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| Chapter 9 |
| Design and Amenity |
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Introduction |
| 9.1 |
Peterborough is a vibrant and exciting
city with a long history that has provided many buildings and neighbourhoods
with an attractive character. Its villages are generally attractive;
their character and appearance have been protected in the past by
various measures, including the careful control of development, the
designation of conservation areas and the carrying out of enhancement
schemes. Much work has also been undertaken to improve the environment
of the city centre. |
| 9.2 |
For the future it will be important to
maintain and improve an environment that is attractive, safe and convenient
to use, whilst making the best use of land in a sustainable way. To
achieve this will involve not only resisting inappropriate development,
but also promoting development that enhances local character and provides
the level of design and amenity expected by modern society. |
| 9.3 |
The chapter has been prepared against
the background of the adoption by the Council of an "Environmental
Strategy" for Peterborough. Many of the policies which follow address
issues to which the City Council is committed under the terms of the
Strategy. Their successful implementation will make a significant
contribution to the successful implementation of the Strategy itself. |
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Aims |
| 9.4 |
The aims of the Plan for design and amenity
are: |
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- to create an environment that is attractive, safe and accessible
for all users;
- to protect the environment from inappropriate development;
- to promote a high standard of design; and
- to promote sustainable development .
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General Development Policies |
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Townscape and Urban
Design |
| DA1 |
Planning permission will
only be granted for development if it: |
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(a) |
is compatible with, or
improves, its surroundings in respect of its relationship to nearby
buildings and spaces, and its impact on longer views; and |
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(b) |
creates or reinforces a
sense of place; and |
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(c) |
does not create an adverse
visual impact. |
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| 9.5 |
This policy will be used to encourage
attractive development that makes a positive contribution to the urban
design of the District, and to resist inappropriate development. Both
vernacular and innovative designs will be encouraged as appropriate
to the context of the site. Distinctive local character should be
respected. The term 'sense of place' in criterion (b) means a location
that has a distinct local identity and character that residents and
visitors can identify. If the place is perceived as an attractive
one, it normally encourages its occupants to have pride in living
in it, to look after it and visitors to respect it. |
| 9.6 |
Applications for development on prominent,
large-scale or sensitive sites should be supported by a design philosophy
statement for the development, to include urban form and massing,
relationship with surrounding buildings and streets, public space,
permeability, landmarks, views, materials and landscaping (as appropriate).
For residential schemes, the principles set out in the Peterborough
Residential Design Guide, which has been published by the City Council,
should be followed as appropriate. Reference to 3 dimensional models
will be welcomed for major development schemes or City Centre schemes. |
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The effect of Development
on the Amenities and Character of an Area |
| DA2 |
Planning permission will
only be granted for development if, by virtue of its density, layout,
massing and height, it: |
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(a) |
can be satisfactorily accommodated
on the site itself; and |
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(b) |
would not adversely affect
the character of the area; and |
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(c) |
would have no adverse impact
on the amenities of occupiers of nearby properties. |
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| 9.7 |
This policy will be used to resist development
which, because of its nature, would either constitute over-development
of the site itself or have an otherwise unacceptable impact on the
character of the area. |
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Materials |
| DA3 |
The City Council will only
grant planning permission for built development if the external finish
of the building would harmonise with the established building materials
of the locality. |
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| 9.8 |
The careful choice of building materials
is one of the most crucial factors in integrating new buildings into
the existing urban fabric. The use of traditional local facing materials
will achieve an immediate and strong visual link between new buildings
and the existing urban framework. Facing materials need not necessarily
be identical with the established materials, but should be agreeable
in artistic effect. |
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Under-Use of Land |
| DA4 |
The City Council will not
grant planning permission for development which would result in the
under-use of land. |
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| 9.9 |
Land that is suitable for development
is a scarce resource which should be put to full and appropriate use.
Failure to make proper use of suitable development land will generally
add to the pressure to release less suitable land for development,
or to increase the density of development on other land where it may
also be less appropriate to do so. |
| 9.10 |
Planning permission will be refused where
the City Council considers that the proposed development would make
less than full and appropriate use of land. When determining what
the full and proper use of land should be, the Council will take into
account the average density of development on adjacent land, but will
also acknowledge partial development of a site where land has been
purchased, or buildings developed, with a view to future expansion. |
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Development Leading
to the Under-Use of Buildings |
| DA5 |
The City Council will not
grant planning permission for conversion or modernisation schemes
which would prejudice the future use of any part of the building,
in particular upper floors or basements. |
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| 9.11 |
The re use and modernisation of older
buildings often results in restricted access to upper floors and basements.
Such inefficient use of buildings is not sustainable. Not only does
it represent an under-used resource (a potential alternative to new,
greenfield development), but the re use and modernisation of older
buildings also invariably involves considerably lower inputs of raw
materials and energy than are required by the erection of new buildings.
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| 9.12 |
Developers will be encouraged to submit
schemes that bring the whole building into beneficial use, or that
do not prejudice subsequent works to achieve this objective. |
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Tandem, Backland and
Piecemeal Development |
| DA6 |
Planning permission will
only be granted for tandem, backland or other piecemeal development
if the application demonstrates that the proposed development: |
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(a) |
can be satisfactorily accommodated
on-site in terms of scale and density; and |
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(b) |
would not unacceptably
harm the character of the area; and |
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(c) |
would have no unacceptably
adverse impact on the amenities of occupiers of nearby properties;
and |
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(d) |
can be satisfactorily accessed
from the public highway; and |
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(e) |
would not prejudice the
comprehensive development of a larger area. |
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| 9.13 |
There is a need to make full use of previously
used or underused land within the boundaries of existing settlements,
which can often be achieved through the development of existing rear
and side gardens, or other land adjoining existing development. However,
such locations, because of their close relationship to other properties,
are often tightly constrained and will require close consideration
of factors such as the potential for overcrowding, overshadowing,
overlooking, nuisance from noise and general activity; the privacy
of existing and proposed properties; compatibility with the character
of development in the area; and other site-specific factors. |
| 9.14 |
The City Council will also wish to ensure
that such development does not prejudice (or landlock) the development
of adjacent sites. Piecemeal development of individual plots of garden
or other land within such areas (which are suitable for more comprehensive
treatment) will be refused unless the application demonstrates that
the development of other adjacent sites would not be unreasonably
prejudiced by the proposal. |
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Design of the Built
Environment for Full Accessibility |
| DA7 |
Planning permission will
not be granted for the development, change of use, alteration or extension
of any building which is open to the public, or any building which
is used for employment or education purposes, unless provision has
been made to meet the needs of people with disabilities in terms of
access into and within that building and the provision of appropriate
facilities. |
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| 9.15 |
This policy seeks to meet the requirements
of people with disabilities in securing access to, and the provision
of facilities within, all relevant premises. It will be applied in
cases where provision to meet the needs of such people is desirable,
but the proposed works are not subject to Part M of the Building Regulations. |
| 9.16 |
This policy will be used to ensure that: |
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- external means of access to relevant building(s) is provided
to a standard suitable to meet the needs of people with disabilities.
This applies both to the links between new buildings and to the
ease of access to a proposed development from adjacent paths and
car parks. Developers will be expected to upgrade existing footpaths
to wheelchair standards where appropriate;
- facilities for people with disabilities are provided within
the building to the standard that would otherwise have been required
through the implementation of Part M of the Building Regulations;
- level access is provided between an original building and a
new extension where practicable.
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| 9.17 |
The provision of full accessibility will
require careful design, particularly for listed buildings and buildings
within conservation areas. |
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Design of Extensions
and Alterations |
| DA8 |
Planning permission will
be granted for an alteration or extension to an existing building,
provided that: |
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(a) |
its appearance would be
in keeping with the character of the existing building; and |
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(b) |
its appearance would be
in keeping with the general character of the surrounding area; and |
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(c) |
the design, scale and location
of the proposed extension would not adversely impact on the amenities
of occupiers of nearby properties. |
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| 9.18 |
All development, including extensions
and alterations to existing buildings, will need to comply with the
general design provisions of other policies in this chapter. However,
in the case of extensions and alterations there are additional important
considerations which are set out in this policy. |
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Protected Spaces and
Frontages in Villages |
| DA9 |
Planning permission will
not be granted for any development within a village envelope which
would result in the loss of part or all of: |
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(a) |
a green space serving an
important visual or amenity function; or |
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(b) |
an open space or gap in
the built-up frontage which allows views into and out of a village;
or |
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(c) |
a treed or hedged frontage;
or |
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(d) |
a substantial wall or railings;
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as shown on the Proposals
Map. |
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| 9.19 |
In the villages there are many open areas,
substantial walls and hedges, and treed frontages that are an essential
feature of village character and should be retained. These can lie
within or outside designated conservation areas. Development of protected
sites shown on the Proposals Map, or development involving the creation
of new openings in protected frontages, or which otherwise affects
protected frontages, will not normally be accepted. |
| 9.20 |
For the avoidance of doubt, the City Council
may use other policies of this Plan to refuse planning permission
for the development of any site within a village envelope where there
would be an adverse impact on the character of the village environment,
even if it is not specifically protected on the Proposals Map by policy
DA9. |
| 9.21 |
In the case of the development of land
to the rear of a protected frontage, access should be via any existing
openings. Only exceptionally will a new access be permitted. |
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Landscaped Areas |
| DA10 |
Planning permission will
not be granted for any inappropriate development on land which is
part of an existing or proposed landscaped area. |
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| 9.22 |
This policy will be used to resist pressure
for the development of landscaped areas, particularly in the older,
higher density areas of New Town development where their loss (by
incorporation into private gardens or the development of new buildings/extensions)
would have an adverse impact on the appearance and character of the
area. It is recognised that some forms of development make a positive
contribution to the character and appearance of an area, and could
enhance rather than detract from landscaped areas. |
| 9.23 |
Development would be judged inappropriate
if it would result in the loss of limited areas of public green space,
or the intrusive effects of buildings or fences. Proposals that make
a positive contribution would include those that improve community
safety or enhance the built environment. |
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Safety and Amenity |
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Design for Security
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| DA11 |
Planning permission will
not be granted for a development unless vulnerability to crime has
been satisfactorily addressed in the design, location and layout of
the proposal. |
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| 9.24 |
Vulnerability to crime and vandalism can
be reduced through appropriate design. Issues to be taken into consideration
include the definition of public and private space; natural surveillance
of public areas and of entry points to private property; landscape
design; susceptibility to graffiti; and the lighting and design of
access routes. The City Council will take into account the information
in the "Secured by Design" guidance manual in assessing the relevant
local circumstances and the robustness of any specific proposal. |
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Light Pollution |
| DA12 |
Planning permission will
only be granted for lighting schemes if: |
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(a) |
the level of lighting proposed
does not exceed the minimum necessary to achieve its purpose; and |
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(b) |
the design of the lighting
installation minimises glare and light spillage from the site; and |
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(c) |
the design of the installation
and the nature of the light emitted does not adversely affect the
amenity of the area. |
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| 9.25 |
The need for artificial lighting in certain
circumstances is recognised. This policy addresses the issues of obtrusive
light and the design of lighting installations. |
| 9.26 |
Factors to be considered include the impact
of light on local residents, vehicle users, pedestrians, flora and
fauna, and the visibility of the night sky. Consideration will also
be given to the aesthetic effect of the light produced; the security,
operational and advertising needs of the development and its users;
the visual impact of the equipment during daytime as well as night
time; and the existing level of illumination in the vicinity. |
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Noise |
| DA13 |
Planning permission will
only be granted for noise generating, or noise sensitive, development
if adequate provision has been made to mitigate the adverse effects
of noise likely to be generated or experienced by the development.
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| 9.27 |
Government guidance is that, as a general
principle, developments that generate noise and developments that
are sensitive to noise should be sited away from one another if possible
(PPG24, September 1994). |
| 9.28 |
The City Council will follow that advice
wherever feasible. However, particularly in a compact, urban area,
and with an increased emphasis on mixed-use developments at higher
densities, this separation is not always possible. In many cases,
therefore, developments will be required to incorporate, either on
or off-site, specific design features which will provide the necessary
noise attenuation. In addition, it may be appropriate to provide visual
screening from the noise source. In those circumstances, any permission
that is granted would be subject to conditions requiring all necessary
work to be undertaken before any of the development to be permitted
is made available for occupation. |
| 9.29 |
The City Council, when considering planning
applications for noise-sensitive development, will take into account
the predicted effects of traffic noise from proposed roads, including
both those in this Plan and those needed to serve the proposed development. |
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Contaminated Land |
| DA14 |
Where planning permission
is sought for development on or adjacent to land which is known, or
suspected, to be contaminated to an extent that may adversely affect
the proposed development, the City Council will require an investigation
by the developer to identify the remedial measures required to deal
with any such hazard. |
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Planning permission will
only be granted for development if the City Council is satisfied that
the land is remediated, or (if not already remediated) can be remediated
by the imposition of planning conditions, or by entering into a planning
obligation, to the extent necessary to ensure that: |
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(a) |
the land (once remediated)
would not cause any risk to the health or safety of people living
on, working on, or visiting the development site; and |
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(b) |
any proposed structures
would not be at risk of damage from contamination; and |
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(c) |
the proposed development
of the land would not cause significant harm, or a significant possibility
of harm, to controlled waters* or to air. |
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| 9.30 |
The Government wishes to encourage full
and effective use of land and the re-use of sites which have previously
been developed. Recycling of land helps to revitalise most areas and
reduces the need to use new sites outside built-up areas, thus assisting
the safeguarding of the countryside. The re-use of contaminated land
can contribute towards these objectives, but it is necessary to balance
the aim of bringing it back into beneficial use with the need to protect
the health and safety of occupiers, visitors and the construction
work force both during and after redevelopment. |
| 9.31 |
Where the previous history of a site suggests
that contamination may have occurred, an investigation to assess the
condition of the site and identify any particular problems or hazards
will normally need to be undertaken by the prospective developer prior
to the determination of a planning application. The possibility of
contamination is a material factor which the City Council will take
into account in the determination of planning applications, and if
the information provided is insufficient to enable the Council to
determine any application, the applicant may be asked or directed
to provide further information. The assessment of the significance
of contamination requires careful professional judgement and the City
Council will obtain specialist advice, as appropriate, when considering
applications to develop contaminated or potentially contaminated sites. |
| 9.32 |
If there is a need to erect a building
or undertake other development as part of the remediation works, planning
permission will normally be granted, even if the site lies in the
open countryside, where policy LNE1 applies, or in a green wedge,
where policy LNE2 applies. However, such permission will be restricted
to proposals where the need is proven and conditions will be imposed
to secure the removal of the development once the need no longer exists. |
| 9.33 |
In cases where planning permission is
granted for development of a site on which the presence of contamination
is known or suspected, the Council will notify the applicant that
the responsibility for safe development and secure occupancy of the
site rests with the developer; and that the authority has determined
the application on the basis of the information available to it, but
that the authority could not be held liable if that information is
subsequently proved to be inaccurate or inadequate. |
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Development in the
Vicinity of Hazardous Installations |
| DA15 |
Planning permission will
not be granted for any development which is likely to result in a
significant increase in the number of people living, working or congregating
in the vicinity of a hazardous installation, a notifiable pipeline
or a licensed explosives site where, in the opinion of the City Council,
the hazard poses an unacceptable risk to public safety. |
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| 9.35 |
Development within the consultation zone
may be considered to be at risk, albeit minimal. Nevertheless, it
is prudent to prevent increases in the numbers of people placed at
risk, particularly those who cannot be easily evacuated in an emergency,
such as the elderly or people with disabilities. In assessing the
level of any risk, the City Council will be guided by the advice of
the Health and Safety Executive. |
| 9.36 |
Up to date advice on the location of hazardous
installations in the District can be obtained direct from the City
Council or the Health and Safety Executive. |
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Development on or in
the Vicinity of Landfill Sites |
| DA16 |
Planning permission will
not be granted for any development on or in the vicinity of closed,
existing, or proposed sites for waste disposal by means of landfill,
unless the City Council is satisfied that there has been an assessment
determining no greater than a minimal risk to public safety from migrating
gas, either during construction or following completion of the development.
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| 9.37 |
The City Council is concerned about the
potentially dangerous problems that may be caused by the migration
of poisonous or explosive gases from landfill sites. It therefore
proposes to restrict development on and near land that may be affected
by past, present and proposed landfill. |
| 9.38 |
Where there is a possibility that migrating
gas could affect a proposed development, the City Council will require
the applicant to undertake and submit a comprehensive site investigation
to accompany the planning application. Particular care will be required
if development is proposed within 250 metres of a landfill site. In
all cases it will be the responsibility of the developer to demonstrate
that it is safe to develop in the vicinity of such a site. Where the
Council is satisfied that it would be unreasonable, on the basis of
the evidence supplied, to refuse permission, it will consider imposing
conditions to manage any possible gas and ensure that suitable precautions
are taken with construction methods. |
| 9.39 |
Appropriate sealing/protection systems
will depend on individual circumstances. They may include the sealing
of all pipes, drains, cables etc. entering buildings; the sealing
of the inside of the building from the foundations with a low permeability
membrane; and, in some circumstances, the forced ventilation of foundation
cavities triggered by gas sensors. |
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Protecting Closed Landfill
Sites |
| DA17 |
On sites that have been
filled using putrescible material and sealed with a cap of clay or
other impermeable material, the City Council will not permit any new
use that would be likely to disturb the landfilled waste, breach the
seal, or interfere with the effective operation of any gas venting
or other engineering measures on the site. |
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| 9.40 |
When sites have been reclaimed or restored
using waste materials they are often sealed by capping the site with
clay or other impermeable material in order to minimise water penetration
which could give rise to leachate likely to contaminate ground water.
It would not be appropriate to encourage any development or tree planting
that could break this seal as part of any after use (although the
risk of any tree roots penetrating the sealing cap can be reduced
if sufficient topsoil cover has been provided and the seal has been
properly constructed). |
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Protecting Waste Disposal
and Treatment Sites |
| DA18 |
Except in cases of overriding
need, the City Council will not grant planning permission for any
development on or adjacent to land identified in the Waste Local Plan,
or having planning permission for the existing or proposed disposal
of waste, that would prejudice the use of the land for that purpose.
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| 9.41 |
The City Council is aware that the identification
of sites suitable for waste disposal or treatment may be difficult
and their selection is sometimes controversial. It therefore considers
it appropriate to ensure that once a site has been identified in an
adopted Waste Local Plan or been granted planning permission, the
future use of that site should not be prejudiced by permitting other
uses, particularly residential, on or close to the site. It should
be noted that potential waste disposal/treatment sites will only be
protected after they have either been given planning permission or
been proposed in an approved local plan. |
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Shop Fronts, Canopies
and Advertisements |
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Shop Fronts |
| DA19 |
Planning permission for
any new, replacement or altered shop front will only be granted if: |
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(a) |
its design would be sympathetic
in size, architectural style/proportion, materials and architectural
detailing to the building to which it would be fitted; and |
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(b) |
it would not detract from
the character or appearance of the street as a whole; and |
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(c) |
any advertising material
is incorporated as an integral part of the design. |
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| 9.42 |
Shop fronts can make a substantial and
positive contribution to the visual interest of an area if sympathetically
designed, but a degree of control is required if the character of
buildings or the overall appearance of a street is not to be destroyed
by poor design. Open shop fronts can create visually unacceptable
voids and proposals for their development will generally be resisted.
Particular care is necessary in the design of shop fronts in conservation
areas, and on listed buildings, or where the shop front would straddle
buildings of different designs. |
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Security Shutters |
| DA20 |
Planning permission for
the installation of an external security shutter will be granted only
where the City Council is satisfied that there is a persistent problem
of crime or vandalism affecting the property which cannot be satisfactorily
and reasonably addressed by alternative measurers, and: |
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(a) |
the property is not a listed
building or situated in a conservation area; and |
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(b) |
the shutter is designed
to a high standard, taking account of the design features of the frontage
into which it would be installed. |
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| 9.43 |
The experience and fear of crime in some
areas has led to a general desire for improved shop front security
and owners are increasingly considering the installation of security
shutters. However, many such shutters (especially if solid) can be
visually unattractive and create a 'dead', hostile appearance, which
can reduce natural surveillance and thereby encourage other crime.
This can also affect the commercial viability of an area. There are
other means of improving the security of shop fronts, such as the
use of laminated glass, improved lighting, internal security grilles
or CCTV, that have a less detrimental impact. The City Council will
strive to achieve a balance between the security requirements of individual
shops and the impact on the wider area. |
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Canopies |
| DA21 |
Planning permission for
the installation of a fixed canopy will only be granted on the ground
floor of a shop, cafe, restaurant or public house, but only if it
can be installed without detracting from the character of the building
or surrounding area. |
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| 9.44 |
Fixed canopies are not traditional on
most buildings in this country and are frequently not compatible with
their style or character. Because of their shape, design, materials
and colours they can be visually very dominant and discordant. It
is important, therefore, that they should be used sensitively. |
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Advertisements |
| DA22 |
The City Council will not
grant consent for any advertisement which, by reason of its size,
location, design, illumination or colour: |
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(a) |
would be likely to endanger
public safety; and/or |
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(b) |
would be detrimental to
the visual amenity of the area. |
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| 9.45 |
The majority of advertisements which might
fall into category a) above are likely to be those which would obstruct,
confuse, distract or impair the view of road users or leave insufficient
clearance for the passage of vehicles or pedestrians, or employ unsuitable
levels and types of illumination. Also included would be those advertisements
which might prove dangerous to blind or partially sighted people because
of their proposed free-standing location in shopping malls or precincts,
or on forecourts. |
| 9.46 |
The City Council takes the view that the
proliferation of freestanding signs, particularly A-boards, would
be both detrimental to visual amenity and likely to endanger pedestrians.
Also of particular concern is the possible spread of advertisements
in the countryside, including those next to highways that introduce
an unnecessary urban character to the rural setting. Such signs will
be assessed using the above policy. |
| 9.47 |
In the case of advertisements on buildings,
the City Council will not normally grant consent for advertisements
which would detract from the appearance of the building itself, or
which would otherwise be detrimental to the amenity of the surrounding
area. Consent will not normally be granted for advertisements which: |
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- are positioned on top of buildings; or
- are positioned above ground floor or fascia level on shops and
offices; or
- straddle buildings of different character; or
- would present a cluttered appearance, when taking into account
any existing signs on the building; or
- would be detrimental to the amenity of the surrounding area
because of the proposed hours of illumination, level of brightness
or intermittent nature of the illumination.
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| 9.48 |
Particular importance is attached to the
way in which advertisements are incorporated into the design of shops
and shop fronts. The best solutions can be achieved when advertisements
are designed and installed as an integral part of the shop front and
applications for such advertisements will also be considered in the
light of policy DA19 regarding the design of shop fronts. |
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Advertisement Hoardings
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| DA23 |
Consent for the erection
of an advertisement hoarding or gable end poster panel will not be
granted where it would be out of scale with its surroundings or otherwise
detrimental to amenity or public safety. |
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| 9.49 |
The most appropriate locations for hoardings
are normally those for which deemed consent* exists. Elsewhere in
the District, hoardings would usually be out of scale with their surroundings,
unduly dominant in the street scene and detrimental to amenity. To
allow further hoardings would negate some of the progress that has
been achieved by the City Council in improving the appearance of the
city. |
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