On 15 August 2007, the RTPI supported the One Show on BBC 1 to present a story on the contribution that rural pubs can make to the sustainability of village communities.  The following material was developed as a research briefing for the show, but will also help planners and communities understand the degree to which planning can help to support the role of the pub in providing village services.

Is the retention of a pub a planning consideration?

Rural pubs often form the heart of rural communities.  However, they are under pressure.  'The Publican' has carried out a recent survey which suggests that 10% are approaching the threshold of viability. Pub owners may also be attracted by the development value of pub premises and sites for alternative uses.

Planning has a key role to play in identifying and safeguarding rural services, of which pubs can form a valid part, as PPS7 in England makes clear.  

The primary tool available to planners is to refuse planning permission for a change of use for pub premises in circumstances where the pub is a vital component of local village services.  Clearly the capacity to achieve such an outcome will be significantly improved if the issue of rural services and the role of pubs in small settlements is considered in the local development framework.

There are however limits to what planning can achieve.  There will be little point in refusing planning permission for a change of use if there is no viable business use for the building as a pub, although  planners can encourage applicants to consider a portfolio of mixed community, service and business uses of pub premises that might increase the viability of a business overall.  It is likely that some form of business viability and market test approach will need to be included in a local policy that seeks to safeguard pub uses.

Planners must also be transparent with communities about what is within the scope of planning control.  There are a number of changes of use of pub premises that may significantly change the rural service and community focus of the building, but that do not require planning permission.

PPS7: Sustainable Development in Rural Areas

English government guidance on sustainable development in rural areas is set out in PPS7 which promotes sustainable patterns of development and sustainable communities in rural areas.

PPS7 sets out the requirement for RSSs and LDFs to:

include policies to sustain, enhance and, where appropriate, revitalise country towns and villages (including through the provision of affordable housing) and for strong, diverse, economic activity, whilst maintaining local character and a high quality environment.

PPS 7 also states that:

People who live or work in rural areas should have reasonable access to a range of services and facilities.

and places a requirement on Local Planning Authorities to:

adopt a positive approach to planning proposals designed to improve the viability, accessibility or community value of existing services and facilities, e.g. village shops and post offices, rural petrol stations, village and church halls and rural public houses, that play an important role in sustaining village communities.

identify suitable buildings and development sites for community services and facilities to meet the needs of the whole community, including disabled users; and

support mixed and multi-purpose uses that maintain community vitality.

PPS7 makes reference to the re-use of buildings in the countryside, which could include rural pubs. The government’s policy is

To support the re-use of appropriately located and constructed buildings where this will meet sustainability objectives.

Re-use for economic development is preferable but residential conversions may be more appropriate in certain circumstances.

Local Planning Authorities are required to set criteria for permitting building conversion and re-use in the countryside.

Use Classes Order

Public houses fall under the A4 Drinking Establishment Use Class. Public houses have a permitted change of use to:

• A1 Shops
• A2 Financial and professional services
• A3 Restaurant and café

A rural pub does need planning permission to change to residential use.

Policy case study (Reach, Cambridgeshire)

The East Cambridgeshire District Council Local Plan (P135) required the submission of evidence that a pub is neither viable nor likely to become viable before planning permission for a change to a residential use would be granted.

Evidence required would normally consist of an applicant having unsuccessfully marketed the business or property for its commercial use for a reasonable period in a manner and at a price that reflects its use a pub.

A planning application submitted in 1997 to convert the Kings Head (now known as The Dykes End) public house in Reach, East Cambridgeshire, to a residential use was refused on the strength of this policy. The grounds given for the refusal were:

• Insufficient evidence of an appropriate marketing strategy
• Harmful impact of the loss of the pub on the Conservation Area

Following the rejection of the application the action group who fought the application formed a Limited Company and bought the pub themselves, with shares split between 49 villagers. Investments were made on the understanding that approximately four years later the pub would be sold as a going concern on a 999 year lease with the freehold being assigned to the Parish Council. The pub is now a thriving local enterprise.

Delivery case study (Stainforth, North Yorkshire)

When the Stainforth village post office in North Yorkshire was threatened with closure in 1998 a local family decided to take it on. They ran the post office, sold groceries and served tea and sandwiches to tourists from part of an old stable attached to their house. The family then took ownership of the Craven Heifer Hotel pub and with the help of the brewery moved the post office and shop into the pub. Whilst the post office and shop have formal opening hours in reality they open at the same time as the pub.

The initiative did not require any funding and has provided an improved service for villagers who can now come in for a pint, buy stamps, collect their pension and have lunch. The community has benefited considerably fro retaining its post office and having a village shop for the first time in several years. It was reported that the pubs turnover increased over 100% since it was taken over and three new local jobs have been created.

The result is a more viable business and significant social and economic benefits for the village community.

Other considerations

Strengthened enforcement of drink driving laws has changed the nature of the rural pub business, particularly in settlements that are too small to support a pub without passing or destination trade.

A smoking ban has recently been introduced.  This may cause a period of uncertainty around viability for some parts of the rural pub trade, although it is too early to judge what this impact will be. It is likely that the most significant impact will be on pubs with no outside areas.

‘Saving Your Local Pub’: Guidance from CAMRA (2004)

CAMRA advises local communities to establish whether the community cares about its pub and, if so, to form a committee to examine ways of saving it.

If the pub is the last in the village then there is a reasonable chance of success when a change of use application is submitted to the local planning authority, improved if the local development framework contains supportive policy.

CAMRA have developed a Public House Viability Test which may help planners dealing with applications where owners are claiming that a pub is no longer commercially viable.

• Click here to access the CAMRA web site.

Need to know more? 

•  Click here to email RTPI policy officer Kate Halle.

Author:

Kate Halle and Rynd Smith

Publisher:

The Royal Town Planning Institute

Date:

14-Aug-07

Categories:

Practice 

Sections:

What Planning Does

This article has been read 2847 times.