AGENDA ITEM NO 7(c) EAST AREA DEVELOPMENT COMMITTEE 4 November 1997

APPLICATION REFERENCE: 08-97-0029D: FORM GOLF COURSE AND ACCESS ROAD (AMENDED SCHEME) AT CAMBO, KINGSBARNS: GRANITE BAY SCOTLAND INC.

1.0 PURPOSE AND BACKGROUND

1.1 To advise Members on the details of the above noted application and to make a recommendation thereon. This application was previously considered at a Departure Hearing of the East Area Development Committee on 1 October 1997. This report follows on from that meeting and includes reference to further representations together with amended plans lodged by the applicant. At the Departure Hearing the applicant was advised to consider relocating the four golf holes away from the north side of Sea Road avoid impinging upon the coastal route, avoid traffic utilising Sea Road and attempt to address the problems raised by the tenant farmer at South Quarter, who was alleged to be affected through a loss of land. The report addresses these issues where appropriate and the relevant submissions are attached.

2.0 PLANNING HISTORY

2.1 Application number O1-94-0579P sought planning permission for the change of use of agricultural land and country park to form a golf course and erect a clubhouse at Cambo Estate, Kingsbarns. This application was essentially for the principle of the use and all matters relating to layout, etc were reserved for a subsequent submission. The site extended from the south side of Sea Road (adjacent to the car park) southwards to a point in line with East Newhall which was to serve the clubhouse. Access was proposed as being off the A918 Crail Road from the existing East Newhall access point. Consent was granted by notice dated 11 October 19947 a copy of which is appended to this report.

2.2 Application number 08-95-0038D also sought full permission for a golf course and outline consent for a clubhouse although since it contained minimal detail it was effectively an outline application for the golf course. The site included land to the north side of Sea Road and proposed to access the golf course via Sea Road, by the provision of a series of passing places. This proved to be an extremely controversial application due to the proposed access arrangements and the application was eventually withdrawn in favour of an amended submission.

2.3 Application number 08-95-0062D represented an amended application for a golf course at Cambo Estate. This proposal included an area of ground to the north of Sea Road and also extended along the south side of Sea Road as far as the limits of Kingsbarns to provide practice areas. To the south, East Newhall was no longer included and an amended access point was proposed, again directly off the A918, Crail Road, between the Cambo House access and Kingsbarns. The clubhouse was proposed as being positioned centrally within the site. Planning permission was granted, by notice dated 27 July 1995, (a copy of which is attached to this report), with all matters relating to layout details, etc, reserved for subsequent approval.

3.0 THE APPLICATION SITE AND APPLICATION DETAILS

3.1 The current application site extends from a point approximately 750M to the north of Sea Road, Kingsbarns, southwards to a similar distance to the east of Cambo Ness. The site is primarily orientated towards the coastline and extends inland in varying distances to accommodate the proposed 18 hole course layout, together with practice facilities and a turf and landscape nursery. The current use of the site is for agricultural purposes although it does incorporate wooded landscaped areas, which form part of Cambo Estate.

3.2 The site rises up from the shoreline, to the west and there is a pronounced raised edge to the land which forms an escarpment of varying distance from the coastline. Much of this site is open ground but there are notable landscape features, in particular, Cambo Burn woodland and Cambo Ness promontory together with a planted area of woodland alongside the proposed practice area. In addition the Fife Ness SSSI lies immediately to the east of the site. To the south, west and north the application site bounds open farmland and the Cambo Estate.

3.3 A clubhouse is indicatively proposed for a position 350M to the east of Sea Road, whilst a golf maintenance building and service access were shown as being adjacent to Sea Road in the originally submitted proposal. No details of the proposed design and scale of either of these buildings has been lodged.

3.4 The layout of the course is proposed as essentially running parallel to the coastline. The position of tees and greens lie at varying distance from the coastline although, at the 12th and 16th holes the proposed driving line was originally shown as crossing the coastline (in the former, on 2 occasions) . In addition the 15th green was proposed as being positioned on Cambo Ness. This is a promontory and seen by the applicants as the course’s ‘signature hole’. Whilst the course extends to both sides of Sea Road, no holes involve actually playing shots across Sea Road.

3.5 The Fife coastal route runs along the eastern boundary of the site following the coastline for the entire length of the application site. In addition there are currently alleged rights of way which cross the site and are openly used.

3.6 A certain amount of recontouring is proposed, primarily in the formation of tees and greens with mounding to recreate original dune features along the fairways.

4.0 REPRESENTATIONS

4.1 A total of 22 individual letters have been received making comments on this application. The points of objection or concern raised in these letters cover the following issues:

1. Effect on the Fife Coastal Route; in terms of its safety, quality, available access.

2. Golf course should be available for local play and pay as you play.

3. Unsuitability of access.

4. Impact on Sea Road and public car park.

5. Golf course would dominate existing stretch of valuable coastline.

6. Impact on wild life, hedges, etc.

4.2 In addition, of the letters received, one requested that the application be debated in open forum and others raised questions relating to an existing tenanted farm, the effects on its viability and the use of Sea Road for construction access. Other letters support the idea of a golf course including the Royal and Ancient Golf Club of St Andrews. Further, letters have been lodged advising that there is considerable support in Kingsbarns for a golf course and that the Departure Hearing was only for objectors and other parties had not been invited. All parties who had lodged written representations with the Planning Authority in respect of this application prior to the Hearing were invited to address the Hearing by the Area Law and Administration Manager.

5.0 CONSULTATIONS

5.1 Scottish Environmental Protection Agency (SEPA)

It is noted that no foul effluent discharge is currently proposed, as the clubhouse is a reserved matter. No objection is raised subject to compliance with SEPA construction guidelines.

5.2 The Ramblers Association for Scotland

The Association has lodged a formal objection to the application in its originally submitted form and listed 4 specific reasons for objections and 6 factors which should be taken into account in assessing the application. These are included in full and appended to this report but relate primarily to the effect on the Fife Coastal Route which would result from the formation of the proposed golf course in terms of enjoyment, access, safety, quality and potential for improvement.

5.3 The Scottish Office - Agricultural, Environment and Fisheries Department

Given the reversible nature of the development and the limited amount of land required for irreversible development (clubhouse facilities), no objections are raised.

5.4 Kingsbarns Community Council

Concern was raised by the Community Council in respect of maintenance traffic on Sea Road, the siting of holes north of Sea Road and the routing of the coastal path. In addition, a transcript of the Community Council’s comments from the Hearing have been lodged and are attached to this report.

5.5 Association for the Protection of Rural Scotland

Comments made have been directed at the requirement to maintain access to the beach, that the danger from golf balls should be avoided and generally that the enjoyment of the Fife Coastal Route for walkers should not be impeded due to the infringement of the golf course activities.

5.6 Scottish Natural Heritage (SNH)

SNH has referred to comments made on previous applications for a golf course on this site. These related to retention of all existing features, incorporation of the Fife Coastal Path and management of the course, including natural habitats. SNH have indicated that the amended plans are acceptable.

5.7 Fife Council Head of Transportation

The development would not have a strategic impact in road traffic terms and therefore a recommendation of conditional approval has been given, a copy of which is attached to this report.

5.8 Fife Council Archaeological Service

It is noted that the site contains a large and extensive amount of sites of archaeological interest. Due to their nature and proximity to the surface any works of disturbance to the ground could be potentially damaging to their condition and quality and works of investigation, recording and protection are required together with a full watching brief.

5.9 Any additional responses based on the amended plans will be reported to Committee.

6.0 POLICY BACKGROUND

6.1 NATIONAL GUIDANCE. This is contained in Planning Advice Note No 43 “Golf Courses and Associated Development’s”. This PAN draws specific attention to consideration of archaeology, natural heritage, countryside, use of agricultural land together with transport, siting and maintenance.

6.2 Planning Advice Note 42 “Archaeology” and National Planning Policy Guideline 5 “Archaeology and Planning” are also of particular reference due to the significant amount of archaeological interest found on the site. Both of these documents set down general guidance for dealing with developments affecting sites of archaeological importance. They highlight the need for early discussion with the Council’s Archaeological Section and, where appropriate, the preparation of a full archaeological assessment.

6.3 STRATEGIC POLICY: The strategic policy background is provided through the Fife Structure Plan (FSP) and the principal strategic issues to be addressed are whether the proposed development would accord with FSP policies regarding rural economic development and environmental protection.

6.4 Policy FD13 of the FSP states a presumption against development which would permanently remove or reduce the quality of prime agricultural land. The site includes both prime and non-prime agricultural land as defined in the MacAulay Soil Survey for Scotland. Paragraph 4.36 of FSP does state that this presumption against development may be rebutted where prime agricultural land can be restored to its former quality. PAN 43 notes that golf course development can be regarded as reversible and therefore acceptable as an alternative use for agricultural land.

6.5 Policy E12 of the Structure Plan does not support development outwith existing urban envelopes, although recreational and tourism uses are identified as rural activities which may be exempt from this provision should they be appropriate to a countryside setting. PAN 43 advises that golf courses “sensitively designed to fit into the landscape can help to improve the image of an area and in doing so assist in the promotion of tourism”. Furthermore tourism is considered to be an important economic activity in Fife and it is the aim of Fife Council to encourage tourism to grow where it can be accommodated most advantageously, and with least environmental impact (FSP paragraph 4.23). It is considered that the proposed golf course, through its proximity to St Andrews would have benefits from a tourism point of view (potentially enhanced by its proposed design and character), particularly if the proposal were to be managed on a “pay as you play” basis and would enhance the Area’s reputation as a prime golfing location.

6.6 Policy ED8 presumes in favour of tourism development projects which assist the economic development of Fife, while Policy ED9 establishes criteria whereby an application which would contribute to the development of the tourist industry will be supported.

6.7 The Fife Sites and Monuments Record identifies the application site as containing significant archaeological remains. The FSP acknowledges the importance of such sites through policies E8a and E8b which require their protection and does not support developments which would adversely affect such sites. Policy E9 requires the investigation and recording of such sites, and leads to their safeguarding.

6.8 FSP Policy E13, which is subject to the same exception as Policy E12, does not support development that would have a detrimental effect on the unbuilt coastline. Policy E6 required development proposals to safeguard specific types of semi-natural habitats. Policy El 5 seeks to encourage access to the countryside and coastline for recreational and educational purposes whilst Policy E16 seeks to develop a long distance coastal walk.

6.9 In respect of specific landscape considerations the site contains Cambo Ness, Cambo Burn Woodland, dry-stone dykes and woodland together with the Fife Ness Coast SSSI which abuts the site along the northern boundary (coastline) and edges into Cambo Ness.

6.10 LOCAL PLAN POLICY: The Local Plan Policy background is contained in the Largo and East Neuk Local Plan. The Local Plan recognises the status of the area as a tourist destination and the need to broaden the tourist market.

6.11 Policy IS10 seeks to protect the loss of agricultural land to irreversible development whilst Policy lS11 refers to proposals for outdoor recreation normally being acceptable subject to criteria relating to the effect on the character of the area, minimising adverse effects on the landscape of nature conservation interests, availability of car/coach parking, access arrangements, noise generation and acceptability of details.

6.12 Policy IS14 has a presumption against development which would encroach upon any part of a designated right of way. The Local Plan seeks to identify, where appropriate, further opportunities for walking in the countryside.

6.13 Policy EV9 has a presumption against development proposals which will adversely affect ancient monuments and sites of ecological, scientific or archaeological interest. Policy EV10 seeks to ensure that such features are preserved.

6.14 Policy EV12 seeks to promote the conservation of the unbuilt coast as an amenity resource and Policy EV13 opposes proposals which would reduce access to the coast conserved under EV12 and will only support or promote proposals which enhance public access where coastal protection measures are enforced.

7.0 DEPARTURE HEARING

7.1 The minute of the Development Plan Departure Hearing which was held in Kingsbarns on 1 October 1997 is included as an appendix to this report. This gives full details of the points raised by the various speakers who presented their case to the meeting and the points raised can be summarised as follows:

1. Concern over impact of golf course on walkers following Fife coast route.

2. Four golf holes positioned to the north side of Sea Road and associated traffic travelling down and over Sea Road.

3. Potential threat of follow on development, particularly if the golf course fails to establish as being viable ie fairway housing.

4. Potential economic benefits acknowledged.

5. National significance of Fife coast route.

6. Certain holes would present a danger to walkers.

7. Unacceptable to divert the coastal route inland.

8. No account taken of global warming and the potential rising of the sea level.

9. A 5-10 metre wide band of land should be maintained between the coastal route and the golf course.

10. Foreshore used by ornithologists, geologists and many types of visitors who would see a golf course as a hazard.

11. The character of the area would be changed - coastline between Crail and St Andrews in danger of becoming dominated by golf courses.

12. Impact on existing farm viability at North Quarter Farm.

13. Four holes to the north of Sea Road should be relocated to the proposed turf nursery area to the south and keep all traffic away from Sea Road.

14. Not all users of foreshore and coastal route would be aware of potential risks from golf balls.

7.2 In response the applicant made the following points:-

1. Access would be taken away from Sea Road with only a crossing point.

2. The ecology of Cambo Ness has been catalogued and the high concentration of important grasses would be protected.

3. Adjustments could be made to the golf course routing to safeguard and protect the coastal route.

4. The site previously accommodated a golf course.

5. A bund would be maintained between the coastal route and the golf course.

6. The golf course layout would contain design features which would direct golfers away from the coastal route.

7. The coastal route would be maintained as part of the stewardship of the golf course.

8. The existing dune erosion would be significantly reduced by providing a coastal route immediately inland.

9. The golf course would significantly broaden the habitats available on the site, beyond what is currently available, including wetland features and significant landscaping.

10. Access to the course would be made available to local golfers and groups.

11. The golf course would be to a high standard and a traditional Scottish links course format.

8.0 PLANNING CONSIDERATIONS

8.1 Coastal Footpath: At present the coastal footpath extends along the full eastern boundary of the application site. The quality and accessibility of this route varies due to site specific circumstances such as dune erosion, width of dunes, field access, rock positions and beach access. There is no formal established right of way and the route varies between a beach route and a high tide route, which runs through filed/dunes, etc. The width of the route also varies between ample provision and decidedly narrow. In addition, the route cuts back off the shore line across the neck of Cambo Ness and through the trees at Cambo Burn woodland. It is acknowledged that the route requires improvement through consolidation (dune stability and protection against erosion), identification through clarity of the exact route and consistency in terms of the overall standard. This is much dependent upon the future availability of funding and co-operation with landowners involved.

8.2 The current proposal in its originally submitted form involved the retention of the coastal route but also brought several fairways into potential conflict with walkers using the route. In particular the fairways of hole nos. 12, 15 and 16 would have involved golf shots crossing close to the line of the route rather than directly across. This relationship can cause a safety problem due to walkers not being aware of approaching shots or a perception problem in terms of walkers being conscious of shots possibly causing danger to them.

8.3 The proposed golf course layout also proposed the provision of an additional alternative inland route through the course along a ridge. This would also enable walkers to take a circular route utilising the coastal route. There are existing routes running inland, parallel to the coast, on the edge of the proposed golf course and indeed crossing the site which are provided by the landowners as part of a Woodland Grant Scheme.

8.4 The applicant, following concerns raised prior to and during the Departure Hearing, has undertaken several significant amendments to the course layout. These are referred to in the covering letter from the applicant previously circulated to Members but include the following:-

• Provision of a dedicated coastal route for walkers, immediately inland of the dunes with a 10 metre wide buffer area separating it from the golf course. This would contain a ‘berm’ or dune-like feature varying in height from flat ground to 1.5 metres. It would also be landscaped.

• Repositioning of tees and greens which previously gave cause for concern over potential conflict between golfers and walkers.

• Adjustment to design/layout features to encourage golf play away from the coastal route.

• With the exception of the signature hole at 15th, no hole would be laid out requiring golf shots which would require to cross the coastal route.

8.5 The incorporation of the above features would represent the provision of a coastal route which would overcome the current lack of clarity of direction, problems of erosion, maintenance provision and addition of alternative routes which could act as circular routes with the coastal route. All of these, in the absence of the current proposal, would depend upon landowners’ agreement and the necessary financial support being achieved.

8.6 Landscape Features: Of the notable features on the site, Cambo Ness would be affected by the proposed golf course layout in that it is proposed to site the 1 5th green on the Ness. It was originally proposed also to site the 16th tee but with the exception of a championship tee, the 16th tee is now proposed as being positioned to the west side of the nearby trees and thus away from the Ness. The Ness incorporates important grasses although these are principally located away from the proposed position of the 15th green. Other grasses are proposed for transplanting elsewhere on the course or layout features. These measures would seem to minimise the impact on the flora of the Ness. Internal access routes for golfers would be routed through Cambo Burn Woodland and a bridge over the burn. It is intended to meander this route to minimise any impact on trees. Some drystone dykes would be breached in the formation of the course but where possible they would be retained as traditional features. The proposed access point onto the A918 would involve the loss of some trees and the realignment of part of the boundary wall/footway.

8.7 Archaeological Sites: The application site contains a large number of important archaeological sites and there have been lengthy and numerous meetings between the prospective developers and archaeological officers of this Council. It has been identified that a full watching brief would be required during all top soil stripping works, with all works to be funded by the developers. In addition, Historic Scotland have indicated that it is proposing to schedule parts of the site as a Scheduled Monument, being of national archaeological importance. The developers have been made aware of this and are agreeable to incorporate this in the course layout to ensure that there is no adverse effect on the identified sites.

8.8 Traffic and Access: The vehicular access to the site would be formed off the A918, in the same position as previously approved under application 08-95-CC38D. Through the realignment of the stone boundary wall visibility would be provided in both directions. A secondary vehicular access was originally proposed to be formed off Sea Road to serve the maintenance building. However, the maintenance building position has been adjusted to enable it to be served off the access off the A918, overcoming the need for access off Sea Road. Sea Road would only be used as a crossing point for internal course access by golfers, walkers and limited grounds staff. There is currently a field access at this point. Sea Road is a narrow public road which serves the public car park adjacent to the shore. In addition, Sea Road would be crossed by golfers accessing the western part of the course as well as walkers utilising the inland alternative route.

8.9 Access to Play on the Course: The outline consent which was granted for the golf course under Reference C8-95-CC62D contained a condition (6) which required that the golf course should include a pay-as-you-play element. The applicants have indicated that this element should be for a 5 year period only and that the key to the future financial viability of the project is uncertain and may lie with a slightly different membership concept. Traditionally access to golf in this part of Fife has been relatively open to local residents and there certainly has been an intention to avoid courses becoming exclusive to the point of preventing access by local residents. Without being exclusively pay-as-you-play or membership only, there are combinations of these which can operate. The applicants have indicated that they would be agreeable to a similar condition being applied in respect of the current application.

8.10 Impact on the Viability of Existing Farm: Letters of representation have been lodged with regards to the potential impact that the course would have on the viability of the existing tenant farm of South Quarter, Kingsbarns. In addition the applicants have provided details of measures that they would undertake to lessen such an impact. Essentially the issue is of land lost from the tenancy. However from a planning law point of view the application has to be treated on its own merits. The availability of land or otherwise to a tenant farmer is primarily an issue between the landowner and the farmer.

8.11 Coastal Erosion: Fife Council has appointed consultants who are working towards a Shoreline Management Plan together with the Roads Service - Specialist Division. I have requested comments on this aspect from the Specialist Division and will update Committee verbally. I would add that the proposals for this application involve no buildings either close to the high water mark or indeed on the field areas immediately beyond. All buildings, including the clubhouse, would be beyond and above the former sea cliff line. There is evidence of erosion along the dunes which lie between the proposed coastal footpath (consolidated route) and the beach. However previous walkers’ access along these dunes has led to problems of erosion and the current proposals seek firstly to stabilise the dunes and secondly provide a route which is on the Iandward side of the dunes. It would, of course, be in the applicant’s interest to ensure that any potential coastal erosion is avoided or at least minimised. I would hope to be in a position to clarify these points further, at the Committee meeting.

9.0 CONCLUSION AND RECOMMENDATION

9.1 The application site has previously been granted outline consent for the formation of a golf course. Whilst that consent reserved all details concerning the actual course layout it did nevertheless establish the principle of developing the site for a golf course, including the land to the north side of Sea Road.

9.2 The current application in its amended form has gone a long way to addressing the concerns raised by objectors and the Kingsbarns Community Council with, by far the greatest concern being in respect of the coastal footpath. As described above, the existing route is much in need of improvement due to current difficulties of clarity of routing, dune erosion and surface/form of route.. All of these would be addressed under the current proposals and, in my opinion, would result in an improved facility, opening up greater and more accessible routes to the general public. It would also set a standard for other potential coastal golf course developments in terms of public access.

9.3 Vehicular access to the site would be at an acceptable position where the necessary standards could be met. Traffic would not use Sea Road with the exception of internal golf course traffic of a limited nature, at a single crossover point. Use of the course would be open to the public through pay-as-you-play and the applicants are agreeable to such a requirement.

9.4 In environmental terms the diversity of habitats would be increased through the introduction of significant areas of planting, wetlands and retention of existing woodlands. In addition, where possible, traditional features such as dry stone walls would be retained. The significantly important and extensive archaeological interest of the site would be safeguarded and protected as well as suitable access being given to, where necessary, record details.

9.5 The applicants have demonstrated that the proposed golf course would overcome the concerns raised and would enhance this stretch of coastline by improving access, broadening habitats and contribute to the local economy. It is therefore recommended that planning permission be granted subject to the following conditions and reasons:

The conditions and reasons are listed separately, here

Jim Birrell

Area Planning Manager (East)

Fife Council
County Buildings
Cupar