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

1. Summary

1.1 The proposal is for an 864 space park and ride car park with central amenities building, landscaping, planting and earth bunds at Itchen Farm, Winchester (locally known as the `Tarmac site') adjacent to Junction 11 of the M3. The main access would be from the Hockley Link roundabout with a secondary access for buses from Otterbourne Road. The planning application is accompanied by an Environmental Statement.

1.2 The development of a South Winchester Park and Ride is in accordance with long established policy and has been subject to public consultation. The main issue is the potential visual impact, particularly when viewed from the neighbouring Area of Outstanding Natural Beauty (AONB) and proposed South Downs National Park to the east. However this view has to be considered in the context of the significant impact already caused by the M3 and the slip roads and roundabouts associated with Junction 11, and also take into account the extensive landscaping proposed and the mitigation measures proposed. The proposed site is a departure from policy as it is not the site shown in the Winchester District Local Plan (Review). Nevertheless, it is considered the proposed site meets the policy tests for a park and ride proposal around Winchester set out in Policy W4. Therefore it is considered to be an acceptable departure from policy.

2. Recommendation

That, subject to completion of the departure procedures, planning permission in respect of proposed park and ride car park with central amenities building, landscaping, planting and earth bunds at Itchen Farm (also know as the `Tarmac Site') adjacent to Junction 11 of the M3, with main access off the Hockley Link roundabout and secondary access off Otterbourne Road (Application No. 07/00997/HCS W20607) (County Council Ref: WRH007) be granted for the following reason, subject to conditions set out in Appendix 1.

Reason for Approval

It is considered that although the proposal is a "departure" from the development plan, (summary attached as Appendix 2) as Policy W4 of the Winchester District Local Plan Review identifies Bushfield Camp as the location for a South Winchester Park and Ride car park, the proposal does accord with the criteria in Policy W4 applying to park and ride car parks in or around Winchester. Moreover the development 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.

3. Site and Proposal

3.1 The site, as shown on the attached plan, comprises an area of 13.17 hectares of farmland at Itchen Farm, south of Winchester between Otterbourne Road, Junction 11 of the M3 and the Hockley link (between the Hockley and Bushfield roundabouts). The majority of the site was used as the contractors' compound during the construction of the M3 cutting, and is known locally as the `Tarmac site'. The site is countryside, as in agricultural use, and adjoins the Winchester-Compton Street Local Gap.

3.2 The nearest houses are Appleshaw and The Coach House, the grounds of which adjoin the southern boundary of the site. The village of Compton is to the south-west, Shawford is to the south and Twyford to the east.

3.3 To the east of the site is the Itchen Valley Site of Special Scientific Interest (SSSI), the River Itchen itself is designated a Special Protection Area (SPA) as being of European importance for nature conservation. The East Hampshire AONB (including Twyford Down and St Catherine's Hill) lies to the east of the Itchen Valley, and the proposed South Downs National Park covers a wider area which includes the Itchen Valley, the other side of the M3 and mainline railway from the site.

3.4 The proposal is to construct an 864 space park and ride car park and central amenities building. The main access would be via a fourth arm off the Hockley Link roundabout at Junction 11 of the M3. There would be secondary, left-in only, access from Otterbourne Road for buses. A dedicated footway and cycleway would be provided linking the site to Otterbourne Road, together with improved crossing facilities at Bushfield roundabout.

3.5 The proposed single storey amenity building houses the toilets, bus information and covered shelter and waiting areas. It is located at the centre of the car park and has been designed to provide a high standard of facilities and blend into the surrounding landscape. The proposals include a `green' roof for the building and landscaping around it.

3.6 The existing belt of mature beech trees alongside Otterbourne Road would be retained. The proposals also include a high degree of landscaping, both earth bunding and extensive tree and shrub planting, to reduce the visual impact. This landscaping would be primarily to screen views of the site from the east (from the direction of Twyford and St Catherine's Hill) and to protect the amenities of the nearest houses (Appleshaw House and The Coach House). The latter would be by providing a 50 metre wide landscaping belt along the southern boundary. The landscaping works also provide the opportunity for improving biodiversity by the use of native trees and shrubs, developing a mosaic of grassland within the site (including the green roof of the amenity building) and specific habitat creation. The native woodland planting around the perimeter of the site would be mass planting of bare root whips and transplants at 1.5 to 2 metre centres of native trees and shrubs common to ancient and semi natural woodland of mid Hampshire. The trees would be oak, ash, field maple, wild crabapple, yew and whitebeam, with beech included in the western boundary planting. The shrubs would be hawthorn, blackthorn, hazel, guelder, wayfaring, dog rose, field rose, buckthorn, holly, spindle, wild privet and dogwood. The woodland screen planting within the site to divide the parking areas would be the same species mix, but planted at a higher density of 1 to 1.5 metre centres. Within the parking areas and near the amenity building larger trees (between 4.5 metres and 5.5 metres in height depending on location) would be planted. The species would be oak, ash, hornbeam, small leaved lime, wild cherry, whitebeam, field maple and silver birch. The grassland areas and all verges to roads and parking areas would be seeded with chalk grassland seed mixes, species being grass and herbs common to Hampshire chalk grasslands.

3.7 Two potential routes for the buses providing the `ride' element have been identified. These are to the top of the City Centre and back via Romsey Road, and to the top of the City Centre via St Cross Road and returning via Romsey Road. Both of these routes are viable and the decision on routeing would be determined on the basis of operational performance judged nearer to the time of opening. No planning permission is required for using either of these routes.

3.8 The application is also accompanied by a Design and Access Statement, a Sustainability Appraisal, a Transport Assessment (TA) and an Environmental Statement.

4. Environmental Statement

4.1 The proposal is a development falling within Schedule 2 of the Town and Country Planning (Environmental Impact Assessment) (England and Wales) Regulations 1999. This is because it is an `Urban Development Project', and the size and nature of the proposals and its location close to the River Itchen SAC and SSSI and the East Hampshire AONB are such that there could be significant impacts on the environment. Therefore an Environmental Statement, and a non-technical summary, have been submitted with the planning application.

4.2 The Environmental Statement includes Purpose of the Scheme, Alternatives Considered, Scheme Description, Policy and Planning, Travel and Transport, Agriculture, Geology and Soils, Water Quality and Drainage, Air Quality, Noise and Vibration, Nature Conservation and Biodiversity, Landscape and Visual Impacts, Cultural Heritage, Social and Community Effects, Combined and Cumulative Effects.

4.3 The Environmental Statement concludes that:

(i) The scheme strongly complies with national, regional and local transport policy.

(ii) The park and ride car park would offer a transport option for people commuting to Winchester to work from the south and south-east, and for certain major employers along the Romsey Road corridor to implement Travel Plans to reduce on-site parking, in addition providing an option for visitors to the city centre for shopping and tourism therefore reducing car trips whilst maintaining the economic viability of the city.

(iii) The proposal would not result in significant highway and traffic impacts during construction. The scheme would be likely to have an overall beneficial impact in terms of travel and transport effects.

(iv) Noise impacts would be negligible, and the Construction Environmental Management Plan (CEMP) would control dust. There would be a negligible impact on air quality.

(v) The water environment would be protected through the CEMP. The scheme would have a neutral impact on the water environment during both construction and operation.

(vi) The designated sites of importance for nature conservation, including the River Itchen SAC and SSSI, would not be affected. The scheme is likely to have a slightly adverse ecological impact until the new habitats develop, but the long term impact for nature conservation and biodiversity is beneficial.

(vii) Construction of the site would be visible from the Scheduled Ancient Monuments at Twyford Down and St Catherine's Hill, but this adverse impact on their setting would be temporary and would be slight in the future with the completion of the landscaping.

(viii) There would be an adverse visual impact during construction on landscape character to the north and east of the site, including the East Hampshire AONB and proposed South Downs National Park, views from Twyford Down and St Catherine's Hill and views from Twyford. This would reduce to slight following the implementation of the landscape mitigation and as the planting matures.

(ix) The lighting on site would have an adverse impact on local landscape character in adding to the intrusion from lighting on the Hockley Link and Bushfield roundabout and lights from vehicles on the M3. This additional impact would reduce as the mitigation planting develops, such that the residual impacts are likely to be insignificant.

(x) The scheme would be likely to have an overall slight to moderate adverse environmental impact during construction. Following construction the adverse impacts would reduce to negligible when mitigation planting matures to better enclose the park and ride facility and new ecological habitats become established.

5. Development Plan

5.1 Hampshire County Structure Plan (1996-2011) Review Policy T15 concerns further park and ride facilities for Winchester and Policy E9 concerns development along major road and rail corridors.

5.2 Winchester District Local Plan (Review) (July 2006) Policies CE2, CE4 and CE5 concern development in the countryside, Policy W3 concerns Bushfield Camp and Policy W4 concerns proposals for park and ride car parks in and around Winchester.

6. Consultations

6.1 Winchester City Council raises no objection subject to the following concerns being addressed:

(i) long term management and retention of beech tree avenue on Otterbourne Road;

(ii) reinstate hedgerow along entire western boundary;

(iii) trees and shrubs around amenity building may need to be replaced with low groundcover to maintain visibility for security reasons;

(iv) rabbit proof protection required. Spindle may not be appropriate tree for planting in car park;

(v) coordination required between planting and closed circuit television and lighting to ensure no conflict as planting matures;

(vi) a level area along top level of bund would be more natural and assist establishment of planting;

(vii) two tier grass cutting necessary to encourage natural appearance and biodiversity; and

(viii) measures included to prevent unauthorised access.

6.2 Environmental Health Officer, Winchester City Council raises no objection subject to conditions concerning hours of working for construction and lighting.

6.3 Highways Agency raises no objection subject to conditions concerning temporary fencing along bund, care taken to ensure no light source directly seen from motorway, and maintenance of light columns to ensure if they are damaged or out of alignment their lights are disabled to reduce any potential of light distracting drivers.

6.4 Highways Authority raises no objection subject to conditions to ensure that the highway works at Otterbourne Road and Bushfield roundabout, and pedestrian and cycle improvements, are completed prior to occupation, and requirement for construction traffic management plan. Notes that in order to provide a robust assessment of the impact on the surrounding highway network it has been assumed the facility will be at capacity from day of opening and the approach to traffic distribution is acceptable to derive suitably robust distributions. In relation to accidents there is a cluster at the Hockley Link roundabout, the causes have been addressed by measures taken by the highway authority. In addition there have been a number of rear end shunts at the Bushfield roundabout, as queuing is expected to reduce as a result of this development these accidents are expected to reduce.

6.5 Environment Agency raises no objection subject to conditions concerning measures to deal with potential contamination.

6.6 Natural England comments that proposal is not likely to have significant effect on the River Itchen Special Area of Conservation, nor River Itchen SSSI and supports the Sustainable Drainage System scheme. It supports the enhancement measures which include the creation of grassland mosaics in the design, the use of the green roof, the impressive reptile mitigation measures and the promotion of conservation and ecological awareness of the public. Concern is expressed that there would be a slight adverse impact for protected species (badgers and bats) which could be addressed if the proposed mitigation measures are amended.

6.7 South Downs Joint Committee recognises there is a need for additional park and ride provision, but notes there appear to be preferable locations and strongly urges consideration of Site 2 (Bushfield Farm). The comments are based on an assessment of the existing proposal with the assumption that the other sites are now discounted and cannot be considered further. Concludes that whilst it regrets that this is the site that has been chosen, it has no objection subject to conditions concerning management of the woodland planting, control over hours of lighting and designed to minimise upward glare, drainage controlled so run-off does not harm the Itchen.

6.8 Southampton Airport requests amendment to landscape scheme.

6.9 Compton and Shawford Parish Council comments that it has a strong view that if a South Winchester Park and Ride facility was required, the Itchen Farm/Tarmac site would be the most appropriate. Pleased that it is proposed to retain all the trees in the beech avenue. Expect ongoing communication during construction to keep residents informed of progress and any impacts such as temporary traffic changes.

6.10 Twyford Parish Council raises objection. Whilst the principle of the park and ride facility is appropriate, the site should be that specified in the Local Plan and not this site. The impact on the environment using this site will be vast. The impact on this parish will mean the site will be fully visible from various points. The site is on the boundary of the proposed National Park, and will be fully visible from St Catherine's Hill and the AONB.

6.11 Otterbourne Parish Council comments that the Itchen Farm site is the most appropriate site and gives its full backing to this selection. It makes sense in terms of reducing traffic congestion, particularly at the Bushfield roundabout, and does not form part of the Local Gap. Fully supports proposals for limiting vehicular access from Otterbourne Road to buses with only left turn into the site.

6.12 Badger Farm Parish Council has no comments.

6.13 Twyford Residents' Association objects to this site. The site will be widely seen from many heritage sites and public footpaths and the proposal will be significantly harmful to the settings of both the proposed National Park and the AONB. Supports the site identified in the Winchester District Local Plan as it is less harmful to the important landscape. Understands the need for an additional park and ride facility, questions the need for another in the south of Winchester when greater need to the west.

6.14 City of Winchester Trust comments that the site seems to be the best location, despite its visibility across the valley. The landscaping proposed should provide an adequate screen during the day, and in view of its close proximity to the two brightly lit roundabouts the level of luminescence should be acceptable provided it is reduced during the night. Layout and access seem very satisfactory. Concerned that no concurrent or planned closure of any central car parking areas has been proposed by Winchester City Council since this would be a very good way of reducing volume of traffic and improving air quality in central Winchester.

6.15 Winchester Friends of the Earth raises objection. There are no particular concerns about the choice of the site or the design of the scheme, although surprised that the application does not specify which of the suggested bus route options should be used as the choice is critical to the working of the scheme. The objection is because the intercept by the park and ride of commuter trips that currently go to city centre car parks will free up those car parking spaces for shorter stay non-commuter parking, resulting in a greater number of car trips. Therefore the proposals would increase traffic in central Winchester as there is no commitment to complementary car park removal from the city centre. Even with removal of city centre car parking they regard this proposal as inappropriate to solving the transport and environmental difficulties of the city because of the likely effects on conventional public transport. They consider that insufficient attention has been given to the alternative option of improving conventional bus services to provide a more socially inclusive and environmentally efficient solution.

6.16 Councillor Mrs Bailey comments that the consultation on this application has been appreciated, and locally it is felt that the Itchen Farm site is the least worst option. This is because it is already visually affected by the closeness of the M3; it will reduce traffic congestion at the Bushfield roundabout as it takes traffic directly from the M3/Twyford; it provides a bus only access on to Compton Road and it will have a minimal effect on the Winchester/Compton Local Gap. The issues which are important to address are: landscaping to minimise the impact from Twyford and the M3 and Compton Road; lighting which is at low level and can be turned off at night; sufficient bunding to screen the two nearest houses; a practical pedestrian/cycle route into Winchester and if possible continued down to Compton; and a plan to allow for the replacement of the beech trees in the future.

6.17 Councillor Mason has been informed.

6.18 Winchester City Councillors Wagner and Izard (councillors for Colden Common and Twyford), whilst supporting the need for a further park and ride site, object to the proposed site as the least favoured one in the Bushfield area. Agree with the submission made by Southern Planning Practice.

7. Representations

7.1 Objection has been received from WS Planning on behalf of the residents of Coach House and Appleshaw House. This is on the grounds that the proposal is contrary to Development Plan policy in that the site identified in the Winchester District Local Plan is Bushfield Camp, and Bushfield Farm is closer to this site. The site would be unduly obtrusive in the landscape. Contrary to Policy E9 of the Structure Plan as it affects the environment along major road and rail corridor, and bunding is not acceptable mitigation taking into account lighting and the built form with extensive roads and parking. Proposal adversely affects setting of AONB and proposed South Downs National Park. Policy W4 of the Winchester District Local Plan sets out criteria for considering park and ride sites around Winchester, which have not been fully addressed in the evaluation of the site. Notwithstanding these objections, if approval is recommended request the extension of the bunding around the south of the site to protect their amenity and to prevent future extensions of the parking area towards their properties.

7.2 Objection received from Southern Planning Practice on behalf of residents of north Twyford. This is on the following grounds:

(i) site appraisal selection process fundamentally flawed;

(ii) contrary to the development plan and will give rise to significant harm to interests of acknowledged importance;

(iii) benefits of proposals substantially overstated;

(iv) need for an 864 space park and ride car park not made out; and

(v) proposals simply the `park' element ought not to be considered in isolation of bus route, bus priority measures and business plan to show proposals viable and capable of being funded.

7.3 The overall conclusion of the objection is that the proposals are not in accordance with the Development Plan. They will give rise to a major visual impact and this intrusion will be visible from the AONB and proposed National Park. As such the proposal runs counter to national, regional, structure and local plan policies as shown in the policy matrix table. The suggestion that the proposal site is appropriate because of the presence of the M3 already causes a degree of intrusion is wholly misplaced and contradicts County Council Policy E9. The site appraisal process was fundamentally flawed and as a consequence the Council cannot be satisfied that there are no other proposed locations that could not better accommodate a park and ride site. In any event the size of these proposals is unwarranted. The failure to develop this proposal without a comprehensive approach to bus priority measures and a commitment to the reduction in city centre car parking means it has not demonstrated that these proposals would not lead to an increase in long stay car parking contrary to both Planning Policy Guidance 13 and the development plan.

7.4 Winchester College supports park and ride but objects to the Itchen Farm site because of the impact on views of Winchester from St Catherine's Hill, Twyford Down and Hockley Golf Course, which are owned by the College. Requests the County Council to revisit this decision and look again at Bushfield Farm.

7.5 Winchester University supports the proposed park and ride facility. Comments that the routeing of the buses should be via Romsey Road to provide a service for the Romsey Road employers, including the University, the Hospital, the Prison and the Police.

7.6 Three letters of objection have been received from residents of Twyford on the grounds of visual intrusion, creeping urbanisation, proposed site not well placed as should be located to suit needs of traffic from Romsey direction.

7.7 Eleven letters of objection have been received on grounds that there is no commitment to reducing city centre car parking, therefore the scheme would not meet its stated aims and in fact increase traffic volumes by replacing long term parking with more short term parking. Aims better achieved by investing in better traditional bus services. Comments raise same issues as in the representation by Friends of the Earth.

7.8 Six letters support the proposal as a good design at the right site, although one comments on the need for joined up thinking to coincide the opening of the park and ride with reduction of city centre parking.

7.9 One letter comments on the need for sound-proof fencing along Junction 11 and Hockley Link due to noise created by the use of the M3, another letter comments on the need to further improve the cycleway along Otterbourne Road, and another comments that would object to creation of a bus lane on Badger Farm Road which would widen the road and reduce the green spaces between Parliament Place and Olivers Battery Road South junction. One letter supports the scheme.

8. Report of Site Visit

8.1 Some Members of the Committee (Councillors Cooper and Hockley) with Councillor Heath in the chair, undertook a site visit on 9 July 2007. Councillors Mrs Bailey and. Mason, as local Members, were also present. Members met representatives of Compton and Shawford Parish Council, Twyford Parish Council and Winchester City Council Members.

8.2 The Chief Planning Adviser introduced the application and outlined its key features for a proposal to construct an 864 space park and ride car park, central amenities building, landscaping, planting and earth bunds at Itchen Farm, Winchester (also known as the `Tarmac Site'). He displayed a detailed plan and Members noted the extent of the proposals. Members viewed the site and walked a footpath to see the view from one of the proposed parking areas towards the M3 motorway. They noted that the site was exposed to distant views at the top of St Catherine's Hill and the golf course and would be viewed fleetingly by passing cars on the M3.

8.3 Members noted that residents were concerned about the visibility of the site from the M3, which they considered would be even more visible with the park and ride and had raised issues about the bunding and planting. The Chief Planning Adviser said that there were proposals to construct a bunding on the eastern side and wide planting around the edge of the site. Members noted that the site would be cut and filled with no importation and although the site varied in height native plant species would be planted to provide a semi-woodland setting. There was a request for more detail on the planting to be provided, which the Chief Planning Adviser noted.

8.4 The Chief Planning Adviser said that the site would be illuminated with relatively low-level down lighters until 11pm every evening. Members noted that Winchester City Council was satisfied with the traffic, lighting from the motorway and network and would manage the site.

8.5 Members requested that detailed cross-section drawings be provided at the Regulatory Committee meeting on 25 July 2007.

9. Chief Planning Adviser's Comments

9.1 The strategy of park and ride for Winchester is well-established. It was set out in the first Hampshire Local Transport Plan (LTP) 2001-2006 and has been followed through in the current LTP 2006-2011 (March 2006), which states that the next park and ride site is proposed for south Winchester. The Winchester District Local Plan (Review) 1996-2011 (July 2006) also supports park and ride for Winchester. Policy W4 of the Local Plan states that planning permission will be granted for park and ride car parks in and around Winchester and sets out criteria in the policy. In relation to south Winchester the site identified in Policy W4 for park and ride is Bushfield Camp, in association with recreation/leisure proposals under Policy W3. However these recreation/leisure proposals have not come forward. A new evaluation undertaken by the County Council identified the Itchen Farm site and Bushfield Farm site as better sites than Bushfield Camp and the other possible sites in this vicinity. This evaluation was the subject of the public consultation exercise last year. As a result the current proposal is at Itchen Farm, not Bushfield Camp, and therefore it does not fully comply with Policy W4. Consequently it is a departure from the development plan.

9.2 Notwithstanding the departure issue, the proposal still needs to be assessed against the criteria set out in Policy W4, which are the impact on the special landscape setting of Winchester, suitable means of access for cars and buses, and whether the benefits of the scheme outweigh conflicts with the countryside as the site is outside the policy boundary of Winchester.

9.3 It is considered that the proposals will not have a major impact on the special landscape setting of Winchester. This is because it is located alongside M3 Junction 11 with the existing visual impact of the motorway, the slip road, Hockley Link and roundabout and associated lighting. This location together with the extensive bunding and landscape planting proposed will ensure that the car park would not adversely affect the landscape setting of Winchester when operational. There will clearly be a visual impact during construction, but this would only be temporary. The landscaping and the consequent distance between the car parking and the nearest houses would protect the amenity of the nearest residents who adjoin the southern boundary. It is noted that the nearest residents comment that if the proposal is to go ahead they would wish the bund to be extended along the southern boundary. The extent of the bund would be dependent on the amount of soils available from within the site as no importation is proposed. The southern area is also the area with the highest archaeological significance. To address the concerns of the neighbouring residents a close-boarded fence along the boundary of the site, to be installed before major works commence, is proposed. This can be secured by condition. The request by Southampton Airport to amend the landscaping scheme by extending tree spacing to four metre centres would undermine the principle of the landscaping scheme, and so is not accepted.

9.4 The main visual/landscape impact will be when the site is viewed from the east, particularly from Twyford, St Catherine's Hill and Twyford Down and from travellers on the motorway. These are sensitive locations because they are within the East Hampshire AONB and proposed South Downs National Park. However, for the reasons set out above, it is not considered that the impact would be unacceptable once the car park has been built and becomes operational. The extensive landscaping would provide screening for the cars and the car park. The lighting has been carefully designed to minimise the height of the columns and direct light downwards such that there would not be a significant increase in impact. Clearly during construction, and before the landscaping matures, there will be some visual impact, but this would be temporary.

9.5 The proposals have a suitable means of access for cars and buses from the Hockley Link roundabout, and Otterbourne Road for buses only. The main highway issue is the potential impact for the M3. This is to ensure there is no adverse impact for the operation of the Hockley Link roundabout such that problems are caused to M3 Junction 11. Further information and clarification was sought by the Highways Agency, who are now satisfied that the M3 and Junction 11 would not be adversely affected.

9.6 The Transport Assessment included assessment of both Bushfield and Hockley Link roundabouts. This was done by modelling capacities, queues and delays for each arm of the roundabouts. This showed the proposal would provide an improvement in queuing at the Bushfield roundabout. Due to an error in traffic allocation this modelling had to be revised. However whilst the benefits would not be as great as originally calculated, there would still be an improvement.

9.7 Comments have been raised by objectors that the proposals are inadequate as they are for a car park only and do not include proposals for improvements to the bus route. This is not the case as the proposals identify suitable routes, which are already in use by service buses. It is not necessary for the route to be finalised as part of the planning application for the car park. Any specific measures to improve these routes would be considered nearer the time the park and ride becomes operational.

9.8 It is considered that the benefits of park and ride for Winchester, both in terms of traffic management and the environment, outweigh the impact on the countryside. There will be a loss of agricultural land, but the land is not of high agricultural value. The scheme includes measures so that the long term impact on biodiversity is beneficial. The comments of Natural England concerning a slight adverse impact for bats and badgers are noted, but this would be inevitable as the site would be developed. Again it is considered that the site's location alongside M3 Junction 11 means it will not be as intrusive as a site in open countryside, even though it will be open to views from the north-east and east.

9.9 Therefore it is concluded that whilst the proposal does not comply with Policy W4 in that it is not at Bushfield Camp, it does comply with the criteria identified in the policy for assessing park and ride car park proposals around Winchester.

9.10 The objections, particularly by Friends of the Earth, raise the issues that the proposals are deficient in that there are no complementary proposals to reduce central parking in Winchester, that there has been no reduction in central car parking following the development of the existing park and ride car parks and no joined up working between the County Council and Winchester City Council regarding car parking. However the County Council and Winchester City Council have worked together to develop the Winchester Movement and Access Plan, and have started the process of review. As a result of the Winchester Movement and Access Plan and the development of the existing park and ride car parks, Winchester City Council has taken action by removing 500 free on-street spaces and has introduced an extensive residents' parking scheme, removing about 660 on-street spaces for commuters. In addition there will be a reduction of about 174 car parking spaces in the next few years following developments at Jewry Street, Silver Hill and Colebrook Street. This is in addition to the removal of 250 spaces as part of the Ashburton Court refurbishment. Therefore there has been a reduction in central car parking provision, and the County Council and Winchester City Council have worked, and continue to work, together on transport policy for Winchester.

10. Conclusion

10.1 In conclusion, the development of a South Winchester Park and Ride is in accordance with long established policy and has been subject to public consultation. The main issue is the potential visual impact, particularly when viewed from the AONB and proposed South Downs National Park from the east. However, this view has to be considered in the context of the significant impact already caused by the M3 and the slip roads and roundabouts associated with Junction 11, and also take into account the extensive landscaping proposed. Once this landscaping matures the impact will be significantly reduced. Whilst in the countryside, it is in an area already urbanised by the M3 and Junction 11, and with the landscaping would not detract from Winchester's setting. The landscaping and stand-off would also protect the amenity of the nearest residents. There are suitable bus routes from the site to serve Winchester, although the precise routeing and any bus priority measures would be finalised at a later date.

10.2 Although the proposed site is not at Bushfield Camp, and therefore is a departure from policy, it is considered the proposed site meets the policy tests for a park and ride proposal around Winchester set out in Policy W4. Therefore it is considered to be an acceptable departure from policy.

1397/PDC

APPENDIX 1

Conditions

Time Limits

(1) The development hereby permitted shall be begun before the expiration of three years from the date on which this planning permission was granted.

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

Hours of Working

(2) Unless otherwise agreed in writing by the Local 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: 0730-1800 Monday to Friday and 0730-1400 Saturday. There shall be no working on Sundays or recognised public holidays.

Reason: In the interests of local amenity.

Protection of Water Environment

(3) If, during development, contamination not previously identified is found to be present at the site then no further development (unless otherwise agreed in writing with the Local Planning Authority) shall be carried out until the developer has submitted, and obtained written approval from the Local Planning Authority for, an amendment to the Method Statement detailing how this unsuspected contamination shall be dealt with.

Reason: There may be contamination encountered during development that was not previously expected, which will still need to be assessed as part of the development works in order to ensure protection of controlled waters.

Highways

(4) No part of the development shall be occupied until the access arrangements as shown on Drawing 17/A3090/3/318 Rev B have been constructed, unless otherwise agreed in writing by the Local Planning Authority.

Reason: In the interests of highway safety.

(5) No part of the development shall be occupied until the pedestrian and cycle improvements as shown on Drawing 17/A3090/3/330 Rev B have been constructed, unless otgherwise agreed in writing by the Local Planning Authority.

Reason: In the interests of highway safety.

(6) Prior to development commencing a Construction Traffic Management Scheme shall be submitted to the Local Planning Authority for approval in writing. The scheme shall be implemented as approved for the duration of construction.

Reason: In the interests of highway safety.

(7) Unless otherwise agreed in writing by the Local Planning Authority, no part of the development shall be occupied until a temporary two metre light screen fence has been erected on the bund in accordance with details agreed in writing by the Local Planning Authority. The fence shall be removed when the planting on the bund exceeds two metres in height.

Reason: In the interests of highway safety.

Noise and Dust

(8) Prior to development commencing a Construction Method Statement and a Construction Code of Practice for limiting the emission of noise and dust from all the construction activities on the site shall be submitted to the Local Planning Authority and agreed in writing. The approved measures shall be implemented as approved for the duration of construction.

Reason: To protect local amenity.

(9) Prior to development commencing details of fencing along the southern boundary shall be submitted to the Local Planning Authority in writing. The details shall be implemented as approved.

Reason: In the interests of the amenity of the nearest residents.

Lighting

(10) Unless otherwise agreed in writing by the Local Planning Authority the lighting design shall be as shown on Drawing 17/A3090/3/380/RevB. Details of the maintenance of the lighting shall be submitted to the Local Planning Authority for approval in writing prior to the car park becoming operational. The details shall be implemented as approved.

Reason: To protect the appearance of the area, the environment and local residents from light pollution.

Landscaping

(11) Unless otherwise agreed in writing by the Local Planning Authority, the landscape works shall be carried out in accordance with Drawing 17/A3090/3/340. All landscaping works shall be completed within the planting season following the the car park coming into use. Any plants or trees 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, unless the Local Planning Authority gives written consent to any variation.

Reason: In the interests of visual amenity.

(12) The existing line of beech trees and perimeter trees and shrubs which are to be retained, shall be protected from damage during the demolition works by the erection of protective fencing, comprising 2.4 metre high `Heras type' fencing or other fencing agreed in writing, enclosing the crown spread of the trees. The fencing shall be erected before the works commence and shall be retained throughout the period of construction.

Reason: In the interests of amenity, to ensure that the trees on the site are not damaged by the development.

(13) No part of the development shall be occupied until a long term management scheme for the beech belt to be retained alongside Otterbourne Road has been submitted to, and approved in writing by the Local Planning Authority. The scheme shall be implemented as approved.

Reason: In the interests of amenity to ensure retention of the beech belt.

Archaeology

(14) No development shall take place within the area of archaeological interest until the applicant has secured the implementation of a programme of archaeological work in accordance with a written scheme of investigation which has been submitted by the applicant and approved by the Local Planning Authority.

Reason: In the interests of archaeology.

Nature Conservation

(15) Unless otherwise agreed in writing by the Local Planning Authority, the nature conservation and biodiversity mitigation set out in Chapter 12 of the Environmental Statement (April 2007) shall be implemented in full.

Reason: In the interests of nature conservation.

APPENDIX 2

Annexe to Reasons for Conditions

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

(General Procedure) Order 1995 - as amended)

__________________________________________________________________

Hampshire County Structure Plan (Review) 2000

Policy E9

The quality of the environment along major road and rail corridors will be conserved or enhanced. Development proposals should avoid or minimise any adverse effects on the quality of the environment long major road and rail corridors.

Policy T15

Where appropriate, land for park-and-ride schemes in the Winchester Strategy Area will be safeguarded for implementation.

Winchester District Local Plan

Policy CE2

Development that would physically or visually diminish a Local Gap and thus undermine its function will not be permitted. The following Local Gaps are defined on the Proposals and Inset Maps:

Winchester - Compton Street.

Policy CE4

In the countryside, the development of essential facilities and services to serve local communities may exceptionally be permitted where the Local Planning Authority is satisfied that it complies with Policy DP.3 and other relevant policies of this Plan and that:

(i) a location on a particular site in the countryside is essential for operational reasons; or

(ii) there are no suitable alternative sites for the proposed development within the defined built-up area of the settlement(s) which the development is intended to serve; and

(iii) an acceptable landscape scheme is submitted as part of the application.

Policy CE5

Development which fails to respect the character of the landscape, or harms the key characteristics of the Landscape Character Area concerned (as set out in Appendix 2) will not be permitted.

Policy W3

At Bushfield Camp, within the area defined on Inset Map 31, planning permission will be granted for the provision of facilities for open sports, informal recreation and smallscale tourism-related uses, provided that:

(i) proposals include the provision of a substantial area of sports pitches to serve the general recreational needs of Winchester, and associated areas of informal recreation in appropriate locations;

(ii) additional planting is provided to minimise the visual impact of the facilities in views from the surrounding countryside and measures are taken to protect areas of nature conservation interest;

(iii) vehicular access is provided from Badger Farm Road, along with good public transport facilities, and footpath and cycleway links to the surrounding residential areas;

(iv) the area is planned and managed to ensure that the uses appropriate to the various parts of the site are inter-related.

Policy W4

Planning permission will be granted for park and ride car parks in or around

Winchester, linked to the city centre by exclusive bus services with bus priority

schemes, provided that:

(i) the proposal would not be unduly intrusive or harmful to the special landscape setting of Winchester;

(ii) suitable means of access can be provided for cars and buses and any associated traffic management measures can be accommodated satisfactorily.

If schemes are proposed outside the policy boundary of Winchester, the Local Planning Authority will need to be satisfied that the benefits of the scheme outweigh conflicts with countryside or other policies of the Plan. Only facilities essential to the satisfactory and successful operation of park and ride will be permitted in such locations. A park and ride car park and associated infrastructure will be permitted at Bushfield Camp, in association with recreation development planned for this site (see Policy W.3).