• CONTENTS
• List of Policies
• List of Figures
• List of Tables
• List of Maps
• Introduction
• Part I Strategy & Policies
• Strategy
• Policies
• Part II Detailed Policies & Justification
• 1 Sustainability Appraisal
• 2 The Environment
• 3 Design
• 4 Housing
• 5 Industry and Employment
• 6 Rural Economy
• 7 Tourism
• 8 Shopping
• 9 Movement
• 10 Conservation of the Historic Environment
• 11 Countryside
• 12 Nature Conservation
• 13 Recreation & Leisure
• 14 Community Facilities
• 15 Minerals
• 16 Waste Planning Management
• 17 Implementation & Monitoring
• Appendix 1: Cadw Register of Landscapes, Parks & Gardens
• Appendix 2: Licensed Non-landfill Waste Facilities
• Glossary

4 Housing

Housing Objectives

1. To provide sufficient housing land to meet the needs of the existing local population and maintain viable communities whilst also recognising the external demands to live in the County, so far as this is compatible with its environmental capacity and the achievement of sustainable patterns of development.

2. To ensure that new housing offers a mixture and range of types of housing to meet the variety of housing needs and requirements in the area.

3. To protect the countryside from unacceptable development.

4. To achieve the highest possible quality and standards of design in housing developments.

5. To contribute towards a more sustainable pattern of development by allocating land within or adjacent to existing settlements and accessible to services thereby creating and maintaining viable communities.

4.1 THE ENVIRONMENTAL CAPACITY FOR NEW DWELLINGS

4.1.1 Over the past 35 years, the county of Monmouthshire (formerly Monmouth District / Borough) has been subject to high levels of housing development pressure reflecting the environmental and economic qualities that make it a popular and attractive place to live. The Gwent Structure Plan, from its first version 1976 - 1991 through to the current 1991-2006 document, has consistently sought to restrain the rate of growth in East Gwent to a level that represents the right balance between demand i.e. accommodating the locational preference of where people wish to live, and the need to safeguard the environmental qualities of the area. From 1976 through to 2006, the Structure Plan has allowed for a steady rate of growth of 373 houses per annum, albeit that actual build rates have always exceeded the Structure Plan forecast. Between 1976-1981 460 dwellings were built per annum with 414 per annum between 1981-1991 and 388 per annum 1991-1996. This long-term pattern of development means that the pressures for housing growth will undoubtedly continue over the period of the Plan.

4.1.2 In accordance with policies contained within Part I and in particular Policy SP2, the strategic approach to housing growth is based upon a continued policy of restraint in accordance with the limited ‘environmental capacity’ of the County. It is therefore the intention of the Plan to work towards ensuring that development and growth are sustainable, and in doing so it has been necessary to address the environment at an early stage in making policy decisions so that it underpins the UDP strategy for addressing change, and influences not only the location but also the amount of new development. Therefore the ‘environmental capacity’ of Monmouthshire has been considered in order to establish which environments should be protected and help establish how much development could be undertaken within the County without unacceptable consequences to the environment. This analysis is implicit throughout the housing chapter and the Plan as a whole, with the following notable considerations, which limit housing (and other) development:

i) The protection exercised through the designation of land means that a large percentage of the County is of international, national and local environmental and historical importance including the Brecon Beacons National Park (administered by the National Park Planning Authority), the Wye Valley Area of Outstanding Natural Beauty, Special Landscape Area, Historic Landscapes Parks and Gardens, as well as a variety of nature conservation protections, including Special Protection Area, Ramsar Site, Special Areas of Conservation, proposed Special Areas of Conservation, National Nature Reserves, Sites of Special Scientific Interest and Sites of Importance for Nature Conservation. There are also many specially protected built features like Conservation Areas, Listed Buildings and Scheduled Ancient Monuments which need protecting from unsuitable development.

ii) Minimising the impact of new development on the amenity of the countryside, particularly protecting the setting of towns and villages and prominent slopes or areas visible from the main traffic arteries and tourist routes. It is also a strategic intent to avoid the coalescence of settlements, particularly in the south of the County. Many settlements, such as Chepstow and Caldicot have expanded rapidly in the past so that their urban areas now have clearly defined boundaries, and further peripheral extension would compromise protected land of acknowledged importance. Physical constraints such as the surrounding hillsides, steep sided river valleys and prominent escarpments which provide the setting for towns and villages such as Abergavenny are also considered to be overriding in determining future housing growth. The Plan's strategy is therefore that where such boundaries exist, further housing (and other) development should be restricted, as it would severely compromise the rural and historic character of the County.

iii) Limited opportunities exist to develop brownfield or 'previously developed' land for housing in Monmouthshire, reflecting the low degree of urbanisation in a rural county. Sustainable brownfield options tend to exist in urban areas adjoining the County, for example a significant number of sites exist in Newport. Where brownfield land does exist in Monmouthshire, it is not necessarily in a suitable location for development; moreover it may have become naturally recolonised or by virtue of its location may encourage unsustainable forms of development.

iv) In order to deliver sustainable development on greenfield sites in Monmouthshire, options are limited by the opportunities to extend existing urban areas, which exploit or improve existing infrastructure and services and are well served by public transport. A key settlement approach has also been necessary for villages where this will help to maintain local jobs and services and especially provide housing for local people.

4.2 HOUSING PROPOSALS / REQUIREMENTS

4.2.1 The Council does not support the old approach to meeting demand for new homes, known as 'predict and provide', in order for it to have more flexibility in moving away from the 1994 trend based projected increase in households when making provision for new housing. The Council seeks to create a more sustainable environment, more sustainable communities and reduce development in the countryside. A new settlement in Monmouthshire large enough to support a viable community with a good range of facilities would not be consistent with the sustainable objectives of this Plan. In accordance with this approach the UDP's housing requirement has been calculated by seeking to balance the limited ‘environmental capacity’ of the county against the demands for new housing.

4.2.2 The Gwent Structure Plan proposed that 5,600 dwellings needed to be built in Monmouthshire over the 15-year period between January 1st 1991 - March 31st 2006. In accordance with statutory requirements and to accord with the Structure Plan, provision for this housing was made in the Adopted Monmouth Borough Local Plan, which covers the same period (1991-2006).

4.2.3 Government advice requires that at least 5 year’s supply of housing land is provided, and therefore even at the end of the first ten years (January 1st 2006) there should still be a five year supply of housing land in Monmouthshire through to January 1st 2011. Accordingly the UDP (January 1st 1996 to January 1st 2011) incorporates the Structure Plan dwelling requirement up to 2006 and sets its own target for the five years to 2011. For the period 2006 - 2011, and in accordance with the need to balance demand with the ‘environmental capacity’ of the County, 1200 – 1500 new dwellings will be planned for (240 – 300 per year), as set out in the Development Strategy in Part 1 of the Plan.

4.2.4 Regionally, local authorities in South East Wales have established a Unitary Development Plans Liaison Group (UDPLG - now renamed the South East Wales Strategic Planning Group), in order to produce planning guidance to fill the strategic planning vacuum within the region. A comparison of the 1996-2011 dwelling requirement proposed through UDP's and other data sources with the Welsh Office's 1994 trend based household projections provides a useful baseline against which the region can measure its dwelling requirement. Although houses and households are not comparable on a one-to-one basis as normally households exceed dwelling numbers, current figures show that as a region South East Wales is planning to provide approximately 1,700 more dwellings than projected households. A similar comparison for the former Gwent area indicates approximately 3,000 more dwellings than projected households.

4.3 HOUSING LAND SUPPLY AND CONVERSION, SUB-DIVISION, INFILL & MINOR EXTENSIONS / ROUNDING OFF ALLOWANCES 1996 - 2011

4.3.1 The base date and data for the UDP are provided by the 1st January 1996 Housing Land Availability Schedule, which was compiled by Gwent County Council in accordance with Government Guidance and was agreed by the Land Authority for Wales and representatives of the house-building industry. The 100 units allocated in the Monmouth Borough Local Plan at RAF Caerwent have not been reaffirmed in Policy H1, as the MOD have decided to keep the base for military purposes. Similarly, the 240 units allocated at Woodside Usk have not been reaffirmed, as the site was dismissed by recovered appeal on Assembly flooding policy grounds. All other unimplemented allocations have been reaffirmed as they are considered to remain available and acceptable in today’s circumstances and/or have planning permission. Since 1996 the Housing Land Availability Schedules have been produced annually in line with revised Assembly Guidance in Technical Advice Note 1. Full copies of the Schedules are separately available for reference (or for purchase).

Table 4.1 Housing Sites of Ten or More Units Remaining (1st January 2003 Joint Housing Land Availability Study)

Site Ref.	Settlement	Location	No. of units
H1a	Abergavenny	2a Lower Monk Street	25
H1b		Larchfield, opposite Pen-y-fal	15
H1c		Pen-y-fal Hospital	87
H1d		Seven Corners Lane	17
H1e	Caerwent	Merton Green	70
H1f	Caldicot	Church Road	31
H1g	Chepstow	Bayfield (Phase 2 & West of A466)	181
H1h		St Lawrence Hospital	25
H1i		North of Ruffets Close	24
H1j		23 - 26 High Street	10
H1k	Monmouth	Nailer’s Lane	47
H1l		Rockfield Road	286
H1m	Portskewett	Former School site	10

4.3.2 The majority of the UDP housing target of 5000 completions 1996 - 2011 has been met by dwellings already built and plots from the 1st January 2003 Housing Land Availability Schedule, as amended (see table 4.2).

Table 4.2 Components of the Housing Target in Monmouthshire 1996-2011

		No. of Dwellings
MBLP Requirement 1991 - 2006		5,600
UDP Requirement 2006 - 2011		1,350
Requirement 1991 - 2011		6,950
Completions 1991 - 1995 (inclusive)		1,939
1/1/1996 UDP Forecast Need = 6,950 - 1,939		5,011
UDP 1996-2011 dwelling requirement (15 years)		5,011
Dwellings built 1996 – 2002 (inclusive)		2,779
Housing Land Availability 1st Jan 2003	Not Started	1,048
Housing Land Availability 1st Jan 2003	Under Construction	248
Forecast Residual Need	5011 - (2779+1048+248) = 936*

(*Noting that no allowance has been made for the 5-year supply requirement for 01/01/2011 given that i) the requirement beyond 01/01/2011 is unknown and ii) an adjustment can be made prior to 01/01/2011 if necessary in the Plan Review).

The Council considers that the residue of about 936 plots (with ‘about’ being interpreted as plus or minus 150, as stated in connection with Policy SP2) can be met by the following means:

Table 4.3 Breakdown of the Residual Housing Target

	No. of Dwellings
Conversion, sub-division, infill, minor extensions, rounding-off and windfall sites allowance	220
New Allocations	680
TOTAL	900

4.3.3 Conversion Allowance - Although the number of redundant and convertible barns, stables, churches, schools etc. in villages and the countryside is finite, it must be recognised that within the Plan area (830 square kilometres) there are still opportunities for conversions, and that demand for ‘new’ residences in the rural areas is high enough to outweigh the construction / conversion costs. The evidence suggests that further opportunities will continue to arise as additional rural buildings, not previously considered desirable, are proposed for conversion or as a result of buildings becoming surplus with the continuing decline in agriculture emphasised by both foot and mouth and BSE over recent years.

4.3.4 Sub-Divisions Allowance - The County has many substantial country properties, and significant urban areas that are characterised by large houses in spacious grounds. Projections for a continuing decline in household size and a subsequent demand for smaller dwellings suggest that many large properties may be sub-divided into flats.

4.3.5 ‘Infill’, Minor Extensions / Rounding Off Allowance - Subject to the need to protect the amenities of existing built up areas and other considerations, the fact remains that, despite tightly drawn Town and Village Development Boundaries, there are infill and specific minor extension / rounding-off opportunities, especially within the main towns; and specific minor extensions / rounding off opportunities have been identified under Policy H3. In addition, it is also considered that as the ‘environmental capacity’ for greenfield developments is limited, the commercial potential for developing other urban sites for housing will increase, such as garages, old industrial sites, vacant land and non-conforming uses in residential areas. Such infill opportunities will also arise as house builders become more adept at developing such sites.

4.3.6 Apart from the H3 allocations referred to above, the above-mentioned conversions, sub-divisions, infill and minor extensions, rounding-off and windfall allowances can be combined to give an estimated completions contribution. Analysis of such unallocated residential completions (i.e. on sites that were not allocated in the Local Plan) over the past five years 1998-2002 inclusive shows that 458 completions were achieved, i.e. 92 per annum. The supply of such unallocated sites will eventually dwindle, but for the remaining 8 years of the UDP period 1:1:03 to 1:1:11, it is assumed that the same rate will be maintained giving 8 x 92 = 736 completions. Given that the Housing Land Availability Schedule for 1st January 2003 referred to in Table 4.2 already includes 443 unallocated plots (349 plots and 94 under construction), the likely contribution of yet to be identified unallocated plots can be estimated at 736 - 443 = circa 300. It is considered prudent, however, to allow for a possible shortfall in numbers of dwellings coming forward from these sources, particularly as the Plan puts forward a more restrictive policy in relation to residential conversions in the countryside and a shortfall of around 10%, 10 dwellings per year, has been allowed for in the figures given in Table 4.3.

4.4 OTHER HOUSING CONSIDERATIONS

4.4.1 The Environment - The aim of minimising the environmental impact of new development is an overriding concern recognising the important amenity and economic benefits of protecting the countryside. Prominent slopes or areas visible from the main traffic arteries and tourist routes or adversely affecting the setting of towns and villages require to be avoided. Where possible, extensions should be of a rounding-off and unobtrusive nature – ‘ribbon’ or fragmented patterns of development would be contrary to Assembly advice and long-established planning principles.

4.4.2 Within Monmouthshire, the number of opportunities for the reuse of land for housing is limited, reflecting the low degree of urbanisation in a largely rural county. Where opportunities for the reuse of land for housing become available the Council is committed to bringing such sites forward, when considered appropriate for development. Recent examples of such “brownfield” development include the Mount Pleasant hospital site in Chepstow.

4.4.3 The Monmouth Borough Local Plan identified over 50% of its housing on previously developed sites, exhausting many of the larger site opportunities available to this Plan. Where brownfield sites are available, they do not necessarily represent the most sustainable planning option for new housing, as they may not be compatible in size or location with the existing urban form, and are better suited for uses other than for housing, or reinstatement and environmental enhancement. The Council considers that the definition of brownfield land should not only relate to previously developed land, but also to the reuse of existing buildings through conversions (which make a significant contribution to new homes in Monmouthshire).

4.4.4 Services - Many rural areas in the County already experience flooding, water supply and / or sewage disposal problems. It is possible that some small sites may prove uneconomic if the costs of water supply upgrading were to be imposed on such schemes. Alternatively their development could be phased towards the end of the Plan period by which time Dwr Cymru - Welsh Water should have undertaken the necessary capital investment.

4.4.5 Dwr Cymru - Welsh Water have informed the Council that: -
1. the following village sewer systems are overloaded (with no plans for improvement in the AMP3 2000/5 capital programme); Caerwent, Llanover, Llanellen; Pwllmeyric, Mathern, Shirenewton and Mynydd Bach, therefore, they would object to any development in advance of any remedial works;
2. Llanfoist Waste Water Treatment Works is included for improvements within the AMP3 2000/5 capital programme;
3. the Magor / Undy System is to be connected within the AMP3 programme to the South Eastern Coastal Sewer (SECS) which runs from Chepstow to Nash Waste Water Treatment Works. Magor Waste Water Treatment Works is to be abandoned and replaced with a Sewage Pumping Station that will transfer flows to the SECS. However, there are areas to the west of Magor where deficiencies exist within the existing catchment and a restriction on the timing of sewerage connections may be imposed to enable essential works to be undertaken; and
4. Broadstone, Cross Ash, Dingestow, Llantilio Crossenny, Llanvair Kilgeddin, Llanvapley, Gwehelog, Llanishen, Penpergwm, Sudbrook, The Narth, The Bryn, Tredunnock and Trellech are only partly serviced by mains drainage, which is at capacity, therefore, they would object to any proposed infill development that wished to connect into the mains drainage system.

Dependent on the exact location of the proposed development, consideration will need to be given to the possibility of an off-site sewerage connection to a point of adequacy within the system.

4.4.6 Similarly, the Environment Agency Wales has informed the Council that:

1. the Catbrook, The Narth and Trellech areas are unsuitable for foul water disposal to soakaway;
2. Parts of Monmouthshire are at risk of flooding, as indicated in the maps accompanying Welsh Assembly Government TAN15: Development and Flood Risk. An illustrative map showing the general location of these areas is included in Chapter 2 of this Plan. TAN15 advocates a precautionary approach of avoiding development in a flood plain, particularly in relation to new residential development. Policy ENV9 deals with these issues.

4.4.7 A large number of elderly or disabled people with reduced mobility wish to live in ordinary houses or apartments with flat and adequate access and close to facilities. The Council will encourage the provision of housing in a form that will facilitate this.

4.4.8 Underground Dwellings - The environmental benefits of earth sheltered and other underground dwellings are recognized. Proposals for such dwellings and others incorporating significant energy-saving measures will be welcome and be particularly favourably considered in locations where planning policy allows dwellings. However, many earth sheltered dwellings are only partly underground. Moreover, even a completely underground dwelling is likely to give rise to some visible evidence of domestic use of the site, as well as the comings and goings of residents and visitors. Proposals for earth sheltered dwellings in the countryside are therefore likely to have some adverse impact on its character and appearance as well as the aim of reducing the need to travel. Therefore a policy exception for underground or earth sheltered dwellings in the countryside is not justified, especially as it would be difficult to frame such a policy in a way that did not lead to the risk of abuse. Accordingly proposals for such dwellings in locations where conventional dwellings would not be allowed will be considered on their individual merits. Planning permission may be granted, but only if it can be demonstrated that, in the specific circumstances of the case, the benefits of doing so would outweigh any conflict with the policies and objectives of the plan and any other harm.

4.5 NEW HOUSING LAND

Site ref:	Settlement	Location	No. of units
H2a	Usk	Castle Oaks	100
H2b	Llanfoist	Gypsy Lane	90
H2c	Abergavenny	Ross Road	25-30
H2d		Seven Corners Lane	10
H2e	Caldicot	Church Road	150
H2f	Chepstow	Bayfield (phase 2)	40
H2g		Thornwell B	50
H2h	Magor	Magor West	70
H2i	Monmouth	Rockfield Road	100
H2j	Little Mill	Land adj. Saw Mill House	Less than 5
H2k	Llanishen	Llanishen	15
H2l	Penperlleni	Plough Road	15-20

4.5.1 The above sites have a total capacity of approximately 680 units and have been allocated to meet the housing target set out in the Development Strategy in Part 1 of the Plan. The major sites are within or on the edge of the main urban areas in order to limit environmental impacts and reduce the need to travel. Brownfield sites are limited in Monmouthshire and new allocations on greenfield sites have been required. Allocations in H3 villages are in locations where there are some basic facilities. Additional housing in these villages should help to sustain existing facilities, while minimising environmental impacts. Further guidance on how the Council wishes to see the major sites developed will be provided in development briefs.

4.6 TOWN AND VILLAGE DEVELOPMENT BOUNDARIES, MINOR EXTENSIONS / ROUNDING OFF AND INFILL OPPORTUNITIES

Caerwent	Llanishen	Raglan
Devauden	Llanover	Rogiet
Grosmont	Magor / Undy	Shirenewton
Little Mill	Mathern	St. Arvans
Llanarth	Mynydd Bach	Sudbrook
Llanellen	Penperlleni	The Bryn
Llanfoist	Portskewett	Trellech
Llangybi	Pwllmeyric	Werngifford / Pandy

4.6.1 Most of Monmouthshire’s settlements have expanded to clearly defined or natural boundaries because of high levels of residential development since 1961. Notwithstanding this, within the Development Boundaries for the settlements listed under Policy H3 there are still existing opportunities for new residential development over and above those sites listed under Policy H1. Some of these sites are identified on the Proposals Map Insets. Outside the town and village development boundaries listed in Policy H3 residential development proposals will be subject to the provisions of Policies H4 - H7 inclusive.

4.6.2 In drawing the Development Boundaries, the Council has sought to achieve the following aims:

(i) To include sufficient development opportunities for housing of all types (and related employment and shopping needs) to meet the UDP targets and achieve an even spread of development to include villages, having made allowance for housing provision opportunities outside of settlements from conversions, sub-divisions and agricultural workers dwellings. Leaving aside the issue of affordable housing there should consequently be no need to breach Development Boundaries to meet housing requirements, thus discouraging speculative proposals by providing a firm planning framework for residential development.

(ii) To protect the settings of towns and villages and their high quality environment for the benefit of residents, and to attract tourism and other suitable economic developments, not least by protecting the major amenity and economic asset of the countryside from unnecessary urban sprawl. For this reason, the Development Boundaries have been drawn to delimit areas within which there will be a presumption in favour of new residential development (subject to detailed planning considerations and other policies / proposals in this Plan); outside the Boundaries, policies for the ‘open countryside’ will apply. The Boundaries include most of the built-up areas including some parts of settlements, which presently have loose knit edges where spaces between buildings smooth the transition between town or village and open countryside. In such circumstances, insensitive infill could ‘harden’ the settlement edge, and by consolidating the mass of buildings greatly increase the detrimental visual impact on the setting of the towns and villages and their surrounding countryside, a problem of special concern where undesirable ribbon development is involved. In general, the Boundaries seek to ensure that development does not protrude above significant ridgelines and skylines and that protection is afforded to prominent views and the settings of attractive features such as castles and churches.

4.6.3 The 1991-2006 Structure Plan, having required that housing and associated development will generally be located within urban areas in its Policy H2, then specifies that villages "where growth is permissible" will be categorised as infill development only, or infill and rounding off or small extensions. The Gwent document goes on to state that the scale of development appropriate to a village will depend on a variety of factors such as "the form and character of the village; the quality of the surrounding landscape and the general environment; nature conservation interests; its size and recent rate of growth; the level of facilities available such as school, shop, pub, church and meeting place, capacity of infrastructure services such as water supply and drainage; the need to reduce excessive commuting; the ability of the local highway network to cope with more traffic; and the presence of suitable land for development". This approach is incorporated into the Monmouthshire UDP.

4.6.4 Having regard to Policies H1 & H3 and the aims set out in paragraph 4.6.2, there follows discussion of individual settlement boundaries and "infill" potential:

4.6.5 ABERGAVENNY - In defining the Town Development Boundary (TDB) shown on the Proposals Map the following are considered to be overriding development constraints:
The Brecon Beacons National Park - The landscape to the north and west of Abergavenny (including Skirrid Fawr) is of acknowledged national significance, including the recently designated Blaenavon World Heritage Site, and new development should avoid the vicinity of the Park Boundary.

The surrounding hills - Upward extension of the urban area onto the surrounding hills, particularly approaching the 122 metre (400 feet) contour to the north west or breaching the boundary of the railway/A465 Eastern Bypass (contiguous with the 76 metre [250 feet] contour from Pen-y-Fal to Plas Derwen, but higher between Mardy and Skirrid Fawr) would be severely detrimental to the setting of the town. The Skirrid Fach hill falls within the Vale of Usk and Monnow Valley Special Landscape Area where landscape is to be protected and conserved.

The edge of the river Usk flood plain - Much of Abergavenny, including the areas around Nevill Hall Hospital, the historic town centre and the Monmouth road, is built on gravel terraces about 9 metres (30 feet) above the River Usk flood plain. From Nevill Hall to Plas Derwen the terraces end in a steep and prominent escarpment (broken only by the Gavenny tributary valley), which faces south and west. Development on this slope would be severely detrimental to the setting of the town and its conservation area. West of Nevill Hall, views across the Usk Valley and the National Park are of particular importance to the A40 Brecon Road tourist route entrance to Abergavenny. Development on the Usk alluvial plain itself is precluded by flooding.

The Gavenny River valley - Mardy (and Northern Abergavenny) has a well-defined eastern boundary provided by the steep sided Gavenny River valley. Major extension of the built-up area down this east-facing slope would be severely detrimental to the setting of the town and would erode the important open area between residential areas and the railway / A465 to the east. Development in the Gavenny Valley itself is partly precluded by flooding problems. However, a small site (capable of accommodating 25 –30 units) has been allocated at Ross Road to the west of the Gavenny River, where there should be limited environmental or landscape impact and which is not shown to be at flood risk according to the latest Welsh Assembly Government technical advice (TAN15).

Within the TDB for Abergavenny, there exists a limited number of infill opportunities, over and above housing sites identified under Policy H1.

4.6.6 CALDICOT - Satisfactory peripheral extension of Caldicot is difficult in any direction. Tantamount to a new town, Caldicot expanded by over 2,000 dwellings between 1961 - 1981 to reach the M48 boundary to the northwest, and main railway line to the south. To the west, the town is separated from Rogiet by a most important green wedge of high quality agricultural land. The eastern edge of Caldicot is of limited suitability for development because of attractive open countryside, the Caldicot Castle Country Park, the Nedern Brook Site of Special Scientific Interest and the Conservation Area. A northern extension of the recently constructed Church Road development is allocated, however, which should not result in a significant visual intrusion in the direction of the M48 Motorway. There are unlikely to be any further opportunities for expansion around the edge of Caldicot. Infill opportunities within Caldicot are modest and largely confined to the longer established parts of the settlement.

4.6.7 CHEPSTOW - The TDB has been drawn to protect the aspects and views of Chepstow Castle and the prominent slopes down to the river Wye from any further extensions to the Thornwell area, and to protect the countryside to the west of the A466 between the M48 and Mounton Road which is a ‘parkland’ high quality landscape. The protected area is very visible from the A466, an important tourist entry into Wales and the County, and helps to create the vital ‘first impression’. Erosion of this countryside area could lead to the eventual coalescence of Chepstow with Pwllmeyric / Mathern, and would severely damage the Mathern Conservation Area which extends up to the A466 Wye Valley Road, and the defined Green Wedge (Policy C4) which extend up to Mounton Road thereby including St. Lawrence House, a listed building (formerly a Youth Hostel) which makes a major contribution to the landscape. Between the St. Lawrence Hospital windfall housing site and the Forensic Science Laboratory, is the recently constructed Bayfield site. Although part of the site forms an important backdrop to the Danes estate and is visible from stretches of the A466, its development was seen as a least damaging option in the preparation of the Monmouth Borough Local Plan, although only part of the site was allocated by the Local Plan Inspector in order to limit adverse visual impacts, particularly on the Wye Valley Area of Outstanding Natural Beauty to the north and west of Chepstow. A small extension to Bayfield is now allocated under Policy H2 that should not materially increase the visual impact of the permitted housing. Further extension, particularly over the existing ridge line to the north of the allocated site would be extremely damaging to the AONB and setting of this part of Chepstow.

To the north the town adjoins the boundary of the Wye Valley Area of Outstanding Natural Beauty. It is the view of the Council that the recognition of the special qualities of the area makes it inappropriate that any allocation of land for development should be made within that area. The Secretary of State for the Environment stated in 1982 that "Confirmation of an Area of Outstanding Natural Beauty designation order confers formal recognition by the Government that the natural beauty of the landscape in the area identified is of national importance; and that we expect this to be reflected by local authorities in their preparation of structure and local plans and exercise of development control".

Apart from existing housing commitments, Chepstow still exhibits minor infill potential.

4.6.8 MONMOUTH - Ordnance Survey Contour maps show how topography has fragmented the settlement into the town centre and distinct suburbs of Dixton / Osbaston, Wyesham and Overmonnow.

The town centre area occupies a promontory between the rivers Monnow and Wye. The TDB has been drawn tightly around this historic and conservation area core except in the Nailers Lane vicinity where a housing and redevelopment site is reaffirmed. The Chippenham recreation area is protected by its village green status whilst the Vauxhall fields, bounded by the Monnow and Rockfield Road, form an undeveloped area of amenity importance projecting into the heart of the settlement and vital to its setting and amenity.

Because residential and industrial development requirements are well catered for along the Rockfield and Wonastow roads, and infill opportunities exist, there is no need to extend the TDB to include other peripheral greenfield sites. Consequently nearly the entire boundary closely follows the built up edge around Dixton, Osbaston and Wyesham. Any further peripheral development in the Dixton area would be unacceptably damaging to the high quality landscape, which is justifiably, designated part of a conservation area, and which is topographically the western half of the renowned Wye Valley. From the A40 at this entrance to Wales and historic border town of Monmouth important views are obtainable towards the Monnow Valley Special Landscape Area and the Wye Valley Area of Outstanding Natural Beauty. New development would damage such views and the setting of the town.

Osbaston is bounded to the north by the prominent ‘green’ area that separates it from Mansons Cross - a ‘settlement’ which the Secretary of State has previously described as unsuitable even for infill development. The TDB prevents extension of Osbaston into any part of the Monnow Valley Special Landscape Area. South of Osbaston Road, a low-lying greenfield area is not prominent in the wider landscape. However its development would further overload the substandard Osbaston Road/Hereford Road junction and for these reasons the Boundary excludes the site. The significant wooded slope and open area near the Cemetery Road is also excluded.

Wyesham projects into the Wye Valley Area of Outstanding Natural Beauty, and most of its edge is coterminous with the AONB. Peripheral development into or towards the designated area would be unacceptably damaging to the nationally important landscape, the more so in the south east corner because the ground rises steeply towards the 75 metre contour at the entrance to the main Wye Valley. On either side of the Staunton Road, a prominent steep bank separates Wyesham from Hadnock Road and forms an important backdrop to the industrial area. The separate scattering of houses on the Kymin is also excluded from the TDB - further development, even of an infill nature, will not be permitted on this prominent part of the Wye Valley AONB.

Overmonnow: the settlement edge is well defined by the Portal, Wonastow and Rockfield roads, including provision for industrial and housing developments, which will extend Monmouth in the least visible direction. There is a possibility of a tourism or other development appropriate to the prominent site between the A40 and Portal roads at Pont Mahon. Substantial recent residential development has taken place in the Rockfield Road area under an allocation made under the Monmouth Borough Local Plan. An extension to this development is allocated under Policy H2 that should not materially increase the visual impact of this recent development, although further westward extension would undesirable, as it would be a very noticeable extension of the built-up area of the town into the surrounding countryside.

4.6.9 USK - Although its population is less than 2,500, the proportion of Usk's streets, scale of its buildings and range of banks and offices proclaim it as a town. The Proposals Map shows the conservation area status of much of the built-up area, and the extent of the Roman fort is partly evidenced by the designation of some undeveloped portions as a scheduled ancient monument. Concentration of development at Castle Oaks outside the river Usk and Olway floodplains enables the Council to draw a tight Development Boundary around Usk, and to exclude areas that have been the subject of recent development pressure at Woodside and Priory Gardens. The allocation of the new residential site at Castle Oaks and the corresponding extension to the Town Development Boundary has been made necessary by the lack of suitable alternative development sites around Usk. Any further extension of development in this location (apart from the small extension to the TDB on the opposite side of the Monmouth Road adjacent to Woodbine Cottage) would be seriously harmful to the setting of the town and the character of the wider SLA. The northern limit of the Castle Oaks allocation, in fact, has been set at approximately the 30 metres contour to limit its intrusive impact.

The TDB has been drawn to prevent further ribbon development along the Abergavenny Road, and prevent extensions of the settlement onto the high ground in the vicinity of the castle.

Further southward or eastward extension of the town will not be permitted - it would not be justified by housing requirements, encroach upon the Olway floodplain, and, in the case of Priory Gardens, impact on the scheduled ancient monument. Across the river in Woodside, the longstanding industrial site next to the rugby club is reaffirmed within the TDB. Because housing development requirements are fully catered for elsewhere in Usk, and because the site is an extension of a predominantly industrial area, its use for housing would not be permitted. The TDB has been redrawn on the western side of Usk, as the Local Plan allocation of 240 units at Woodside has not been reaffirmed due to the rejection of the site by recovered appeal on Assembly flooding policy grounds.

4.6.10 SUMMARY OF URBAN EXPANSION

Table 4.4 Urban Expansion 1961-2011

	Abergavenny	Caldicot	Chepstow	Monmouth	Usk	Monmouth BC/ Monmouthshire
Housing Stock 1961	3743	1033	1729	1831	604	17511
Completions 1961-96	2639	2612	2508	1897	395	15276
Housing Stock 1996	6382	3645	4237	3728	999	32787
Completions 1996-2003	332	171	490	472	66	2779
HLA 1/1/2003	174	42	294	394	15	1296
New Sites	40	150	90	100	100	680
Extra Infill	45	15	38	38	15	220
1996-2011 Completions	591	378	912	1004	196	4975
Housing Stock 2011	6973	4023	5149	4732	1195	37762
Completions 1961-2011 No. %	3230 +86	2990 +289	3420 +198	2901 +158	591 +98	20251 +116

Figure 4.1: Housing Stock Numbers in 1961 and 2011 in Abergavenny, Caldicot, Chepstow, Monmouth and Usk

In the light of growth since 1961, together with January 1996 commitments (Policy H1) and Plan proposals under Policies H2 and H3, the expansion of the five towns can be summarised as above, in Table 4.4 and Figure 4.1, with infill / sub-division capacities over and above those already identified in the January 1st 2003 HLA Schedule tentatively estimated at 15 for Usk, 15 for Caldicot, 45 for Abergavenny, 38 for Monmouth and 38 for Chepstow (for the period 2006-2011).

In overall terms, the five towns will have grown by 147% between 1961-2011. The two fastest (Chepstow and Caldicot) are predictably in South Monmouthshire, whilst Monmouth represents the average; Usk and Abergavenny will have grown least rapidly, but none of the variations in growth rates is considered significant.

4.6.11 VILLAGE DEVELOPMENT BOUNDARIES (V.D.B.’s) - Boundaries have been defined under policy H3 for twenty-four villages where significant new housing is proposed (in which case an element of affordable housing provision may be required if need is evidenced) or where such delimitations are long established. As stated in paragraph 4.6.1, in some of the villages the Boundaries have been drawn to include certain specific minor extension / rounding-off opportunities which will help ensure that the villages contribute towards the achievement of the housing target, and obviate any necessity for breaching the boundaries on housing requirement grounds. Indeed, the County's countryside is a major amenity and economic asset all of which is worthy of protection from the demonstrable harm of unnecessary extensions of built up areas. In addition to the above fundamental justification for the delineation of VDB’s, planning considerations specific to individual settlements such as important features or landscape settings in need of protection require to be mentioned in relation to infill and edge of village proposals.

4.6.12 CAERWENT - The importance of the Roman Town ancient monument is underpinned by the designation of much of the present day settlement as a conservation area and an archaeologically sensitive area. There will be a presumption against development within the town walls or in their vicinity, which might detract from or visually affect them under Policy CH14. Caerwent is already scheduled to accommodate a major new housing site at Merton Green, as part of existing commitments.

4.6.13 DEVAUDEN - This village, almost all within the AONB, has experienced rapid growth and has some infill potential. The VDB offers no opportunity for further peripheral expansion, which would harm the setting of the village, AONB and the Special Landscape Area.

4.6.14 GROSMONT - Highlighted by the writer Jan Morris as a village fully justifying its conservation area status, Grosmont exhibits infill opportunities on top of existing commitments. The VDB is consequently drawn to preclude further edge of settlement extension into the surrounding Special Landscape Area. However, the committed sites are inside the Archaeologically Sensitive Area and may contain evidence of the medieval town. Therefore, an archaeological evaluation will be required prior to the determination of any planning application.

4.6.15 LITTLE MILL - This accessible village has no statutory conservation or special landscape area constraints; although the surrounding landscape is attractive. It is considered suitable for development by way of infill and rounding off, having recently had 25 houses built at Ty Draw Lane on a rounding off site allocated in the Monmouth Borough Local Plan. A further, small, rounding off site is allocated under Policy H2, which takes the village up to the defensible boundary formed on its eastern edge by the access road to the recent housing development.

4.6.16 LLANARTH - The VDB for this attractive village includes a reaffirmed development opportunity for up to four dwellings, which will not detract from the Conservation Area.

4.6.17 LLANELLEN - Within a Special Landscape Area on the edge of the National Park, this village is visible from the A40 dual carriageway. Given that infill opportunities exist, the VDB has been delineated to prevent further expansion into the countryside.

4.6.18 LLANFOIST - Existing and proposed industrial and commercial sites between Abergavenny and Llanfoist make retention of the remaining open area separating the settlements an important consideration, especially when viewed from the A465 tourist route. South of the village, the land rises steeply towards the recently designated Blaenavon World Heritage Site and the canal tourist / recreation facility on the boundary with the Brecon Beacons National Park and, while views from this direction are an important consideration, the site allocated at Gypsy Lane under Policy H2 would be seen against the background of existing built up development and the proposed industrial site at Grove Farm. There should, therefore, be no adverse impact on the setting of the National Park. Development westwards, however, would damage the setting of Llanfoist and directly approach the National Park boundary.

4.6.19 LLANGYBI - Given the importance of views out of the attractive core of the settlement, its position within the Special Landscape Area, and its recent growth, the VDB is correspondingly tightly drawn, and the central green area of amenity importance is clearly stated as being unsuitable for development to protect the amenity of the village and to prevent unsatisfactory ‘backland’ housing.

4.6.20 LLANISHEN - Highly visible on the edge of the AONB, this ill-defined settlement has recently expanded in a number of directions. The allocation of a site for 15 houses under Policy H2 will help to achieve a sustainable settlement without harming the AONB and the re-drawing of the VDB will protect the surrounding nationally important landscape from further encroachment whilst ensuring continued housing provision.

4.6.21 LLANOVER - There is a small development opportunity where several units designed to reflect Llanover’s Conservation Area status and character of the surrounding landscape could help meet the area's housing requirements, particularly as the village is accessible.

4.6.22 MAGOR / UNDY - Given the large growth of the settlement under the village expansion scheme, the VDB has been drawn to prevent further peripheral extension to protect the surrounding countryside and the open space between the residential and industrial areas. One site is allocated under Policy H2 for residential development, at Magor West, to allow for some limited expansion of the settlement without any unacceptable adverse landscape impact.

4.6.23 MATHERN - Highly visible from the M48 and enjoying Conservation Area and Special Landscape Area status, the VDB has been drawn to allow infill development in one part of the village north of the motorway, thus protecting the heart of the old settlement around the church from further modern accretions, and precluding further edge of village expansion, especially towards Pwllmeyric or towards the M48.

4.6.24 MYNYDD BACH - The settlement is located on the edge of the AONB where protection of the green wedge separating the village from Shirenewton is paramount.

4.6.25 PENPERLLENI -. The VDB is drawn to allow for two development opportunities, in keeping with a Penperlleni’s size and location, one off Plough Lane and the other at the northern end of Capel Ed Lane (opposite Chapel Mead).

4.6.26 PORTSKEWETT - Protection of the heart of Portskewett around the church, and prevention of further extensions into the countryside clearly justify the VDB delineation. However, there is a small infill opportunity to the rear and side of the village shop on land not used by the recently constructed school site. An adjustment to the VDB on the northern side of the village also offers a development opportunity if access constraints can be overcome.

4.6.27 PWLLMEYRIC - Expanded in the 1980’s, the village is sandwiched between the nearby AONB and the Mathern Conservation Area. Therefore, any further expansion of the VDB would not be justified considering the size and location of Pwllmeyric.

4.6.28 RAGLAN - The village is very accessible and does not currently enjoy a Special Landscape Area setting, although protection of the prominent parts of the identified green area of amenity importance in the conservation area and setting of the castle are paramount in determining the line of the tightly drawn VDB, noting that a housing site has recently been built at Prince Charles Road.

4.6.29 ROGIET - Considerable housing has recently been developed at Station Road and Ifton Manor at either end of the Village. The VDB protects the green wedges between the village and the M4, M48, the railway, Caldicot and Magor / Undy. No further extension of the VDB is therefore required.

4.6.30 SHIRENEWTON - The VDB is reaffirmed to preclude further edge of conservation area / Special Landscape Area settlement development, apart from a minor extension on the eastern side of the village, which provides access to some converted barns and will not result in any encroachment into open fields.

4.6.31 ST ARVANS - This AONB and Conservation Area village has seen recent housing developments. Further significant expansion would not be necessitated therefore.

4.6.32 SUDBROOK - The VDB includes an edge of village housing site.

4.6.33 THE BRYN - Following well-defined topographical limits, the VDB has nonetheless included one small development opportunity for up to five bungalows, thereby offering the prospect of further support for the shop.

4.6.34 TRELLECH - Within the AONB, this attractive conservation area village has become a "key settlement" with its school, shop, pubs and church. The housing site to the rear of the Old Vicarage has recently been constructed. The housing site allocated in the Monmouth Borough Local Plan to the south of the village was declared a Scheduled Ancient Monument (Mm 272 MON) in July 1998 and is unlikely to be developable. A slight adjustment to the VDB to the rear of the Lion Inn, however, may offer a small development opportunity, depending on the archaeological implications of any such proposals.

4.6.35 WERNGIFFORD / PANDY - This new estate settlement attached to an older nucleus offers limited infill possibility, but should not be extended into the Special Landscape Area in the vicinity of the National Park, hence the tightly drawn VDB.

4.7 VILLAGES POTENTIALLY SUITABLE FOR MINOR INFILL RESIDENTIAL DEVELOPMENT

Bettws Newydd	Llandegfedd	Llanvapley
Broadstone	Llandenny	Llanvetherine
Brynygwenin	Llandewi Rhydderch	Maypole
Catbrook	Llandogo	Mitchel Troy
Coed y Paen	Llangattock Lingoed	Penallt
Crick	Llangwm	Penpergwm
Cross Ash	Llansoy	Penyclawdd
Cuckoos Row	Llantilio Crossenny	St. Maughan’s Green
Dingestow	Llantrisant	The Narth
Great Oak	Llanvair Discoed	Tintern
Gwehelog	Llanvair Kilgeddin	Tredunnock

4.7.1 The presumption in favour of minor infill residential development in the thirty three villages listed under Policy H4 is subject to detailed planning considerations. In essence, these will require that such development should not detract from the character of the village or surrounding area by cramming particular frontages, destroying important spaces or undesirably consolidating ribbons of housing. Subject to the above caveats, such infill potential in the rural areas will broaden the choice of housing available and, when added to the Policy H3 opportunities and barn conversions, will help ensure that the rural areas can contribute towards the County’s housing targets without detriment to the important countryside resource.

4.8 MINOR SETTLEMENTS

Bont	Llanbadoc	Parkhouse
Botany Bay	Llancayo	Penrhos
Carrow Hill	Llandenny Walks	Penyfan
Cleddon	Llangua	Rockfield
Cobblers Plain	Llangovan	Skenfrith
Cwmcarvan	Llanhennock	The Hendre
Earlswood	Mamhilad	The Kymin
Five Lanes	Mansons Cross	Tregagle
Gaer Fawr	Mitchel Troy Common	Trostrey Common
Glascoed	Monkswood	Whitelye
Itton Common	Mounton	Whitebrook
Jingle Street	Nantyderry
Kingcoed	Newcastle

4.8.1 Fifty seven settlements have been identified under Policies H3 and H4 where new housing development can take place. In order to provide firm guidance, it is equally appropriate for this Plan to exemplify certain minor settlements where further new housing is unlikely to be acceptable. The list under Policy H5 contains some better known places worthy of a brief explanation justifying their exclusion from Policies H3 and H4, over and above the fact that ample provision for rural housing has been made in this chapter. New housing (conversions, sub-divisions and replacement dwellings) in settlements not listed under Policies H3 or H4 will be subject to Policies H6, H7, H8, H10 and H13. The Policy H5 settlements can be commented on in groups as follows: -

4.8.2 Cleddon, Cwmcarvan, Mounton, Pen-y-fan and Tregagle are particularly attractive groups of buildings within the AONB where further development would be very damaging. Cobblers Plain, Mitchel Troy Common and the Kymin are prominently situated loose knit scatterings of housing within the AONB. Further "infill" development would consolidate their mass and be severely detrimental to their nationally important landscape setting. Botany Bay, Itton Common, Parkhouse and Whitelye are AONB settlements that have in the recent past experienced housing development; further new development is better directed towards the nearby villages allocated for growth under H3. The final AONB settlement worthy of mention is Whitebrook, deservedly a conservation area, where even well designed infill would damage its special character.

4.8.3 Nineteen of the settlements listed under H5 are located within Special Landscape Areas: Bont, Carrow Hill, Earlswood, Gaer Fawr, Jingle Street, Kingcoed, Llanbadoc, Llancayo, Llandenny Walks, Llangovan, Llangua, Llanhennock, Mansons Cross, Nantyderry, Newcastle, The Hendre, Rockfield, Skenfrith and Trostrey Common. As with the AONB settlements, these SLA "villages" would all be damaged by further infill housing, unnecessary as "growth" opportunities are available under H3 and H4 in a wide range of villages. In addition to the above general comments, Llanhennock, Mounton, Skenfrith, The Hendre and Rockfield are Conservation Areas, the former occupying a highly visible ridge position. Mansons Cross is an attractively scattered settlement straddling the divide separating the Monnow and Wye Valleys; the strong presumption against any further "infill" development has been endorsed by the Secretary of State who excluded Mansons Cross from the list of potential infill villages when approving the 1981 - 1996 Structure Plan. Penrhos is an attractive hamlet that offers no infill opportunities. Glascoed and Five Lanes are loose-knit settlements where to allow any infill would set precedents for numerous similar proposals which would damage both their amenities and urbanise rural communities to the detriment of the countryside.

4.8.4 Development at Mamhilad would be intrusive in the surrounding landscape, part of which lies within the National Park, and harmful to the character of the settlement and to the settings of listed buildings within it. Monkswood, although not within an SLA, has a pleasant setting and is a conspicuous straggle of houses along the main A472 route which links Usk and Little Mill; both scheduled for growth. Further housing would not be justified in Monkswood, where it would undesirably intensify a ribbon form of development along this section of the A472.

4.9 NEW HOUSING IN THE OPEN COUNTRYSIDE

4.9.1 The UDP defines 'Open Countryside' as those parts of the Plan area lying outside defined settlement boundaries or the physical boundaries of Policy H4 settlements. Isolated new houses in the open countryside need special justification. Policy H6 seeks to strictly control and reduce the environmental impact of any new dwelling in the attractive open countryside of Monmouthshire. Agricultural and forestry worker dwellings will only be permitted where there is a proven need for the worker to live at or close to his/her places of work. This is determined by the Assembly’s functional and financial tests, which are defined as follows:

• Functional test: whether the proper functioning needs the worker(s) to be available at most times, in terms of likely current or future needs.
• Financial test: where the functional test is inconclusive, this may be useful in providing evidence of the genuine nature (or not) of the enterprise.

4.9.2 Ensuring the size of the house is appropriate to the need guards against too substantial a dwelling being developed. This would not only be more difficult to assimilate in the countryside, but may also be unsuitable for the type of worker to be housed. Too substantial a dwelling is unlikely to be retained in the stock of housing available to agricultural and forestry workers in the locality, if its immediate requirement should cease. This policy helps to stop the development of unsuitable housing which would not be related to agricultural or forestry use and prevents large and substantial ‘executive’ type housing visually intruding into the countryside.

4.9.3 This policy also ensures that when special agricultural needs are accepted as justifying isolated residential development in the countryside, that the pool of dwellings so established is kept available for meeting this need. Assembly advice recommends the use of an occupancy condition to ensure the inhabitants are actually the farm or forestry workers who need to live in the location in order to be near their place of work. On this basis, planning applications to remove occupancy conditions will not be favourably considered, especially if applications for new additional dwellings in the area are still being received as evidence of continuing demand. For similar reasons, new dwellings will not be permitted where there are suitable alternatives nearby, which still enables the worker to properly perform the essential agricultural duties identified in the functional test. As an example this may include a vacant dwelling with an agricultural occupancy condition or a building capable of conversion. Planning obligations may also be used to tie a farmhouse to adjacent farm buildings or to the agricultural land of the unit, to avoid them being sold separately without the submission of a further planning application.

4.10 THE CONVERSION OR REHABILITATION OF BUILDINGS IN THE OPEN COUNTRYSIDE FOR RESIDENTIAL USE

4.10.1 The rehabilitation of former dwellings that have lost their residential use, or the conversion of redundant buildings such as churches, mills, schools and, most commonly, barns, can prove very popular for housing because of their unique accommodation and often unspoilt rural location. This high demand outweighs the expense of restoration and conversion, and thus conversions and rehabilitation of buildings in the open countryside significantly add to "new" housing opportunities in the rural areas.

4.10.2 In order not to detract from the qualities of open countryside in Monmouthshire, it is important that strict controls are applied in considering changes to residential use. The new use should be sympathetic to the rural setting in terms of the particular location, appropriate design and traffic considerations. Conservation interests may be of particular importance, as many old barns can be attractive wildlife havens. The wildlife itself may be protected by the Wildlife and Countryside Act 1981, which is a material consideration in deciding a planning application.

4.10.3 Under criterion (e) of Policy H7 the Council seeks to prevent attempts to circumvent planning controls by constructing new so-called barns, or other agricultural structures, often under permitted development rights, only for them to become redundant and a residential conversion sought; in these circumstances proposals for residential conversion will not be favourably considered. Buildings of modern construction and materials, such as concrete blockwork or portal framed buildings with metal cladding, are not considered to be suitable for residential conversion and would not comply with criterion (e).

4.10.4 Structures that require major alteration, rebuilding or significant extension because they are too derelict or small or constructed of unsuitable materials, cannot be considered under this policy, as the works involved would render them tantamount to a new building. Detailed plans will therefore be necessary to demonstrate how the buildings can be reused, with structural surveys if there is serious doubt regarding their eligibility for consideration under this conversion policy.

4.11 THE SUB-DIVISION OF LARGE HOUSES IN THE OPEN COUNTRYSIDE

4.11.1 Declining household size and the demand for smaller dwellings will lead to further schemes for the sub-division of many of the substantial country properties in the County. The new dwellings created will make a contribution towards the housing target. Policies H3, H4, H5 and H14 already favour such sub-divisions in the villages and towns.

4.11.2 In order not to detract from the qualities of the open countryside in Monmouthshire, it is important however that controls are applied in considering sub-division in the open countryside. The sub-division should be sympathetic to the building and rural setting in terms of the appropriate design and traffic considerations.

4.11.3 Car parking and service requirements must be maintained for sub-divisions in the open countryside as they would any other housing development. Such sub-divisions can result in a number of separate dwellings, and this greatly increases car parking and service requirements. It is especially important therefore that car parking and service requirements are designed sensitively so that that they do not detract from the special qualities of the areas where they are located.

4.12 AFFORDABLE HOUSING

4.12.1 It is recognised that in Monmouthshire the price of housing has risen to a level beyond that which many local people can afford. Therefore, the need for affordable housing is one of the Council’s more pressing concerns, both in urban and rural areas. Assembly policy allows the Council to include policies for affordable housing in the UDP where it has demonstrated a need through a local needs survey. Policies must indicate that the Council will seek to negotiate such provision with developers, define affordable housing and the arrangements to ensure that such housing remains reserved for those who need it. In seeking to negotiate an element of affordable housing on a site the Council will take into account: site size, suitability, the economics of provision and the availability of funding; whether there will be particular costs associated with development of the site; and whether the provision of affordable housing would prejudice the realisation of other planning objectives that need to be given priority in development of the site.

4.12.2 The area in which needs will normally be considered local will be defined by a widening cascade approach of first the housing sub-area within which the site lies, then neighbouring housing sub-areas and then the whole of Monmouthshire. The eight housing needs sub areas within Monmouthshire are as follows:

• Abergavenny Town
• Abergavenny Rural (Crucorney, Grosmont, Llantilio Pertholey, Llanarth, Llanover, and Llanfoist Community Councils)
• Caldicot Town
• Caldicot Rural (Portskewett, Rogiet and Magor with Undy Community Councils)
• Chepstow Town
• Chepstow Rural (Tintern, Devauden, Shirenewton, St. Arvans, Caerwent and Mathern Community Councils)
• Monmouth Town
• Monmouth Rural (Llangattock-Vibon-Avel, Llantilio Crossenny, Mitchel Troy, Raglan, Trellech, Goetre Fawr, Gwehelog, Usk, Llangwm, Llantrisant, Llanbadoc, Llangybi and Llanhennock Community and Town Councils)

4.12.3 The Assembly expects the adoption of affordable housing policies in UDP’s to be justified with clear evidence of local need and gives the following examples of categories of need expected to feature:
(a) existing residents needing separate accommodation in the area (newly married couples, people leaving tied accommodation on retirement);
(b) people whose work provides important services and who need to live closer to the local community;
(c) people who are not necessarily resident locally but have longstanding links with the local community (e.g. elderly people who need to move back to a village to be near relatives); and
(d) people with the offer of a job in the locality, who cannot take up the offer because of lack of affordable housing.
Other categories include first time buyers living in the area, residents in the area who are living in accommodation which is shared, overcrowded or otherwise unsuited for their needs and elderly, retired or disabled people requiring smaller or specialised accommodation who already live in the area.

4.12.4 The first wide scale housing needs survey of the old Monmouth Borough was carried out by the Rural Housing Trust in 1990, which was supplemented by the Tai Cymru - Housing for Wales ‘Housing Needs Atlas’ which was derived from the 1991 Census - Small Area Statistics. Chapman Hendy Associates carried out a second Monmouth Borough survey in 1995, which concluded that there was a significant need for affordable housing within the County, as of the existing and emerging households likely to move in the County at that time only 10% could afford some form of shared ownership and 90% could only afford to rent affordable housing. In 1997 Pengwyn Services carried out a small survey in Usk, which confirmed the Chapman Hendy Study’s assumption that housing need was going to arise from the emerging households, where young single people and couples currently living with family or friends would be requiring their own accommodation, preferably in the area in which they are currently resident.

4.12.5 The County Council’s most recent housing needs survey was carried out in January 2000 by John Herington Associates. The survey shows that, within Monmouthshire, 97% of all housing need is for subsidised rented housing although there is a small demand for low cost home ownership in the urban and rural areas. The survey shows that there is an annual demand for a realistic affordable housing target (including a tenure split based upon local need) over the period 2000 to 2005 (until the next major housing needs survey is carried out) of 79 units in urban areas (Abergavenny (100% social rent), Chepstow (100% social rent), Caldicot (100% social rent), Monmouth (92% social rent and 8% shared ownership), Magor with Undy (95% social rent and 5% shared ownership), Usk (100% social rent), Llanfoist (81% social rent and 19% shared ownership), Raglan (100% social rent) and Caerwent (100% social rent)) and 35 units in rural areas elsewhere. Further details of the survey and the considerations the Council will give to affordable housing are contained in the Affordable Housing Supplementary Planning Guidance.

4.12.6 The Council has previously released its own land for an exceptions site in Trellech and affordable housing forms part of the development of Council owned land in Abergavenny, Caerwent, Caldicot, Chepstow and Llandogo where it has been or will be developed as an allocated or infill housing site. The Council still has about 4,000 dwellings under its control; about 3,750 having been sold.

4.12.7 There are five registered Housing Associations within the County, who at the 1st April 1997 have a total of 1,044 dwellings for rent. There are three Abbeyfield Societies and Almshouses, with 38 properties. Therefore, unless more Assembly or other funding becomes forthcoming, there is likely to be an increasing shortfall in the provision of new affordable housing against projected demand over the Plan period.

4.12.8 The provision of affordable housing falls far short of the demand when taking into account the current waiting list and expected number of emerging households. This is, in part, a recognition of the limited public resources available to build affordable housing and the limited potential of shared ownership schemes. If the Council was to set its affordable housing target to reflect this demand, 100% of all new housing sites should be affordable; which would be unreasonable. Therefore, the Council has set a minimum target of 20% affordable housing on all new housing sites over 10 dwellings in urban areas and 5 dwellings in rural settlements, which is considered reasonable, as it should not affect the economic viability of the site.

4.12.9 The Council will consider all forms of affordable housing tenure and provision, but matched to local demand. Therefore, given the majority of demand is for rented properties, the Council expects that the developer will either sell (at an affordable housing land value) the affordable housing land to a registered social landlord (the Council or a housing association) who will arrange for the affordable housing to be built, or enter into a partnership scheme with the social landlord and build it themselves. Otherwise, subject to the housing needs or other survey showing that there are people with the appropriate level of income in the area, the developer can provide affordable housing for sale themselves under a “resale covenant scheme” where the purchase price is 70% of market value, the remaining 30% being managed by the developer or assigned to a registered social landlord to manage. It would be prudent for developers to design resale covenant scheme properties to the Welsh Assembly Government - Land Division pattern book, as this would allow a housing association to buy the property in the event that the property was not sold. Only those in affordable housing need, based upon a widening cascade approach of eligibility priority over time (3 months in each category) of the housing sub-area within which the site lies, neighbouring housing need sub-areas and finally Monmouthshire, can purchase such a dwelling initially and in perpetuity, but subject to limits on the maximum amount the purchaser can borrow and pay for their share of the property based upon the size of their household. On this last point the Council will use the Welsh Assembly Government - Land Division’s annual "Guidelines for Low Cost Home Ownership - Maximum Purchase Price Limits" which is based upon house prices in the County.

4.12.10 The Council welcomes pre-application discussions with developers on the likely requirements in terms of mix, tenure and layout for affordable housing on appropriate development sites.

4.13 AFFORDABLE HOUSING - RURAL EXCEPTIONS

4.13.1 Assembly Guidance differentiates between affordable housing provision in large settlements or major housing developments and the rural areas. The Assembly advises that securing an adequate supply of affordable housing for local needs can result in the release of small sites which would not otherwise be allocated for housing, within or adjoining existing villages. Where sites are released for low cost housing as an exception to normal policies of restraint it will be essential that they are fully justified in terms of local need and that such housing remains reserved for those who need it, both initially and on subsequent change of occupant. Also, these sites must meet all the other criteria against which a housing development would be judged and should not unbalance the pattern of settlements in the community. Only one such scheme has been implemented, on Council owned land in Trellech, where 6 affordable houses were built alongside the village recreation area by Charter Housing Association.

4.14 HOUSING FOR PEOPLE IN NEED OF CARE

4.14.1 The term ‘housing for people in need of care’ covers a variety of residential care facilities where the special needs of particular groups can be accommodated. This can mean disabled and elderly people or people with health problems. Such facilities can also provide services for mentally ill people, children, and mothers and babies. Sheltered housing schemes provide accommodation for the elderly with an element of communal facilities such as an on-site warden or shared garden and open space. Such provision is likely to be increasingly met by private or voluntary sector developments rather than public authorities due to financial constraints. The Council note that people in need of care are increasingly being accommodated at home. The Council support this trend and will encourage the adaptation of existing dwellings and provision of new housing in a form that facilitates it. Nevertheless, the local need for residential homes and sheltered housing schemes is likely to increase as Monmouthshire’s population is ageing; 18% of the population was over 65 at the 2001 Population Census and by the end of the Plan period this is likely to increase. However it is important that housing for people in need of care is accommodated in suitable properties and locations. The needs of ambulant elderly people will best be met by sites near to medical facilities, shops and other facilities and sites close to town centres may often be particularly suitable.

4.14.2 Tourist visitor accommodation facilities are often seen as potential residential homes, in particular, due to the comparative ease of conversion. However visitor accommodation is an important part of Monmouthshire’s tourist economy. Over 3,100 visitor accommodation bed spaces are found in the County, which contribute towards the annual tourist spend and the considerable number of jobs generated by the tourism sector. Due to the importance of tourism to the economy of Monmouthshire, viable visitor accommodation should be protected from nursing home, care home and sheltered housing development. Applicants will be expected to show that tourist accommodation is no longer a viable use.

4.14.3 The Council will also be guided as to the suitability of premises proposed as nursing homes by the Department of Social Services. Inspections are carried out by the Nursing Home Inspector’s Group. Their criteria include:

• the standards of patient’s accommodation
• how access is organised throughout the home
• arrangements for food and eating and health needs of patients

4.15 GYPSY CARAVAN SITES

4.15.1 Although local authorities no longer have a statutory duty to provide and manage gypsy sites, local planning authorities should continue to have regard for the need to provide gypsy accommodation. However regular counts of the gypsy population in Monmouthshire have shown numbers to be minimal, showing there is little need for an identified site in the Unitary Development Plan.

4.15.2 Due to the special character and appearance of Monmouthshire, the Council will exercise strict control over transit gypsy sites and temporary stopping places. The design of the whole site must be compatible with surrounding area especially where the area has special status such as the Wye Valley AONB, Sites of Special Scientific Interest and Conservation Areas. People who live on or nearby the site are entitled to the same protection from pollution, noise, disturbance or risks to health and safety as from any other form of business or commercial activity near people’s homes.

4.15.3 People who live on transit gypsy caravan sites or are staying in temporary stopping places have the same right to satisfactory environment and acceptable living conditions as people who live in permanent homes. This includes easy access to local facilities like schools and shops and the provision of on site services like water supply and electricity. Where children are likely to be living on site, adequate play space should be provided, as it would be for children in the rest of Monmouthshire. The design of the layout of the site should reflect traffic conditions, so everyone should be able to move around and near to the site with ease and without their safety being compromised. The needs of disabled and elderly people, and people with young children should particularly be taken into account in this respect.

4.15.4 Ancillary services will be needed on site for the storage of implements and machinery as well as for facilities like toilets. In order to maintain the temporary nature of the site that is in keeping with the gypsy lifestyle, these should not result in the construction of new buildings that could constitute a more permanent site and attract non-gypsy users.

4.15.5 Conditions will be attached to any grant of planning permission to ensure that the site is kept and maintained in a clean and tidy state and that only those persons who are within the legal definition of a ‘gypsy’ occupy the site. Occupation of sites may also be controlled through an appropriate management agreement. Where the site is to be used temporarily or for transitory purposes, suitable conditions will also be attached to ensure that the site does not acquire permanent use and to specify the maximum number of days for which any gypsy caravan is permitted to stay. If planning permission is granted, it is likely that the applicant will need to obtain a caravan site licence, from Monmouthshire County Council.

4.16 REPLACEMENT DWELLINGS IN THE OPEN COUNTRYSIDE

4.16.1 The replacement of existing dwellings with new dwellings in rural areas can prove very popular. However in order that the rural setting is not adversely effected and the development does not result in new housing in the open countryside, the Council will have to be convinced that the dwelling will relate to a permanent, established and continuing residential use. Where the replacement dwelling is not erected on the site of the existing dwelling, the existing dwelling shall be demolished, the rubble removed from the site and the land landscaped in accordance with a scheme approved in writing by the County Council within three months of the completion or occupation of the replacement dwelling, whichever is the sooner.

4.16.2 The original dwelling may have a positive contribution to the landscape and in these cases the desirability of retaining the character of the original building will be the main consideration. The type of buildings that are important to the visual and intrinsic character of the landscape are identified in the LANDMAP Supplementary Planning Guidance.

4.17 FLAT CONVERSIONS

4.17.1 The conversion of properties into self contained flats within town and village development boundaries can be an effective way of securing improvements of buildings. It may also contribute to the housing needs for smaller households. This, in turn, may reduce pressure for greenfield releases for future housing development. In central shopping areas, the development of flats over shops and service outlets is also likely to increase and lead to greater activity, improving the vitality and viability of town and neighbourhood centres. This can also lead to a greater presence of residents in the evening and at night, which has been identified as a method of crime prevention.

4.17.2 Some controls are required however to ensure the qualities of the primary shopping and residential areas, and the amenity of adjacent properties to the proposed conversion are not compromised. Many of the central shopping areas in Monmouthshire are in part designated as Conservation Areas and contain Listed Buildings. The special qualities of areas, which contain these designations, must be taken into account, so that their architectural and historical interest is not compromised.

4.17.3 Car parking and service requirements must be maintained for flat conversions as they would any other housing development. As flat conversions can result in a number of separate dwellings, this may increase car parking and service requirements. It is especially important therefore that car parking and service requirements are designed sensitively so that that they do not detract from the special qualities of the areas where they are located.

4.17.4 Whilst residential use is permitted, retail and service uses should remain as the primary use for the ground floor of buildings in central shopping areas. This is a traditional function of settlements in Monmouthshire, and gives a sense of identity as well as contributing to the vitality and viability of the County’s retail sector. The Council may look favourably on the conversion of part of the shop front and floorspace to an access, which would allow upper floors to be used for residential purposes. However, the applicant must show that no other form of access to upper floors is feasibly possible or desirable. Such a development would also have to comply with other policies in the UDP, such as Conservation Area and Listed Buildings policies. In addition, retail / service facilities can provide an essential focus for village social activity in particular, a loss of which is likely to be detrimental to community life.

4.18 EXTENSION OF RURAL DWELLINGS

4.18.1 Policy H15 seeks to avoid over-extension of existing rural dwellings and the adverse impact that this has on the character and appearance of the open countryside. Large-scale extensions can be particularly harmful if they result in the loss of the scale and character of traditional rural dwellings.

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