didcot further expansion - south oxfordshire of sodc’s decision to locate future expansion at...

Didcot Further Expansion

Landscape and Visual Resources

Appendix 2 to the RPS Examination Statement

Prepared by:

October 2011 RPS Mallams Court 18 Milton Park Abingdon Oxon OX14 4RP Tel 01235 838 200 Fax 01235 838 225 Email [email protected]

RPS Didcot Further Expansion JNP2016 October 2011

i

Contents Page No 1 Introduction 1

General

Methodology

2 Landscape Evidence Base 3

General

Option E (Area 4)

Option A (Area 7)

3 SODC LDF Evidence Base 7

Didcot Background Study 2006

South Oxfordshire Submission Core Strategy Didcot Background Paper

March 2011

4 Analysis of Options 9

SODC Master Plan for Option A

RPS Master Plan for Option E

5 Conclusions 11

Figures

Figure 1: Landscape Constraints and Proposals: Option E (Search Area 4)

Figure 2: Landscape Constraints and Proposals: Option A (Search Area 7)

RPS 1 Didcot Further Expansion JNP2016 October 2011

1 Introduction

General

1.1 This report contains an analysis of landscape and visual issues associated with South

Oxfordshire District Council (SODC) proposals for the future expansion of Didcot. The report

provides a technical background to the Hearing Statement and has been prepared on behalf

of Taylor Wimpey Developments.

1.2 The report will demonstrate that SODC’s preferred option to expand Didcot to the north east

as opposed to the south west, contiguous with the Great Western Park expansion, is not

justified by the evidence base of landscape assessment work previously undertaken for

SODC.

1.3 Chapter 1 provides a reference to the SODC Landscape Character Assessment and

definitions of terminology subsequently used within SODC documents and this study.

1.4 Chapter 2 provides a description of landscape and visual resources at Option areas A and E

and recommendations from the Machin Bate Associates report.

1.5 Chapter 3 reviews other documents within the SODC evidence base.

1.6 Chapter 4 provides an analysis of SODC’s choice of preferred future expansion option.

Methodology

Landscape Character Assessment

1.7 The current landscape character assessment for the South Oxfordshire District is the ‘South

Oxfordshire Landscape Assessment’ (SOLA) report prepared by Atlantic Consultants in 1998

and adopted as SPG in July 2003. This document provides the basis for the definition of

landscape character areas and types which coincide with the search areas. The assessment

also identifies the quality and condition of the landscape features and elements of landscape

types and how this relates to future enhancement strategies for the District. A definition of the

strategies is as follows;

• Conserve - this strategy applies where the landscape is of particularly high scenic

quality, is unspoilt, retains a strong, intact landscape structure and sense of place,

and often contains areas or features of ecological or cultural heritage significance. In

these landscapes, conservation is an overwhelming priority in order to maintain

landscape character and quality.


• Repair - this strategy applies to those landscapes which have a positive rural

character, attractive qualities and where character, landscape structure and sense of

place are still comparatively strong but which are not ‘special’ or distinctive to quite

the same degree as those in the above category. These landscapes are also

important to conserve but would benefit from some enhancement, in order to repair

slightly weakened landscape structure and quality, and to reinforce and strengthen

local distinctiveness.

• Restore - this strategy applies to those landscapes which retain a rural and

essentially attractive character but where landscape elements and structure are in

decline, largely through intensive farming practices. Field enlargement, removal or

deterioration of boundary walls and hedges and the loss of trees, woodlands and

other vegetation have substantially weakened landscape structure and sense of

place. The priority in these landscapes is to restore landscape structure and diversity

and to strengthen local distinctiveness.

• Reconstruct - this strategy applies in those areas where the character and quality of

the landscape has been substantially modified by poor land management, non-

agricultural land uses, or intrusive features, e.g. airfields, built development, mineral

extraction, roads, power lines etc. They require more significant intervention to

mitigate the influence of detracting land uses or features, to raise landscape quality

and to reconstruct landscape character and identity.

1.8 The enhancement strategies described above have been adopted within the ‘Didcot Area

Housing Study - Landscape Considerations’ Machin Bate Associates report. Machin Bate

Associates are a firm of Landscape Architect’s who were commissioned by SODC in 2006 to

undertake an assessment of the 9 potential search areas for future expansion at Didcot. The

report provides an important aspect of the landscape and visual element of SODC’s evidence

base. The landscape strategies described above provide the basis for a key decision making

tool to identify the landscapes where development would be most appropriate.


2 Landscape Evidence Base

General

2.1 The landscape and visual assessment which forms the evidence base and an important

aspect of SODC’s decision to locate future expansion at Didcot is contained within the Machin

Bate report. The following chapter provides a factual baseline of landscape and visual

resources for area Options A and E. The recommendations at paras. 2.8, 2.9, 2.11 and 2.16

are extracted from the Machin Bate report with additional commentary provided by RPS.

Option E (Search Area 4)

Landscape Context

2.2 The search area is defined by the A34 in the west, the B4493 Wantage Road in the north

west, the A417 and the village of West Hagbourne in the south, Park Road in the east and the

Great Western Park (GWP) allocation to the north which currently comprises farmland.

Landscape Character

2.3 The SOLA defines landscape character in the vicinity of the search area as the ‘Wessex

Downs and Western Vale Fringes’ area which is divided into two types; ‘Open Rolling Downs’

which is defined within the SOLA as a ‘restore/repair’ landscape and ‘Semi-enclosed Rolling

Downs’ which is defined as a ‘conserve’ landscape.

North Wessex Downs Area of Outstanding Natural Beauty

2.4 The AONB lies immediately to the south of the A417 which forms the southern boundary of

the search area. The designation extends south over rising ground at Hagbourne Hill.

Land Use

2.5 The landform within the northern and eastern parts of the search area is relatively flat, rising

up gently to a high point in the south west corner where the A417 crosses the landscape. The

boundaries of the arable and pasture fields within the search area are defined by well

maintained hedgerows in some areas, whilst the majority of boundaries are undefined or are

formed by gappy remnant hedgerows which contribute to a weak landscape structure. Land to

the north between the search area and the existing settlement boundary of Didcot forms the

GWP allocation. Development at the allocation site will significantly alter the context of the

search area. The future development will be contained by a framework of landscaped open

spaces which would form a buffer between GWP and the search area site.


Visual Resources

2.6 Views into the search area are concentrated at the edges of West Hagbourne and the A417.

Occupiers of residential properties within the village gain relatively open views into the search

area and people travelling on the A417, where roadside vegetation is limited, gain views

across the landscape from rising ground. The GWP development would extend the settlement

of Didcot south west towards these receptors, significantly altering the view. Most views

towards the search area by people travelling on the A34 and B4493 Wantage Road are

obscured by vegetation.

Constraints

2.7 The south western corner of the search area site, which extends over rising topography

adjoining the A417, is the most visually exposed due to a lack of significant hedgerows and

vegetation boundaries. A countryside gap between the settlements of Didcot and West

Hagbourne would need to be maintained.

Recommendations in the Didcot Area Housing Study Landscape Considerations Report

2.8 The recommendations within the Machin Bate report include ‘No development of the SOLA

designated conserve landscape’ which coincides with the small fields with intact hedgerows

which form a strong landscape structure on the northern edge of West Hagbourne. The

Machin Bate report also acknowledged ‘the need for a gap between Didcot and West

Hagbourne’ which would occupy this land and a belt to the west of Park Road which could be

maintained as a green corridor to improve the ‘landscape gateway and improved sense of

arrival’ at Didcot for people approaching on this route. The Machin Bate report recommends

‘No development of the most visually sensitive parts of the area, particularly in the south west

towards the A417’ where the search area adjoins the AONB.

2.9 The Machin Bate report ultimately states that ‘there is scope for LIMITED DEVELOPMENT

contiguous with the GWP allocated site’ and that ‘an additional modicum of development is

unlikely to affect detrimentally the view that already includes perspectives in which there are

layers of development’.

Option A (Search Area 7)

Landscape Context

2.10 The search area is defined by the Didcot to Oxford railway line to the west, the A4130

Northern Perimeter Road to the south, the Appleford to Long Wittenham Road to the north

and several field boundaries at the base of Down Hill to the east.


Landscape Character

2.11 The SOLA defines landscape character in the vicinity of the search area as the ‘River Thames

Corridor’ and the ‘Wessex Downs and Western Vale Fringes’ areas. These two character

areas are sub-divided into types as follows; the ‘River Thames Corridor’ comprises the ‘Flat

Open Farmland’ type which is defined within the SOLA as a ‘restore’ landscape, the ‘Flat

Semi-enclosed Farmland’ type defined as a ‘repair‘ landscape and the ‘Parkland and Estate

Farmland’ type which is defined as a ‘conserve’ landscape. The ‘Wessex Downs and Western

Vale Fringes’ area comprises the ‘Open Rolling Downs’ type which is defined as a ‘restore’

landscape and ‘Semi-enclosed Rolling Downs’ which is defined within the SOLA as a

‘conserve’ landscape.

North Wessex Downs Area of Outstanding Natural Beauty

2.12 Although the search area lies outside of the designation, the AONB adjoins part of the eastern

boundary of the area and extends east over rising land at Down Hill.

Land Use

2.13 The majority of the search area, west of Abingdon Road, is relatively flat comprising medium

sized arable and pasture fields enclosed by a range of low maintained, overgrown and gappy

remnant hedgerows. A small copse lies in the centre of this area. Isolated mature trees form

landscape remnants of previous hedgerows, creating an impression of a ‘parkland’ character

adjoining the A4130 west of Abingdon Road. East of Abingdon Road the landform rises up at

the base of Down Hill. In the south eastern corner of the search area the fields are much

smaller and hedgerow boundaries are well defined with more numerous trees, creating a

more intimate scale of landscape. The extensive residential development of the Ladygrove

estate south of the A4130 forms a strong urban edge and distinctive change in character from

the rural landscape of the search area to the north.

Visual Resources

2.14 Views into the search area are predominantly gained by people travelling along the A4130

where intermittent roadside vegetation alternately obscures and frames views. Elevated

vantage points at Down Hill also allow receptors to gain open views over much of the search

area and surrounding rural/urban context. Views from the Abingdon Road are contained by

vegetation for much of its length, retaining a rural character for this gateway approach to

Didcot.


Constraints

2.15 Much of the land in the south east corner, either side of Abingdon Road, is defined as a

‘conserve’ landscape and should be retained. Rising land on the eastern side of the site at

Down Hill is the most visually exposed within the search area and also provides locations for

views back over the landscape from the edge of the AONB. The A4130 provides an existing

well defined edge to development at Didcot. The approach to Didcot on the Abingdon Road

provides a rural gateway to the town.

Recommendations in the Didcot Area Housing Study Landscape Considerations Report

2.16 Due to the constraints referred to the Machin Bate report recommends ‘NO DEVELOPMENT

proposed. However in the event that some development is necessary some

EXCEPTIONALLY LIMITED POTENTIAL DEVELOPMENT is identified in the south western,

central part of the site’. Encroachment of development east towards the Abingdon Road

should be avoided to protect the rural landscape defined as ‘conserve’ within the SOLA and

maintain the rural corridor either side of the Abingdon Road. It is also recommended that

development adjoining the A4130 should be avoided ‘in order to maintain what is an important

buffer’. Development north of the copse should be avoided as this would create an

unbalanced edge to Didcot and the Machin Bate report considers that it ‘would represent an

apparent uncontrolled vestigial extension, even more unrelated to development in the locality’.


3 SODC LDF Evidence Base

Didcot Background Study 2006

3.1 The purpose of this study is to provide background information to enable SODC, VWHDC and

Oxfordshire County Council to advise on the division of future housing development at Didcot

between the two districts. The study looks at possible development areas within and adjacent

to the built up area including land adjoining the proposed GWP.

3.2 The report provides a brief summary of the attributes and issues associated with each of the 9

option areas, including reference to the Machin Bate landscape assessment report. Protection

of the countryside gap between Didcot and West Hagbourne is referred to as a key issue at

Area 4 (Option E). The summary of Area 7 (Option A) states at para. 5.17 that ‘development

of this area would be highly visible from the rising ground to the north east near Wittenham

Clumps and therefore potentially the most intrusive of the nine potential development areas in

the landscape’. The Strategic Flood Risk Assessment (SFRA) for Didcot is also referred to

and recommends that ‘built development should be restricted to the eastern half of the area’

as the western part of the area is liable to flood.

3.3 Within the overall assessment section the report goes on to state at para. 5.33 for Area 7 ‘The

high visibility of development in this area within the wider landscape, together with the fact

that only the eastern half of the area would be suitable for built development suggests that

any extension northwards should be limited’. This statement uses the recommendation within

the SFRA to locate development in a specific part of the area, however it ignores similar

recommendations in the Machin Bate report which states that the eastern half of the area

should not be developed as it is highly visible in the landscape, coincides with the ‘conserve’

landscape of the SOLA and forms part of the rural approach to Didcot on the Abingdon Road.

South Oxfordshire Submission Core Strategy Didcot Background Paper March 2011

3.4 The report summarises the disadvantages, in landscape terms, of the future growth housing

Options. At Option E the south east part of the area is recognised as a ‘conserve’ landscape

by the SOLA and that the important gap between Didcot and West Hagbourne would be

physically reduced in size following development.

3.5 The presence of a ‘conserve’ landscape in the south east corner is also recognised for Option

A. The Abingdon Road corridor provides an important rural approach to Didcot which may be

diminished following development. The report also refers to the western half of the areas

liability to flood however, at para. 64 it states that ‘this land is not required to accommodate


housing’ implying that the eastern part of the area would accommodate housing. No mention

is made of the eastern areas unsuitability for development due to the rising nature of the

landform and its visual sensitivity in the landscape due to near open views from Down Hill

immediately to the east within the AONB and Wittenham Clumps further to the north east.

3.6 Within the final strategy section of the report at para. 81 the reduction in the gap between

Didcot and West Hagbourne appears to be the most significant landscape issue in

determining SODC’s decision not to develop Option E. The report states that ‘The Didcot

Landscape Assessment prepared by Machin Bates indicates that the presence of a gap could

be maintained through the development of Option E. However the gap would be physically

reduced in size. Locating all of the housing provision north of Didcot at Option A and A+

would avoid having to reduce the size of this gap’.


4 Analysis of Options

4.1 The ‘Didcot Area Housing Study - Landscape Considerations’ report prepared by Machin Bate

Associates provides a comprehensive assessment of the relative merits of the 9 search Areas

for future development at Didcot. At paragraph 5.0.7 of the Summary and Conclusions section

of the study it states that ‘The overriding conclusion is that there is no one Search Area that is

an ideal candidate for development. Each has disadvantages in landscape and visual terms.

Regardless of how development is laid out on the ‘preferred sites’ some landscape and visual

harm is inevitable’.

4.2 The recommendations within the Machin Bate report have not been consistently adopted

within SODC’s decision making process. Area 7 (Option A) was not recommended for

development, or if essential ‘EXCEPTIONALLY LIMITED POTENTIAL DEVELOPMENT is

identified in the south western, central part of the site’. A clear steer regarding the limited

location of development was provided, notwithstanding the areas conflict with the zone liable

to flood. In order for SODC to deliver the full housing allocation within Option 7 it cannot avoid

encroaching onto land that its own study, prepared by Machin Bate Associates, clearly

recommended that it should not.

4.3 Area 4 (Option E) was recommended for ‘LIMITED DEVELOPMENT’. Careful siting of

development and the incorporation of extensive landscape proposals would be sufficient to

reduce effects on the landscape character and views to an acceptable level.

Comparison of Master Plan Proposals

SODC Master Plan for Option A

4.4 The SODC master plan proposes housing on the central section of the option area west of

Abingdon Road (see Figure 2). The majority of this area is defined in the Machin Bate report

as ‘NO DEVELOPMENT PROPOSED’. No development is proposed east of the Abingdon

Road. No development is proposed in the south west corner of the option area which is

recommended for development in the Machin Bate report. This areas liability to flood has

formed a key determining factor in SODC’s decision to exclude it from the area of built

development, proposing playing fields instead.

4.5 By placing development as shown in the SODC master plan the proposal would be;

• Visually prominent in views gained by sensitive receptors on rising ground within the

AONB at Down Hill,

• Compromise the setting of the rural approach on Abingdon Road and the sense of

arrival at Didcot,


• Conflict with most of the ‘conserve’ landscape west of Abingdon Road,

• Extend north into the landscape creating an unbalanced form to the settlement, and

• Jump the defensible edge currently provided by the A4130.

4.6 The location of development conflicts with the Machin Bate report recommendations in terms

of all of the previously defined constraints and therefore would be ‘potentially the most

intrusive of the nine potential development areas in the landscape’. Development of this

search area as shown in the master plan is not justified by the evidence base.

RPS Master Plan for Option E

4.7 By contrast the master plan for option E locates development almost entirely on land which

the Machin Bate report defined as a ‘Potential housing site’ (see Figure 1). Development in

this location would;

• Preserve enough of the countryside gap between Didcot and West Hagbourne to

retain the integrity of this policy,

• Avoid all of the ‘conserve’ landscape at West Hagbourne,

• Protect the rural approach to Didcot on Park Road, and

• Avoid developing the most visually sensitive rising land adjoining the AONB to the

south of the option land.

4.8 The small area of development in the north east corner of the search area, outside of the area

recommended in the Machin Bate report, would replace the landscape buffer included on the

edge of the GWP proposal. This planting would not be required if development is extended to

the south and a new landscape buffer incorporated into the future extension master plan.


5 Conclusions

5.1 The analysis of landscape and visual issues within this report, associated with SODC’s

proposals for the future expansion of Didcot, demonstrates that SODC’s preferred option to

expand the town to the north east as opposed to the south west is not justified by the

evidence base of assessment work undertaken for SODC.

5.2 Recommendations within the SODC commissioned Machin Bate Report regarding the most

appropriate locations for built development within Option Areas have been largely disregarded

by SODC, resulting in a master plan proposal for their preferred Area 7 (Option A) which

would be significantly more detrimental to landscape and visual receptors than proposed

development at Area 4 (Option E).


Figures


Figure 1

Landscape Constraints and Proposals: Option E (Search Area 4)

Park Road

Coscote

West Hagbourne

A417

Harwell

A34

B4493 Wantage Road

Great WesternPark

Didcot

120m

110m

100m 90m

80m

130m

120m

60m

70m

60m

70m

80m

Figure No: Revision:

Date:Drawn:

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Projection:Job Ref:MP PE OXF2016

OSGB36 BNG

1:10,000Scale: A3 @0 250125 m

Title: Landscape Constraints & ProposalsOption E (Search Area 4)

Client: Taylor WimpeyProject: Didcot Further Expansion

Mallams Court 18 Milton Park Abingdon Oxon Ox14 4RPT 01235 821888 F 01235 820351 E [email protected] W www.rpsroup.com

Status: DRAFTData Source: RPS 2011

Rev: Date: Amendment: Name: Checked:

Legend

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© Crown copyright, All rights reserved. 2011 License number 0100031673

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Search Area 4Potential Housing Site (Machin Bate Report)Proposed Built Develpment

National TrailBridlewayFootpathOtherSouth Oxfordshire Landscape Assessment 'Conserve' LandscapeAONB

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Figure 2

Landscape Constraints and Proposals: Option A (Search Area 7)

Golf Course

B4016 Abingdon RoadA4130 Northern Perimeter Road

Moor D

itch

Railw

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Ladygrove

SouthmeadIndustrial Estate

70m

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Projection:Job Ref:MP PE OXF2016

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1:10,000Scale: A3 @0 250125 m

Title: Landscape Constraints & ProposalsOption A (Search Area 7)

Client: Taylor WimpeyProject: Didcot Further Expansion

Mallams Court 18 Milton Park Abingdon Oxon Ox14 4RPT 01235 821888 F 01235 820351 E [email protected] W www.rpsroup.com

Status: DRAFTData Source: RPS 2011

Rev: Date: Amendment: Name: Checked:

Legend

±

© Crown copyright, All rights reserved. 2011 License number 0100031673

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Sept 2011

Search Area 7Potential Housing Site (Machin Bate Report)Proposed Built Development (Land at North East Didcot, Development Framework Document, March 2011)

National TrailBridlewayFootpathOtherSouth Oxfordshire Landscape Assessment 'Conserve' LandscapeAONBFlood Zone 1Flood Zone 2Views from Public Rights of Way on Elevated Land

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