9. Thriving Local Economy
Strategic Objectives to support a Thriving Local Economy:
4 Strengthen the health and well-being, identity and sustainability of rural communities and the pride of local people in their area.
6. Develop a diverse and sustainable low carbon economy, enabling suitable rural diversification, that contributes to the well-being of local communities and supports a ‘working forest’, throughout the National Park.
7. Encourage land management that promotes and sustains traditional commoning practices to protect and enhance the special qualities of the National Park.
8. Support proportionate development which encourages sustainable tourism and recreation, providing opportunities for enjoying the National Park without harming its special qualities or the welfare of its local communities
To support Partnership Plan Themes: Climate, Nature, People, Place, Partnership
Reflecting the following special qualities:
• Strong and distinctive local communities
• A healthy environment:
• Wonderful opportunities for quiet recreation, learning and discovery;
• Tranquillity
• An historic commoning system
• The New Forest’s outstanding natural beauty
• A unique historic cultural and archaeological heritage
9.1 This section of the Local Plan covers traditional employment uses such as office and industrial workspace, together with retail activity in the Park’s many villages, and tourism. Reference is also made to telecommunications and digital infrastructure.
9.2 A healthy local economy is essential in maintaining the life and vibrancy of the National Park, providing local employment, and sustaining its rural communities. The Local Plan aims to support a sustainable local low carbon green economy, providing business and employment opportunities that benefit the National Park’s communities, without compromising the special qualities and rural character of the area. This approach will help to deliver the Authority’s duty59 to foster the social and economic well-being of its local communities.
59 Chapter 1: Introduction and the Environment Act 1995
9.3 Maintaining high-quality landscape, historic and natural environments can contribute substantial economic benefits by both supporting tourism and helping to attract high-value employees and businesses, which contribute to wider ecosystem services and rural supply chains. Research suggests that National Park designation brings economic benefits for businesses both within a National Park and within the wider region60 . Therefore, by successfully pursuing its two statutory purposes, the National Park Authority can make a positive contribution to economic prosperity both locally and in surrounding areas.
9.4 In terms of a prosperous rural economy, the National Planning Policy Framework (December 2024) requires planning polices to enable:
a) the sustainable growth and expansion of all types of business in rural areas, both through conversion of existing buildings and well-designed, new buildings;
b) the development and diversification of agricultural and other land-based rural businesses;
c) sustainable rural tourism and leisure developments which respect the character of the countryside; and
d) the retention and development of accessible local services and community facilities, such as local shops, meeting places, sports venues, open space, cultural buildings, public houses, and places of worship
9.5 There have been various changes to the Planning Use Classes Oder in recent years as to how employment, retail and other associated activities are recorded for planning purposes. Consequently, through changes introduced by the updated General Permitted Development Order, planning permission may not be required for uses listed under Class E (Commercial, Business and Services) changing to other activities within the same class. This means there is now less control as to how employment and retail areas can change and evolve.
9.6 The economic approach of this Local Plan takes into consideration some key aspects of the economic and employment characteristics of the National Park. There is a very low level of unemployment, which has been no higher than 1.3%61 for the last three years, with a peak in 2021/22 in response to the covid pandemic, prior to that it was around 0.8% and is typically lower than regional and national levels.
9.7 A further factor is the ageing population, whilst not unique to the National Park, the New Forest Housing Needs Assessment (2025) refers to the Park as having approximately 60% of the population aged 50 and older, with only 20% being within the 25-49 age range. Indeed, the population has aged between 2011 and 2022, demonstrated by very sharp declines in the three youngest age bands and
60 Prosperity and Protection: The economic impact of National Parks in the Yorkshire and Humber region, Council for National Parks (2006); Valuing England’s National Parks - Final Report for National Parks England, Cumulus Consultants Ltd and ICF GHK (2013)
61 Unemployment measured by the percentage of the working age population that are claiming Job Seekers Allowance. Source: NOMIS
significant growth in the oldest (aged 50 and above) age bands. Having an older demographic, there will be a greater portion of the population outside of the economically active category (16-64 years) during the plan period.
9.8 As a rural area, there are no large employment centres which benefit from critical mass (in terms of labour and the local market for goods and services). Consequently, the local economy is not only dispersed but also very diverse with the leisure, tourism, agriculture, health, and the professional, scientific and technical sectors all creating a wide range of employment opportunities. Analysis of the Inter Departmental Business Register (ONS, March 2022) shows the number of companies and employee distribution across industry sectors in the National Park:
Source: Inter Departmental Business Register (ONS, March 2022)
9.9 The 2025 Economic Needs Assessment reflects the above, acknowledging that employment opportunities are concentrated in the larger villages, as well as there being distinct business clusters around Sway / Hordle / Tiptoe, and Ashurst / Netley Marsh. Distributed across these key employment locations, the dominant sectors are Professional and Other Private Services, Manufacturing, and Administrative and Support Services, reflecting a mix of tourism, local services, administration, and specialised production.
Business
9.10 Within relatively short distances, the National Park is surrounded by local employment centres, such as Lymington, Ringwood, Totton, and larger urban areas, in particular Southampton/Eastleigh and Romsey/Salisbury and
Bournemouth/Poole, that provide significant employment opportunities. It is, therefore, not surprising to find that net out-commuting by residents to these larger centres occurs and, given their proximity, it is likely that some of the employment needs of National Park residents both now and in the future will continue to be met beyond the National Park’s boundaries.
9.11 With strong economic expansion planned for the surrounding employment centres in South Hampshire, including the Solent Freeport, southern Wiltshire and South East Dorset, the task for the local economy will be to find ways of benefiting from the National Park’s advantages, whilst retaining its special character. Taking into account the forecasted decline in the working age population, competition from surrounding areas, and the need to maintain the special environmental qualities of the National Park, supporting the economic well-being of the National Park’s communities will be best served by focusing on small businesses, with locally distinctive, higher value and low impact types of businesses being most appropriate, and indeed the bulk of existing businesses are relatively small (85% of the total):
Source: ONS 2022 Inter Departmental Business Register
9.12 Evidence set out in the Economic Needs Assessment 2025, acknowledges that employment growth is forecast to be driven by the health, agriculture, forestry and fishing sectors amongst others; with a large decline in sectors requiring distribution spaces, such as wholesale and land transport, storage and post.
9.13 The assessment of data to establish future land requirements utilises, amongst other matters, past development rates to reflect market demand and actual development patterns. This therefore provides a reasonable basis for informing future space needs, being based on analysis of monitoring planning data on past completions of employment sites over a ten-year period from 2014/15 to 2023/24, representing an average of about 680 square metres per annum.
9.14 Accordingly, the Economic Needs Assessment identifies the need for an additional circa 13,530 square metres of employment floorspace over the plan period; taking into consideration existing commitments, this leaves a shortfall of circa 12,390 square metres to be allocated through the Local Plan.
Source: NFNPA Economic Needs Assessment
9.15 Provision of this amount of additional floorspace represents a challenge for the Authority, given that the existing employment stock is both varied in terms of size, type, and quality, and is dispersed across the National Park. Indeed, the bulk of the existing stock comprises small sites of less than a hectare. Consequently, the Authority has identified a strategic employment allocation on Solent Freeport land at Fawley Waterside (Policy SP5). In addition to this, the priority for the Local Plan is to focus on maximising opportunities through the redevelopment, refurbishment, and on-site intensification of existing sites and premises.
9.16 In relation to sustainable development that is appropriate within a nationally designated area, throughout the National Park the Local Plan will support:
• suitable reuse and extension of existing employment buildings;
• retention and redevelopment of existing employment sites for a wider range of employment uses;
• retention of existing employment, retail and leisure sites;
• farm diversification to suitable uses to support the local economy.
9.17 The diverse nature of the local economy means that it does not rely heavily on traditional business uses that need bespoke office and industrial spaces. Consequently, the Authority will encourage the redevelopment of redundant brownfield employment sites for employment use by supporting a wider range of business uses, other than storage and warehousing. Proposals for small-scale starter units/offices and rural business units will be considered favourably. However, the redevelopment of existing employment sites for general warehousing purposes will not be encouraged, as this type of development does not generate significant employment opportunities relative to the space required; such development typically results in additional traffic and can have a greater impact on the landscape.
9.18 Given the long history of business development that spans a wide range of economic sectors, it is anticipated that employment development will continue to come forward that will support the well-being, vitality and viability of the National Park’s communities. The priority will be to locate such services within the settlement boundaries of the Defined Villages to take advantage of existing facilities and transport links, where possible. However, a considerable number of current employment sites are located outside of the settlement boundaries, and it will be important to enable some further business development of an appropriate scale where this helps to improve the long-term sustainability and resilience of these more rural communities.
9.19 Retaining employment sites also aims to avoid creating unsustainable settlements with little or no employment, thus increasing out-commuting to jobs beyond the National Park. It is important to recognise that existing employment sites are under pressure from higher-value land uses such as housing, particularly given the high level of house prices within the National Park. As there are limited alternative sites, it is important to retain existing sites for employment use to ensure a prosperous local economy and to secure employment opportunities for local residents in the future. Proposals to change use from an employment site to other nonemployment uses, will therefore be required to provide evidence of marketing and economic viability, to demonstrate that there is no market demand for the site or premises in their current use, or any use within the same use class, for a sustained period, to be able to ensure that all opportunities to sell/let for a suitable employment use have been explored.
Policy SP55: Maintaining and improving business floorspace
Within the Defined Villages, small-scale new employment development and redevelopment of existing sites that fall within Use Class E(g) and B2, will be permitted where:
a) the form and layout of the site is suitable for employment purposes;
b) there is no detrimental impact on surrounding uses in terms of design, amenity and traffic/parking impacts.
Outside of the Defined Villages, small-scale employment development that falls within Use Class E(g) and B2, and contributes to the sustainability of local communities, will be permitted in appropriate locations through:
c) reuse, extension and/or intensification of existing sites; and
d) redevelopment of existing employment sites; and
e) farm diversification schemes, taking into consideration:
(i) impact on the environment, local landscape and amenity of the area; and
(ii) capacity of the site to accommodate any new buildings or extensions, and associated increases in activity; and
(iii)levels of traffic movement and parking provision.
Particular encouragement will be given to small businesses offering flexible startup / move-on space.
Support will be given to businesses that help to maintain the land-based economy and cultural heritage of the National Park and contribute to the understanding and enjoyment of the National Park’s special qualities.
Development which would result in the loss of an existing employment building or site, will only be permitted where the loss of that use can be justified by having regard to the following considerations:
• market signals indicate that the premises/site are unlikely to be utilised for a suitable employment use; or
• the site is not appropriate for the continuation of its employment use due to significant detriment to the environment or amenity of the area.
9.20 In addition, throughout the National Park there are a number of existing buildings in use for employment62 purposes, but not within the setting of an employment site. In principle, the Authority would encourage proposals to ensure that these buildings are retained for an employment activity, although in some cases it may be necessary for these to be extended to provide more usable floorspace.
Policy DP56: Redevelopment and extension to existing employment buildings
The redevelopment and/or intensification of existing employment buildings for industrial, office, business and low-key storage uses will be permitted throughout the National Park where:
a) there would be minimal additional effect on the visual impact of the site in the landscape, or on the amenities of nearby properties, or on traffic or other disturbances from the site, including parking and pollution;
b) where feasible, redevelopment schemes should comprehensively deal with the full extent of the site; and
The limited extension of existing buildings will be permitted where it:
c) would not materially increase the level of impact of the activity on the site.
In all instances, the proposal should:
• be contained within the existing site boundary;
• be appropriate to their surroundings in terms of scale, design and materials.
The land-based economy
9.21 The land-based economy in the New Forest encompasses agriculture, forestry, commoning, and other traditional rural businesses. Whilst providing a reasonable proportion of local jobs, farming, commoning, forestry and woodland management remain vital in maintaining the land use management practices that help conserve the landscape character, cultural identity and special qualities of the National Park.
9.22 The National Park Partnership Plan outlines the important role these activities play in the rural economy, particularly following the departure of the UK from the EU and subsequent changes in funding. Farmers and land managers in protected landscapes (National Parks) can apply for funding from the Farming in Protected
62 Falling within Class E(g), B2 and B8 of Use Classes Order
Landscapes (FiPL) programme until March 2029. The programme offered grants for projects that:
• help nature recover;
• reduce the impacts of climate change;
• protect and enhance cultural heritage;
• improve access to and enjoyment of our beautiful landscapes.
9.23 In the National Park, the practice of commoning is recognised as being integral to the maintenance of the essential landscape character, mosaic of habitats and cultural heritage of the area. Whilst Commoners have rights to graze their animals in the historic area of common grazing, they also require back-up grazing areas in the enclosed agricultural lands. Consequently, it is important that agricultural land, which is used for these purposes, is not developed or lost to other uses. Further information on the pressures on back up grazing land is available in the Back-up land report 2025
9.24 Farming and farm diversification will be given particular support to enhance or maintain the characteristic landscapes and habitats, provide local produce, allow greater public access and/or create local employment. Diversification of a scale or extent which is likely to provide an incentive to reduce the long-term agricultural operation of the land will not be supported.
9.25 Forestry has been an important feature of the New Forest over the past 150 years, providing local employment and training and enabling much of the timber to be sourced and processed locally. It will be important for the industry to adapt to changing markets for forestry products, including wood fuel, and continue to champion sustainable production in the local context.
Policy SP57: The land-based economy
Land-based businesses that help maintain the overall character and cultural identity of the National Park will be supported by:
a) working with key organisations to ensure the future viability of commoning through:
(i) enabling affordable housing for Commoners that includes land suitable for holdings (as set out in Policy DP44); and
(ii) maintaining the supply of land available for back-up grazing on the enclosed lands; resisting the loss of back-up grazing through development or change of use.
b) supporting farming and forestry that would be beneficial to the New Forest through:
(i) the provision of new agricultural and forestry buildings subject to Policy DP58;
(ii) farm diversification where this would help to sustain the long-term agricultural operation of the land and would be:
• agricultural diversification based on an extensive system of land management; or
• non-agricultural diversification, through the reuse of farm buildings in line with Policy DP62 or Policy DP59, and where it can be demonstrated that the new use would remain ancillary to, and support, the farming business;
(iii)helping to support markets for local produce and products.
9.26 The following policy seeks to enable development necessary to sustain agricultural activity, including forestry and commoning. However, development associated with agriculture can have a substantial environmental impact, and the Authority will not support buildings or other structures that would be damaging to the ecology, landscape or character of the National Park.
Policy DP58: New agricultural and forestry related development
Permission will be granted for buildings, structures and linked development required for agriculture or forestry purposes where:
a) there is a functional need for the building/structure, and its scale is commensurate with that need and its setting in the landscape;
b) the building/structure is designed for the purposes of agriculture or forestry;
c) the site is related physically and functionally to existing buildings associated with the business, unless there are exceptional circumstances relating to agricultural necessity for a more isolated location; and
d) they do not involve large or obtrusive structures or generate a level of activity which would have a detrimental effect on the National Park.
9.27 A more sustainable alternative to the construction of new buildings is the reuse of existing buildings, providing opportunities for business and employment development to ensure the provision of future employment opportunities for local communities in the National Park. The following policy supports the reuse of farm buildings:
Policy DP59: Reuse of farm buildings
The reuse of existing farm buildings, where these support a farm diversification scheme and the main agricultural or forestry enterprise, will be supported where the building:
a) is appropriate in scale and appearance to its location, and should be capable of conversion without significant extension or detriment to itself, its heritage significance or its surroundings; and
b) is structurally sound and capable of reoccupation without rebuilding.
Proposals for farm buildings that do not relate to a farm diversification scheme should be offered to Commoners in the first instance, to facilitate the continued existence of commoning in the New Forest.
Only residential uses set out in Policy SP29 will be supported. Only after the above matters have been given due consideration, will consideration be given to other alternative activities, such as accommodation for tourism purposes.
9.28 This policy is intended to enable the reuse or change of use of existing buildings which are appropriate to their New Forest setting, are a reusable resource capable of conversion without significant reconstruction and are on sites which meet highway and other local authority standards. The policy enables the use of a building to change to an alternative use, which is considered to be appropriate in the New Forest under the policies of this plan.
9.29 Given the importance that land management practices have in maintaining the landscape, the Authority will support farm diversification schemes which reuse existing farm buildings in accordance with Policies SP62 and DP59, where the proposal relates to the diversification of an existing and continuing farm business. However, where proposals for farm buildings do not relate to a farm diversification scheme, the Authority will take into account the potential of the buildings to continue in some form of beneficial agricultural use, in particular one which serves the interests of the New Forest, both in terms of supporting its special qualities and in delivering its Partnership Plan.
9.30 The Authority has a responsibility to ensure that, wherever practical, New Forest Commoners should be given the opportunity of utilising the existing stock of agricultural/forestry buildings. While some agricultural buildings may no longer be required by a particular farm, they may still be suitable for use by Commoners, e.g., for storage of feedstuffs or housing animals, or for conversion to a Commoners’ dwelling. Accordingly, the Authority will need to be satisfied that
agricultural and forestry buildings cannot continue to fulfil any beneficial agricultural use before giving favourable consideration for their reuse independently of a farming enterprise.
9.31 For buildings required for pony and horse breeding – whether new build or created through the reuse of existing structures – as part of a commercial operation carried out by Commoners in conjunction with grazing the New Forest, the Authority will need to assess the impacts of any increased grazing pressures on the Open Forest and be satisfied that the enterprise is commercially viable.
9.32 A planning condition will normally be imposed, requiring the building to be removed and the land restored to its former condition should the building no longer be required for such purposes. In assessing the functional need for a building, first consideration will be given to the conversion of any existing building under the terms of Policy DP59
9.33 The reuse of purpose-built or prefabricated agricultural buildings, e.g., glasshouses or prefabricated barns, particularly those of a large scale, are unlikely to be considered favourably under this policy, as such buildings are often out of character with the New Forest landscape. This policy does not apply to agricultural buildings that are subject to a planning condition requiring their removal on the cessation of agricultural use.
Retail
9.34 The NPPF states that to support a strong rural economy, local plans should promote the retention and development of local services and community facilities in villages, such as local shops, meeting places, sports venues, cultural buildings, public houses and places of worship. Both large and small villages play a positive role in providing services for the communities of the National Park, and the Local Plan seeks to protect that role.
9.35 Consequently, within the boundaries of the Defined Villages, the aim is to protect existing facilities and allow for redevelopment and changes of use where these contribute to the vitality of the area. Opportunities for small retail outlets associated with the rural economy will also be supported where appropriate
9.36 While national policy requires planning authorities to define retail areas and set out policies that make clear which uses will be permitted in such locations, given the size of settlements within the National Park (there are no ‘town centres’), the Authority has taken a proportionate approach through the identification of local retail frontages.
9.37 Local distinctiveness has an important part to play in the local economy. Many existing producers and new businesses related to the rural economy are benefiting from this through the local produce and products market. There is widespread recognition of the New Forest Marque, which is awarded to produce which has been grown, reared, caught, brewed, produced or processed within the New
9.38
Forest and an increasing number of small businesses, farmers markets and farm shops are using this New Forest brand. Proposals for farm shops will be considered under Policy DP61
Successive local plans have sought to safeguard the role in meeting some of the day-to-day retail needs of local residents and visitors to the shopping frontages in the Larger Defined Villages of Ashurst, Brockenhurst, Lyndhurst and Sway. This has typically been achieved by requiring that, where possible, a proportion of the designated shopping/commercial frontages (as shown on the Policies Map) is retained for retail uses formerly listed within Class A. However, changes to the Use Classes Order have broadened the list of activities now categorised under Class E ‘Commercial, Business and Service’ and Class F2 ‘Local Community Facilities’ deemed to be suitable within a shopping/commercial centre and Policy DP60 addresses this accordingly.
Policy DP60: Loss of local retail facilities
Within the defined retail frontages (shown on the Policies Map) in the Larger Defined Villages of Ashurst, Brockenhurst, Lyndhurst and Sway, proposals involving the change of use of ground floor premises from retail to other uses will be supported where planning permission is required and the proposals:
a) support the vitality and viability of the frontage;
b) respect and enhance the existing character of the frontage, including the historic character and intrinsic qualities of the built environment within conservation areas, if applicable
Elsewhere, proposals that would involve the loss of a valued local service or retail facility will be resisted where the loss of the service or retail facility would cause harm for those living within the village or locality, in terms of its vitality, unless the loss is part of an agreed plan to provide improved local services in an equally accessible location.
In all cases, proportionate evidence has been provided to demonstrate that the premises are no longer required for retail or other Class E(a-f) or F2 uses.
9.39 Facilities such as shops and pubs can play an essential role in the vitality and viability of villages and local communities. They have the potential to act as hubs and meeting places for the local community, often in combination with other activities. The Authority will therefore consider carefully the role that the premises/site does or could provide as part of the assessment of any application, for the loss of a local facility or service.
9.40 The growing importance of local produce to the New Forest economy is acknowledged and it is therefore appropriate that the Local Plan includes a local planning policy supporting appropriate small-scale retail development outside of the defined village boundaries. Farm shops which sell goods produced on the farm do not normally require planning permission.
Policy DP61: Retail development outside of the Defined Village boundaries
Outside of the Defined Village boundaries, small-scale convenience shops within rural settlements that serve local needs, and farm shops that are part of a farm diversification scheme, will be permitted, together with smallscale extensions of existing shops.
Any development should not extend into the open countryside or have impacts on adjoining land uses.
The potential effects of farm shops on other shops in neighbouring villages will be assessed.
Tourism
9.41 The New Forest National Park’s unique environment attracts millions of visitors, and the tourism industry is of considerable importance to the National Park’s economy. Spending associated with leisure trips – there are over 15 million day visits each year63, which has been increasing year on year since 201364 – is consequently significant to the Park, supporting the accommodation, retail and other business sectors, and providing employment, thus supporting local communities.
9.42 The development and implementation of sustainable tourism in the New Forest involves a wide range of partners and stakeholders. The key destination management role is operated by the New Forest Tourism Association, which has merged with the Go New Forest Community Interest Company to promote and market the New Forest, and encourage sustainable tourism. The Authority is supportive of the delivery of sustainable tourism and recognises the important contribution it makes to the National Park’s communities and its economy.
9.43 The Authority therefore aims to support sustainable tourism and provide opportunities for enjoying the New Forest’s special qualities without compromising its purpose to conserve and enhance the National Park’s natural beauty, wildlife and cultural heritage. To achieve this, new tourism development will, in general, be supported.
Policy SP62: Sustainable tourism development
1. Sustainable tourism development will be supported where it provides opportunities for the understanding, enjoyment and enhancement of the special qualities of the National Park. This will be facilitated by:
a) supporting small-scale development of new visitor facilities and accommodation within the Defined Villages, as appropriate to the scale and setting of the site;
63 New Forest Partnership Plan (2022)
64 With the exception of 2020 Source: STEAM report for New Forest National Park
19
b) supporting alterations and limited extensions to existing small-scale visitor attractions, facilities and accommodation where these do not materially increase the level of impact on activity on the site, and are contained within the existing site boundary;
c) outside of the Defined Villages, visitor facilities will be supported through the reuse or extension of existing buildings, and visitor accommodation will be considered as part of a farm diversification scheme as outlined in Policy DP59;
d) retaining where possible, existing serviced visitor accommodation where it contributes to the sustainability of local communities; and
e) supporting opportunities to relieve visitor pressures where this would assist in the conservation or enhancement of internationally or nationally designated nature conservation sites.
2. Proposals for the enlargement and diversification of major tourist attractions and sites offering accommodation facilities should be justified and supported by Whole Estate Plans to ensure that they remain appropriate and proportionate in the context and setting of a National Park. These should include but not be limited to, an assessment of:
a) identification of site opportunities and constraints;
b) priority to utilising existing buildings and structures;
c) maximising sustainable construction and transport opportunities, setting out how the proposal promotes sustainable development;
d) identification of clear mitigation measures for significant adverse impacts on local communities;
e) delivery of the National Park’s purposes and related duty; and
f) opportunities for sustainable active travel and public transport links
9.44 Small-scale development of new visitor facilities – meaning the infrastructure and services/amenities designed to meet the needs of tourists and overnight accommodation – will be supported within the boundaries of the Defined Villages. These villages already provide pubs/cafes, shops and other services used by visitors, and together with their access by public transport, make them more sustainable locations for tourism developments. Elsewhere in the National Park, impacts on the landscape and natural beauty of the area are likely to be more significant and accordingly, new facilities and accommodation are not acceptable.
9.45 The New Forest is home to a number of large tourist attractions such as Paultons Park, the National Motor Museum in Beaulieu, and Exbury Gardens. There are also several large holiday parks offering overnight lodge and camping/caravan accommodation. These major attractions and supporting facilities are a vital part of the local economy, however the impacts of these already substantial enterprises, can present challenges for the Authority in terms of delivering its purposes.
9.46 It is also important to recognise that existing serviced accommodation is under pressure from higher value forms of development, such as housing. Given that serviced accommodation makes a significant contribution to the local economy by providing employment and supporting businesses and local produce markets, retaining the existing stock is considered important. In the case of an extension to existing serviced accommodation, this will be supported provided the extension is modest in scale and also operates as serviced accommodation.
9.47 Existing holiday parks and campsites provide significant opportunities to enjoy the special qualities of the National Park. They are well provided for in and around the New Forest and this means that no additional camping facilities65 are needed.
9.48 The New Forest National Park contains over three times the average number of camping and touring caravan bedspaces per square kilometre than found in any other English national park, and consequently there is considerable recreational pressure on protected habitats. Moreover, the New Forest has a higher proportion of un-serviced versus serviced visitor accommodation. This amount of un-serviced accommodation is in addition to the high number of locations which have licences for seasonal 'pop-up' campsites.
Policy DP63: Holiday parks and camp sites
New campsites and extensions to existing holiday parks, caravan or camping/glamping sites will only be permitted to enable the removal of pitches from sensitive areas by the relocation to a less sensitive area, providing:
a) there would be overall environmental benefits;
b) there would be no increase in the overall site area or site capacity; and
c) the area where pitches or other facilities are removed from would be fully restored to an appropriate New Forest landscape, and any existing use rights are relinquished.
9.49 Although many sites are seasonal, they can have a significant impact on the New Forest environment, particularly those located in areas of designated nature conservation importance. Proposals for ancillary developments to support seasonal campsites, such as hard standings and toilets, will not be viewed favourably. In the longer term, it would be of benefit to the New Forest environment to reduce the overall number of camping and caravan pitches in the most sensitive areas.
9.50 Due to the increase in 28-day ‘pop up’ campsites, which account for some extra 7,000 overnight stays in the Forest, an Article 4 Direction was introduced across the National Park in September 2022. The consequences are that where a ‘pop up’ camp site could previously happen under Permitted Development; this now requires a formal planning application to ensure that this type of development is properly planned and controlled.
65 Including all forms of self-catering camping and caravan accommodation
9.51 A further Article 4 Direction was introduced in February 2024, in response to the Government's relaxation of permitted development rights in respect of temporary campsites. As a result, the Authority has published guidance on this matter, which explains in more detail the implications of both Article 4 Directions and the need for temporary camping uses to address their recreational impacts on designated nature conservation sites and the need to meet requirements of the Habitats Regulations
Telecommunications and digital infrastructure
9.52 Modern communications infrastructure delivering high-quality mobile and broadband internet services is vital for both a modern economy, and society in general. Reliance on communications technologies becomes even greater when other services are declining. High speed broadband and mobile coverage can be patchy in rural areas, which can have an adverse impact on people working from home or those businesses reliant on the internet.
9.53 In January 2023, the government published a National Parks Accord under its Building Digital UK programme, its purpose being to see the proactive roll out of fixed-line gigabit-capable broadband services and other technologies, and their associated benefits to communities, in ways that protect and enhance the special qualities of National Parks. The Accord expressed the following objectives:
• to maximise the delivery of gigabit-capable broadband to rural areas of National Parks to facilitate business growth, support home working, support rural services, strengthen communities, and improve quality of life in ways that protect the special qualities of National Parks and their settings;
• to explore opportunities to deploy innovative technologies, to maximise coverage and speed of roll out of broadband services through removing cost barriers to deployment, to explore opportunities to coordinate works with other infrastructure projects, and to positively enhance the landscapes of National Parks where this is possible; and
• to maintain a positive working relationship between all parties at national and local levels to allow the above to be achieved.
9.54 The Accord covers a number of detailed points including the consideration of all design options such as undergrounding, site sharing, and use of existing infrastructure wherever possible to reduce the need for new infrastructure. There is also reference to the need for environmental impact assessments, and where work is to be undertaken in an area with a large number of international environmental designations, procedures under the Habitats Regulations would also need to be adhered to.
9.55 It is a requirement for works associated with telecommunications infrastructure implementation to need the agreement of the landowner; in the New Forest this is more complex with the works potentially proposed on Crown Land and therefore consent of the Verderers would be required.
9.56 Consequently, whilst some applications for the installation of equipment could fall under permitted development, others may require planning permission, and the Authority wishes to influence their siting and design. In principle, support will be given to proposals which deliver high-quality and reliable communications, but keep the number of supporting masts and sites to a minimum and protect the National Park’s special qualities:
Policy SP64: Telecommunications and digital infrastructure
The provision of infrastructure for radio, broadband and other telecommunications/information technology will only be permitted where it is of a scale and design appropriate to the National Park and helps meet the digital needs of local communities and businesses.
1. Development will only be permitted where:
a) evidence demonstrates the service cannot be delivered less harmfully by installing equipment on existing masts, buildings or other structures;
b) the equipment is located and designed to minimise its impact; and
c) there is no unacceptable adverse visual impact upon the character of the locality and the wider landscape, or the National Park’s special qualities;
d) the equipment does not cause unacceptable harm to the character and appearance of the built environment and/or its heritage significance and tranquillity.
2. A condition will be applied, requiring removal of all digital / telecommunications structures and equipment, and the reinstatement of the site to its former condition, should the technology become redundant.
Emerging technologies and employment sectors
9.57 The NPPF makes specific reference to the need for local planning authorities to plan for the growth of the modern economy by identifying and addressing the specific locational needs of sectors and uses, such as laboratories, gigafactories, data centres, digital infrastructure, freight and logistics. Given the nature of the National Park and its inherent special qualities, it is unlikely that a site suitable for the scale of development envisaged, and with the uses mentioned, is likely to come forward during the plan period.
9.58 Locally, the obvious opportunity for such activities is part of the Solent Freeport Fawley Waterside tax site. The Economic Needs Assessment acknowledges that the whole site, not just the portion within the National Park, has potential to generate 4,000 jobs in research and development, and 700 jobs in advanced manufacturing and engineering. With a corresponding increase for both Science, Technology, Engineering and Mathematics (STEM) and higher technical skills such as data analytics, Artificial Intelligence, cybersecurity and automation.
9.59 Accordingly, Policy SP5 Land to north of Fawley Waterside allocates land in the National Park for around 12,000 square metres of mixed-use employment land, which could accommodate such activities. Proposals for larger scale development would be required to address the policy tests set out by the Government for major development in National Parks in the NPPF and also Policy SP4 of this Local Plan. These include the consideration of alternatives for developing within the nationally protected landscape of the National Park.