Contact: Peter Chadwick, ext 6728 email: [email protected]

1. Summary

1.1 Planning permission is sought for the retention and development of the waste recycling facility at Manor Farm, Pennington. The existing recycling facility has permission up to 31 December 2007, and the recycling is carried out in the open. The proposal is to further develop the site by the construction of three buildings within which most of the recycling would take place.

1.2 The site is within the South West Hampshire Green Belt and, as the proposal includes large buildings and the recycling facility would continue beyond the life of landfill operations, it is a departure from policy. However, it is considered that the need for the facilities, lack of other sites and proposed mitigation measures are sufficient to counterbalance the departure from policy. It is considered that the proposal is acceptable and, subject to complying with the requirements of departure procedures, the application is recommended for approval.

2. Site

2.1 The site, as shown on the attached plan, comprises an area of 4.5 hectares, which was formerly a quarry and is now in use for waste recycling. There is a small area of woodland adjoining the site. The surrounding area has been tipped and restored to agriculture and lakes have been created immediately to the south of the site Also south of the site is the Efford household waste landfill site, beyond which are Lymington/Keyhaven Marshes. These are Sites of Special Scientific Interest (SSSIs) and are of European importance for nature conservation. Also to the south is a Household Waste Recycling Centre (HWRC) with consent to 2020, the leachate treatment plant, landfill gas flare and landfill gas electricity generation plant, also with long term temporary consents. The Lower Farm gravel extraction and inert waste infilling site is to the east, and the haul road to this facility runs through the site to the main road (A337). Southern Water's Pennington waste water treatment works is also to the east. The gravel extraction and restoration and the Efford landfill site have consent to 31 December 2007.

3. Proposal

3.1 The site is currently used for waste recycling by the applicant. The current planning permission expires on 31 December 2007. The proposal is to retain and expand the facility, including the construction of three new buildings to house the main recycling processes. The use and construction materials of the buildings will provide for dust suppression and noise attenuation.

3.2 The range of waste handled would be construction/demolition waste, soils, skip waste and commercial wastes arising from within about a 30 mile radius. It is estimated the facility would handle up to about 150,000 tonnes per year, of which at least 70% would be recycled.

3.3 The buildings would be steel-portal framed. The double skin cladding with sound insulation would be painted goose-wing grey. Building 1 would measure 65 metres by 40 metres by 10 metres high to eaves (11.5 metres to ridge) and be used for concrete crushing/secondary aggregates. Building 2 would measure 60 metres by 50 metres by 10 metres high (11.5 metres to ridge) and be used for waste reception, sorting and composting. Building 3 would measure 50 metres by 20 metres by 10 metres high (11.5 metres to ridge) and be used for soil recycling. The recycled materials would be stockpiled outside the buildings.

3.4 The site would be screened, visually and acoustically, by a five metre bund to the north/north east. The shallow outer face (1 in 5) would be planted with shrubs; the inner face grass-seeded.

3.5 Access would be from the existing access road to the A337. There would be three accesses into the site from the access road and a one-way system operated within the site. The existing weighbridges, offices, mess room, and stores would be retained.

3.6 The application is accompanied by a Visual Impact Assessment, Noise Assessment, Prevention and Management of Dust and a Traffic Asesessment.

3.7 The proposal has been screened in accordance with the Environmental Impact Assessment Regulations. The proposal falls within Schedule 2 of the Regulations, being an installation for the disposal of waste. The area exceeds 0.5 hectare and is within 100 metres of `controlled waters'. Therefore the proposal needs to be assessed as to whether it is likely to have significant effects on the environment. There are sensitive sites in the vicinity; these are Lymington and Pennington Marshes and the Avon Water which are sites of European importance for nature conservation. Due to the distance these areas are from the site, the nature of the recycling and the ranges of wastes proposed to be recycled (skip waste, construction/demolition waste and green waste) it is considered the proposal would not have an adverse impact on these areas. Similarly the nature of the proposed waste is unlikely to give rise to significant risk of pollution and the enclosure of the recycling operations within buildings would reduce the environmental impacts of noise and dust for the locality. Consequently it is considered that the proposal would not have significant effects on the environment and so an Environmental Impact Assessment is not required.

3.8 Additional information has been provided by the applicant in an Ancillary Statement concerning the issue of the proposed facility being within the Green Belt. This statement considers the proposal in relation to Green Belt policy and argues that there are very special circumstances and considerations in relation to this application. These are:

(i) the proposed development does not conflict with the openness of the Green Belt nor is it contrary to the purposes of the Green Belt;

(ii) there is an acknowledged need for recycling development which is strongly supported by national and local policies;

(iii) there is an acknowledged need for the development to remain at its present location to serve the coastal strip between east Bournemouth and west Southampton. This is supported by the local community and upheld by the Proximity Principle;

(iv) there is no alternative site for the development. Closure of the facility, entailing landfilling of recyclable materials, would be wholly contrary to waste policies and the waste hierarchy; and

(v) the facility adjoins existing waste management facilities in the Green Belt, permissions for which have been granted (the Pennington Waste Water Treatment Works, the HWRC, and the pollution control infrastructure for the Efford Landfill Site).

3.9 In relation to alternatives the applicant withdrew an application for a similar proposal at Downton Manor Farm, which attracted considerable local objection. The applicant's site at Caird Avenue, which is used for silt lagoons processing plant and small industrial estate, could not accomodate the proposed facility. It is an open site close to a nearby housing estate (nearest houses within 50 metres) and Tesco supermarket. The associated lorry traffic would increase the conflict between heavy vehicles and local traffic. The applicant has a temporary (12 year) leasehold sand and gravel site at Hurn, adjoining Bournemouth International Airport. This is not suitable as Dorset County Council would oppose any waste management activity taking place on this site.

4. Development Plan

4.1 Hampshire Portsmouth and Southampton Minerals and Waste Local Plan Policy 46 concerns proposals for waste transfer and recycling.

5. Consultations

5.1 New Forest District Council raises objection to the proposal as it is contrary to adopted planning policy and Government advice in that:

(i) it would be an inappropriate development in the Green Belt, involving the erection of large buildings that would adversely affect its openness and be imposing and harmful in this sensitive rural landscape;

(ii) it would, by reason of its location and nature, be an unsustainable development that would generate and establish unacceptable lorry movements harmful to the New Forest National Park; and

(iii) the case put forward in support of the application is not considered sufficient to justify overriding the strong policy objection.

5.2 Environmental Health Officer, New Forest District Council has been informed.

5.3 New Forest National Park Authority has been informed.

5.4 Lymington and Pennington Town Council recommends approval, and comments at concerns about the visual impact before planting is established, and that no household waste or harmful waste should be processed at the site.

5.5 Milford-on-Sea Parish Council supports the proposal.

5.6 The Environment Agency raises no objection.

5.7 English Nature raises no objection.

5.8 The Highways Adviser raises no objection.

5.9 The Ramblers' Association has been informed.

5.10 The local Member, Councillor Evans, has been informed.

6. Representations

6.1 No representations have been received.

7. Chief Planning Adviser's Comments

7.1 The recycling operation at Manor Farm, Pennington is a significant local facility and at present, being associated with the surrounding mineral extraction and landfill, is in accordance with policy. The mineral extraction and landfill is coming to an end, therefore the retention of the facility would not comply with the locational requirements of Policy 46. Moreover , as the site is within the Green Belt, the construction of large buildings would be contrary to policy. However, there is a pressing need to maintain and increase recycling capacity to meet recycling targets. Accordingly, the issue is whether the need for the recycling facility to continue and develop, together with the environmental mitigation proposed, is sufficient to counterbalance the departure from policy.

7.2 Whilst the site is not far from important nature conservation sites, there is no evidence to suggest that the proposal would have an adverse impact on them. Similarly, the traffic generated would not have an unacceptable impact on the local road network. The proposed enclosure of the main recycling activities would reduce the noise and dust impacts. The site is also sufficiently distant from houses that the operations are unlikely to have a significant impact for local residents.

7.3 However, this part of Hampshire has very significant environmental constraints, with the New Forest National Park and extensive areas being of international importance for nature conservation, as well as the Green Belt. Therefore the concern is the visual impact and policy issues of having this built development within the Green Belt. The visual impact is unlikely to be significant. The proposals include substantial landscaping with the site enclosed by bunding, with shrub planting on the outer face. A similar approach was successfully adopted for the landscaping of the neighbouring Waste Water Treatment Works. Whilst this planting will take some time to become fully established it is considered that, provided it is with appropriate indigenous species, the landscaping would be effective.

7.4 Whilst the site is countryside within the Green Belt , it would not be visible from the main road and, with the landscaping, would not appear to extend the built-up area of Lymington/Pennington. Whilst it would be visible to the public from nearby public footpaths and to residents travelling to and from the HWRC, it is not considered that this would be intrusive or appear to extend the built-up area of Lymington/Pennington.

7.5 This is an existing facility which is important in serving the East Bournemouth/Christchurch/New Milton conurbation, west of Southampton and the New Forest. The emerging Minerals and Waste Development Framework has identified the need for further waste recycling facilities and the need for extending the range of recycling. Therefore there will be the need for facilities to serve this area. It is considered that the applicant's conclusions on alternatives are reasonable, particularly when considering the scale of the proposed recycling facility. A recent appeal for a much smaller waste transfer station at Sway, which is within the New Forest National Park, also considered possible alternatives and concluded that there were no sites available in the locality. The appeal was upheld.

7.6 Therefore, in relation to Green Belt policy, it is considered that there are very exceptional circumstances which are:

(i) the major constraint of the New Forest National Park;

(ii) the proposal is consistent with the Proximity Principle;

(iii) there are no suitable alternative sites; and

(iv) the development would not cause harm to the objectives of the Green Belt.

7.7 In conclusion it is considered that, with the landscaping and environmental mitigation proposed, the proposal would not seriously prejudice the Green Belt designation. It is considered that the mitigation and policy need are sufficient to counterbalance the departure from policy. Therefore it is considered that the proposal is an acceptable departure from policy and that, subject to complying with the requirements of departure procedures, the application is recommended for approval.

Recommendation

That, subject to the completion of the departure procedures, planning permission in respect of the retention and development of an existing waste recycling management and composting facility at Recycling Facility at Manor Farm, Pennington (84776) be granted for the following reason and subject to the following conditions:

Reason for Approval

It is considered that the proposal would be in accordance with the development plan (summary attached) and would not materially harm the character of the area or the amenity of local residents and would be acceptable in terms of highway safety and convenience.

Conditions

Commencement

(1) The development hereby permitted shall be begun before the expiration of five years from the date of this permission.

Reason: To comply with Section 91 of the Town and Country Planning Act 1990.

Hours of Working

(2) Unless otherwise agreed in writing by the Waste Planning Authority no heavy goods vehicles shall enter or leave the site and no plant or machinery shall be operated except between the following hours: 0700-1800 Monday to Friday and 0700-1300 Saturday. There shall be no working on Sundays or recognised public holidays.

Reason: In the interest of local amenity.

Landscape

(3) Within three months of development commencing a detailed scheme of landscaping for the perimeter of the site shall be submitted to the Waste Planning Authority for approval in writing. The scheme shall specify the types, size and species of all trees and shrubs to be planted; details of all trees to be retained; and details of fencing/enclosure of the site, phasing and timescales for carrying out the works, and provision for future maintenance. Any trees or shrubs which, within a period of five years from the date of planting, die, are removed or become seriously damaged or diseased shall be replaced in the next planting season with others of similar size and species. The scheme shall be implemented as approved within 6 months..

Reason: In the interest of visual amenity.

(4) No materials shall be stockpiles or deposited on the site to a height exceeding three metres.

Reason: In the interest of visual amenity.

Protection of Water Environment

(5) Any facilities for the storage of oils, fuels or chemicals shall be sited on impervious bases and surrounded by impervious bund walls. The bund capacity shall give 110% of the total volume for single and hydraulically linked tanks. If there is multiple tankage, the bund capacity shall be 110% of the largest tank or 25% of the total capacity of all tanks, whichever is the greatest. All filling points, vents, gauges and sight glasses and overflow pipes shall be located within the bund. There shall be no outlet connecting the bund to any drain, sewer or watercourse or discharging onto the ground. Associated pipework shall be located above ground where possible and protected from accidental damage.

Reason: To prevent pollution of the water environment.

(6) No solid matter shall be deposited so that it passes or is likely to pass into any watercourse.

Reason: To prevent pollution of the water environment.

Noise, Dust and Odour

(7) Prior to commencing operations details of dust suppression measures shall be submitted to and approved by the Waste Planning Authority in writing. The approved measures shall be implemented for the duration of the development.

Reason: In the interests of local amenities.

(8) Noise from operations on site including the plant and machinery and vehicles related to it shall not exceed 45dB Laeq 1 Hour when measured one metre off the facade of the nearest properties to the site. The operators shall take such measures as may be necessary , including sound insulation of buildings and plant, the silencing of vehicles and machinery to ensure that the noise level is not exceeded.

Reason: In the interests of local amenity.

(9) Prior to development commencing an Environmental Management Scheme for the control of noise and odour at the site shall be submitted to the Mineral/Waste Planning Authority for approval in writing. The Scheme shall be implemented as approved for the duration of the site's operation.

Reason: In the interests of local amenity.

420/PDC

Annexe to Reasons for Conditions

(as required by Article 22 of the Town and Country Planning

(General Procedure) Order 1995 - as amended)

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Hampshire, Portsmouth and Southampton Minerals and Waste Local Plan (Adopted) 1998

Policy 46

The Waste Planning Authorities will normally permit the use of land and the erection of plant and buildings for the recycling, transfer, storage and other treatment or handling of waste (excluding waste processing facilities covered by Policy 45) provided that:

(i) the proposed site is located near to the likely source(s) of waste and/or the market(s) for the recycled or recovered materials; and

(ii) the proposed site is located close to and has adequate access to the Hampshire Lorry Route Network (as shown on the proposals map), so that the development would not be likely to cause unacceptable traffic impact (including the environmental impact of traffic) on the local highway network; and

(iii) the proposed site is located:

(a) within an existing industrial site or on land which is permitted or allocated for industrial development; or

(b) within an area of land in the countryside that has already been disturbed by permanent development (a brownfield site); or

(c) at a waste disposal landfill or landraising site provided that the proposed development is connected with the waste disposal operation and is for a temporary period commensurate with the operational life of the waste disposal facility; and

(iv) the proposed site is located and the proposal includes adequate measures to ensure that no unacceptable impact would be likely to be caused to the occupants or users of houses, other residential buildings, schools, hospitals and other environmentally sensitive buildings and land uses by reason of noise, dust, fumes, smell or other cause; and

(v) the proposed site is located so as to avoid unacceptable impact on landscape, nature conservation and archaeological interests; and

(vi) the proposed site is located and the proposal includes adequate measures to ensure that there would be no significant risk of pollution or danger to public health or safety; and

(vii) the proposed site is located and, if necessary, the proposal includes landscaping measures to ensure that the development would not cause unacceptable visual intrusion.