Areas of Outstanding Natural Beauty (Hansard, 29 July 1982)

§ Mr. Heseltine

The Countryside Commission's policy statement on areas of outstanding natural beauty reflects the outcome of the first major appraisal of AONBs since designation began in 1956. In arriving at its conclusions the commission considered evidence from several sources, principally the wide-ranging response to its own discussion paper published in 1978, and the findings of the two-year study by Mr. Kenneth Himsworth of the effects of designation on individual areas. The exercise has focussed attention on a key part of our landscape designation system, and I congratulate the commission on the thoroughness of its approach.

It is clear from the commission's work that AONBs have gained a wide measure of public acceptance over the past 25 years, although there is a difference of opinion on the need for further designations. For its part, the commission has said that it proposes to continue with its designation programme in those six areas where the procedure has already begun, and orders designating three of these areas, in addition to one designating the North Pennines area made earlier, are now before us in accordance with the statutory procedures.

In the case of six proposed areas where procedures for designation have not started the commission will now re-examine whether there is a case for proceeding. And it is being invited to review the boundaries of some of the 33 AONBs already designated.

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Objectives

The Government believe the present legislation governing the aims and administration of AONBs provides a sound basis for the further development of policies towards them. Like the commission, we consider that the conservation of natural beauty should continue to be the primary object of such policies. Furthermore, the Government also endorse the commission's reminder that the latter should have full regard to the economic and social well-being of those areas. They take the view that recreation should not be an objective of the designation of AONBs, but that these areas when designated should be used to meet the demand for recreation so far as that is consistent with the conservation of natural beauty and the needs of agriculture, forestry and other users.

Joint Advisory Committees

As the commission points out, the boundaries of most AONBs cross those of several district councils and in some cases county councils. This is a potential obstacle to the development of co-ordinated policies at local level for such areas. The Government therefore welcome the commission's proposal to encourage establishment of further joint advisory committees for those AONBs, bringing together local authorities, amenity groups, and land use interests. The Government also believe it would be a useful step forward if, as the commission recommend, local authorities were to agree on the identification of an officer in each area to have general responsibility for AONB matters, but this must depend on the availability of staff resources.

Planning, Management, Development Control

Confirmation of an AONB 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. Though development plans must remain the definitive means of setting out local policies for the development and other use of land, the Government believe that the "statements of intent" for AONBs which the Countryside Commission have encouraged authorities with such responsibilities to prepare, can, taking account of their special needs, be a worth while, informal aid to the planning and management of these areas. We have noted the commission's advocacy of the preparation of management plans for some areas. The Government accept that it may sometimes be useful for local authorities to play an active role in seeking to resolve conflicts of interest against the background of statements of intent, and consider that their existing powers are adequate for this purpose.

Major development

The Government agree with the commission's view that, in general, it would be inconsistent with the aims of designation to permit the siting of major industrial and commercial development in AONBs. Only proven national interest and lack of alternative sites can justify any exception. But each individual case must be determined on it merits—that is a fundamental rule or our planning system. We believe the environmental effects of new proposals should be a major consideration in all such circumstances.

In the case of the extractive industries it is a fact of geology that many deposits occur in some of the more beautiful parts of the countryside. We cannot dispense with these essential sources of supply; however, the 709W Government believe that applications for substantial new mineral workings, or extensions to existing workings, in AONBs as well as in national parks, should be subject to the most rigorous examination.

A similar dilemma arises in respect of proposals for new road construction. Many existing trunk routes pass through AONBs and often there is little scope for developing alternative routes elsewhere. Some improvements may be essential—new bypasses, for example, to relieve the pressure on towns suffering severe disturbance from heavy lorry traffic. The methods of assessment used to appraise trunk road proposals already take account of the impact on the landscape, but schemes which affect AONBs will be examined with particular care to ensure that a new road is needed and that the route has been chosen to do as little damage to the environment as practicable.

Minor industrial development

In the AONB context the commission draws a distinction between the scope for large and small scale industrial development, and the Government endorse this approach. Modern agriculture is capital intensive and can no longer be looked to as a major source of employment in rural areas. Small industries have a vital role to play here, and the Government's wish to encourage such activities was stressed in a recent circular issued jointly by my Department and the Welsh Office. There may be opportunities for small businesses to take over existing premises—redundant farm buildings, for example—and we believe that, subject to certain safeguards, such opportunities should be seized. Where new building is required in a AONB the Government expect such development to be in sympathy with the architecture and landscape of the area.

Agricultural Operations

The Commission recommends that the special consultation procedures and safeguards for conservation provided under the farm capital grant arrangements operated in England by my right hon. Friend the Minister of Agriculture, Fisheries and Food, and in Wales by my right hon. Friend the Secretary of State for Wales should be extended to include AONBs as well as the present coverage of national parks, national nature reserves and sites of special scientific interest. The effect of modern agricultural methods on the traditional appearance and composition of our countryside is an emotive issue which provokes widespread controversy. In their initial proposals for the revised capital grant schemes introduced in October 1981, my right hon. Friends included AONBs in the procedures then foreshadowed. But following careful consideration of comments received during that consultation process, and having regard to the implications for local authority manpower resources, the Government concluded that the scope of the proposed arrangements should not, in the event, extend to AONBs. The evidence which has accumulated so far suggests that the present arrangements are working satisfactorily, and it is too soon, we believe, to consider revising this policy. However, my right hon. Friends, in accordance with the duty laid on all Ministers, Government Departments, and public bodies by section 11 of the Countryside Act 1968, will continue to have full regard to the importance of conservation when considering all applications for grant, and will make provision for giving conservation advice to persons carrying on agricultural businesses as required by section 41(1) and (2) of the Wildlife and Countryside Act 1981.

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Finally and more generally, it must be stressed that the prime responsibility for the day-to-day administration of AONBs rests with the local authorities concerned. Rightly, the commission's proposals focus on the importance of their role, and the scope for early implementation of some of the present recommendations will depend on the extent to which authorities can take action within planned future levels of resources availability. Equally the commission's own resources are constrained. But I am confident that their statement provides a sound general framework for future action; and I am pleased to place on record both the Government's recognition of the important part already played by AONBs in conserving our natural heritage, and our continued commitment to their safeguarding in the years ahead.