities should have regard to preserving or enhancing those rural characteristics which are important, whilst providing for the needs of the local community and economy as well as for other uses such as agriculture and forestry.

The City Council’s Countryside and Access Strategy addresses a number of issues, including access; recreational facilities; promotion and community involvement.  The policies are geared towards the following broad objectives:-

• improvement of the footpath, bridleway and cycle network with better signposting and promotion in line with the priorities of the Countryside Commission;
• building upon the achievement of the River Wear Trail through the completion of a network of themed heritage trails with appropriate interpretation and promotion;
• improved accessibility to the countryside for disabled people; 
• support for the Great North Forest project;
• management of intrusive uses such as car parking and motor sports in appropriate locations.

In general, more intensive activities (such as those requiring accommodation for spectators or car parking) are likely to be inappropriate to rural areas as they would introduce “urban” forms of development into the landscape, though they may have a role to play in the reclamation and other use of derelict land where newly created landforms can harmonise/ integrate these activities.  However the regional significance of certain developments (i.e. their specific locational needs in terms of catchment population or specific access to the trunk route network) will have to be weighed against the broad principle of appropriateness in terms of the environmental impact on the landscape and agriculture.  Proposals for the development of golf courses will be assessed against those criteria contained in Policy L11.

The development of the Great North Forest could have a major role to play in the provision of sport and recreational opportunities for both local people and for the wider region.  Low-key, informal recreation will be appropriate throughout the Forest area; more formal provision, or higher intensity activities, will need careful location, design and management to avoid undue intrusion or conflict with other interests, including agriculture and nature conservation.  The GNF recreation strategy is therefore based on the creation of a range of major ‘gateway’ sites, six of which are located within the City - south of Follingsby, the Wear valley, Herrington Colliery, Rainton Meadows, Hetton Lyons/ Eppleton and Seaburn.  The impact on the local landscape will be an important consideration.

These ‘gateways’ offer vehicular/ public transport accessibility linked to a network of multi-user routes for walking, cycling and riding.  They will vary in character; from major areas offering a wider range of facilities including information centres, basic refreshment facilities and toilets, to less intensively used sites providing access to the network and basic facilities such as car parking and information boards.  They are not expected to be intensively developed with buildings.

The topography of the City varies widely; this permits notable long distance and panoramic views to be had, e.g. of the River Wear from various points along its length, or of Penshaw Monument.  Viewpoints of recognised value are identified on the Proposals Map.  These views make a substantial contribution to a quality environment and thus should be protected from intrusive developments.  To this end, the impact of development at a distance needs to be fully appreciated at the planning stage.  "Unduly interrupt or prejudice" will generally be interpreted as the obstruction or potential obstruction (e.g. by storage of goods or vehicles) of one-third or more of a presently existing view.  As part of this general approach, consideration will be given, when the opportunity arises, to the demolition of derelict buildings in order to enhance, or open up, important views.  These policies will be enforced by the City Council as local planning authority via the consideration of planning applications.

The image of the City held by residents and visitors is to a great extent determined by the impression gained from journeying through by road or rail.  This is a factor which is given considerable emphasis in Strategic Guidance insofar as it has significant implications for the attraction for potential investment.  The Plan therefore seeks to promote the City's attractiveness, particularly where it would assist tourism.  Other policies encourage improvements to parts of certain main road corridors.  This Policy is complementary to these in that it seeks to control the quality of buildings and other developments prominent from main routes.  'Main transport routes' comprise the strategic route network, main line railways and the proposed route of Metro, all of which are shown on the Proposals Map.  Only developments prominent from these routes will be subject to CN14.  This will normally be those within approximately 100 metres of the transport route, though exceptions could arise due to local topography and the scale of the proposal.

Policies CN13 and CN14 apply to all types of development, though proposals for large buildings or open storage, or for dense landscaping, are those most likely to require detailed consideration.  Many Plan proposals are on the larger sites which are located in particularly prominent positions adjacent to main transport routes so that their development will have a major impact upon the townscape.  Proposals and landscaping or tree planting schemes will therefore be required to relate both to the immediate surroundings and to wider views.  For example, it would not be acceptable for a large building backing onto a main transport route to have a poor appearance just because this was the rear of the building.  Higher quality will be expected in such cases than might be the norm in less prominent locations.  The colour and texture of materials will be important, as will the means of boundary enclosure.  Those existing buildings or land uses whose appearance severely detracts from the overall impression gained of the City may be encouraged to undertake improvement schemes, to redevelop or, as a last resort, to relocate to more suitable sites when the opportunity arises.  The City Council may be able to offer financial assistance in some circumstances.  Policies CN13/14 will be particularly important in relation to protecting and enhancing the quality of the Green Belt.  It is recognised that certain uses are restricted in their choice of location, notably farm buildings and other structures may need to be erected on existing farmsteads.  Whilst there may be little flexibility in the size and siting of such buildings, their impact on the landscape may be mitigated by the use of appropriately coloured and textured materials together with small scale landscaping.

The Great North Forest (GNF) is a joint initiative between the Countryside and Forestry Commissions and the five local authorities of Sunderland, South Tyneside, Gateshead, Chester-le-Street and Durham County.  Its major objective is the long term restructuring of the countryside of south Tyne and Wear towards a robust, attractive and well-wooded landscape, providing extensive opportunities for recreation, education, nature conservation/ new habitats for wildlife as well as forestry and farming.  About half of the Forest will be within the City taking in the open area running north-south between Sunderland and Washington/ Houghton-Hetton. 

The GNF ‘Forest Plan’ will steer the overall creation of the Forest which will take place over the next 40-50 years.  Overall, the average level of tree cover will be some 30%, but the actual intensity of new planting will be related to the landscape, topography and land utilisation of particular areas, involving a wide range of woodland types generally broad-leaved in character.  The Plan stresses the need to relate new planting to variations in landscape.  Uses and building developments (where approved) will be encouraged to incorporate tree planting and other elements to assist the creation of this Forest.  The Forest Plan notes that the creation of the Forest is not a vehicle for allowing inappropriate new uses; new types of development must accord with overall rural and Green Belt Policies where these apply. 

The City has only some 500 hectares of recent and mature woodland primarily restricted to the Wear Valley between North Hylton and Fatfield, together with a number of scattered denes.  Outside the main woodland areas, tree cover comprises narrow belts, small blocks and young planting.  The proportion of woodland (3.7%) is significantly lower than the national average (10.0%).  The lack of tree cover in this part of the County was highlighted in the approved Structure Plan.

This policy primarily relates to urban trees.  The majority of street trees are found in the older residential areas such as Ashbrooke, though significant tree belts exist in some of the inter-war Council estates; parts of the Ford Estate, for example.  These contribute greatly to the appearance of these residential areas and assist in the overall urban "greening".  Road corridors which are lined with mature trees constitute attractive avenues leading into the heart of the urban area, being particularly important to the image of the City.  Furthermore, new developments benefit greatly from the incorporation of existing trees and hedges into their layout; such features will be required to be retained unless it can be demonstrated that the particular site layout makes their retention impossible.  Tree Preservation Orders (TPOs) are particularly important (currently there are over 100 TPOs in Sunderland) controlling the felling and pruning of trees or woodlands which make a significant contribution to the environment.  New Orders will continue to be made where trees of amenity value are at risk, and a policy of replacement of trees and new planting along transportation corridors will be implemented throughout the Plan period.

Despite being a major urban centre, the City retains numerous sites of nature conservation interest.  They comprise SSSI’s, SNCI’s, LNR’s and RIGS.  A number of wildlife habitats and other features of natural interest have been lost due to new development, to changes in agricultural practices, or lack of proper management.  This is a national as well as a local problem.  It was concern over these losses which led to the preparation of the Tyne and Wear Nature Conservation Strategy.  The latter has five main aims which are incorporated within the UDP:-

• to identify rare habitats and species and to promote their protection and management;
• to identify opportunities for nature conservation;
• to create and protect a network of wildlife corridors;
• to make areas of wildlife interest accessible to all people in the County;
• to generate interest and community involvement in natural history.

In 1992, the U.K Government, in signing the Convention on Biological Diversity at Rio de Janeiro was required to “develop national strategies, plans or programmes for the conservation of biodiversity”; i.e. the variety of life forms in the surrounding environment.  The importance of the effective conservation of wildlife and natural resources has been further amplified in recent guidance.  This is an important part of an approach to the protection of species and habitats which, locally, can be traced back to the Tyne and Wear Structure Plan.  As part of the Council’s continuing commitment to this issue the matter is now being developed via a forthcoming Biodiversity Action Plan; the natural resources of the City will also be monitored via a State of the Environment Report (“Sunderland’s Environment”).

Derelict Land Grant Advice Note 1 stresses the conservation aspects of the land reclamation process, signifying a change in Central Government’s approach towards nature conservation.  Also under the Countryside Commission’s “Countryside Stewardship” initiative and English Nature’s “Wildlife Enhancement Scheme”, incentives are available to landowners for management practices which enhance or restore valued habitats and landscapes.  In this respect target areas in the City comprise:-

• Magnesian Limestone grassland - a rare habitat of national importance, locally confined to Sunderland, South Tyneside and the eastern part of Durham county;
• Freshwater wetlands and the River Wear Corridor;
• Coastal habitats; and
• Links between sites such as wildlife corridors. 

The City Council maintains a Countryside Management Scheme which is supported by the Countryside Commission.  The priorities are:-

• to protect and enhance Sunderland’s countryside through habitat management and creation on both public and private land;
• to increase public awareness and enjoyment of this resource by:-

a programme of countryside interpretation, and

works to improve access to the countryside.

The main sources of funding for initiatives under this scheme are the City Council, Countryside Commission, English Nature and European Commission.  Land Reclamation Programme funding may also be drawn upon, where appropriate.