Chapter 8: Rural Areas Strategy

Rural Areas Strategy

8.1 There is a need for some limited housing and employment development at our larger and more sustainable villages to help sustain local services and enhance or maintain the vitality of rural communities.  Our vision is that by 2042: 

  • Housing and employment growth will have been managed to protect the character, appearance, heritage and identity of our villages
  • Our most important landscapes will have been protected or enhanced
  • We will have continued to meet local community and business needs and created sustainable housing and employment opportunity
  • We will have directed most development in our rural areas to our larger and best served villages with most opportunity for sustainable travel choices, particularly those better connected by public transport to nearby urban areas
  • Farming and rural business will have had the opportunity to thrive within the context of a more restrictive policy context for the countryside.

Policy RUR 1: Rural Areas Strategy

8.2 To achieve this vision we will deliver the following strategy:

Overall Spatial Strategy

  • Protect the identity and character of our villages and rural areas and avoid unplanned development in the open countryside
  • Provide for limited development to meet local community and business needs and help support the vitality of these more rural settlements and the viability of existing businesses and agriculture/farms
  • Direct the development of new housing to the larger and more sustainable villages that offer a wider range of services, and to a lesser extent to villages that are well-connected to our urban areas and sustainable villages
  • Maintain the designated Green Belt
  • Conserve and enhance the Cotswolds National Landscape (Area of Outstanding Natural Beauty)
  • Protect the character of locally designated landscapes and preserve and enhance conservation areas and registered parks and gardens and their settings.

Rural Areas Strategy

  • Development opportunities to meet identified local needs
  • Tight management of speculative development and the avoidance of comparatively less sustainable development outcomes
  • Greater emphasis on development being supported by sustainable transport and active travel opportunity
  • Greater emphasis on development being designed and supported by infrastructure to support health and well-being
  • Protection and enhancement of our natural and heritage assets.

Housing

8.3 Our overall housing need is essentially being met from our existing housing supply.  Our rural areas have contributed significantly in meeting the needs of our last Local Plan and continue to do so through our current housing supply.  Developing greenfield sites on the edges of our villages is generally attractive to developers in terms of sales values and relative ease of construction.

8.4 For sustainability reasons it is important that we have an urban focus in this Plan.  However, we recognise that some additional planned development in our rural areas helps provide contingency including for our five year land supply.  It provides further opportunities for newly forming households and those presently unable to access the housing market or affordable housing, and for those whose housing needs have changed over time.

8.5 We need to carefully manage development pressures in the interest of seeking housing delivery which benefits local communities, does not lead to unacceptable pressure on local infrastructure including health care facilities which must meet the needs of our rural communities, and can be supported by sustainable and active travel options and which does not cause damage to the environment that makes our rural areas attractive and distinctive.

8.6 We have considered the potential of our villages to provide some additional homes in this context.  Our settlement hierarchy at Policy SP1 defines our most sustainable villages as ‘Category A’.  We have considered these villages in terms of existing housing supply and their potential for some limited additional housing.  We have also considered where it would be appropriate to provide a housing allocation to those Parishes engaged in preparing their own Neighbourhood Plans.

8.7 The overall level of housing growth for our villages and rural areas is set out in Policy RUR 1 below.  ‘Windfall’ development on small sites of less than 10 dwellings will be additional to this and will contribute to our overall housing supply.

Policy RUR 1: Rural Areas Housing Strategy

Development in the rural areas will be considered against the spatial strategy and Policy COM 1: District Wide Housing Distribution.  565 homes will be provided on sites allocated in Neighbourhood Plans, or this Local Plan in addition to the existing supply set out at Appendix 2.

Site Number of homes
Adderbury 75
Bletchingdon, Hampton Gay and Poyle 50
Bloxham 75
Bodicote 75
Deddington 90
Hook Norton 75
Mid Cherwell 100
Milcombe 25

Policy RUR H1: Land west of Springwell Hill, Bletchingdon 

8.8 Land west of Springwell Hill and North Sand Furlong at Bletchingdon is a greenfield site located to the north of development at Sand Furlong and to the west of Springwell Hill. Bletchingdon is located between Kidlington to the south-west and Bicester to the north-east and lies within the Cherwell Valley Landscape Character Area.

Site description

8.9 The site comprises approximately 2.9 hectares of relatively flat arable land and covers two agricultural fields. It is surrounded by agricultural land to the north, east and west. It is bounded to the south by existing residential development, which is relatively recent and also includes Bletchingdon village hall and primary school. There is an existing footpath which crosses the site from southeast to northwest from the residential development to the south, through the site to land to the north.

8.10 The site lies to the west of the Bletchingdon Conservation Area, which is focussed on the historic core of Bletchingdon and Bletchingdon Park House and Gardens.

8.11 The site slopes gently from south-west to north-east and there is a spring towards the south-western corner of the site. The western edge of the site is bordered by several areas of mature trees and shrubs which line the spring. To the east, there is a tree belt of semi-mature mixed woodland.

8.12 A Landscape Sensitivity Assessment of the site informs this proposed allocation and policy requirements.

8.13 Development at this location would encroach further into the open countryside, though it is not considered that the development of this site would represent a significant change to the settlement form of Bletchingdon. The west and south-western parts of the site have a poorer relationship with the existing pattern of development at this village.

8.14 There are no known heritage assets located within the site, though it does lie in an area of archaeological interest and potential.  Though the site lies outside of the historic core of Bletchingdon, there may be Medieval remains surviving which should be investigated prior to any development on the site.

8.15 A Heritage Impact Assessment informs the site allocation and policy requirements.

Policy RUR H1 - Land west of Springwell Hill, Bletchingdon 

Site area – 2.9 hectares 

  • Land west of Springwell Hill is allocated to accommodate 44 dwellings as an extension of the existing built form of Bletchingdon. 
  • The development should provide a range of dwelling types and densities that reflect character and context, which should be determined as part of the design process.
  • Proposals must follow a contextual landscape led approach to design and a landscape and planting strategy. 

Provision of formal sports facilities, play areas and allotments adopted standards within the developable area unless otherwise agreed with the Council.  

1. Green Infrastructure and open space outside the developable area to be kept free from development;

2. Financial contributions towards primary and secondary school provision to be agreed with the Council and Oxfordshire County Councils;

3. Financial contributions towards primary care health provision at a location to be agreed with the Council in discussion with BOB ICB; 

4. All other infrastructure requirements and financial contributions towards infrastructure provision to be delivered as set out in the Infrastructure Delivery Plan unless otherwise agreed with the Council and Oxfordshire County Councils. 

Key design requirements  

5. Development should seek to preserve the positive vistas identified in the Bletchingdon Conservation Area Appraisal as well as the historic approach towards the Conservation Area from the north;

6. Design and layout which responds to identified heritage assets adjacent to the site. Developable area to be softened and pulled back in the east and northern extents of the site, to ensure no adverse impacts;

7. Key characteristics of the Conservation Area should be reflected in the development design;

8. Retain and strengthen tree and hedgerow planting along Springwell Road to minimise views of built form;

9. Enhance public access through the site and green infrastructure connections between this site, the residential development to the south and the wider surrounding countryside; 

10. Main access from the Springwell Hill Road, subject to satisfactory design including visibility splays being achievable within the constraints of available land;

11. Enhancements for biodiversity in the form of hedgerow, woodland, scrub and grassland creation, habitat pile creation, as well as the continued monitoring and management of these habitats; 

12. Retain public footpath within an attractive, overlooked landscaped corridor;

13. Locate public open space within the western part of the site - SuDS provision must be fully Integrated Into the open space design to maximise amenity and habitat value;

14. Provide a clear and legible pedestrian link to the adjacent development, co-op and school to the south;

15. Ensure secure perimeter blocks are created with adjacent development rear garden boundaries whilst being sensitive to the amenity of these properties; 

16. Opportunity to reinforce hedgerow and tree planting to the sites northern and western boundaries to ensure an appropriate visual relationship with the wider rural context; and 

17. Ensure the scheme is fully integrated with the existing settlement both visually and physically.

Planning application requirements 

18. A conservation plan with programme of interpretation and public engagement to be secured through a S106s agreement; 

19. A desk-based archaeological investigation and further investigation of archaeological potential through excavation in consultation with County archaeologist, and

20. The application should demonstrate that Thames Water has agreed in principle that foul drainage from the site will be accepted into its network. 

Policy RUR 2: Rural Exception Sites

8.16 Most of our rural areas have high house prices and a limited supply of affordable homes. We will therefore continue to support rural exception sites that provide affordable housing to meet identified local needs. In some cases we will also need to consider whether allowing some market housing on these sites would make a scheme more viable. In these circumstances we will ensure that the inclusion of any element of open market housing must benefit the provision of rural affordable housing and must not inflate the ‘threshold land value’ (the minimum land value likely to trigger an owner to sell the land).

Policy RUR 2: Rural Exception Sites

The Council will support development for small scale affordable housing schemes within or immediately adjacent to villages to meet specific, identified local housing needs that cannot be met through the development of sites allocated for housing development.

Arrangements will be secured to restrict the occupancy of the housing to ensure that it continues to meet local needs in perpetuity.

Market housing for private rent or sale will only be considered on rural exception sites when:

i.       The number of market homes does not exceed 25% of the total number of homes proposed;

ii.      The market housing is shown to be required to secure the viability of the proposal. Development costs must be justified;

iii.     No alternative, suitable site is available to provide a rural exception site following a robust site search;

iv.     The market housing ensures that no additional subsidy for the scheme is required;

v.      The development has the support of the local community, and

vi.     The total number of dwellings and the scale of the development is in keeping with the settlement categorisation, character and form of the village and its local landscape setting.

Policy RUR 3: New Dwellings in the Countryside

8.17 National guidance states that rural housing should be located where it will enhance or maintain the vitality of rural communities. Development of isolated homes in the countryside should generally be avoided. There are some exceptions, for example, where there is an essential need for a rural worker, or where the design is of exceptional quality.

8.18 We also recognise that it may be beneficial to permit the replacement of a dwelling in the open countryside, for example where an existing dwelling is unfit or substandard. There may also be opportunities to improve the quality of local environments through the re-development of some brownfield sites.

8.19 Where planning permission is given for a rural worker in the open countryside we will impose an appropriate occupancy condition Such conditions will only be removed if it can clearly be demonstrated that there is no need for a rural worker’s dwelling in the locality.

8.20 Planning applications will need to provide sufficient details to enable an assessment of the size, nature and viability of the existing or proposed enterprise together with details of the number and tenure of existing dwellings related to the holding or estate. Where there is any doubt that a dwelling is required for the proper functioning of an enterprise, or where a new business is being proposed, it will be necessary to supply adequate financial information to demonstrate that the proposals are sound (covering a three-year period).

8.21 Our preference is that new dwellings should be through the conversion of existing rural buildings, to use land efficiently and reduce impacts on the countryside. Where a new build dwelling is proposed we will normally expect them to reflect the local vernacular and be closely related to existing buildings in the interest of protecting the appearance and open character of the countryside.

Policy RUR 3: New Dwellings in the Countryside

The Council will permit the development of a rural worker’s dwelling where it has been demonstrated that there is an essential need for a rural worker to live permanently at or near their place of work in the countryside.

Dwellings beyond the built-up limits of settlements which are not essential for rural workers will not be permitted unless one or more of the following apply:

i. The development would represent the optimal viable use of a heritage asset or would be appropriate small scale development that secures the future of associated heritage assets;

ii. The development would re-use redundant or disused buildings;

iii. The development would involve the one for one replacement of an existing dwelling;

iv. The development would involve the subdivision of an existing residential dwelling, and

v. The development is for an individual dwelling where the design is of exceptional quality, in that it:

  • Is truly outstanding, reflecting the highest standards in architecture, and would help to raise standards of design more generally in rural areas, and
  • Would significantly enhance its immediate setting and be sensitive to the defining characteristics of the local area.

Policy RUR 4: Conversion of a Rural Building to a Dwelling

8.22  The conversion of rural buildings to dwellings will help contribute towards meeting the district’s housing needs and can allow farms to diversify and remain economically viable. However, it is also important that employment opportunities continue to be provided in our rural areas and that farms continue to thrive.

8.23 Many conversions of farm buildings to dwellings do not need planning permission, but where they do, we will prioritise employment re-use over residential conversion to promote the diversification of the rural economy.

8.24 Permitted development rights may be removed to ensure there is no further inappropriate alteration to the form, character and setting of the dwelling.

Policy RUR 4: Conversion of a Rural Building to a Dwelling

The conversion of a rural building to a dwelling will be permitted provided that:

i. The applicant has made every reasonable attempt to secure suitable employment re-use;

ii. The building’s form, bulk and general design is in keeping with its surroundings;

iii. The building is of permanent and substantial construction, evidenced through a structural engineers report appropriate to the building;

iv. In the case of a building beyond the built-up limits of a village, conversion can be achieved without major rebuilding or major extension and without inappropriate alteration to its form and character;

v. The proposal would not harm the special character and interest of a heritage asset or its setting;

vi. The proposal would not cause significant harm to the character of the countryside or the immediate setting of the building; and

vii. There are no significant transport, highways and noise impacts.

Policy RUR 5: Community-Led Housing Development

8.25 Community led housing developments. are primarily affordable housing schemes promoted by a local not-for-profit organisation, for the purpose of meeting the housing needs of the local community.

8.26 The councils will work closely with parish councils and local communities to progress community-led housing development.

8.27 They may take various legal forms including a community land trust, housing co-operative and community benefit society.

Policy RUR 5: Community-Led Housing Development

The council will support proposals for small sites for community-led affordable homes where:

a. it is located within a settlement or, it is adjacent to an existing settlement with a safe walking and cycling connection to it;

b. it is proportionate in scale to the settlement, with the number of dwellings proposed not exceeding 5% of the dwellings in the settlement; and the total site area not exceeding 1 hectare.

Proposals must demonstrate that:

a. they will be developed by a not-for-profit organisation set up and run primarily for the purpose of meeting the housing needs of the local community;

b. the organisation should own, manage or steward the homes in accordance with an agreed management plan and demonstrate the financially viability of the proposal;

c. the local community has been meaningfully engaged with, and involved in preparing the proposal, and there is local support for it, and

d. there are benefits to the local community, with satisfactory arrangements to ensure that the benefits are clearly defined and legally protected in perpetuity.

Policy RUR 6: Replacement Dwellings in the Countryside

We recognise that it will occasionally be necessary to permit the replacement of an unfit or substandard dwelling in the countryside. The protection of the character of the countryside will be a primary objective, and proposals for substantially larger and more conspicuous dwellings in the landscape will be resisted. Proposals for the replacement of a single dwelling by two or more new dwellings will also be resisted.

Policy RUR 6: Replacement Dwellings in the Countryside

Proposals for the one-for one replacement of an existing statutorily unfit or substandard dwelling beyond the built-up limits of a settlement will be permitted provided that:

  1. the existing building is not a listed building capable of restoration or suitable for an alternative and beneficial use;
  2. The use of the building as a dwelling has not been abandoned or extinguished and its proposed replacement is similar in scale and within the same curtilage.

The Economy

8.28 We recognise that our rural economy is diverse and provides benefits to our rural communities. We will continue to support the sustainable economic growth of our rural businesses, including farming. Proposals for employment development on unallocated rural sites will be considered against Policy LEC 3: New Employment Development on Unallocated Sites.