Hampshire County Council Recreation and Heritage Policy Review Committee Executive Member - Recreation and Heritage 13 May 2004 Consultation: `Unlocking the Potential of the Rural Urban Fringe' Report of the Director of Environment and Director of Recreation and Heritage

Item 9 Item 3

Contacts: Rosalind Rutt, ext 6745 email: [email protected]

Jo Hale, ext 7717 email: [email protected]

1. Summary

Key Consultations and Initiatives on the Rural Urban Fringe

1.1 The rural urban fringe - the area where town meets country - is a complex, fragmented area of mixed land use and rapid change resulting from many competing pressures for land. Issues range from fly-tipping, degraded land and pressures on farming and rural businesses to congestion and lack of community identity and cohesion. Conversely, such areas can provide significant benefits for the people who live in them and for adjacent towns and cities. Many are already highly valued locally for their landscape, biodiversity and accessible recreational opportunities and there may also be opportunities to provide other benefits. However, in spite of many good examples of fringe projects, the rural urban fringe is often a neglected area of policy and delivery with problems of cross-boundary working and lack of an integrated approach.

1.2 The Countryside Agency and Groundwork have jointly produced a consultation document to raise the profile of the rural urban fringe and communicate its potential. `Unlocking the Potential of the Rural Urban Fringe', which sets out a draft vision for the rural urban fringe, sees it as an accessible, diverse and multi-functional area serving the needs of both town and country. The document shows how this `valuable, yet frequently overlooked' resource can make a significant contribution to sustainable development, providing benefits for social inclusion, economic prosperity and environmental quality. It notes that the potential of the fringe far outweighs the challenges and the costs, and that the new planning framework and existing tools and techniques can help to unlock that potential (see Appendix 1 for further details).

1.3 The Committee for Rural Hampshire also intends to open up the debate about rural urban fringe issues, share good practice and stimulate action with partners. It has published a report about the key findings and recommendations arising from a recent conference entitled "On the Edge: Countryside and Communities in Hampshire's Urban Fringe" (sponsored by Hampshire County Council and Community Action Hampshire). The conference focused on the issues facing local communities, landowners and farmers on Hampshire's rural urban fringe and ideas for addressing them. The Committee is asking for organisations to respond to the recommendations and to participate, or take the lead, in initiatives to address some of the issues raised by the conference. It has set up a steering group led by Community Action Hampshire and the County Council to take this forward.

1.4 Following the conference it was recognised that there was a need for the relevant County Council officers to exchange information and ideas about their work on policy development, projects and service delivery in the rural urban fringe and to consider joint action. Accordingly, an informal inter-departmental group has been set up to facilitate this.

1.5 One initiative already undertaken by members of the network has been to submit expressions of interest to the Countryside Agency for support for two demonstration projects on the rural urban fringe, under the Agency's Planning Demonstration Programme. The submissions are as follows:

(i) Beyond the Fringe - The future of the rural urban fringe in South East Hampshire (lead: Recreation and Heritage); and

(ii) Local Food Centre, Botley (lead: Economic Development).

2. Corporate Strategy

2.1 This report supports Aims 1, 2 and 3 of the Corporate Strategy as follows:

(i) Aim 1 (Maximising Life Opportunities) is supported through promoting the vision of the rural urban fringe as a `health centre', and `classroom'.

(ii) Aim 2 (Stewardship of the Environment) is supported through encouraging and enabling the fringe to serve as a `nature reserve', `engine for regeneration', `power plant', `recycling centre', `bridge to the country', `gateway to the town' and a place to live sustainably.

(iii) Aim 3 (Achieving Economic Prosperity) is supported by promoting the fringe as `a productive landscape'.

3. Comments by the Director of Environment and Director of Recreation and Heritage

3.1 Many areas around Hampshire's major towns and cities display the characteristics, problems and potential identified by the Countryside Agency/ Groundwork consultation and Committee for Rural Hampshire report. It is an opportune time to consider how best to address these issues and opportunities; for example, because of:

(i) the new planning system, with spatial plans used to coordinate relevant policies and action at the regional, sub-regional and local levels;

(ii) major urban extensions and other development already planned for urban areas such as South Hampshire, Basingstoke, Andover and the Blackwater Valley, and further growth likely with the South East Plan and its sub-regional strategies;

(iii) the development of Local Strategic Partnerships, with further potential for joint working in areas such as the fringe;

(iv) the Department for the Environment, Food and Rural Affairs' `refreshed' rural strategy; the review of rural delivery with its emphasis on greater integration, and the reform of the Common Agricultural Policy;

(v) the Sustainable Communities Plan and new Planning Policy Statements (such as the draft PPS7 which includes guidance on the urban fringe);

(vi) the implementation of the Countryside and Rights of Way Act 2000, particularly the new duty to prepare a Rights of Way Improvement Plan for the county;

(vii) the increasing importance of the health agenda such as Healthy Walking initiatives; and

(viii) locally, the potential to learn from and build on existing projects and programmes and integrate them into wider rural urban fringe initiatives (eg the Integrated Access Demonstration Programme, Forests of Bere and Eversley projects, Areas of Outstanding Natural Beauty Management Plans, local food, renewable energy and countryside education initiatives, Sustainable Suburbs and Urban Living projects).

3.2 The consultation by the Countryside Agency and Groundwork on a vision for the rural urban fringe, and for ideas to ensure that the vision can be translated into practical action, is therefore to be welcomed. The document broadly captures the potential of such areas to improve the quality of life and link town and country. It also correctly identifies the need for partnerships of regional and local bodies to establish local visions and to develop locally relevant ways to deliver the vision, drawing on existing tools and techniques and making use of existing plans and strategies (and the new planning framework wherever possible). Appendix 2 suggests a framework for the County Council's detailed response to the consultation, and it is also proposed to submit three examples of good practice by the County Council and partners (ie Southwick Estate Access Strategy; Safe Riding and Driving Routes and the Forests of Bere and Eversley projects).

3.3 However, establishing a national vision for the rural urban fringe is only the start of the process. There are considerable obstacles to actually delivering integrated sustainable planning and action. The Committee for Rural Hampshire conference highlighted many of the issues and the conference report suggests ways of tackling these. The Committee has set up a Steering Group (on which the County Council is represented by a Member and an officer) to prioritise and encourage action by partners and to take the debate forward. With input from the virtual `Urban Fringe Network' of County Council officers, as appropriate, this will provide a valuable mechanism for the County Council to improve communications internally and with partners about the rural urban fringe, engage in the debate and promote joint working.

3.4 Finally, it is important to work towards developing local visions for Hampshire's area of rural urban fringe where there are particular pressures and opportunities for change. Plans, strategies and specific projects can assist in implementing these visions - particularly spatial development plans, land management plans (including access plans) and community strategies.

Recommendation

That the following response and action be supported in the submission to the Executive Member for Recreation and Heritage for his approval:

(i) the Countryside Agency and Groundwork be informed that the County Council welcomes and supports the broad vision presented in the consultation document `Unlocking the Potential of the Rural Urban Fringe';

(ii) the detailed comments as set out in Appendix 2 of this report be endorsed as the basis for the County Council's response to this consultation; and

(iii) the County Council continues to engage in the debate on rural urban fringe issues and potential and support joint working through the Committee for Rural Hampshire and the internal officer network.

Section 100 D - Local Government Act 1972 - background papers
The following documents disclose facts or matters on which this report, or an important part of it, is based and has been relied upon to a material extent in the preparation of this report.
NB the list excludes:
1.	Published works.
2.	Documents which disclose exempt or confidential information as defined in the Act.

TITLE	LOCATION
`Unlocking the potential of the rural urban fringe' - a consultation by the Countryside Agency and Groundwork, 2004	Environment Department Library
`On the Edge: Countryside and Communities in Hampshire's Urban Fringe' - Committee for Rural Hampshire, January 2004	Environment Department Library

8726A/RR/JH

APPENDIX 1

UNLOCKING THE POTENTIAL OF THE RURAL URBAN FRINGE

1. This consultation document, produced by the Countryside Agency and Groundwork, the environmental charity, proposes establishing a vision combining environmental, social and economic priorities to ensure that the rural urban fringe reaches its potential. It suggests that links between town and country should be strengthened to underpin urban and rural renewal and that the fringe should play a key role in this, improving the quality of life for both urban and rural communities.

2. The report presents ten key functions for the rural urban fringe (not all of which will be applicable in any one location):

(i) A Bridge to the Country: with networks of new and improved parks, woodlands and other green spaces linked to the urban centre and wider countryside by footpaths and cycleways and continuous green corridors between town and country.

(ii) A Gateway to the Town: the quality of the fringe is an advertisement for the quality of a town or city and its rural hinterland and needs to be managed and maintained to a high standard, especially along major routes.

(iii) A Health Centre: with safe and enjoyable recreational activities. Society and the economy as a whole could reap benefits in better physical and mental health as a result of regular countryside recreation and the interaction with nature.

(iv) A Classroom: providing hands-on learning opportunities in a variety of `outdoor classrooms', including vocational training and lifelong learning.

(v) A Recycling Centre: the rural urban fringe makes an important contribution to the sustainable processing of waste, management of water resources and pollution control. It remains the best location for waste management facilities and some mineral extraction operations. In turn these can produce environmental gains as they are restored and put to new uses.

(vi) A Power Plant: where there are opportunities to install renewable energy technologies such as solar, biomass and wind technologies.

(vii) A Productive Landscape: farmers in the fringe have taken advantage of their proximity to large urban centres to supply high quality local produce to consumers through Farmers' Markets,


direct marketing and retail centres. They also produce a wide range of other goods and services from energy crops to recreational opportunities.

(viii) A Place to Live Sustainably: to meet the need for new development, especially affordable homes, new communities are being designed to enhance their rural setting, utilising the latest sustainable construction techniques.

(ix) An Engine for Regeneration: using the rural urban fringe as a tool to help communities develop their own confidence, skills and prospects (eg through residents creating and managing recreational spaces).

(x) A Nature Reserve with a range of habitats: an increased level of biodiversity has come right up to the urban edge, allowing more people to encounter wildlife and enjoy nature. Air and water quality has been improved, and new habitats have been protected and enhance through ecologically sensitive developments.

3. The report concludes that the rural urban fringe forms a vital part of sustainable towns and cities. However, a new vision for the fringe will not by itself bring about significant change. It is important to make full use of existing assets and of tried and tested approaches to deliver the vision. Partnerships of regional and local bodies should be established, or existing partnerships used, to develop locally relevant ways to deliver the vision, coordinating action across each area.

4. The document states that the necessary tools, techniques and programmes already exist to unlock the potential of the rural urban fringe. Furthermore, new stand-alone plans and strategies for the rural urban fringe are not necessary. Instead, the vision should be delivered through the planning framework (at regional and local levels) and Community Strategies. Other plans and strategies, such as Biodiversity Action Plans and area-based initiatives, also have an important role to play.

APPENDIX 2

UNLOCKING THE POTENTIAL OF THE RURAL URBAN FRINGE

RESPONSE OF HAMPSHIRE COUNTY COUNCIL

1. Do you consider a renewed focus and a push for more coordinated action on the rural urban fringe to be: high, medium or low priority?

Medium priority.

2. Does the vision capture the full potential of the rural urban fringe and provide a practical way forward?

The document broadly captures the potential of the rural urban fringe, and Hampshire County Council supports the vision of the opportunities which this area presents.

However, the consultation document puts forward a very `rosy image' in some respects and avoids current problems and issues on the fringe and the challenges in addressing them. It needs to be made clearer that this is but the first stage in the consultation process and that the next stage will be to consider how the obstacles can be overcome to achieve the vision. Furthermore, the document does not suggest a practical way forward. Case studies are needed to show how the vision might be achieved, and it is necessary to show the relevance of these.

It is unclear who the document is aimed at. In places it appears patronising and needs to be more grounded in reality (eg "inspiring cultural landscapes", page 9), and needs to engage the people who should be involved in achieving the vision.

Specific points relate to Travellers and renewable energy.

(i) Travellers

The vision document fails to mention the importance of many rural urban fringes as areas in which Travellers need to locate. Unauthorised camping on the fringe and the interaction of Travellers with the settled community is causing increasing pressures on available open spaces and farming. With the decrease in the opportunities for Travellers to earn a living through traditional rural activities, their interaction with the settled community on the rural urban fringe has become a major problem.

In Hampshire, the County Council has worked with all the district and city councils through the Local Strategic Partnerships to provide a forum for addressing the problem of Travellers on the urban fringe. Councils are working together to provide a network of short-stay sites for Travellers, many of which will be located in fringe locations to meet demand and to be close to health and welfare facilities and transport links.

This is seen as a better use of resources and likely to restrict the environmental damage caused by the present unauthorised camping across large areas of the rural urban fringe. The provision of stopping places should also enable Travellers to be integrated into society and recognised as a separate ethnic group with Human Rights which compare with the settled community.

(ii) Renewable Energy

There may be opportunities to link management of woodland in the rural urban fringe to wood fuel and biomass, eg energy crops such as short rotation coppice and waste recycling centres with tree stations turning waste wood (from tree surgery, parks maintenance and gardens) into wood chip. This fuel could then supply small-scale combined heat and power plants in schools, leisure centres, country parks, social housing , council offices, etc, all at a scale appropriate to the local community.

An example in Hampshire (although not of wood fuel/biomass) is the Hampshire Wildlife Trust's wardens' building at Farlington Marshes, Langstone Harbour powered by a small wind turbine and solar panels on the roof. This building also demonstrates some of the problems of the rural urban fringe, however, in that the wind turbine has been stolen once.

3. Has your organisation developed any projects, initiatives, tools or techniques which can be used to realise the potential of the rural urban fringe?

Yes. Please see enclosed case studies relating to the Southwick Estate Access Strategy; Safe Riding and Driving Routes and the Forest of Bere projects.

Hampshire County Council is also seeking to coordinate activities relating to the rural urban fringe across a large organisation and has accordingly set up an informal (mainly virtual) network of officers whose work involves rural urban fringe policy-making, projects and service delivery. The County Council is actively seeking to conduct further demonstration projects in the urban fringe of South Hampshire (with partners) and to develop the links between action plans and development plans, from the regional to the sub-regional and local levels.

4. In your view would the production of a rural urban fringe toolkit provide a worthwhile resource? Which presentation format would you prefer?

Yes - the dissemination of best practice and lessons learned is useful. However, it must be realistic and truthful. Too often, a gloss is put upon the results of projects to present them in the best possible light and there is no realistic presentation of the difficulties encountered and overcome. It is therefore suggested an independent evaluation (samples, not in-depth studies) of selected projects which are considered good practice to provide information
which may be applied elsewhere. It is also crucial to include estimates of the resources which were required to deliver the projects and initiatives, including staff resources.

A web-based approach would be helpful, with links to other websites (such as those of specific projects and toolkits) so that users may find out more detail if required. This should be complemented by a folder of sheets which can be regularly updated, as hard copy is often useful to reach certain sections of the community, local authority Members, etc. A Learning Network should also be considered.

5. Are there any other resources or forms of support that would help your work in the rural urban fringe?

Money and staff are crucial in order to achieve success. Work like this is cross-cutting and needs somebody charged with driving new initiatives and delivering action on the ground. Specific projects are useful to draw people together and see a win on the ground, achieving local ownership.

More cross-boundary working should be encouraged, such as through the land management process, which is increasingly successful in Areas of Outstanding Natural Beauty and has considerable potential for wider application.

6. Do existing policies and regulations need to change to enable the vision to be realised?

Yes - more Government recognition and political support is necessary, eg develop the advice in PPS7 relating to the rural urban fringe; statements in the Sustainable Communities Plan relating to the pro-active management of the green belt should be expanded to include the rural urban fringe, etc.

More integration is needed at Government level to enable the vision to be realised, such as integration between rural teams and urban teams and between the Department for the Environment, Food and Rural Affairs (DEFRA) and the Office of the Deputy Prime Minister. The approach on modernising rural delivery advocated in the Haskins Report needs to be extended further across Government as a whole.

Regulatory issues (eg fly tipping and dumping of rubbish on the rural urban fringe) need to be thought through so that the consequences of environmental regulations do not have unforeseen impacts.

7. Could the vision be realised through the plans and strategies for which your organisation is responsible, or would freestanding rural urban fringe action plans be preferable?

No - some existing plans and strategies will be applicable but not all the vision can be realised through these. The overall vision for the rural urban fringe should be developed separately from other mechanisms but should then be achieved through existing plans strategies and initiatives and through comprehensive approaches, such as land management planning. It is essential to work in partnership and to influence the implementation of other delivery mechanisms, ranging from community strategies to rights-of-way improvement plans. There is considerable potential in what is as yet an untested area for delivery, ie sub-regional strategies and local development frameworks. The new planning framework, with increased community involvement, provides considerable opportunity to deliver rural urban fringe objectives.

8. How can action be coordinated effectively between local, sub-regional and regional levels?

Further work needs to be undertaken to ensure the integration of `bottom up' approaches which target local needs with a regional/sub-regional framework. Flexibility is needed to draw on whatever resources are already in place. Regional spatial strategies, sub-regional strategies and local development frameworks should include spatial policies where appropriate for the rural urban fringe.

Local aspirations can be developed through mechanisms such as Parish Plans, market town health checks and concept statements, and fed up to higher-level plans for the rural urban fringe. The engagement of local communities and businesses in these areas, `capacity building', developing a sense of identity of place, and resolving conflicts are crucial challenges the difficulties of which should not be underestimated. Nevertheless, the rewards of successfully achieving this within a wider vision for the rural urban fringe are potentially substantial.

APPENDIX 3

UNLOCKING THE POTENTIAL OF THE RURAL URBAN FRINGE

A CONSULTATION BY THE COUNTRYSIDE AGENCY AND GROUNDWORK

Case Study 1 - Safe Riding and Driving Routes

Purpose

To improve the provision of equestrian routes that are safe and enjoyable within the Forest of Bere.

Description

This is a partnership project between the Integrated Access Demonstration Programme, Hampshire County Council and local horse riders and carriage drivers. The project:

¬ Involves local people in an Equestrian Forum that assists in identifying and prioritising improvements to the off-road access network.

¬ Provides support to local horse riders and carriage drivers that wish to carry out improvements or secure new routes.

¬ Has initiated a pilot road safety project to consider the whole network of highways and to improve the safety of recreational traffic including cyclists and walkers.

¬ Is working to strengthen local plan policies to consider off-road access as part of planning permission for horse facilities.

Building on this work, the Countryside Agency sponsored Hampshire County Council to conduct new research into the use and demand of the countryside by horse riders and carriage drivers. This research was conducted by Sheffield Hallam University and was completed in 2003.

Relevance to the Rural Urban Fringe

The Forest of Bere provides the countryside close to the major conurbations of Fareham, Eastleigh, Portsmouth and Havant. The number of horses kept in the area is high, and increasing, as more farms diversify and development brings more people into the area who wish to keep horses close to where they live. This results in an increase in demand for bridleways and equestrian routes at the same time as rural roads are becoming increasingly busy.

Lessons Learnt

¬ Providing a forum for local horse riders and carriage drivers to discuss priorities with the highway authority has resulted in greater mutual understanding.

¬ Practical improvements to the network have been achieved through partnership working that will inform the implementation of rights of way improvement plans in Hampshire.

¬ The research has provided valuable information that is being disseminated for other local authorities to take account of when producing rights of way improvement plans.

¬ DEFRA Horse Industry Group has recognised the potential of this project and is discussing how this can be taken forward nationally.

Further Information

www.hants.gov.uk/countryside/access/iadp or contact: Jo Hale, IADP Manager, Hampshire County Council, Countryside Service, Mottisfont Court, Winchester, Hampshire. SO23 8ZF. Telephone: 01962 847717. Email: [email protected]

Case Study 2 - Southwick Estate Access Strategy

Purpose

To provide a blueprint for managing access on a large urban fringe country estate.

Description

The project is a joint initiative between the Integrated Access Demonstration Programme, Hampshire County Council and Southwick Estate with assistance from local walkers.

The project aims to:

¬ Develop a greater understanding of the needs of landowners and access managers along with the pressures on the countryside in the urban fringe.

¬ Provide practical solutions to overcome the problems of managing access to meet the needs of both users and land managers.

¬ Test a new approach to diverting rights of way, within the legal constraints, to assist with use and management.

¬ Produce a sample rights of way improvement plan for consultation.

Relevance to the Rural Urban Fringe

The Estate suffers from being on the urban fringe of large housing estates. There are not only the usual problems of fly tipping and car dumping, but also serious theft and arson, and the farmers have developed a siege mentality in a bid to protect their property. Although these problems are not thought to be caused by path users, the access network was seen as one way that undesirable people were getting onto the Estate. This has led to poor maintenance of the footpath network (eg neglected stiles, paths being ploughed out) that has frustrated the walking public who have constantly requested that the statutory obligations be fulfilled.

Lessons Learnt

· A unique partnership approach

The regular working group meetings have provided an opportunity for the Rights of Way officers, Southwick Estate Land Agent and the Estate tenants to discuss access issues and gain a better understanding of the pressures and constraints that they all work under. Many of the tenants have a better understanding of their statutory obligations with regard to managing access. However there are a few who, even with land owner intervention, still fail to comply.

· An improved access network

Accessibility on the Estate has been considerably improved as many stiles have been replaced with more accessible and durable structures, signposting has been improved and there are fewer obstructions.

· An innovative approach to changing the rights of way network

Permissive alternative routes have been established in a few locations that create more user-friendly routes that are also easier to manage. These routes are created and signed on the ground to test their viability prior to undergoing the legal process. A guidance note has been produced and the Hampshire Countryside Access Forum support the project.

Whilst there is more work required if the project is to provide a blue print for managing access on the urban fringe, significant steps have been made and there is an intention to continue to progress the project.

Further Information

www.hants.gov.uk/countryside/access/iadp or contact: Jo Hale, IADP Manager, Hampshire County Council, Countryside Service, Mottisfont Court, Winchester, Hampshire. SO23 8ZF. Telephone: 01962 847717. Email: [email protected]

Case Study 3 - Forest of Bere Project

Purpose

To secure local community involvement in the sustainable management of the Forest of Bere landscape.

Description

The project is a partnership between Hampshire County Council, Winchester City Council, Havant Borough Council, Fareham Borough Council, East Hampshire District Council and the Forestry Commission. It is moving into an implementation phase following on from an earlier project with a focus on research.

The Forest of Bere is the remnants of an ancient hunting forest lying between the South Downs and the Solent conurbation. It is a landscape with a rich cultural and natural heritage but is subject to intense recreational and development pressure. A proposed major development area will be located in the forest, within Havant Borough.

The project will develop and implement a strategy for the Forest, with a strong focus on raising awareness of local issues, coordinating the activities of local groups, promoting the economic viability of the area and ensuring its sustainable management into the future. The key aims of the project are to:

¬ Identify appropriate management to protect and enhance the Forest.

¬ Develop a strong network within, and identity for, the Forest of Bere, providing opportunities to develop a wide range of community-led environmental, landscape and heritage enhancement projects.

¬ Encourage the development of a more sustainable agriculture in the Forest of Bere and foster the networks required in order to promote and facilitate action.

Land management planning is the key to the project. Developed from the approach to producing land management plans for AONBs, the project will develop a strategic land management plan for the project area and parish-scale plans for engaging people at the local level. Wide engagement of stakeholders will be achieved through the establishment of a forum of local interests. Links with other Hampshire County Council initiatives such as the Integrated Access Demonstration Programme, Safe Driving and Riding Routes and the Southwick Estate Access Strategy are intended to ensure a coordinated approach to countryside management in the Forest.

Relevance to the Rural/Urban Fringe

Lying between the South Downs and the Solent conurbation, the project area is part of the `urban core' identified in a sub-regional study for south Hampshire, carried out for SEERA. The Forest experiences high levels of recreational use and abuse, which places great pressure on maintaining a viable agriculture and strains relations between rural and urban communities. Development `hope value' undermines the commitment to managing land sustainably, and a wider lack of appreciation of its assets means that the area is generally undervalued.

Lessons Learnt

¬ Local communities are interested and ready to partake in projects.

¬ The farming community, especially on the urban fringe, are reluctant to increase access provision.

¬ There is a perception that rural crime levels and threats to safety are high.

¬ Large-scale new development threatens to exacerbate problems for rural areas unless positive steps are taken to manage access from the area.

Further Information

Contact David Carman, Principal Landscape Planning Officer, Environment Department, Hampshire County Council, The Castle, Winchester, Hants, SO23 8UD. Telephone 01962 845967. Email [email protected]