Island Plan 2011: revised draft revision – approval - PLAN

2011 Island Plan: interim review

Revised draft revision 2011 Island Plan

March 2014

Introduction

The Minister for Planning and Environment wishes to revise parts of the 2011 Island Plan.

Scope

The scope of this interim review of the 2011 Island Plan is limited to a small number of polices and proposals and does not involve a review of the entire plan. The policies and proposals included as part of this interim review are as follows:

Natural Environment

• Proposal 4a: Restrict permitted development rights in the Coastal National Park
• Policy NE6: Coastal National Park
• Policy NE7: Green Zone

Housing

• Proposal 20: Provision of homes
• Policy H1: Category A affordable housing sites
• Policy H2: : Other Category A affordable housing sites
• Proposal H3: Affordable housing proposal
• Policy H4: Housing mix
• Policy H5: Affordable housing in rural centres
• Policy H6: Housing development within the Built-up Area

Natural Resources

• Policy NR8: Safety zones for hazardous installations
• Policy NR9: Utilities infrastructure facilities

Site Assessments

• H1 (4) De la Mare Nurseries, Grouville
• H1 (5) Samares Nurseries, St Clement
• H1 (6) Le Quesne Nurseries, St Clement
• H1 (7) Longueville Nurseries, St Saviour
• H5 (1) F. 785, St Ouen
• H5 (2) F.402, St Martin
• Policy GD2: Demolition and replacement of buildings (proposed to be deleted without modification or replacement)

Natural Environment

Coastal National Park

A National Park for Jersey

55. Parts of the Jersey coast and countryside are of national and international importance.StOuen'sBayhaslongbeensorecognisedandsubjecttosafeguarding policies since1968. These were superseded by the more extensive designation of aCoastalNationalParkin2011.ItsboundaryembracesallthosepartsoftheIsland ofhighlysensitiveandvaluablelandscapequality,vulnerabletochangeanddamage, which warrant the highest level of protection against development. Its extent was informed by the Countryside Character Appraisal (1999) and includes:

The Coastal Plain of St Ouen's Bay: The coastal plain of Les Quennevais dune system and St Ouen's Bay Coastal Plain with its fresh and saltwater wetland and sand dune habitats supporting exceptional birdlife and wildlife, distinguished landscapes and high recreational value, comprising:

B4: Quennevais Dunes

B5: St Ouen's Bay Coastal Plain

La Commune de Gouray: The dunes at La Commune de Gouray, which form part of the Grouville Coastal Plain character area (B1), are a remnant of the historic landscape of this area and provide an important open break in the coastline. They are also valuable in terms of biodiversity, particularly for birds.

La Commune de Gouray (part of B1: Grouville Coastal Plain)

Escarpment: The steep topography of the escarpment, forming a backdrop to the flat coastal plain, is a distinctive feature of the Island's landscape. On the exposed scarp slopes of St Ouen's Bay, stone walls are the characteristic field boundary.

C3: St Ouen's Bay Escarpment and Valleys

Cliffs and Headlands: The cliffs and heathland of the north coast and the south-western headlands with their spectacular coastal scenery and sense of wilderness, geological and geomorphologicalfeatures, birdlife and exceptional habitats, archaeological sites, common land, modern fortifications and high recreational value. Also, the north-east wooded edge with its lower, gentler coastline,cut by wooded valleysand with numerousshelteredcreeksand coves along the north.

A1: North Coast Headland

A2: South-west Headlands

A3: North-east Low Wooded Edge

Enclosed Valleys: The majority of the Island's broad-leaved woodland occurs on the steep valleyssides. The narrowwinding lanesare a distinctivefeature. Lichen-cladpinkgranitewallsarecharacteristicfeaturesoftheinteriorvalleys. The freshwater streams and associated wet grassland provide important habitats.

D4: North Coast Valleys (including Mourier Valley) D5: St Martin's Valleys

Wolf's Caves car park and former cafe/bar

Cliff Edge with Deep Sea:

F1: North and South-west Cliffs

Offshore Reefs and Islands: The whole area of offshore reefs and islets forms one main character type:

H1: Les Écréhous (including the Paternosters and Dirouilles) H2: Le Plateau des Minquiers

Map 2.4 Coastal National Park Areas

56. The Coastal National Park's primary purposes are:

1. theconservationandenhancementofthenaturalbeauty,wildlifeandcultural heritage of the National Park;
2. to promote opportunities for the understanding and enjoyment of the special qualities of the National Park by the public.

57. The purpose of planning policy in the Coastal National Park is to provide the highest level of protection against development to support these primary purposes.
58. It is acknowledged that the National Park is a living landscape, containing buildingsandlanduses.Whilstthereisthestrongestpresumptionagainstnewuses or buildings that would detract from its landscape character, there may be opportunity to secure the repair and restoration of natural beauty, wildlife and cultural heritage through exceptions where the development of existing buildings or land uses provide opportunities to repair or reduce their existing harm to landscape character. Development may also provide opportunities for public understanding and enjoyment of the Park.
59. There is also a need to provide for the reasonable expectation of residents toimprovetheirhomesandbusinessestoundertakeeconomicactivityandprovide employment, having regard to the capacity of the landscape to accommodate development without harm.

60. Accordingly, Policy NE6 sets a strong presumption but not an absolute moratorium against development within the Park: the key test is the capacity of the site and its context to accommodate development without harm to landscape character. This is the starting point for the consideration of development proposals. The following categories may, exceptionally, be considered though not all cases will be acceptable.

Residential

61. It would be unreasonable to resist all forms of development to improve people's homes. The following forms of development related to residential land use and buildings may be permitted as exceptions to the strong presumption against development here, but only where it does not cause harm to landscape character.

Extension of a dwelling

62. The acceptability of an extension to a dwelling will be determined by its scale, design and impact on landscape character.
63. Each case should be assessed on its merits and, in particular, regard had to the sensitivity of the site, relative to the capacity of the landscape character area to accept change.
64. The design and scale of any extension must remain subservient to the existingdwellingandnotdisproportionatelyincreaseitssizeintermsofgross floorspace, building footprint or visual impact.
65. Thepurposewillbeamaterialconsiderationandshouldnotfacilitate a significant increase in occupancy. Intensification of domestic use would place more pressure upon a fragile environment, limited infrastructure and servicesand be likelyto increasetrip generation.The cumulativeenlargement of existing dwellings, and associated increases in resident population and activity, can undermine an area's character as much as new homes: a site's planning history will, therefore, be a material consideration.

Redevelopment of existing dwellings and ancillary residential buildings or structures

66. The principle of demolition and replacement of existing dwellings is supported only where demonstrable environmental gains can be delivered.
67. Comprehensive proposals of this type can offer the possibility of repairing and restoring landscape character which might be achieved by environmental gains including some or all of: reduced visual scale, mass and volume of a building; more sensitive and sympathetic siting and design; materials, colours and finishes more sensitive to the character area.

68. In all cases, replacement buildings should not be larger than that being replaced in terms of any of gross floorspace(18), building footprint or visual

impact, and should not facilitate a significant increase in occupancy. Intensification of domestic use would place more pressure upon a fragile environment, limited infrastructure and services and be likely to increase trip generation.

Creation of new households

69. The creationof new householdsby the developmentof new dwellings or the extension of existing residential properties to provide independent accommodation will be strongly resisted.
70. Similarly, extensions which, due to their layout are tantamount to the creation of a separate dwelling by, for example, including sleeping, bathroom and living space will be regarded as having the potential to accommodate a separate household and will be similarly resisted, as counter to the strategic objectives of the Plan (in relation to sustainable patterns of development; reducing the need to travel; and reducing dependence on the private car), as well as challenging the strong presumption against development in the Coastal National Park with potentially serious implications for harm to its landscape character.

Extension of domestic curtilage

71. There is the strongest presumption against extensions of domestic curtilages, which can have an impact on the sense of wilderness, isolation andremotenessthatareimportantinpartsoftheNationalPark.Incremental loss and erosion of landscape character to domestication would seriously undermine the quality and cohesion of landscape character.

Employment land and buildings

72. TheCoastalNationalParkarisesfromtheinteractionofhumanandnatural influences: the economic history of the Island, together with political and social influences, has been instrumental in shaping the landscape that we find today. The Park remains a working environment in many places with uses and buildings performing employment and economic functions. Economic growth and diversification are Plan objectives and Policies SP5, E1 and ERE1 seek to safeguard existingemploymentlandandpremises.Thefollowingformsofdevelopmentrelated to employment land use and buildings may be permitted as exceptions to the strong presumption against development, but only where it does not cause harm to landscape character:

18. Where gross floorspace and building footprint is measured to the external walls of the building to be replaced including any porches and conservatories, but excludes any detached outbuildings

Extension and intensification of use

73. Thesensitivityoflandscapecharacterwillbetheprimaryconsideration in the assessment of development proposals to extend or intensify existing employment land uses or buildings in the Coastal National Park, including tourismandagriculturaluses.Acasewillneedtobemadeastowhyacoastal or countryside location is required for the proposal, which may require the applicant to set out what alternative locations have been considered.
74. The acceptability of an extension to an employment building will be determined by its scale, design and its impact on landscape character.
75. Each case will be assessed on its merits and, in particular, regard had to the sensitivity of the site, relative to the capacity of the landscape character area to accept change.
76. In all cases, the design and scale of any extension must remain subservient to the existing building. There is a strong presumption against new ancillary buildings in the Coastal National Park.
77. Any proposal that would intensify an existing employment use will need to be assessed having regard to additional travel and traffic, at a strategic level, and noise and disturbance locally, particularly where the outcome could adversely affect the Park's sense of wilderness, isolation and remoteness.
78. The cumulative enlargement of existing buildings, and associated increases in activity, can undermine an area's character as much as new buildings: a site's planning history will, therefore,be a material consideration.

Redevelopmentofexistingemploymentbuildingsforthesameemploymentuse

79. Theprincipleofredevelopment,involvingdemolitionandreplacement, of existing employment buildings for the same employment use is supported where demonstrable environmental gains can be delivered.
80. Comprehensive proposals of this type can offer the possibility of repairing and restoring landscape character, which might be achieved by environmental gains including some or all of: reduced visual scale, mass and volume of a building; more sensitive and sympathetic siting and design; materials, colours and finishes more sensitive to landscape character.
81. Replacementbuildingsshouldbenolarger,intermsofgrossfloorspace, building footprint or visual impact than that being replaced. Consideration will also be given to the intensity of use and impact of travel, traffic and noise upon the Park's special character.

Change of use: conversion to other employment use

82. The change of use of employment land and buildings (involving conversion of a building), to other employment uses, will need to satisfy the requirementsofPolicyE1:Protectionofemploymentlandinthefirstinstance. A case will also need to be made as to why a coastal or countryside location is required for the proposal, which may require the applicant to set out what alternative locations have been considered.
83. Any proposal that would intensify employment use will need to be assessed having regard to additional travel and traffic, at a strategic level, and noise and disturbance locally, particularly where the outcome could adversely affect the Park's sense of wilderness, isolation and remoteness. Any visual implications will also be carefully considered having regard to landscape character.

Change of use: conversion to residential or other non-employment use

84. There is a strong presumption against the loss of employment land and buildings to residential and other non-employment use. The conversion of modern agricultural buildings and glasshouses to residential or other non-employment uses will not be permitted.
85. NewhomesandotherdevelopmentintheCoastalNationalPark,where the availability of services, amenities and public infrastructure is generally limited does little to contribute towards the attainment of a more sustainable patternofdevelopment.Conversionofanemploymentbuildingtoresidential use is, therefore, most unlikely to be permitted.
86. Proposals may, exceptionally, be viewed more favourably where the redundancy of employment use is proven (under the requirements of Policy E1) or where the proposal involves the conversion of offices and tourism accommodation; and where it delivers demonstrable environmental benefits through reduced intensity of use and visual improvement to the building and its setting.
87. Former hotels proposed for residential conversion will be expected to secure significantly reduced intensity of use, since permission is likely to have been granted for hotel use, and/or an expansion of either an original residential or hotel use, on a site where permission for a large extent of residential development would not normally have been countenanced. Sustainabilityatastrategiclevelwillbeamaterialconsiderationandrequire evidence of how this has been assessed, such as a comparison of reliance on public infrastructure and trip generation.

88. Such development would also need to deliver other environmental gains such as: enhanced appearance of the building; materials, colours and finishes more sensitive to the character area; and landscaping to enhance and repair the setting of existing buildings.
89. Careful regard will be given to the visual impacts of any required external space, in particular car parking and amenity areas, on landscape character.

Redevelopment of existing employment buildings for other employment or non-employment use

90. The principle of allowing the redevelopment, involving demolition and replacement for alternative uses, including other employment uses, of existing employment buildings is supported where significant environmental gains can be delivered.
91. Such proposals will need to satisfy the requirements of Policy E1: Protection of employment land in the first instance, and a case made as to why a coastal or countryside location is required, which may require the applicant to set out what alternative locations have been considered.
92. The Minister acknowledges that managing an exception to the strong presumption against any development in the Coastal National Park is challenging, and that it is important to be clear about the benefits that any such development proposal might bring.
93. Comprehensive development of this type offers the possibility of repairing and restoring landscape character of the area, which might be achieved by environmental gains including some or all of;

1. a significantreductionin visualmass,scaleand volume-thismightbe achieved by a reduction in the mass and scale of buildings in the landscape.
2. opportunities may arise to remove uncharacteristically large buildings

- such as hotels or other tourism related buildings - from the landscape, through their redevelopment and replacement by smaller buildings, more sympathetic to their locality and its landscape.

3. asignificantreductioninintensityofuse-redevelopmentforresidential use will be permitted only where the residentialyield is extremelylimited and secures significant reductions in floorspace and/or occupancy;
4. sustainability at a strategic level will be a material consideration and require evidence of how this has been assessed, such as a comparison of reliance on public infrastructure and trip generation.
5. more sensitive and sympathetic siting and design: there is ample evidenceofpoorlysitedanddesignedbuildings,andadditionstobuildings, around the Island's coastline; redevelopment offers scope to remedy the

existingharm;proposalswillbe requiredtoreflectprinciplesin theJersey Design Guide, and must, in particular, demonstrate a mindful understanding of context, and be respectful of it, especially within sensitive landscape;

6. a more sensitive use of materials: this may be achieved by reflecting the distinctiveness of the character area in the proposal's form, materials and finishes, including colour.

94. Replacementbuildingsshouldbenolarger,intermsofgrossfloorspace, building footprint or visual impact than that being replaced. Consideration will also be given to the intensity of use and impact of travel, traffic and noise upon the Park's special character. Regard will also be had to opportunities to support the purposes of the Park including enhanced public access and addressing management threats and priorities identified in the Countryside Character Appraisal.
95. The redevelopment of modern agricultural buildings by demolition and replacement for another use will not be supported, since these would have been permitted to meet agricultural need. If no longer so required they should be removed or re- used for agriculture or employment-related uses. Similarly, the redevelopment of glasshouses will not be permitted.

Cultural and tourism uses

96. One of the Park's purposes, to promote opportunities for understanding and enjoyment of its special qualities, is likely to create tensions with its other purpose: the conservation and enhancement of natural beauty, wildlife and cultural heritage. Managing this requires that new or extended cultural and tourism development is sensitive and proportionate to the fragility and vulnerability of its landscape setting.
97. The Countryside Character Appraisal is a valuable tool, identifying development and management threats to the each of the Park's character areas and their capacity for change. It can be used to inform decisions on development proposals and implications for subsequent use of different parts of the Park.
98. Given the strong presumption against development in the Coastal National Park any exceptions related to new or extended cultural and tourism attractions must have very limited impact on its relevant landscape character area.
99. Examples might include proposals based on the use and enjoyment of environmental and heritage assets, and likely to relate to informal recreation, leisure and tourism.
100. Interpretative facilities and access infrastructure proposals will be considered favourably where designed to minimise visual impact and having no undue effects on sensitive environmental or heritage assets.

101. Similarly, proposals involving a change of use of land to enable activity-based tourism and leisure pursuits will be considered relative to their impacts upon the sensitivity of environmental and heritage assets, as well as the implications of greater levels of more active use of land within the National Park, where the qualities of remoteness and peacefulness may be particularly significant.
102. Leisure and tourism activities can generate a requirement for ancillary services and buildings and a number of facilities – such as cafés, bars, kiosks and toilets – exist in parts of the Park.
103. Proposals to extend, intensify or redevelop existing leisure and tourism facilities will be considered as with any other employment use.
104. New leisure and tourism buildings are unlikely to be favourably considered other than possibly small scale buildings or structures such as beach kiosks. The visualimplications,infrastructurerequirementsandeffectonthelocality'sintensity of the use will require careful consideration relative to the sensitivity of the landscape character. It is unlikely that they will be favourably considered where highly visible and/or unscreened by landscaping or where there are no nearby existing formal car parking and/or toilet facilities.

Minor development

105. DevelopmentofanyscalecanadverselyaffectthequalitiesoftheCoastal National Park because of its sensitive, fragile landscape. Buildings in the Park presently have the same permitted development rights as those elsewhere; the Minister intends to limit these rights here to enable the impact of minor changes to be regulated. This will require amendment to the Planning and Building (General Development)OrderandtheMinisterwillconsultfurtheruponthenatureofchanges proposed.
106. These will not be intended to prohibit all forms of minor development, whichwouldbeunreasonableandunrealistic,buttomakeagreaterrangeofthem subject to individual assessment. Small scale proposals, incidental to the primary use of land and buildings - such as minor alterations to existing buildings, swimming pools,drivewaysandotherformsofhardlandscaping,accesses,meansofenclosure, signs, flags and other advertisements, satellite dishes and other antennae - will be permissible but only if well designed and sited and their impact does not harm the character of the area.
107. For the avoidance of doubt, there will remain a strongpresumptionagainst the development of new ancillary buildings in the Coastal National Park with the exception of small incidental domestic outbuildings of a temporary nature – such as garden sheds and greenhouses – which may be permissible if well sited, and designed and where their impact does not harm landscape character.

Restrict permitted development rights in the Coastal National Park

The Minister for Planning and Environment will further explore the restriction of permitted development rights in the Coastal National Park in order to better protect its fragile and sensitive landscape character. This will include consultation with stakeholders on any proposed changes to the Planning and Building (General Development) Order.

Strategic development

108. There may emerge, during the remainder of the Plan period, strategic development proposals of Island-wide significance related to the generation of utility-scale renewable energy; the provision of public water supplies and the extractionof minerals in the Coastal National Park. Specifically, this might include utility-scaleoff-shorewind and/or tidal energy development;the expansion of Val de la Mare reservoir; the extension, replacement or renewal of La Rosière desalination plant and the expansion of sand quarrying in St Ouen's Bay.
109. Any such development will likely need to be considered within the context of a full and thorough Environmental Impact Assessment to ensure that: the need is proven; alternatives have been properly identified and considered; and that environmental implications for the Park are properly identified, avoided and/or mitigated as far as possible.
110. In accord with the Plan's sequential approach to development, consideration of alternative less environmentally sensitive locations will need to have been properly considered as part of any justification for strategic forms of development in the Coastal National Park.
111. Any such proposals will need to be considered against Policies NR4-6: Renewable energy; MR3: New or extended mineral workings, and NR9: Utilities infrastructure facilities respectively

Policy NE 6

Coastal National Park

The primary purposes of the Coastal National Park are:

the conservation and enhancement of the natural beauty, wildlife and cultural heritage of the National Park;

to promote opportunities for the understanding and enjoyment of the special qualities of the National Park by the public.

In support of these purposes, the Coastal National Park, as designated on the Proposals Map, will be given the highest level of protection from development and this will normally be given priority over all other planning considerations.

In this area there will be the strongest presumption against all forms of development, including but not limited to:

the development of a new dwelling (other than as a replacement under 2 and 7; or conversion under 6, below);

facilitating a separate household by means of an extension, conversion or new build;

the change of use of land to extend a domestic curtilage; development of staff and key agricultural workers' accommodation;

redevelopment of modern agricultural building(s) involving demolition and replacement with a building(s) for another use, or their conversion to a non-employment use;

redevelopmentof glasshouse(s)involvingdemolitionand replacementwith a building(s) or conversion for another use , or their conversion to a non-employment use;

development of ancillary buildings (other than temporary domestic buildings under 9b below)

Only the followingexceptions may be permissible,and only where they do not cause harm to landscape character

Residential

1. the extension of a dwelling, but only where:

a. it remains subservient to the existing building in terms of design and scale;

b.itisdesignedappropriatelyrelativetoexistingbuildingsanditscontext;

3. having regard to its planning history, it does not disproportionately increase the size of the dwelling in terms of any of its gross floorspace, building footprint or visual impact;
4. it does not facilitate significant increased occupancy; and
5. it does not harm landscape character.

2. the redevelopment of an existing dwelling and/or an existing ancillaryresidential building and/or structure, involving demolition and replacement,but only where the proposal would:

1. not be larger in terms of any of gross floorspace, building footprint orvisual impact than the building being replaced;
2. not facilitate a significant increase in occupancy; and
3. give rise to demonstrable environmental gains, contributing to therepair and restoration of landscape character.

Employment

3. the extension and/or intensification of use of existing employment buildingsand land, but only where;

a. the requirement for a coastal or countryside location is adequately justified;

b.anextensionremainssubservient,wellrelatedtotheexistingbuilding in design and scale;

100. an intensification does not create undue noise, disturbance or asignificant increase in travel and trip generation; and
101. it does not cause harm to landscape character.

4. the redevelopment of an employment building(s), involving demolition andreplacement for the same use, but only where:

1. it would be no larger in terms of any of gross floorspace, buildingfootprint or visual impact than that being replaced;
2. an intensification does not create undue noise, disturbance or asignificant increase in travel and trip generation; and
3. it gives rise to demonstrable environmental gains, contributing to therepair and restoration of landscape character.

5. the change of use of employment land and buildings (involving conversionof a building), to other employment uses, but only where:

1. it would accord with Policy E1: Protection of employment land;
2. therequirementfora coastalorcountrysidelocationcanbe adequatelyjustified;

c.inthecaseofanintensificationofuse,itdoesnotcreateunduenoise, disturbance or a significant increase in travel and trip generation; and

d. it does not harm landscape character.

6. the change of use of employment land and buildings (involving conversion of a building) to non-employment uses but only where:

a. the redundancy of employment use is proven in accord with Policy E1: Protectionofemploymentlandorwherethedevelopmentinvolvesoffice or tourism accommodation; and

b.itgivesriseto:demonstrableenvironmentalgains,contributingtothe repair and restoration of landscape character; reduced intensity of occupationanduse;andimproveddesignandappearanceofthelandand building(s); or;

c. it secures a viable alternative use for a traditional farm building in accord with Policy ERE4 Change of use and/or conversion of traditional farm buildings.

7. the redevelopment of an employment building(s), involving demolition and replacement for another use, but only where:

1. the redundancy of employment use is proven in accord with Policy E1: Protectionofemploymentlandorwherethedevelopmentinvolvesoffice or tourism accommodation; and
2. the proposal is no larger in terms of any of gross floorspace, building footprint or visual impact than the building being replaced; and
3. it givesrise to: demonstrableenvironmentalgains,contributingto the repair and restoration of landscape character; reduced intensity of occupationanduse;andimproveddesignandappearanceofthelandand building(s).

8. New cultural and tourism development, but only where it:

1. supports the purposes of the Coastal National Park;
2. is appropriate relative to existing buildings and its landscape context; and
3. does not harm landscape character.

Minor development

9. Development small in scale and incidental to the primary use of land andbuildings, but only where:

1. it is well sited and designed, having regard to the relationship withexisting buildings, landscape context, size, material, colour and form;and
2. for an ancillary residential building, it is also of a temporary nature;and
3. it does not cause harm to landscape character.

Strategic development

10. Where it is demonstrated to satisfy a proven Island need, relative to theproper assessment of alternative options, strategic development related torenewable energy production; new or extended utilities infrastructure; orextraction of minerals, but only where:

a.itsenvironmentalimplicationsareproperlyidentified,avoidedand/or mitigated as far as possible; and it accords with,

2. Policy NR 4: Exploratory, appraisal or prototype off-shore utility scalerenewable energy proposals; or
3. Policy NR 5: Off-shore utility scale renewable energy development; or
4. Policy NR6: On-shore renewal energy production; or
5. Policy NR9: Utilities infrastructure facilities; or
6. Policy MR3: New or extended mineral workings.

112. In defining the extent of the National Park, it is inevitable that the boundary embraces both living and working landscapes, where many of the characteristic qualities that provide its special appeal are as much the result of human activities, particularly farming, as of natural forces. It will be essential to cultivate the economic and social well-being of local communities found within the park by working closely with individuals, community, amenity, business and special interest groups. The Minister for Planning and Environment will develop and adopt a Management Plan for the Coastal National Park, in discussion and engagement with stake-holders, during the Plan period.

Proposal 5

Coastal National Park Management Plan

The Minister for Planning and Environment will develop and adopt a Coastal NationalParkManagementPlantodelivertheobjectivesoftheCoastalNational Park, which include:

1. theconservationandenhancementthenaturalbeauty,wildlifeandcultural heritage of the National Park;
2. to promote opportunities for the understanding and enjoyment of the special qualities of the National Park by the public.

This will be undertaken in co-operation with other public and private agencies, interest groups, landowners and farmers during the Plan period.

Green Zone

Green Zone

113. The concept of the Green Zone is already well established and familiar to Island residents. The vigorous public response, in the Green Paper and Imagine Jersey2035,tofurtherprotectthecountrysidefromdevelopmenthasdemonstrated a clear need to review and strengthen the existing countryside policies in order to further protect this important asset. Accordingly, in addition to the introduction of the Coastal National Park, the boundaries of the Green Zone have been extended to include those areas in what was formerly the Countryside Zone, as defined in the 2002 Island Plan.
114. The areas of the countryside which are outside the Coastal National Park are now defined as Green Zone and includes those areas of the countryside which haveanintactcharacterandcompriseanimportantrangeofenvironmentalfeatures needing a high level of protection. Those areas of the Island's countryside which are largely distinctive, historic, farmed landscapes and coastal plains are also now included within the Green Zone. This interior agricultural landscape covers the greater part of the plateau and part of the coastal plains. It presents a rich backgroundincludinganattractiveandintricatepatternofsmallfields,enclosures and lanes, an ecologically rich network of hedgerows, verges and banques, many cultural sites and a wealth of typical Jersey granite vernacular buildings. The ridges and skylines of the plateau are particularly sensitive to the visual impact of development.

115. The Green Zone includes a number of distinct character areas and the Minister for Planning and Environment will have regard to the supplementary guidance contained in the Countryside Character Appraisal in determining any development proposals in this area.
116. These areas include:

The main escarpments of St Clement, Grouville , Ouaisné, and St Brelade's Bay

C1: Grouville – St Saviour C2: South Coast

The wooded valleys of St Peter's, Waterworks, Bellozanne, Grands Vaux, Vallée des Vaux, Fern and Queen's Valleys, amongst others;

D1: Main Interior Valleys D2: Eastern Plateau Valleys D3: St Brelade's Valley

The interior agricultural land: to the north, including

E1: North-west Headland (St Ouen) E3: North-east (St Martin)

E4: North Coast

117. These areas are designated as Green Zone on the Proposals Map.

Map 2.5 Green Zone Areas

118. Whilst not as remote and wild in character as the Coastal National Park there will still be a general presumption against any development in the Green Zone in order to retain the quality and distinctiveness of the Island's countryside here and to ensure that the distinct character of the zone remains intact. The qualityanddistinctivenessofthelandscapecharacterareasoftheGreenZonestill makesthemsensitivetotheeffectsofintrusivedevelopmentwhilsthavingagreater capacity to accept some change.
119. As in the Coastal National Park, however, the Green Zone is even more of a living landscape, containing a greater number and variety of buildings and land uses. Whilst there is a presumption against new uses or buildings that would detract from its landscape character, there may be opportunity to secure the repair andrestorationofitthroughexceptionswherethedevelopmentofexistingbuildings or land uses provide opportunities to repair or reduce their existing harm to landscape character. Development may also provide opportunities for public access and enjoyment of the countryside.
120. There is also a need to provide for the reasonable expectation of residents toimprovetheirhomesandbusinessestoundertakeeconomicactivityandprovide employment, having regard to the capacity of the landscape to accommodate development without serious harm.

121. Accordingly, Policy NE7 sets a presumption but not an absolute moratorium against development within the Green Zone: the key test is the capacity of the siteanditscontexttoaccommodatedevelopmentwithoutseriousharmtolandscape character. This is the starting point for the consideration of development proposals. The following categories may, exceptionally, be considered though not all cases will be acceptable.

Residential

122. It would be unreasonable to resist all forms of development to improve people's homes. The following forms of development related to residential land use and buildings may be permitted as exceptions to the presumption against development here, but only where it does not cause serious harm to landscape character:

Extension of a dwelling

123. The acceptability of an extension to a dwelling will be determined by its scale, design and impact on landscape character.
124. Each case should be assessed on its merits and, in particular, regard had to the sensitivity of the site, relative to the capacity of the landscape character area to accept change.
125. The design and scale of any extension must remain subservient to the existing dwelling and not disproportionately increase its size in terms of gross floorspace, building footprint or visual impact.
126. The purpose will be a material considerationand should not facilitate a significant increase in occupancy. Intensification of domestic use would place more pressure upon a fragile environment, limited infrastructure and servicesand be likelyto increasetrip generation.The cumulativeenlargement of existing dwellings, and associated increases in resident population and activity, can undermine an area's character as much as new homes: a site's planning history will, therefore, be a material consideration.

Ancillary buildings

127. Proposalsto developbuildingsand structuresancillaryto a residential useofland,suchasgaragesandotheroutbuildings(whicharenotintheform of extensions to the principal dwelling house) should be considered in the same manner as extensions, where the key test will be the impact upon landscape character. Proposals for the creation of habitable accommodation in detached ancillary buildings will not be supported.

Redevelopment of existing dwellings and ancillary buildings or structures

128. The principle of demolition and replacement of existing dwellings is supported only where demonstrable environmental gains can be delivered.
129. Comprehensive proposals of this type can offer the possibility of repairing and restoring landscape character which might be achieved by environmental gains including some or all of: reduced visual scale, mass and volume of a building; more sensitive and sympathetic siting and design; materials, colours and finishes more sensitive to the character area.
130. In all cases, replacement buildings should not be larger than that being replaced in terms of any of gross floorspace(19), building footprint or

visual impact, and should not facilitate a significant increase in occupancy. Intensification of domestic use would place more pressure upon a fragile environment, limited infrastructure and services and be likely to increase trip generation.

Creation of new households

131. The creationof new householdsby the developmentof new dwellings or the extension of existing residential properties to provide independent accommodation will generally be resisted in the Green Zone: it is counter to the strategic objectives of the Plan (in relation to sustainable patterns of development; reducing the need to travel; and reducing dependence on the private car), as well as challenging the general presumption against development.
132. In some instances it may, however, be possible to make exception to permit the extension or conversion of part of a dwelling (such as an integral garage) to provide independent accommodation in the Green Zone for an elderly relative or a relative who requires some degree of care and/or support for their personal well-being and health. This will, however, only be permissible where the accommodation is capable of re-integration into the main dwelling and where any extension or conversion would not seriously harm landscape character. Any exception made in response to such family circumstances will need to be carefully regulated and may be subject to a planning obligation agreement to ensure the ultimate re-integration of the accommodation into the main dwelling.
133. The Green Zone contains most of the Island's working countryside and the only other possible exception to the presumption against the creation of new households here may relate to the provision of staff and key agricultural workers' accommodation, in accordance with Policy H9.

19. Where gross floorspace and building footprint is measured to the external walls of the building to be replaced including any porches and conservatories, but excludes any detached outbuildings.

Extension of domestic curtilage

134. There is the strongest presumption against extensions of domestic curtilages, which can result in incremental loss and erosion of landscape character to domestication in the countryside.

Employment land use and buildings

135. The Green Zone arises from the interaction of human and natural influences: the economic history of the Island, together with political and social influences, has been instrumental in shaping the landscape that we find today. The countryside remains a working environment in many places with uses and buildings performing employment and economic functions.
136. Economic growth and diversification are Plan objectives and Policies SP5, E1 and ERE1 seek to safeguard existing employment land and premises. The followingformsofdevelopmentrelatedtoemploymentlanduseandbuildingsmay be permitted as exceptions to the presumption against development, but only where it does not cause serious harm to landscape character.

Extension and intensification of use

137. The sensitivity of landscape character will be the primary consideration in the assessment of development proposals to extend or intensify existing employment land uses or buildings in the Green Zone, including tourism and agricultural uses. A case will need to be made as to why a coastal or countryside location is required for the proposal, which may require the applicant to set out what alternative locations have been considered.
138. The acceptability of an extension to an employment building will be determined by its scale, design and its impact on landscape character.
139. Each case will be assessed on its merits and, in particular, regard had to the sensitivity of the site, relative to the capacity of the landscape character area to accept change.
140. In all cases, the design and scale of any extension must remain subservient to the existing building.
141. Any proposal that would intensify an existing employment use will need to be assessed having regard to additional travel and traffic, at a strategic level, and noise and disturbance locally.
142. The cumulative enlargement of existing buildings, and associated increases in activity, can undermine an area's character as much as new buildings: a site's planning history will, therefore,be a material consideration.

Ancillary employment buildings

143. Proposals to develop buildings and structures ancillary to an employment use of land, (which are not in the form of extensions to the principal building) should be considered in the same manner as extensions, where the key test will be the impact upon landscape character.

Redevelopmentofexistingemploymentbuildingsforthesameemploymentuse

144. The principle of redevelopment, involving demolition and replacement,ofexistingemploymentbuildingsforthesameemploymentuse is supported where demonstrable environmental gains can be delivered.
145. Comprehensive proposals of this type can offer the possibility of repairing and restoring landscape character, which might be achieved by environmental gains including some or all of: reduced visual scale, mass and volume of a building; more sensitive and sympathetic siting and design; materials, colours and finishes more sensitive to landscape character.
146. Replacement buildings should be no larger, in terms of gross floorspace(20), building footprint or visual impact than that being replaced.

Consideration will also be given to the intensity of use and impact of travel, traffic and noise upon the character of the area.

Change of use: conversion to other employment use

147. The change of use of employment land and buildings (involving conversion of a building), to other employment uses, will need to satisfy the requirementsof Policy E1: Protectionof employmentland in the first instance. A case will also need to be made as to why a coastal or countryside location is required for the proposal, which may require the applicant to set out what alternative locations have been considered.
148. Any proposal that would intensify employment use will need to be assessed having regard to additional travel and traffic, at a strategic level, and noise and disturbance locally. Any visual implications will also be carefully considered having regard to landscape character.

Change of use: conversion to residential or other non-employment use

149. There is a general presumption against the loss of employment land and buildings to residential and other non-employment use. The conversion of modern agricultural buildings and glasshouses to residential or other non-employment uses will not be permitted.

20. Where gross floorspace and building footprint is measured to the external walls of the building to be replaced, but excludes any detached outbuildings

150. New homes and other development in the Green Zone, where the availabilityof services, amenities and public infrastructureis generallylimited does little to contribute towards the attainment of a more sustainable pattern of development. Conversion of an employment building to residential use is, therefore, most unlikely to be permitted.
151. Proposals may, exceptionally, be viewed more favourably where the redundancy of employment use is proven (under the requirements of Policy E1) or where the proposal involves the conversion of offices and tourism accommodation; and where it delivers demonstrable environmental benefits through reduced intensity of use and visual improvement to the building and its setting.
152. Former hotels proposed for residential conversion will be expected to secure significantly reduced intensity of use, since permission is likely to have been granted for hotel use, and/or an expansion of either an original residential or hotel use, on a site where permission for a large extent of residential development would not normally have been countenanced. Sustainabilityatastrategiclevelwillbeamaterialconsiderationandrequire evidence of how this has been assessed, such as a comparison of reliance on public infrastructure and trip generation.
153. Such development would also need to deliver other environmental gains such as: enhanced appearance of the building; materials, colours and finishes more sensitive to the character area; and landscaping to enhance and repair the setting of existing buildings.
154. Careful regard will be given to the visual impacts of any required external space, in particular car parking and amenity areas, on landscape character.

Redevelopment of existing employment buildings for other employment or non-employment use

155. The principle of allowing the redevelopment, involving demolition and replacement for alternative uses, including other employment uses, of existing employment buildings is supported where significant environmental gains can be delivered.
156. Such proposals will need to satisfy the requirements of Policy E1: Protection of employment land in the first instance, and a case made as to why a coastal or countryside location is required, which may require the applicant to set out what alternative locations have been considered.

157. The Minister acknowledges that managing an exception to a general presumption against any development in the Green Zone is challenging, and that it is importantto be clear about the benefitsthat any such development proposal might bring.
158. Comprehensive development of this type offers the possibility of repairing and restoring landscape character of the area, which might be achieved by environmental gains including some or all of;

1. a significantreductionin visualmass,scaleand volume-thismightbe achieved by a reduction in the mass and scale of buildings in the landscape.
2. opportunities may arise to remove uncharacteristically large buildings

- such as hotels or other tourism related buildings - from the landscape, through their redevelopment and replacement by smaller buildings, more sympathetic to their locality and its landscape.

3. asignificantreductioninintensityofuse-redevelopmentforresidential use will be permitted only where the residentialyield is extremelylimited and secures significant reductions in floorspace and/or occupancy;
4. sustainability at a strategic level will be a material consideration and require evidence of how this has been assessed, such as a comparison of reliance on public infrastructure and trip generation.
5. more sensitive and sympathetic siting and design: there is ample evidenceofpoorlysitedanddesignedbuildings,andadditionstobuildings, around the Island's coastline; redevelopment offers scope to remedy the existingharm;proposalswillberequiredtoreflectprinciplesintheJersey

Design Guide(21), and must, in particular, demonstrate a mindful understanding of context, and be respectful of it, especially within

sensitive landscape;

6. a more sensitive use of materials: this may be achieved by reflecting the distinctiveness of the character area in the proposal's form, materials and finishes, including colour.

159. Replacement buildings should be no larger, in terms of gross floorspace, building footprint or visual impact than that being replaced. Consideration will also be given to the intensity of use and impact of travel, traffic and noise upon the character of the area. Regard will also be had to enhance public access and to address management threats and priorities for that character area.
160. The redevelopment of modern agricultural buildings by demolition and replacement for another use will not be supported, since these would have been permitted to meet agricultural need. If no longer so required they should be removed or re- used for agriculture or employment-related uses. Similarly, the redevelopment of glasshouses will not be permitted.

21. Jersey Design Guide (2008)

Cultural and tourism uses

161. New or extended cultural and tourism development in the Green Zone needs to be sensitive and proportionate to the fragility and vulnerability of its landscapesetting.TheCountrysideCharacterAppraisalisavaluabletool,identifying development and management threats to character areas and their capacity for change: it can be used to inform decisions on development proposals. Given the presumption against development in the Green Zone any exceptions related to new or extended cultural and tourism attractions must have limited impact on its relevant landscape character area.
162. Examples might include proposals based on the use and enjoyment of environmental and heritage assets, and likely to relate to informal recreation, leisure and tourism. Interpretative facilities and access infrastructure proposals willbeconsideredfavourablywheredesignedtominimisevisualimpactandhaving no undue effects on sensitive environmental or heritage assets. Similarly, proposals involving a change of use of land to enable activity-based tourism and leisure pursuits will be considered relative to their impacts upon the sensitivity of environmental and heritage assets, as well as the implications of greater levels of more active use of land for the character of an area.
163. Proposals to extend, intensify or redevelop existing leisure and tourism facilities will be considered as with any other employment use.
164. Leisureand tourismactivitiescan alsogeneratea requirementfor ancillary services and buildings. New leisure and tourism buildings are unlikely to be favourably considered other than possibly small scale buildings or structures such as kiosks. The visual implications, infrastructure requirements and effect on the locality's intensity of the use will require careful consideration relative to the sensitivity of the landscape character. It is unlikely that they will be favourably considered where highly visible and/or unscreened by landscaping or where there are no nearby existing formal car parking and/or toilet facilities.

Minor development

165. Development of a minor scale that is ancillary to a primary use of land couldadverselyaffectthequalitiesoftheGreenZonedependingonthesensitivity of the landscape. Small scale proposals, that are incidental to the primary use of land and buildings and outside the scope of existing permitted development rights will only be permissible in the Green Zone where they are well designed and sited and their impact does not seriously harm landscape character.

Managed open spaces

166. Managed open spaces, such as playing fields, other amenity spaces, cemeteries and allotments, can have a limited impact upon the character of the countryside. Their provision will be considered in terms of impact upon landscape character and other polices of the Plan, such as SCO5 and SCO6.