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10 Historic Environment |
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Introduction |
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10.01 |
The present environment is the product of countless natural changes, human
decisions and endeavours made over thousands of years. The evidence of this
history contributes towards an understanding of the evolution of local, social,
cultural and economic development. |
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10.02 |
Understanding and learning from history has significant tangible benefits to
both the national and local economy, as it attracts large numbers of tourists
and visitors annually. The South West is renowned for its identity,
attractiveness and sense of history. These attributes must be seen as some of
the most important local strengths that underpin our future economic prosperity. |
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10.03 |
Sedgemoor has some of the country’s most important archaeological remains. The
remnants of wooden trackways across the Levels, dating back 3,000 years, have
been discovered while there is evidence of prehistoric field systems at Brean
Down. Iron Age hillforts were built at Cannington and Brent Knoll 2, 500 years
ago. |
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10.04 |
The Roman era saw significant development within the area, particularly with
respect to exploiting the agricultural potential of the Levels and Moors and the
mineral potential of the Mendips. The Axe and Parrett Rivers were used to export
produce with places like Combwich developing as a port. |
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10.05 |
Local markets and settlements expanded throughout the Anglo-Saxon period. At
this time, much of our land was either owned by the Crown or the Church. Large
estates were developed and a Royal Palace established at Cheddar. Much of the
landscape still evident around the Quantocks dates from this period. |
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10.06 |
After the Norman Conquest, expansion continued. The Saxon hunting grounds of the
Mendips and Quantocks became Royal Forests, while the Levels and Moors became
more settled and managed. With the dissolution of the monasteries, large land
holdings came under the Crown. This instigated a period of major drainage and
land reclamation, creating much of the landscape of roads and fields present
today. |
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10.07 |
The Industrial Revolution saw the construction of canals, the railway network
and the expansion of our urban areas. Generally, the present century has only
managed to add detail to what is in effect a landscape of medieval and post
medieval character. In consequence, the District is rich in both nationally and
locally important archaeological and historical features, including:
- historic landscapes as at Halswell Park, Goathurst;
- the Ancient Woodlands of the Quantock and Mendip Hills;
- Areas of High Archaeological Potential, such as Cheddar, Axbridge,
Nether Stowey and Wedmore;
- twelve Conservation Areas, including the outstanding Heritage
Settlements of Axbridge, Bridgwater, Lympsham and Nether Stowey;
- numerous Ancient Monuments and over 1,100 Listed Buildings; and
- a wide range of outstanding examples of industrial archaeology and
buildings associated with land drainage schemes or traditional industries.
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Key Objective |
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To preserve and enhance Sedgemoor’s historic environment. To ensure that
it has a continuing role in distinguishing the District’s unique sense of
identity and place, whilst contributing toward its attractiveness as a place
to visit and to overall economic prosperity. |
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Conservation Areas and Outstanding Heritage Settlements |
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10.08 |
The Structure Plan through Policies 8-14 firmly recognises the importance of the
built heritage of the County and the strong presumption in favour of
retaining buildings and areas of architectural or historic interest and
character. The core of established control in this respect is through
Conservation Area designation and Listed Building control now consolidated in to
the Planning (Listed Buildings and Conservation Areas) Act1990. Further guidance
is contained in Planning Policy Guidance Note 15 ‘Planning and the Historic
Environment’ (1994). In accordance with the need to review and assess the
potential for Conservation Area designation, several additional areas (at
Cannington, Shapwick and Spaxton)weredesignatedin1991. Conservation Areas are
designated by the District Council. |
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Enhancement of the Built Environment |
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10.09 |
The principal statutory controls of Conservation Area designation and Listed
Building legislation, whilst ensuring the proper protection of specific
buildings, structures and areas, are only part of the necessary commitment to
conservation. The content of the legislation also imparts a duty on Local
Authorities to encourage the enhancement of historic areas, primarily through
the concentration of resources within areas of special character. Local
Authorities have an important co-ordinating role to play. They can actively
promote environmental schemes and seek a variety of sources of public and
possibly private capital to create a long-term commitment to conservation and
enhancement. Several major enhancement schemes have already been undertaken
within Sedgemoor District, chiefly centred on Conservation Areas and the
District Council wishes to see continued commitment towards such schemes. |
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10.10 |
Enhancement schemes are a fundamental means by which a Local Planning Authority
can fulfil its duty to secure the improvement of Conservation Areas. The
channelling of resources to neglected or underused areas as a catalyst to
private sector investment and confidence in the longer term is a proven and
effective policy. Whilst the structure of potential funding sources has changed
significantly in recent years, a major objective in promoting enhancement
schemes will be to seek partnership funding from such sources as English
Heritage, The Heritage Lottery Fund, The Landfill Tax Credit Scheme and private
sources. The priorities of the District Council in promoting such enhancement
schemes will be to target areas for physical and economic regeneration, which
can be a powerful form of public policy. |
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10.11 |
A commitment to enhance the environment around St Mary’s Church was established
in the Bridgwater Central Area Local Plan. Extensive repaving and other
enhancement works have since been completed within the churchyard. Further
enhancement works in St Mary Street would considerably improve the environment
of this street, yield greater benefits from the investment already made in this
part of the Conservation Area and contribute towards the Bridgwater Town Centre
regeneration initiatives. These proposals will require to be considered within
the traffic management proposals for the Town Centre. Any proposals for the
enhancement scheme for St. Mary Street, Bridgwater will be subject to public
consultation. This will include the implications for vehicular access and
servicing. |
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POLICY HE1
New development in a Conservation Area should preserve or enhance the character
or appearance of the designated area. |
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10.12 |
New development outside but adjacent to a Conservation Area, which would affect
its setting, should also preserve or enhance that area. |
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PROPOSAL HE2
An enhancement scheme will be carried out at St Mary Street, Bridgwater, as
defined on the Proposals Map (Link
to Map 1a Central). |
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Demolition within a Conservation Area |
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10.13 |
The purpose of Conservation Area designations is to protect areas of special
character. There is no standard definition as to what constitutes character and
there is certainly no requirement that designated areas should be centred on
Listed Buildings, although many are. Proposals involving alterations or
demolition of Listed Buildings are controlled through the relevant legislation.
However, it is very often the special quality and character of areas which is
afforded by the contribution made by trees, materials, groups of buildings and
the spaces between them. Conservation Area legislation consequently recognises
that demolition of unlisted buildings within Conservation Areas can have a
dramatic effect upon character. It is therefore, a requirement that Conservation
Area Consent is needed for most demolition proposals within designated areas.
The Local Plan will have full regard to the operation and interpretation of this
legislation. |
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10.14 |
Policy HE3 is intended to safeguard those buildings which make a contribution to
the character of a Conservation Area, having regard to the age and condition of
the building and the nature and desirability of redevelopment proposals. Where
redevelopment is acceptable, the Council may require to be satisfied that the
scheme will proceed before granting Conservation Area Consent for the demolition
of the existing structure. The District Council has secured funding from the
Heritage Lottery Fund for a major Townscape Heritage Initiative for Bridgwater
Town Centre. |
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10.15 |
The legislation as defined does not specifically include control over
alterations to unlisted buildings in Conservation Areas (unless planning
permission is required). Some alterations, however, can have a very damaging
impact upon character of the buildings and area (such as unsympathetic changes
to roof materials, alterations to windows, painting of stone or brick walls,
etc). Where such problems are identified the District Council will consider
exercising its power to make Article 4 Directions to remove defined categories
or permitted development. |
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POLICY HE3
Proposals involving demolition of unlisted buildings in a Conservation Area will
only be permitted if all the following criteria are met:
a) the structure to be demolished makes no positive contribution to, or has an
adverse impact upon, the character or appearance of the area;
b) redevelopment proposals for the site provide for the preservation and/or
enhancement of the character, appearance and setting of the Conservation Area;
and
c) having regard to a) and b), a contract has been let for the construction of
the replacement structure. |
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Development Proposals in Conservation Areas |
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10.16 |
Conservation Area designation in itself does not preclude new development or
change carried out in a sensitive and appropriate manner. Nor does designation
imply that new development is undesirable, although it is expected that new
buildings and structures should positively enhance the character or setting of
the Conservation Area. There are no pre-determined design approaches which can
be prescribed for new forms of development. What may be appropriate on a
particular site may be wholly undesirable on another, even within the same
Conservation Area. It is therefore important, that careful consideration is
given to architectural solutions whether or not in conjunction with demolition
proposals. |
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10.17 |
The most important consideration is the impact of the development proposal on
the character and setting of the Conservation Area. The factors which will
comprise the context to the site and the wider area will vary between different
sites in the same Conservation Area and of course, between Conservation Areas.
Policy HE4 below is, therefore intended to provide guidance for the
consideration of all new development proposals in Conservation Areas and will be
operated in association with
Policy BE1 relating to Design Statements. |
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10.18 |
All development proposals within or affecting a Conservation Area will merit
particularly detailed scrutiny. The District Council will encourage the
submission of ‘full’planning applications rather than applications in ‘outline’
form. Where an applicant is seeking to establish the principle of development
the District Council is likely to require the submission of substantially more
detailed information than might normally be necessary. Such outline applications
may be refused if there is insufficient information to satisfy the Local
Planning Authority that the proposal will not adversely affect the character of
the Conservation Area. |
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10.19 |
The District Council has published an appraisal and audit of Sedgemoor’s
Conservation Areas (“The Conservation Areas of Sedgemoor” 1993). |
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POLICY HE4
Proposals for development in Conservation Areas (and those outside an area which
would affect its setting) will only be permitted if all the following criteria
are met:
a) the proposal’s scale, form, materials and detailing respects the character of
the built context of the site;
b) the proposed plot coverage is in keeping with the site’s surroundings;
c) significant boundaries, open spaces, trees and other landscape features, and
other details which contribute positively to the character, townscape or
historic interest of the area are identified, retained or enhanced; and
d) important views within, into or out of the area are protected or enhanced. |
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Buildings of Architectural or Historic Interest |
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10.20 |
The statutory lists of buildings of Special Architectural or Historic
Interest (compiled by the Secretary of State) are the cornerstone of
government policy for the protection of historic buildings. Following the
national re-survey in the 1980’s the total of Listed Buildings in the District
now exceeds 1,100. |
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10.21 |
The fundamental concern of national and local planning policy is to protect and
maintain the stock of historic buildings, to encourage their repair and to make
further funds available towards the costs of necessary repairs and restoration.
In conjunction with other conservation policies, environmental and enhancement
schemes, the achievement of conservation objectives can be a significant source
of tourist revenue and local economic development. |
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Retention of Listed Buildings |
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10.22 |
The above policy is essentially aimed at Listed Buildings. It has been the
practice of the District Council for several years to make funds available with
which, to assist repair and restoration work to historic buildings when
resources permit. Established criteria exists for determining priorities for
assistance amongst completing claims relating to the historic/architectural
qualities of the building and the likelihood of repairs being undertaken without
the use of public funds. Assistance is normally subject to the property being in
residential use. It is also subject to a financial means test. Wherever
appropriate, the District Council will also guide owners to other possible
sources of financial assistance and advice such as the County Council and
English Heritage. |
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10.23 |
In the event of a Listed Building of acknowledged quality falling into
disrepair, with little prospect of restoration being undertaken, the District
Council can serve a Repairs Notice which, may lead to the building being brought
into public ownership for the purposes of achieving adequate repairs. The
Council will also co-operate, as necessary, with other restoration agencies such
as the Somerset Historic Buildings Preservation Trust. Particularly where this
might secure a future for an important building at risk and help contribute
towards enhancing an area of denuded townscape or assist economic regeneration
objectives. |
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POLICY HE5
The repair and conservation of Buildings of Architectural or Historic Interest
will be encouraged. |
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Change of Use of a Listed Building |
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10.24 |
Whilst the majority of Listed Buildings in the District are in residential use,
there are often pressures to change their existing use either wholly or partly.
This is often so in the historic cores of settlements (particularly Town
Centres), where there are changing commercial pressures. The Council recognises
the need for buildings to adapt to different local circumstances and economic
uses. The essential consideration is to ensure that Listed Buildings are well
maintained and repaired thus preserving their architectural and historic
interest. Given other policies of the Local Plan, for the location of various
uses, the Council attempts to be as flexible as possible in permitting changes
of use to Listed Buildings. Although the original uses are very often the most
appropriate. However, there must be a particular regard to proposed physical
alterations relative to the architectural integrity of the building. |
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10.25 |
Applications should incorporate details of all proposed alterations to the
building (internally and externally and to its curtilage) to demonstrate their
effect on its appearance, character and setting. |
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POLICY HE6
A change to an alternative, appropriate use of part, or the whole, of a Listed
Building will be permitted if its character and features of architectural or
historic interest would be preserved, enhanced or restored. |
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Extension or Alteration of a Listed Building |
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10.26 |
Alterations which would affect the character or appearance of a Listed Building
require the prior grant of Listed Building Consent. Even relatively minor but
insensitive works can severely damage the historical or architectural integrity
of a building or structure. In considering applications involving alterations or
conversion of Listed Buildings, the Local Planning Authority will need to be
satisfied that proposals accord with the general guidance of Structure Plan
Policy 9 and PPG15. This requires development proposals to protect the setting,
character or appearance of all Listed Buildings and Conservation Areas. |
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10.27 |
In some circumstances, proposed alterations to a Listed Building may involve a
complex package of measures. In order to fully assess the impact of the
proposals, the Council may require the preparation of a building appraisal. This
will need to demonstrate how the detailed physical proposals address the
character of the building and contribute towards its special architectural or
historic interest. |
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POLICY HE7
Development involving proposals to extend or alter a Listed Building (or part of
a building) internally or externally, will not be permitted unless:
a) it would preserve or enhance the character and setting of the building or a
Conservation Area;
b) it would preserve any features of special architectural or historic interest;
and
c) it is sympathetic in design, historic form, scale and materials with other
parts of the building.
In appropriate cases, the District Council will require the recording of
features of interest that would be destroyed in the course of works for which
consent is being sought. |
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Demolition of Listed Buildings |
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10.28 |
The policy stance relating to demolition proposals for Listed Buildings
is clear and straightforward. There is a firm presumption in favour of retention
of a building and the exploration of every possibility for repair, restoration
and an appropriate alternative use. |
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10.29 |
The policy below sets out the criteria on which applications for
demolition will be determined.
Where consent is granted for the demolition of a Listed Building owners are
required, under the relevant legislation, to make provision for the prior
recording of the building or structure. |
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POLICY HE8
There is a presumption in favour of the preservation of buildings listed as
being of special architectural or historic interest. Consent for demolition will
only be granted in exceptional circumstances, having regard to:
a) structural condition;
b) physical and financial feasibility of repair and economic reuse;
c) satisfactory evidence of attempts at disposal on the open market where
appropriate;
d) the importance of the building in terms of architectural merit, setting and
historic interest;
e) the acceptability of redevelopment proposals for the site; and
f) circumstances where major benefits can be demonstrated that cannot be
provided by other means;
g) in appropriate cases the District Council will require the recording of
features of interest that would be destroyed in the course of work, for which
consent is being sought.
The District Council will exercise, where appropriate, its power to impose a
condition on Listed Building Consents to prevent their implementation until a
contract has been let for the approved replacement structure. |
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Archaeology |
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10.30 |
The District has a wealth of archaeological areas and buildings. Many of
these sites are of national importance and some are protected as Scheduled
Monuments where the issue of development is a matter for the Secretary of State
(in consultation with the Local Planning Authority).
Scheduled Monuments notified at the time of preparation of the plan are
indicated on the Proposals Map. |
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Archaeological Sites of National Importance |
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10.31 |
Archaeological remains are irreplaceable and PPG16 (Archaeology and
Planning) advises that where development proposals would affect nationally
important remains, whether scheduled or not, there will be a presumption in
favour of the physical preservation of the remains. However, applications will
be weighed against the national need for, or importance of, the proposed
development. |
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10.32 |
In cases where development is permitted, mitigation strategies through
the application of appropriate conditions on planning consent will be carried
out. The mitigation strategy will cover preservation of the remains in situ or,
where this
is not possible, the recording or excavation of the site before the commencement
of and/or during, building works. |
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POLICY HE11
There will be a presumption in favour of preservation in situ of nationally
important archaeological sites, whether scheduled or not. Planning permission
will not be granted for development that would damage or destroy these sites or
their settings unless the importance of the proposed development outweighs the
national significance of the remains. In that event, mitigation strategies
should be in place for the protection and recording of the site. |
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Other Archaeological Sites and Areas |
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10.33 |
Archaeological sites that are not identified as nationally important also
require protection from development. Such locally important sites include sites
of county importance and often lie within areas of high archaeological
potential, both of which are shown on the proposals map. Known sites are listed
in the Historic Environment Record (HER) maintained by the County Council.
Knowledge of the relative importance of the sites recorded in the HER and the
definition of their boundaries is often imperfect. Furthermore, the sites are so
numerous that it would not be practicable to show them on the Proposals Maps,
other than in a generalised manner. Developers should consult the County
Archaeologist for further and updated information. |
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10.34 |
Areas of High Archaeological Potential are shown on the Proposals Map and
cover areas where archaeological remains are likely but have not yet been
identified. Most of these cover the historic cores of settlements. |
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10.35 |
It is important to ensure that, where development is proposed on these
sites and in these areas, a sufficiently detailed analysis is undertaken to
determine the presence, nature and character of remains. The County
Archaeologist can advise on the need and nature of this work which shall be
carried out by the developer. |
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POLICY HE9
Where development proposals will affect Areas of High Archaeological Potential
and elsewhere where there is reason to believe that there may be archaeological
remains, an assessment of the nature, character and
importance of the site will be sought prior to the determination of any planning
application. |
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10.36 |
As with sites of national importance, preservation of locally important
sites will be the preferred option when considering applications that could
affect them. However, the importance of the development should be weighed
against the local significance of the remains and the amount of damage to be
caused. If planning permission is granted it will be conditional on the
developer to provide appropriate archaeological excavation (and/or recording) of
those parts of the archaeological remains that will be damaged. |
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POLICY HE12
Planning permission will not be granted for development which would damage or
destroy locally important archaeological remains, unless the importance of the
development outweighs the local significance of the remains. Where physical
preservation in situ is not possible, mitigation strategies will be required for
the protection and/or recording of the site. |
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Management and Interpretation of Archaeological Sites |
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10.37 |
The development of facilities that promote understanding, interest and
interpretation of local archaeology is an important part of the overall
protection and enhancement of the history and culture of the District. There is
considerable scope to provide for the development of further interpretation at
selected archaeological sites. This would add to the educational and
recreational resources of the area for the benefit of residents and visitors.
The County Council has already carried out or been involved in a number of
schemes of archaeological rescue and interpretation throughout the County
including, industrial artefacts and buildings. Where possible the District
Council will assist in the promotion of appropriate projects in liaison with the
County Council (Somerset Heritage), the Somerset Industrial and Archaeological
Society and other bodies with similar interests. |
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POLICY HE13
Where development is proposed in the vicinity of important archaeological sites,
consideration should be given to the promotion of schemes for their management,
interpretation and public access. |
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Historic Landscapes |
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10.38 |
To some extent, many parts of the landscape of the District are of
historic significance and the approach of the Local Plan will generally be to
strictly control development to that which, justifies an appropriate
countryside location.
Consideration of all proposals will be informed by the District Landscape
Assessment that is partly intended to promote necessary development which, is
locally distinctive to its context and at the same time protects and enhances
landscape character. |
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10.39 |
In addition, the District currently contains two areas registered by
English Heritage as areas of historic landscape at:
a) Goathurst: Halswell Park (Historic Park and Garden); and (Link
to Map 28)
b) Westonzoyland: Site
of Battle of Sedgemoor (Historic Battlefield) (Link
to Map 53).
These sites are of national importance as historic landscapes and Policy 10 of
the Somerset Structure Plan requires that, development proposals which affect
these two sites should take account of their impact on the character of the
landscape. In addition, because of the particular importance of these sites, it
is proposed that more detailed policy protection be provided in the Local Plan.
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10.40 |
It is not anticipated that additional historic landscape notifications
will be made during the Plan period, but this policy would also apply to any
possible future registrations. Also, whilst designation can take place outside
the Local Plan process, the Council will consider, (in consultation with English
Heritage) Conservation Area status for Halswell Park. |
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10.41 |
During the life of the Plan the County Council, in conjunction with
English Heritage, will be carrying out a Historic Landscape Assessment of the
county. This survey will identify and characterise the principal components of
the historic landscape of Sedgemoor. |
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POLICY HE10
Development which would harm the historic structure, character, principal
components or setting of historic landscapes, parks and gardens and battlefields
on the English Heritage Register and of local interest will not be permitted. |
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