Chapter 8 - Coastal Planning Zone

8.1 In recognition of the importance and distinctiveness of the Denbighshire coastline, and broadly in line with Planning Policy Wales (2002) the UDP adopts an area based policy approach comprising a coastal planning zone.

8.2 The coastline is dynamic, being shaped by powerful natural processes but is also very fragile, being susceptible to change. It is a complex physical, landscape, ecological, recreational and economic resource and is subject to a huge range of uses and pressures including ports, industry, tourism, leisure, fishing, raw material extraction, power generation and pollution. Additional concerns about rising sea levels and the need for redevelopment to be sustainable are focusing increased attention on the special value of the coast.

8.3 A complex and fragmented legislative and administrative framework and responsibility combined with the above makes the coast difficult to plan for and manage. The identification within the UDP of a coastal zone on the proposals maps and formulation of specific policies and proposals in the Written Statement will greatly assist in addressing the issues involved with the coast.

8.5 The coastline of Denbighshire is a relatively short 13 km (8 mile) stretch but is extremely rich and varied in its nature. The main elements are:

8.6 Much of the developed coastline is of great value to the tourism economy with parts being subjected to great visitor pressure. Other parts are equally valued for the open character of the landscape and their nature conservation or scientific value. In the past the Denbighshire Coastline has suffered from development pressures which have led to excessive and poor quality forms of development, most notably static caravans. The coastal strip is low lying and parts have suffered from tidal flooding. It is necessary to maintain effective coastal defence measures which work with and not against natural physical processes.

8.7 The Denbighshire coastline falls within the Great Orme to Solway Firth Coastal Cell No 11 (the coastline of England and Wales is split into 11 coastal cells, based upon sediment transport pattern and units) within which a number of relevant authorities and organisations are involved. The coastal planning zone approach adopted in the UDP takes into account the emerging Conwy County Borough Council UDP coastal policies, the Dee Estuary Strategy, Clwyd Catchment Management Plan and Liverpool Bay Shoreline Management Plan.

8.9 The role of the planning system is generally to reconcile development requirements with the need to protect, conserve and, where appropriate, improve the landscape, environmental quality, wildlife habitats and recreational opportunities of the coast.

8.10 Planning Policy Wales (2002) states "Local Planning authorities should clearly establish what the coast means for them and develop, or apply, specific policies which reflect the characteristics of their coastlines. In doing so, local planning authorities should acknowledge the inter-relationships between the physical, biological and land use characteristics of their coastal areas and the likely effects of climate change. This will enable local planning authorities to identify those areas likely to be suitable for development, those subject to significant constraints and those considered unsuitable for development. Areas subject to constraints or considered to be unsuitable for development may include those where conservation or enhancement of the natural and historic environment requires development to be limited, where visual intrusion will need to be carefully considered and where there may be risks of erosion, flooding or land instability. In other areas the economic potential of the coast may be unlocked in a sustainable manner".

8.11 In respect of development plans, national planning guidance puts forward the following principles and key points:

8.13 A coastal zone extends seaward and landward of the coastline. Its limits are determined by the geographical extent of coastal natural process, human activities and legal criteria resulting in possible variations in interpretation. For planning purposes the seaward limit of the coastal zone is generally the mean low water mark, below which local planning authorities have no powers to control the development and use of land. The landward limit will depend upon the extent of direct maritime influenced and coast related activities. Land use planning has no influence or control on water based activities, except when they involve the development and use of land and buildings.

8.14 Following an analysis of the coast in the light of planning policy and other guidance, the coastal zone for Denbighshire includes:

8.15 It must be noted that within the coastal planning zone, coastal planning and management are not synonymous. Planning relates to the operation of the statutory planning system. This legislation clearly defines a narrow role for planning as the coastal zone is concerned with the development and use of land. Management involves matters not necessarily concerned with land use, arising from other local authority functions and powers or activities controlled by other bodies.

8.16 This function will principally be carried out by Denbighshire County Council Countryside Services and Consultancy Services. A "Countryside Strategy" has been produced which provides a basis for enhancement and management as well as assisting in the implementation of UDP policies.

8.18 Policies generally have a positive effect on the environment of the Coastal Planning zone (CPZ). However, it must be noted that many other policies and development proposals outside but particularly adjoining the CPZ may have environmental implications. Whilst a key principle is ensuring public access to and within the CPZ this may have to be restricted in areas with sensitive landscape, nature conservation or physical processes.

WITHIN THE COASTAL PLANNING ZONE (CPZ), DESIGNATED ON THE PROPOSALS MAP, DEVELOPMENT WILL ONLY BE PERMITTED PROVIDED THAT:

i) IT IS ESSENTIAL FOR THE DEVELOPMENT TO HAVE A COASTAL LOCATION;

ii) IT DOES NOT UNACCEPTABLY HARM;

a) THE TOWNSCAPE AND OR LANDSCAPE VALUE, CHARACTER AND APPEARANCE OF THE COAST;

b) THE SCIENTIFIC, HISTORIC OR NATURE CONSERVATION VALUE OF THE COAST;

c) NATURAL OR PHYSICAL COASTAL PROCESSES.

WITHIN THE OPEN AND UNDEVELOPED SECTION OF THE CPZ, THE PRIMARY CONSIDERATION WILL BE THE PRESERVATION AND ENHANCEMENT OF THE COASTAL LANDSCAPE CHARACTER AND ITS FEATURES. DEVELOPMENT WHICH DETRACTS FROM ITS LANDSCAPE VALUE WILL BE RESISTED AND ANY DEVELOPMENT PERMITTED WILL BE REQUIRED TO MEET THE HIGHEST STANDARDS, AVOIDING HARM TO BOTH NEARBY AND DISTANT VIEWPOINTS.

The Denbighshire coastline can be divided into developed and undeveloped sections, the boundary between which will generally be marked by development boundaries.

In the undeveloped parts of the coast it is essential that the open character of the coastline is protected. Only in cases where a coastal location is essential will development be appropriate, provided that landscape, nature conservation and natural coastal processes and factors are considered. Examples of development which might be acceptable within the undeveloped coast include low-key tourism and recreational facilities or attractions where any built development is kept to a minimum and is acceptable given the character of the locality.

Although part of the CPZ falls within development boundaries, new development will still need to prove that a coastal location is essential. Examples of acceptable development will include tourism attractions and infrastructure, recreation and leisure activities and other marine related uses and developments. The impact of development especially at the edge of the developed area on landscape, nature conservation and natural coastal process will require careful consideration.

The CPZ boundary has been drawn so as to relate to the extent of direct maritime influences and to follow clear physical boundaries. In certain instances there will be areas outside the CPZ which are the subject of either indirect maritime influences or at certain times of the year, direct coastal influences. This is particularly true of the low - lying fields either side of the Clwyd Estuary being an important feeding ground for birds both in the winter and during high tides. This area, which is also a wildlife site, will be treated as a buffer zone to the CPZ wherein the impact of development or land use proposals will be carefully assessed in terms of their impact on the Coastal Planning Zone and any wildlife or nature conservation interests.

DEVELOPMENT IN THE COASTAL PLANNING ZONE (CPZ) WILL BE CAREFULLY ASSESSED TO ENSURE THAT:

i) THE STANDARD OF DESIGN AND MATERIALS TAKES ACCOUNT OF THE EXPOSED MARINE ENVIRONMENT AND THE CHARACTER OF ITS SURROUNDINGS;

ii) PROVISION HAS BEEN MADE WITHIN THE SITING, LAYOUT, DESIGN AND LANDSCAPING OF DEVELOPMENT TO CONTROL WIND BLOWN SAND;

iii) PROVISION HAS BEEN MADE FOR THE CONTROL OF LITTER AND WASTE;

iv) PROPER PROVISION HAS BEEN MADE FOR SURFACE WATER DRAINAGE;

v) THE SITING, LAYOUT AND DESIGN OF DEVELOPMENT MAKES PROVISION FOR WIND SHELTERS, SUN TRAPS AND VIEWS, BOTH DISTANT AND NEARBY;

vi) PROVISION IS MADE, AS FAR AS POSSIBLE, FOR ALL WEATHER USE, THROUGH CANOPIES AND COVERS;

vii) PROVISION HAS BEEN MADE FOR THE LIGHTING OF PUBLIC AREAS;

viii) PROVISION HAS BEEN MADE FOR SIGNAGE APPROPRIATE TO THE CHARACTER OF THE SURROUNDINGS;

ix) PROVISION HAS BEEN MADE TO MAXIMISE THE MOVEMENT, CONVENIENCE AND SAFETY OF PEDESTRIANS, CYCLISTS AND PEOPLE WITH DISABILITIES (INCLUDING THE PROVISION OF STREET FURNITURE) AND ACCESS TO THE BEACH / SEA.

Due to the marine influences and unique nature and appearance of the CPZ, careful attention needs to be paid to new development. Whether the upgrading of existing facilities, or the development of new tourism infrastructure and attractions, it is important that they are acceptable in visual terms and relate well to other buildings and attractions.

Particular attention must be given to the space around and between buildings and the design and layout of car parking and service areas. The siting, layout, design and landscaping of new development is crucial given the exposed marine environment and the need to extend the holiday season by providing wet weather protection. By paying attention to such details, the environment of the coastal planning zone and its enjoyment can be considerably enhanced.

DEVELOPMENT ALONG THE RHYL AND PRESTATYN SEAFRONT WILL BE PERMITTED IN THE FORM OF:

i) TOURISM AND RECREATION FACILITIES AND ATTRACTIONS;

ii) IMPROVEMENT TO EXISTING OR NEW INFRASTRUCTURE;

iii) IMPROVEMENT TO THE ENVIRONMENT.

PROVIDED THAT:

a) THE OPEN AND UNDEVELOPED AREAS OF EAST PARADE ARE NOT PREJUDICED;

b) PROPOSALS ARE APPROPRIATE IN SCALE AND NATURE TO THEIR SURROUNDINGS.

The seafront is an integral part of the coastal planning zone and is important both for its tourism and recreational role. Much work was undertaken by the former Rhuddlan Borough Council in restructuring the promenade of Rhyl following the broad concept provided by the ‘Promenade Master plan’ prepared by Derek Lovejoy and Partners. It appears prudent now to reassess the long-term role, form and development of the Rhyl and Prestatyn seafront and promenades. A new strategy has been formulated following public consultation which places greater emphasis on environmental improvements designed to complement the private sector attractions.

By way of general guidance, development proposals comprising tourism or recreational attractions, infrastructure or environmental improvements will be acceptable subject to certain safeguards. Proposals should be appropriate in terms of scale and nature to their surroundings. For instance, whilst built development might be acceptable on parts of Central and West Parade promenade Rhyl , and Central Beach, Prestatyn, this would not be acceptable given the open character of East Parade promenade, particularly its eastern sections.

DEVELOPMENT WITHIN THE COASTAL PLANNING ZONE (CPZ) WILL ONLY BE PERMITTED WHERE IT WOULD:

i) NOT INCREASE OR TRANSFER THE RISK OF FLOODING OR COASTAL EROSION THROUGH ITS IMPACT ON NATURAL COASTAL PROCESSES;

ii) NOT PREJUDICE THE CAPACITY OF THE COAST TO FORM A NATURAL SEA DEFENCE;

iii) NOT INCREASE THE NEED FOR ADDITIONAL COASTAL PROTECTION WORKS EXCEPT WHERE NECESSARY TO PROTECT EXISTING INVESTMENT OR DEVELOPMENT.

NEW COASTAL DEFENCE WORKS SHOULD NOT HAVE AN UNACCEPTABLE IMPACT ON THE CHARACTER, APPEARANCE AND NATURAL PROCESSES OF THE CPZ.

With substantial areas of low lying land on the Denbighshire coastal strip, an adequate system of coastal defence is essential in order to prevent the risk of flooding and coastal erosion. In coastal defence matters responsibility is divided between Denbighshire County Council as coastal protection authority and the Environment Agency Wales. The policy is intended to safeguard natural sea defences and to avoid unnecessary or unjustified costs arising from the need to protect new development.

It is necessary to ensure that the cumulative effects of individual coastal defence works on natural coastal processes and coastal landforms both in the vicinity and further along the coast are taken into account. New works should not have the effect of disrupting sediment patterns, leading to accelerated problems elsewhere. Apart from its scientific, landscape and nature conservation value, the extensive sand dune system also acts as a natural primary and secondary means of coastal defence. With careful management this may mitigate the need for hard engineering works.

In terms of coastal defence, the Liverpool Bay Shoreline Management Plan will be particularly important. The Plan provides a framework within which appropriate coastal defence measures can be considered.

DEVELOPMENT FOR NEW OR EXTENSIONS TO EXISTING PUBLIC WASTE WATER TREATMENT AND DISPOSAL WORKS WITHIN THE COASTAL PLANNING ZONE (CPZ) WILL BE PERMITTED PROVIDED THAT:

i) NO OTHER SITE IS SUITABLE/AVAILABLE OUTSIDE THE CPZ;

ii) THE BUILDINGS AND ANY ASSOCIATED PLANT, MACHINERY, INFRASTRUCTURE AND ACCESS ARE LOCATED, SITED, DESIGNED AND LANDSCAPED SO AS NOT TO BE VISUALLY INTRUSIVE WITHIN THE OPEN COASTAL LANDSCAPE;

iii) THE WORKS DO NOT UNACCEPTABLY HARM THE HISTORIC ENVIRONMENT, NATURE CONSERVATION INTERESTS AND OPEN SPACE OR RECREATIONAL LAND;

iv) THE WORKS AND ANY ASSOCIATED PROCESSES UNDERTAKEN DO NOT UNACCEPTABLY AFFECT RESIDENTIAL AMENITY OR THE AMENITIES OF OTHER SENSITIVE USES BY MEANS OF NOISE, SMELL ETC.

Any proposals that come forward should not be visually intrusive within the open coastal landscape and will require careful consideration of siting, design, material and landscaping, not only to buildings, but also to associated plant and machinery, storage areas, perimeter fencing and accesses. There should be no unacceptable effects on the historic environment, nature conservation or the amenity of residents on other users.

IN CONSIDERING DEVELOPMENT WITHIN AND IMMEDIATELY ADJACENT TO THE COASTAL PLANNING ZONE (CPZ) THE COUNCIL WILL PAY SPECIAL ATTENTION TO:

i) RETAINING AND IMPROVING THE EXISTING STATUTORY AND PERMISSIVE PUBLIC ACCESS NETWORK;

ii) ENSURING THAT PROPOSALS FOR OR THE OPERATION OF THE NORTH WALES COAST CYCLE ROUTE AND FOOTPATH ARE NOT PREJUDICED;

iii) PROVIDING OR CREATING NEW ROUTES.

PUBLIC ACCESS TO AND WITHIN THE CPZ SHOULD NOT UNACCEPTABLY HARM FEATURES OR AREAS OF HISTORIC, LANDSCAPE OR NATURE CONSERVATION VALUE PARTICULARLY THE SAND DUNES.

Public access to and within the coastal planning zone whether on statutory or permissive paths is an important feature of the coast. Existing routes and networks will be protected and scope provided for the creation of new routes. Of particular importance to the tourism function of the area will be the Denbighshire section of the North Wales Coast Cycle Route (part of SUSTRANS National Cycle Network) which is likely to run along the promenade of Rhyl and Prestatyn. The existing North Wales Coast Footpath which runs through Prestatyn and Rhyl and on towards Bangor, may also be extended eastwards from Prestatyn. Development proposals which jeopardise implementation or use will not be supported. Particular emphasis will be placed on ensuring public access does not affect the extensive sand dune system. Consideration will be given to the multi use of certain (sections of) routes.

A WATER BASED SPORTS CENTRE AND AN INFORMAL RECREATION AND LEISURE AREA AT MARINE LAKE, RHYL, WILL BE PERMITTED PROVIDED THAT:

i) BUILT DEVELOPMENT OR OPERATIONAL ACTIVITIES IN ASSOCIATION WITH WATER SPORTS USE ARE LOCATED AT THE EASTERN EDGE OF THE LAKE;

ii) ENVIRONMENTAL IMPROVEMENTS ARE UNDERTAKEN TO THE PERIMETER OF THE LAKE;

iii) MEASURES ARE UNDERTAKEN TO SAFEGUARD THE NATURE CONSERVATION VALUE OF THE LAKE.

Marine Lake is a major water based facility within the coastal planning zone in Rhyl. Despite its prime location between the A548, River Clwyd and railway line and its close proximity to the promenade and Ocean Beach funfair, it is presently under-utilised. The lake has considerable potential both for development as a water sports based recreation centre and for environmental improvements to the perimeter paths and grassed areas. Having been identified as a wildlife site (Site of Local Conservation Importance), measures will be required to safeguard the nature conservation value of the lake, particularly in winter months. Any built development or operational areas such as clubhouse storage, jetties, car parking etc, should be located at the eastern edge of the lake close to existing built developments.

DEVELOPMENT OUTLINED IN POLICY TSM 14 AT FORYD HARBOUR, RHYL WILL REQUIRE AN ENVIRONMENTAL ASSESSMENT OR INFORMATION IN WHICH THE FOLLOWING FACTORS SHOULD BE ADDRESSED:

i) THE EFFECT ON NATURAL COASTAL AND ESTUARINE PROCESSES;

ii) THE NEED FOR COASTAL PROTECTION AND/OR SEA DEFENCE MEASURES ARISING FROM THE PROPOSAL;

iii) THE EFFECT ON NATURE CONSERVATION AND FEATURES OF HISTORIC, ARCHITECTURAL AND ARCHAEOLOGICAL VALUE;

iv) THE EFFECT ON THE LANDSCAPE AND AMENITY VALUE OF THE COAST;

v) ANY OTHER IMPACTS ARISING FROM THE DEVELOPMENT WHICH IT IS NECESSARY TO CONSIDER.

Policy TSM 14 provides the policy context for development proposals at Foryd Harbour, Rhyl. The Clwyd Estuary, Foryd Harbour and tidal stretches of the River Clwyd are a major element in the coastal planning zone, being of great importance in terms of landscape, nature conservation, archaeological, historic importance and natural physical processes. Any development proposals at Foryd Harbour, which would be likely to have significant effect on the coastal and estuarine environment, will be required to be accompanied by an environmental assessment or, where environmental assessment is not formally required, supporting information on the points outlined in the policy. The policy contains a list of factors which should be addressed in detail as part of such an environmental assessment. Early discussions with both Denbighshire County Council and Conwy County Borough Council are encouraged prior to the submission of any applications. In certain cases where mitigation measures may reduce the impact of a scheme on the coast, these will be the subject of either planning conditions or S106 agreements.

WITHIN THE COASTAL PLANNING ZONE THE PROTECTION, MANAGEMENT AND ENHANCEMENT OF THE SAND DUNE SYSTEM WILL BE A PRIORITY. DEVELOPMENT PROPOSALS ADJACENT TO AND/OR OTHERWISE AFFECTING THE SAND DUNES WHICH CAUSE UNACCEPTABLE HARM TO THE SAND DUNES IN TERMS OF THEIR LANDSCAPE, NATURE CONSERVATION OR COASTAL DEFENCE IMPORTANCE WILL NOT BE PERMITTED UNLESS APPROPRIATE MITIGATION MEASURES ARE UNDERTAKEN.

Denbighshire contains the impressive remnants of a once extensive sand dune system across the North Wales coast. The main areas of dunes are to the east of Barkby Beach which are part of the Gronant Dunes and Talacre Warren Sites of Special Scientific Interest. These also form an essential part of the local coastal landscape. Dunes are also found in the vicinity of Central Beach and Ffrith Beach, most of which have been identified as a non-statutory Wildlife Site. Apart from their landscape and visual importance, the dunes also perform a vital coastal defence role. Ongoing management works are being undertaken to stabilise and enhance the dunes. Any development adjacent to the dunes may be required through planning agreement to undertake further management measures.