HomeMy WebLinkAboutScenic Resource Protection Programs and Strategies - PCH (2016)Hawaii County
Scenic Resources Inventory and Mapping
Project
Scenic Resource Protection Programs and Strategies
Prepared for:
The Department of Planning
Long-range Planning Division
101 Pauahi Street, Suite 3
Hilo, Hawaii 96720
Prepared by:
Planning Consultants Hawaii, LLC
2331 W. Main Street
Wailuku, Hawaii 96793
808/269-6220
msummers@planningconsultantshawaii.com
August 1, 2016
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PROJECT PURPOSE 1
COUNTY ENABLING LEGISLATION 2
PROGRAMMATIC NEEDS 3
OVERVIEW OF STUDY 4
VIEW PLANE PROTECTION PROGRAMS 5
STATE OF HAWAII, COASTAL ZONE MANAGEMENT ACT OF 1978, HRS CHAPTER 205A 5
IMPLEMENTATION 6
MAUI COUNTY’S EXPERIENCE 7
SMA PERMITTING 7
PROGRAM SUCCESS 8
RECOMMENDATIONS TO IMPROVE THE PROCESS 9
APPLICABILITY TO HAWAII COUNTY 10
COUNTY OF NAPA, CALIFORNIA 11
IMPLEMENTATION 12
PROGRAM ELEMENTS 13
APPLICABILITY TO HAWAII COUNTY 14
STOWE, VERMONT 15
IMPLEMENTATION 15
PROGRAM ELEMENTS 16
APPLICABILITY TO HAWAII COUNTY 17
STATE DEPARTMENT OF ENVIRONMENTAL PROTECTION, MAINE 18
IMPLEMENTATION 19
PROGRAM ELEMENTS 20
APPLICABILITY TO HAWAII COUNTY 21
VISUAL IMPACT ASSESSMENT TECHNIQUES 21
CANYON OAKS STORY POLES 22
WAIKAPU COUNTRY TOWN, COMPUTER GENERATED PHOTOMONTAGE 23
THE SILL, LANDSCAPE AND VISUAL IMPACT ASSESSMENT 25
VILLAGE SPECIFIC PLAN, VISUAL IMPACT ASSESSMENT 25
RECOMMENDATIONS 28
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APPENDICIES:
APPENDIX A Napa County Viewshed Protection Program
APPENDIX B Stowe Vermont, Ridgelines/Hillsides Overlay District
APPENDIX C State Department of Environmental Protection, Maine Chapter
315, “Assessing and Mitigating Impact to Existing Scenic and
Aesthetic Uses
APPENDIX D Canyon Oaks Story Poles
APPENDIX E Waikapu Country Town Visual Impact Assessment
APPENDIX F The Sill, Landscape and Visual Impact Assessment
APPENDIX G Village Specific Plan, Visual Impact Assessment
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Project Purpose
The County of Hawai’i Planning Department initiated a comprehensive review of the
General Plan in February 2015. As required by HRS §226-58 and Hawai’i County
Charter §3-15, the Plan must include, among other things, objectives, policies, and
implementation actions for land use, natural resources conservation, and the
preservation of scenic beauty, open space, and other scenic resources.
The County of Hawai’i contracted Planning Consultants Hawai’i to conduct an inventory
of the County’s scenic resources along its State Highways and select County roadways.
The “Scenic Resources Inventory and Mapping Project” accomplished the following
objectives:
1. Identified and inventoried Hawai‘i County’s scenic, viewshed, and open space
resources using digital photography and Geographic Positioning Systems (GPS);
2. Mapped the scenic resources using Geographic Information Systems (GIS) and
for use with geodesign-based scenario modeling (i.e., CommunityViz); and
3. Described and prioritized the scenic resources using prescribed standards and
practices.
The purpose of this element of the study is to document methods that can be developed
and implemented to protect the County’s scenic resources for future generations. The
study will bring forth scenic resource protection programs and methods that are in use
elsewhere. The objective is to conduct research on view plane protection strategies
that different local, state, and federal government units have adopted that might serve
as a model to assist County planners and policy makers in the development of a scenic
resources protection program tailored to the unique needs of Hawaii County.
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Unique visual landscapes found in Hawaii County.
County Enabling Legislation
Hawaii County Code §25-6-60 establishes that the Hawai‘i County Council may
designate scenic roadway corridors. The ordinance further states that the County must
prepare a Scenic Corridor Management Plan to “preserve, maintain, protect, or enhance
the intrinsic character of the corridor.” The Management Plan would necessarily include
design standards and conditions to implement the purpose of the Plan.
The ordinance states that in the establishment of scenic roadway corridors the following
criteria must be met:
1) Is consistent with the intent and purpose of the Zoning Code and the County
General Plan.
2) Will not result in a substantial adverse impact upon the surrounding area,
community and/or region.
3) Will enhance Hawai‘i County’s significant natural, visual, recreation, historic
and/or cultural qualities.
4) Will protect and enhance the attractiveness of Hawai‘i County to make it a better
place to live, work, visit, and/or play.
5) Will improve Hawai‘i County’s economic vitality by enhancing and protecting our
unique natural, scenic, historic, cultural, and/or recreational resources.
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6) Is located on a major or minor arterial highway, or collector road.
7) Significantly possesses at least one of the following intrinsic qualities: scenic,
natural, historic, cultural, archaeological, recreational, or demonstrates local,
private, and public support and participation.
Moreover, the ordinance establishes a clear process for the establishment of scenic
resource corridors. These steps include:
1) The Planning Director or Council introduces a resolution to initiate the
establishment of a scenic corridor.
2) Notice is served to all owners and lessees of property within 300 feet of the
proposed corridor.
3) Within 24 months of the adoption of the resolution, the Planning Director or a
corridor advocacy group identified in the resolution completes a corridor
management plan and enabling ordinance. A scenic corridor management plan
is a written document that assesses the intrinsic qualities of the corridor and
specifies actions, procedures, controls, and administrative as well as community
strategies that will be pursued to maintain those qualities.
4) Within 120 days, the Planning Commission reviews the proposed plan and
ordinance, holds a public hearing, and makes a recommendation to Council.
5) The Council may adopt the plan by ordinance, with or without conditions.
Programmatic Needs
While the County has a strong policy foundation upon which to develop a scenic
resources protection program1, such a program has not yet been developed.
Programmatic gaps that currently exist include:
Establishing scenic roadway corridors pursuant to the requirements of Hawaii
County Code §25-6-60;
Preparing the Scenic Corridor Management Plan;
Developing application requirements;
Developing permit conditions, such as design guidelines, landscaping, screening,
or structural setbacks from major thoroughfares and highways, to mitigate any
visual impacts from development.
1 See Pages 1 through 3 of the Hawaii County Scenic Resources Inventory and Mapping Project Final Methods
Report.
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Historic Kailua Kona Town.
Overview of Study
Recognizing the positive economic and quality of life benefits derived from scenic
resources, many jurisdictions throughout the United States have implemented programs
to protect these resources for present and future generations. Scenic resource
protection programs typically arise from strong public policy directives to mitigate
development impacts to scenic views.
Planning Consultants Hawai’i has examined view plane protection programs across
local, state and federal government jurisdictions in the United States, England and
Australia to identify current best practice for protecting scenic resources. A common
thread across the programs surveyed is that regulatory controls are preceded by clear
policy directives that mandate the protection of scenic resources from development
impacts.
The County of Hawaii’s General Plan has very clear policy directives to 1) protect its
scenic resources from development impacts, 2) identify the scenic resources that are to
be protected, and 3) establish regulations to protect these resources. The primary
purpose of the “Hawaii County Scenic Resources Inventory and Mapping Project” was
to inventory, document, and rate scenic views along the County’s State and County
roadways. The information derived provides the basis for the development of regulatory
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Hawaii County’s pastoral and agricultural landscapes are an important scenic resource.
interventions to protect these resources. The inventory and mapping study also
provides extensive location specific data including written observations, digital
photography and GIS mapping that will greatly assist with the development of mitigation
strategies tailored to the uniqueness of the landscapes that are to be protected.
This study documents scenic resource protection programs and strategies employed in
other jurisdictions that may inform the development of programs appropriate to Hawaii
County. The study concludes by providing specific recommendations for actions
needed to establish a scenic resources protection program in Hawaii County.
View Plane Protection Programs
State of Hawaii, Coastal Zone Management Act of 1978, HRS Chapter 205A
The Hawaii Coastal Zone Management Act of 1978, HRS 205A, mandates that the
Counties implement the ten (10) objectives of the coastal zone management program.
Among these objectives, HRS 205A-2 (b) (5) addresses scenic and open space
resources by requiring each County to:
“Protect, preserve, and, where desirable, restore or improve the quality of coastal scenic
and open space resources”.
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HRS 205A further provides a number of policies to achieve each objective of the law.
HRS 205A-2 (c) (3) lists four policies to achieve scenic and open space resource
objectives. These include:
A. Identify valued scenic resources in the coastal zone management area;
B. Ensure that new developments are compatible with their visual environment
by designing and locating such developments to minimize the alteration of
natural landforms and existing public views to and along the shoreline;
C. Preserve, maintain, and, where desirable, improve and restore shoreline open
space and scenic resources; and
D. Encourage those developments that are not coastal dependent to locate in
inland areas.
The law further states that the County “shall seek to minimize where reasonable any
development which would substantially interfere with or detract from the line of sight
toward the sea from the state highway nearest the coast, or from the existing public
views to and along the shoreline.”
Implementation
Any “development” proposed within a Special Management Area (SMA) must obtain a
Special Management Area Minor or Major permit. In issuing the permit, the County
must determine that the project is consistent with HRS 205A-2 (c) (3). Thus, it is the
County’s responsibility to review development within the SMA, and prior to issuing an
SMA permit, ensure that the development is consistent with the above-referenced SMA
scenic resource objectives and policies. If the development is found not compatible,
then it is the County’s responsibility to require changes to the project’s design and/or
location to ensure consistency.
Hawaii County’s diverse coastal views are protected by SMA objectives and policies.
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Maui County’s Experience
HRS Chapter 205A requires that the SMA boundary be located at least 100 yards inland
from the shoreline. However, Maui County’s Special Management Area typically
extends inland to the nearest State Highway paralleling the coastline, which in coastal
communities like Kihei, extends nearly a mile inland. In some areas, Maui County’s
Special Management Area extends inland of the State highway, such as in Kahului,
where the boundary extends approximately 3,000 feet inland to the intersection of
Wakea Avenue and West Kamehameha Avenue. Because a preponderance of Maui’s
urban lands are located along the shoreline and inland of the State Highways, much of
its urban development has been subject to SMA permitting requirements, which
requires an analysis of consistency with HRS 205A-2 (c) (3).
SMA Permitting
Maui County SMA Minor permits are approved administratively by the Planning
Department. Maui County SMA Major Permits are processed by the Planning
Department, but ultimately approved, approved with conditions, or denied by the Maui
Planning Commission. The Planning Department prepares the staff and
recommendation reports and transmits these to the Maui Planning Commission for
decision making at a noticed public hearing.
Prior to finalizing its staff and recommendation reports, the Planning Department will
require that the project be presented to the County’s Urban Design and Review Board
(UDRB) for comment. The UDRB is a nine member board appointed by the Mayor that
has specialized professional expertise in urban design. The UDRB will review the
project’s site plan, architecture and civil engineering. It is not uncommon for the UDRB
to raise concerns pertaining to scenic resource impacts. Thus, the SMA permitting
process provides the Planning Department, UDRB and the Maui Planning Commission
the opportunity to address development impacts to scenic resources within the coastal
zone.
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Program Success
It is Planning Consultants Hawaii’s professional opinion that SMA policies have had just
limited success in protecting scenic resources within Maui County’s coastal zone.
There are several reasons for the modest performance, including:
1. Existing Community Plan and Zoning Designations. The bulk of Maui’s
developed shoreline and coastal lands were community planned and zoned in
the early 1970’s with little consideration for how such significant development
could impact scenic resources. The County’s early community plans neither
documented the scenic resources warranting special protections nor provided
sufficient guidance to help mitigate development impacts. As such, during a
period of prolonged and rapid urbanization of the County’s coastal lands,
SMA permitting was the principal safeguard to address scenic resource
impacts, but it was just modestly successful at protecting these resources.
2. Lack of Scenic Resources Protection Process, Procedures and
Standards. Although developments within the SMA are reviewed for
consistency with SMA scenic resource objectives and policies, there are no
criteria for determining when an impact has occurred, if the impact is
acceptable or not acceptable, and what measures should be taken to mitigate
scenic resource impacts. The current SMA process relies upon the discretion
of the County’s staff planner, who most likely has not received formal training
nor been provided with sufficient guidance for how best to mitigate scenic
resource impacts within the SMA.
Considerable urban development exists within Hilo and Kona’s SMA boundaries.
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Likewise, the UDRB and Maui Planning Commission have also not received
sufficient training on scenic resource impact management and mitigation.
3. Maui Coastal Scenic Resources Study (August 1990). Recognizing these
shortcomings in the SMA permitting process, the County of Maui’s Planning
Department commissioned the above-referenced study in 1990 to address
the following gaps:
Inventory and describe scenic resources within the developed and
developing areas of the SMA;
Propose measures, if necessary, to improve the quality of these
resources;
Develop a scenic resources design manual; and
Establish a training program for Planning Department staff. The study
recommended that the design manual be used by the UDRB as well
for reviewing coastal developments; and the study recommended the
establishment of an in-house evaluation committee to “specialize in
the review of coastal projects.”
Unfortunately, the study’s recommendations were never implemented by the
Department. The study continues to serve as a resource for both SMA Permit
Applicants and Planning Department staff to help determine if a development
is within an area of the SMA that may contain visual resources. However, the
design manual is rarely used to determine appropriate mitigation and the
training and evaluation programs were never institutionalized.
Recommendations to Improve the Process
Maui County’s reliance upon SMA permitting to protect coastal scenic resources could
be significantly improved through enhanced training of Planning Department staff, the
UDRB and the Maui Planning Commission. Practices should be put into place to
produce more consistent documentation of scenic resource impacts and to identify
appropriate mitigation strategies and standards for determining if the development is
consistent with the SMA’s scenic resources objectives and policies. Maui County could
amend its SMA Rules (§12-202) to ensure more effective scenic resource protection
through HRS 205A. Such amendments could include the addition of: 1) a design
manual to be used for the mitigation of scenic resource impacts; 2) application content
requirements for projects that produce scenic resource impacts; 3) criteria for
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documenting and evaluating scenic resource impacts; and 4) standards for determining
levels of acceptable impact. Maui County could also better protect its scenic resources
through on-going training of Planning Department staff, UDRB and the Planning
Commission in scenic resource impact evaluation and mitigation.
Applicability to Hawaii County
Much of Maui’s urban development has been subject to SMA Permitting, which requires
consistency with the SMA objectives and policies. However, the lack of a defined
process with supporting procedures, criteria and standards together with training has
resulted in only modest protection of the island’s coastal scenic resources. Any scenic
resources protection program implemented by Hawaii County should ensure that such
program weaknesses are not apparent.
It is important to note that while some of Hawai‘i County’s urban lands are located within
the SMA, a larger portion are not. In addition, because of its vast and rural nature,
many exceptional and important views in Hawai‘i County are mountain (mauka) or
agricultural views. Therefore, developments in these areas are not subject to SMA
permitting requirements.
For example, the inventory and mapping study identified many important and
exceptional views in urban areas, such as the Hilo and Waimea views below that are
not located in the SMA. Hawai‘i County may want to consider amending its SMA
boundary to include some of the coastal exceptional and important views, provided that
Hilo and Waimea urban views.
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other criteria for amending the boundaries are met as well. In addition, Hawai‘i County
may want to consider other protective overlays used in other jurisdictions to ensure its
mauka and agricultural views are protected.
County of Napa, California
Napa County has adopted a Viewshed Protection Program to protect the quality of its
scenic resources. The program implements the goals and polices of the Napa County
general plan including its land use, open space, conservation, circulation and scenic
highway elements. The program is codified as Chapter 18.106, “Viewshed Protection
Program” of the County’s zoning ordinance (See: Appendix A, “Napa County Viewshed
Protection Program”). Section 18.1206.010 states that the program is intended to
accomplish the following:
A. Provide hillside development standards to minimize the impact of man-
made structures and grading on views of existing landforms, unique
geologic features, existing landscape features and open space as seen
from designated public roads within the county;
B. Protect and preserve views of major and minor ridgelines from designated
public roads;
C. Create a development review process that maximizes administrative, staff
level approval of projects which meet administrative standards, while also
providing a vehicle for review by the zoning administrator or planning
commission of those projects that do not meet the administrative
standards;
D. Minimize cut and fill, earthmoving, grading operations and other such
man-made effects on the natural terrain to ensure that finished slopes are
compatible with existing land character; and
E. Promote architecture and designs that are compatible with hillside terrain
and minimize visual impacts.
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Views towards the horizon along the South Kona coast.
Implementation
The Viewshed Protection Program is implemented through the County’s zoning
ordinance. The ordinance applies to building, erosion control and grading permits
located on a slope of fifteen percent or more or on minor or major ridgelines as defined
by the ordinance.
The Director of the Conservation, Development and Planning Department, or the
Director’s designee, is responsible for determining if the project meets the
administrative criteria and substantially conforms to the Design Manual. If the project
does not meet the criteria, the Director may transmit the application to the Napa Valley
Conservation Commission and the Commission must grant an exception pursuant to
Section 18.106.070. In order for the Commission to grant an exception, the
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Commission must find that conformance would produce greater visual impacts and
greater impacts to existing landforms. Moreover, the Commission must find that
measures have been taken to mitigate the project’s visual impacts.
Program Elements
Major program elements include:
Standardized application and approval process. The process is
codified in the County’s zoning ordinance, which clearly describes how
visual impacts are evaluated, potential mitigative measures and how
applications are processed.
Viewshed Protection Program Application Packet. Among the
program’s application content requirements are: 1) Proposed site plan, 2)
Topographic map/preliminary grading plan, 3) Building/structure
elevations, 4) Landscaping and/or vegetation retention plan, 5) Exterior
lighting plan, and 6) Visual impact analysis. The Visual Impact Analysis
may include one or more of the following:
Story poles (the temporary placement of a mock wooden skeleton
in the general shape of the building, then draping plastic orange
snow fencing around the roofline to portray the visual prominence
and bulk of the proposed structure);
Computer simulation;
Photomontage;
Picture or visual as viewed from designated public road at point(s)
where the structure(s) is/are visible;
Appropriately scaled model; and
Additional views or materials as required by staff from other
vantage points.
Design Manual. The Design Manual is defined in the Napa County
Viewshed Protection Program ordinance as follows:
"Design Manual" shall mean the manual entitled
"Viewshed Protection Manual" on file with the Napa
County conservation, development and planning
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Hawaii County’s historic bridges are important scenic resources for the structures themselves as well as
for the scenic integrity of the landscapes seen from the bridges.
department. The Design Manual shall contain graphic
examples of major and minor ridgelines, projects which
do and do not meet the criteria contained in this chapter,
and landscape plan provisions.
Applicability to Hawaii County
The Napa County Viewshed Protection Program may serve as a helpful model for
Hawaii County as it develops a program to address its scenic resource protection
objectives. The program embodies a standardized application and approval process,
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clear application content requirements and a design manual unique to Napa’s program
objectives.
Stowe, Vermont
The Town of Stowe, Vermont adopted the Ridgelines/Hillsides Overlay District (RHOD)
to protect its scenic and ecological resources. The overlay district is implemented
through the Town of Stowe Zoning and Subdivision Regulations. Overlay districts are
zoning regulations that are typically applied to geographic areas that have unique
geographical, environmental or socio-economic conditions that warrant special
regulations. These regulations are attached to the existing zoning ordinance and are in
addition to and not in lieu of those regulations (See: Appendix B, Stowe, Vermont
Ridgelines/Hillsides Overlay District”). The purpose of the Stowe overlay district is
described as follows:
The purpose of the Ridgelines/Hillsides Overlay District (RHOD) is
to protect the scenic and ecological resources associated with
lands characterized by high elevations, steep slopes and visual
sensitivity in a manner that allows for carefully designed, low-
impact development.
Implementation
The RHOD is applicable to any development proposed on lands within the Overlay
District. Development within the RHOD must submit a hillside development plan that is
reviewed by the Development Review Board (DRB). The DRB determines if the project
is classified as “minor” or “significant”. There are established criteria that the DRB
follows to make this determination. Minor projects may proceed with their development
permits. Significant projects are subject to review by the DRB, in accordance with the
RHOD process and standards codified by ordinance. The process includes the
submittal of an application package, scheduling of a public hearing, review by the DRB
and either approval, approval with conditions or disapproval of the site development
plan within 45 days of the public hearing.
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Program Elements
Major program elements include:
Standardized review and approval process. The RHOD process is
codified in the Town’s overlay district ordinance, which clearly describes
which projects are considered to have “minor” impacts and which are
considered to have “significant impacts”; projects having significant impacts
are subject to DRB review. The ordinance also contains standards and
guidelines for determining potential impacts to vantage points and for guiding
development in a manner that minimizes its impact upon scenic resources.
Application Submission/Content Requirements. Among the program’s
application submission/content requirements are materials that may include:
1) Site development plan, 2) Grading plan, 3) Lighting plan, 4) Visibility
studies, 5) Stormwater management/erosion control plan, 6) architectural
plans and renderings, 7) Access plan, and 8) Slope analysis. Visibility studies
may include viewshed analysis, line of site sections, site photography and
other means to assess the visual impact of the proposed application. On site
measures such as plywood and pole mock-ups, and survey tape layout of site
elements may also be required in the event the site is deemed to be sensitive
by the DRB.
Standards and Guidelines. The RHOD ordinance contains Standards and
Guidelines that the Applicant, Staff and the DRB rely upon to mitigate scenic
resource impacts. The ordinance defines the following terms as follows:
"Adverse" indicates a negative impact on an
identified resource. "Undue Adverse" indicates that
the proposed development violates one or more of
the Standards set forth in this ordinance and that the
impacts cannot be mitigated.
Standards are statements that express the
development and design intentions of this overlay
district. All development within this district must
comply with these standards. The Standards reflect
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Hawaii County’s scenic resources are dramatically influenced by geology, climate and topography.
the visual and environmental concerns of the
community in terms of the Town's hillsides and
ridgelines.
Guidelines are instructive in nature. They suggest a
variety of means by which the applicant might
comply with the standards. The options for
compliance are not limited to the guidelines listed,
but the applicant can use the list to aid in the design
process.
Illustrations graphically portray the prescriptions and
concepts conveyed in both the Standards and
Guidelines.
The program’s deployment of standards and guidelines supported by illustrations that
are used in conjunction with a standardized approval and review process creates the
basis for a powerful scenic resources preservation program.
Applicability to Hawaii County
The Town of Stowe’s overlay district may serve as a helpful model for Hawaii County as
it develops a program to accomplish its scenic resource protection objectives. The
overlay ordinance embodies a standardized application and approval process; clear
application content requirements; and scenic resource standards, guidelines and
illustrations that may serve as a helpful model for the development of a program to
protect Hawaii County’s scenic resources.
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Kailua Kona seaside view.
State Department of Environmental Protection, Maine
The Department of Environmental Protection enacted Chapter 315, “Assessing and
Mitigating Impacts to Existing Scenic and Aesthetic Uses”, to implement the State’s
Natural Resources Protection Act (NRPA). The NRPA requires that applicants
proposing activities occurring in, on, over, or adjacent to protected natural resources
demonstrate that these activities will not unreasonably interfere with existing scenic and
aesthetic resources (See: Appendix C, State Department of Environmental Protection,
Maine Chapter 315, “Assessing and Mitigating Impacts to Existing Scenic and Aesthetic
Uses”). The purpose of the Chapter states:
This rule specifies State regulatory concerns, defines visual
impacts, establishes a procedure for evaluating visual impacts
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generated from proposed activities, establishes when a visual
assessment may be necessary, explains the components of a
visual assessment when required, and describes avoidance,
mitigation, and offset measures that may eliminate or reduce
unreasonable adverse impacts to existing scenic and aesthetic
uses.
Implementation
Chapter 35 applies to “the alteration of a coastal wetland, great pond, freshwater
wetland, fragile mountain area, river, stream, or brook, as defined in the M.S.R.A § 480-
B of the Natural Resources Protection Act, that requires an individual permit or is
eligible for Tier 3 review.”
The Chapter requires that the Department determine the following when an activity is
proposed:
Presence of a scenic resource listed in Section 10 of the NRPA;
Significance of the scenic resource;
Character of the surrounding environment;
Expectations of the current viewer;
Extent and intransience of the activity;
Project purpose; and
Context of the proposed activity.
The Department is instructed that “unreasonable adverse visual impacts are those that
are expected to unreasonably interfere with the general public’s visual enjoyment and
appreciation of a scenic resource, or those that otherwise unreasonably impair the
character or quality of such a place.”
The Department’s visual impact assessment is based on the following:
Landscape compatibility. The project’s impact on the color, form, line
and texture of the environment by whether it differs significantly from its
existing surroundings;
Scale contrast. The project’s size and scope given its location within the
viewshed of a scenic resource; and
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Spatial dominance. The degree to which an activity dominates the
landscape composition or dominates landform, water, or sky backdrop as
viewed from a scenic resource.
The rule states that “an application may be denied if the activity will have an
unreasonable impact on the visual quality of a protected natural resources as viewed
from a scenic resource even if the activity has no practical alternative and the applicant
has minimized the proposed alteration and its impacts through mitigation.”
Program Elements
Major program elements include:
Application Submission/Content Requirements. The Applicant must
describe the location of the activity and provide an inventory of scenic
resources within the viewshed. This is accomplished by having the
Applicant complete the MDEP Visual Evaluation Field Survey Checklist.
Visual Impact Assessments. If deemed necessary by the Department,
the Applicant may be required to have a qualified design professional
prepare a visual impact assessment to document the impact of the project.
The assessment must illustrate the proposed changes to the environment
and the effectiveness of mitigation measures. The assessment must
include a narrative of the project, discussion of the significance of the
impacts, level of use and viewer expectations, and mitigation measures
incorporated into the design. The rule notes that line-of-sight profiles are
one acceptable means for documenting impacts. It is also noted that
photo simulations and computer generated graphics may be required for
more sensitive landscapes.
Mitigation. In reviewing an Application, the Department is to consider if
the project is compatible with its surroundings, and if mitigation has been
incorporated to reduce the project’s scenic resource impacts. Design
strategies promulgated in the rules include:
Planning and siting. Locate structures in a way on the site to limit
the structure’s adverse impacts within the viewshed.
Design. Applicants should utilize screening, buffers, earthen
berms, camouflage, low profile, downsizing, non-standard
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materials, lighting, and alternative technologies to minimize
impacts.
Offsets. If scenic resource impacts are unavoidable, applicants
may propose “offset” improvements within the viewshed that would
enhance the scenic resource in other ways. An offset may be
developing a scenic overlook to provide greater access to the
scenic resource.
Standard Operating Procedures (SOP) for Evaluating Impacts. The
Department’s Bureau of Land and Water enacted standards to assist staff
in evaluating scenic and aesthetic use impacts. The guidelines require
that staff be trained in the use of a visual impact assessment (VIA) form
(Appendix C) and Visual Impact Assessment Matrix (VIM) (Appendix C).
The VIA form assesses the project’s compatibility with various elements of
the landscape using descriptive indicators and a ratings scoring. The VIM
form determines the significance of the visual impact and appropriate
mitigation in response to the severity of the impact.
Applicability to Hawaii County
Maine’s Department of Environmental Management has adopted rules to implement
State policy to protect the scenic quality found in its rivers, streams, mountains and
other environmental resources. The rules establish an application process, submission
requirements, appropriate mitigation strategies and guidelines and standards for
evaluating scenic resource impacts. The Department’s rules may serve as a helpful
model for Hawaii County as it develops a program to address the County’s scenic
resource protection objectives.
Hawaii County is blessed with rural landscapes of a diversity of colors and textures.
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Visual Impact Assessment Techniques
As documented in this report, visual impact assessment should be preceded by
documenting the scenic resources to be protected. Thereafter, criteria and/or
guidelines should be developed to help the assessor evaluate how, and to what extent,
a scenic resource is being degraded by a proposed action. Once a standardized
process is in place, visual impact assessment methods should be deployed to
document project induced impacts. The visual impact assessment techniques most
commonly used to document scenic resource impacts include:
1. Line-of-sight analysis. A graphic line between two points on a surface that
shows where along the line the view is being obstructed. This analysis can be
performed using ARC GIS.
2. Story poles. The temporary placement of a mock structure or poles at the height
and massing of a structure to simulate the impact of the structure on scenic
resources.
3. Computer simulation. The use of computers to simulate pre- and post-project
conditions by creating a computerized model of the height, scale and
architectural character of a structure together with the existing natural and built
environment surrounding it.
4. Photomontage. Creating a composite photograph by incorporating elements
from two or more photographs into a new image. Image editing software is often
used and the process is commonly referred to as “photoshopping”.
These techniques are elaborated upon through their application in the following visual
impact assessment case studies:
Canyon Oaks Story Poles
The City of Calabasas, California, requires projects to conduct a story pole analysis if
they are located within its “Scenic Corridor Overlay Zone”, or if they are requesting
height variances. The purpose of installing story poles is to assess the visual impact of
the project (See: Appendix D, Canyon Oaks Story Poles).
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Mauka views from Alii Drive in Kailua Kona document how building height and separation can be used to
preserve view corridors towards Hualalai.
The case study described in Appendix D documents an application that was made to
the City’s Planning Commission to install story poles, in accordance with a proposed
story pole plan. The Applicant was seeking an approval from the Planning Commission
to proceed with the story pole plan.
The story pole analysis was intended to document the scenic resource impacts of a
development comprising 67 single-family residences, two duplexes and a four-story
hotel. Approximately 80% of the 77-acre site was to remain in open space. The
Application to the Planning Commission comprised the following:
Development summary;
Project site plan superimposed onto an aerial photograph;
Documentation of views from the abutting roadways;
Architectural Sections of the project;
Story pole plans; and
Story pole plan with computer simulation of post development
condition. (See: Appendix D, pages 14 through 19).
Waikapu Country Town, Computer Generated Photomontage
A Draft Environmental Impact Statement (DEIS) was filed with the State Land Use
Commission to assess the impacts associated with the development of a 1,433 unit
mixed-use development in Waikapu, Maui. The Hawaii Revised Statutes (HRS),
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Chapter 343, trigger for the DEIS was an amendment to the County’s General Plan. The
project also requires a change in the State Land Use District from Agricultural to Urban
and Rural. The project site is within the County’s directed growth boundary and is
consistent with the County’s directed growth plan.
The Maui Island Plan (MIP) identifies the Honoapiilani highway fronting the project as a
“scenic corridor” with “high” resource value. The MIP has policies that stipulate the
protection of scenic resources including views of the West Maui Mountains, Haleakala,
agricultural lands and the Pacific Ocean. In reviewing the Environmental Impact
Statement Preparation Notice (EISPN), the Planning Department’s staff planner
requested that the impacts to views along the Honoapiilani Highway be assessed in the
DEIS.
In response to the Planning Department’s request, the Applicant prepared a series of
computer generated photomontages to document the visual impacts of the development
on the landscape (See: Appendix E, Waikapu Country Town Visual Impact
Assessment). As described in the DEIS, the Applicant incorporated several mitigation
measures into the design to help reduce the project’s visual impacts, including:
Increasing the depth of the setbacks along the highway;
Limiting the scale and height of buildings along the highway;
Increasing the separation between buildings;
Aligning internal roadways in a manner to create scenic corridors, where
possible; and
Incorporating canopy shade trees and other landscape planting treatments
Low roof profiles preserve expansive views of Hawaii County’s coastline.
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within the right-of-way to create a sense of place.
The computer generated photomontages will help to inform the public of the impacts
that the project will have upon scenic resources. They will also help decision makers
determine if the impacts are acceptable or unacceptable, and if additional mitigation
measures are warranted.
The Sill, Landscape and Visual Impact Assessment
A Landscape and Visual Impact Assessment (LVIA) was prepared to assess the visual
impacts of constructing a Landscape Discovery Center, 86-bed hostel, parking, and
infrastructure within the 400 square mile Northumberland National Park, England.
The study was conducted in accordance with the “Guidelines for Landscape and Visual
Impact Assessment”: Third Edition: 2013, edited by the Landscape Institute and the
Institute of Environmental Management and Assessment.
The LIVA is noteworthy for its discussion of the study’s methodology and overview of
the significance criteria (Chapter 3), description of baseline resource conditions
(Chapter 4), and summarization of impacts (Chapter 5). Photomontage was used to
demonstrate the project’s visual impacts from a variety of locations (See: Appendix F).
The tables on pages 31 through 34 are especially helpful in documenting the project’s
visual impacts. Similar tables could be used alongside photomontage and/or computer
simulation to document development impacts to Hawaii County’s scenic resources.
Increasing shoreline setbacks and minimum lot sizes could help to better protect shoreline views along
the South Kona coast.
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Village Specific Plan, Visual Impact Assessment
The City of Del Mar, California, Planning and Community Development Department,
commissioned a study that was completed in July 2012 to assess the visual impacts of
the City’s “Del Mar Village Specific Plan”. The Visual Impact Assessment thoroughly
documents the existing visual resources within the study area and assesses the visual
response of the different viewer groups. The study then conducts an assessment of the
Plan’s visual impacts, proposes mitigation options and assesses the impacts following
mitigation (See: Appendix G, Village Specific Plan, Visual Impact Assessment).
The Del Mar study utilizes several of the visual impact assessment techniques identified
in this report, including: GIS based line-of-site/viewshed analysis, photomontage and
computer simulation. GIS based line-of-site/viewshed analysis using a digital elevation
model (DEM) was effectively deployed to assess the Plan’s overall impact by
documenting the following:
The scope of existing and future ocean viewsheds from residences
located to the east (mauka) of the planning area.
The visibility of existing and future buildings from residences located east
(mauka) of the planning area based on existing and planned conditions.
The degree of visual impact upon residences located east (mauka) of the
planning area.
The presence and types of view corridors through the planning area from
residences located to the east (mauka) (See: Appendix G, pages 23 to 33).
Computer simulations documenting pre- and post-project conditions were are also used
extensively in the Del Mar Study. The study documents existing views from locations
where the Plan is proposing changes to building massing and height. Using computer
software, such as SketchUp, scale models depicting future building conditions were
inserted into existing condition photographs.
Utility clutter is a significant threat to Hawaii County’s scenic resources.
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The analyst is then able to assess the significance of the project’s impact.
Using computer simulation, the scenic resources analyst is able to assess the following:
Existing visual quality / character;
Proposed project features;
Change to visual quality / character;
Viewer response;
Resultant visual impact.
See Simulation “D1” on pages 52 through 53, Simulation “E1” on pages 56 through 57
and Simulations “F1” through “F4” on pages 58 through 62 of Appendix G.
Building setback, scale and topography minimize scenic resource impacts above while exacerbating
impacts below.
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Dust fencing offers suggestions of potential impacts to open space and Hualalai views just east of
Waimea along Highway 19, Kawaihae Road.
Recommendations
The purpose of this study was to research view plane protection programs and
strategies that different local, state, and federal government units have adopted. These
programs and strategies may serve as models that Hawaii County could use to help
respond to the programmatic gaps that have been identified within the County’s existing
planning and regulatory documents.
The County has a solid foundation of existing State and County policy directives to
establish view plane regulations to preserve and protect its scenic resources. As
documented in this report, there is also sufficient enabling policy to develop a scenic
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resource protection program. Any program developed should include the following key
elements that are already supported by County policy:
• Identification of scenic view planes, areas of natural beauty, and other visual
resources by mapping them (HRS 205A-2(c)(3)(A));
• Establishment of application requirements for all land use and construction
reviews to assess potential impacts on view planes and other natural and
scenic beauty resources, likely including line-of-sight analysis (GP 7.3 (e), (h),
& (i)); and
• Development of permit conditions, such as design guidelines, landscaping,
screening, or structural setbacks from major thoroughfares and highways, to
mitigate any visual impacts from development (GP 7.3(f)).
The following summarizes this study’s recommendations:
1. Identification of scenic view planes, areas of natural beauty, and other visual
resources.
1.A Conduct additional community outreach to support recommendations 1.B
and 1.C.
1.B Rate the viewsheds and roadway corridors documented in the Scenic
Resources Inventory and Mapping Project (June, 2016); and
1.C Develop scenic resource and viewshed corridor maps.
2. Develop administrative rules to implement Hawaii County Code §25-6-60. These
rules will provide a consistent framework and process for the implementation of
HCC §25-6-60. The rules should include: 1. Purpose and intent language; 2.
Criteria used to determine significant impacts when reviewing development
projects; 3. An application review and approval process for the review of
development projects; and 4. Application content requirements.
Models documented in this report include: Napa, California; Stowe Vermont; and
State Department of Environmental Protection, Maine.
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In addition, The Sill, Landscape and Visual Impact Assessment Report (Appendix
F), provides criteria that may be applicable for assessing visual impacts. The
visual impact assessment techniques documented in this report, including:
computer simulations, photomontages and constructing story poles, should be
required of Applicants when it is expected that their project will produce adverse
scenic resource impacts.
3. Develop Scenic Corridor Management Plan(s) for specific corridors identified
through steps 1.B and 1.C. Prepare and process the Management Plan(s) in
accordance with Hawaii County Code §25-6-60.
3.A Scenic Corridor Management Plan(s) should include permit conditions,
such as design guidelines, landscaping, screening, or structural setbacks
from major thoroughfares and highways, to mitigate any visual impacts
from development.
3.B Prepare Urban Design and Scenic Resource Protection Guidelines.
Design guidelines are needed to help both Applicant’s and staff identify
best practice mitigation for minimizing scenic resource impacts. Design
guidelines should address the following:
Building density, scale, setbacks, height, separation,
placement/orientation, colors, and materials;
Landscape planting; and
Topography
The guidelines should demonstrate the application of mitigation to projects
of the type to be expected within the unique landscape character districts
found within the County.
4. Staff and Planning Commission Training. Institutionalize a scenic resources
management and protection training program.
As described in this report, all development within Maui County’s SMA is subject
to a determination of consistency with the SMA’s scenic resource objectives and
policies. Unfortunately, there is very little guidance provided to help distinguish
between acceptable and unacceptable impacts, when a visual impact
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assessment should be conducted, and the types of mitigation that are most
appropriate to specific conditions.
Any program adopted in Hawaii County should include a training element to help
ensure that impacts are addressed consistently and in a manner consistent with
the purpose and intent of the County’s scenic resource protection policies.
Hawaii County’s scenic resources enhance the quality of life for its residents while attracting visitors from
around the world.
APPENDIX A
NAPA COUNTY VIEWSHED PROTECTION PROGRAM
APPENDIX B
STOWE, VERMONT RIDGELINES/HILLSIDES OVERLAY
DISTRICT
APPENDIX C
STATE DEPARTMENT OF ENVIRONMENTAL
PROTECTION, MAINE CHAPTER 315, “ASSESSING AND
MITIGATING IMPACTS TO EXISTING SCENIC AND
AESTHETIC USES
Standard Operating Procedure
Bureau of Land and Water Quality
Date: July 20, 2003
Doc num: DEPLW0541-A2003
COVERSHEET
STANDARD OPERATING PROCEDURE
Operation Title:Guidance for Assessing Impacts to Existing Scenic and Aesthetic Uses
under the Natural Resources Protection Act
Identification No.:DEPLW0541-A2003
Revision No.:00
Originator Name:Judy Gates
Reviser:N/A
Effective Date:July 20, 2003
APPROVALS:
Bureau of Land and Water Quality Director:
Brooke Barnes________ ____________________________ Date: ___________
Print Name Signature
QMSC Chair:
Malcolm C. Burson_____ ____________________________ Date: ___________
Print Name Signature
DISTRIBUTION:
( ) Bureau of Air Quality......................................................By: _____ Date: _______
( ) Bureau of Land and Water Quality.................................By: _____ Date: _______
( ) Bureau of Remediation and Waste Management..........By: _____ Date: _______
( ) Office of the Commissioner............................................By: _____ Date: _______
( ) Quality Management Steering Committee.....................By: ____ Date: ________
( ) Bureau QACs and Lead auditors……………………… By: ______ Date: ________
Standard Operating Procedure
Bureau of Land and Water Quality
Date: July 20, 2003
Doc num: DEPLW0541-A2003
Bureau of Land and Water Quality
Division of Land Resource Regulation
Licensing Unit
Standard Operating Procedure
Guidelines for Assessing Impacts to Existing Scenic and Aesthetic Uses
under the Natural Resources Protection Act
1. APPLICABILITY. This standard operating procedure (SOP) applies to all licensing staff in
the Bureau of Land and Water Quality’s Division of Land Resource Regulation (Division)
after December 1, 2002. It applies to the processing of applications filed with the Department
under the Natural Resources Protection Act (NRPA).
2. PURPOSE. This SOP is intended to establish consistent procedures for staff assessments of
potential impacts to existing scenic and aesthetic uses during the processing of NRPA
applications by the Division of Land Resource Regulation.
3. RESPONSIBILITIES.
3.1 COMPLIANCE. All licensing staff in the Division of Land Resource Regulation are
responsible for becoming familiar, and complying with, the contents of this procedure
prior to processing an application. The attached appendices are to serve as reference
materials throughout the processing of applications. Supervisors are responsible for
ensuring that licensing staff is familiar with and adhere to the procedures outlined in
this SOP. Enforcement & Field Services staff Drafting Department Orders will also
adhere to these procedures.
3.2 OTHER. The Licensing Coordinator is responsible for initial development, approval,
distribution, and maintenance of the proposed SOP. Policy and Procedures staff in the
Bureau of Land & Water Quality will track this SOP. The name of responsible
individuals, document title, dates of last revision, and document numbers will be
recorded.
4. GUIDELINES AND PROCEDURES.
4.1 ORIGINATION AND CONTENTS. Division Licensing staff will be trained in the
use of the Basic Visual Assessment (VIA) form (Appendix A) and Visual Impact
Assessment Matrix (Matrix) (Appendix B) associated with this SOP. The appendices
will be used by Division Licensing staff when potential impacts on existing scenic
and aesthetic uses are identified during the processing of an NRPA application. The
VIA and matrix will be used as guidance for determining whether a proposed activity
will have an unreasonable adverse impact on an aesthetically significant place, as
defined in Chapter 315, Section 9. The completed VIA and matrix will be included in
Standard Operating Procedure
Bureau of Land and Water Quality
Date: July 20, 2003
Doc num: DEPLW0541-A2003
Page 2 of 5
the project file. Associated definitions included in this SOP apply to the VIA and
matrix.
4.2 SOP DEVELOPMENT AND APPROVAL PROCESS. Approval of this SOP
follows the preliminary draft cycle and final approval cycle for Bureau-specific SOPs
described in SOP No. OC-PE-0001, Standard Operating Procedure Development,
Format, Approval, and Distribution, dated June 15, 2001. The Director of the Bureau
of Land and Water Quality and the Maine DEP’s QAM approve the final SOP.
5. REFERENCES.
5.1 MAINE DEPARTMENT OF ENVIRONMENTAL PROTECTION QUALITY
MANAGEMENT PLAN (JUNE 2001).
5.2 MAINE DEPARTMENT OF ENVIRONMENTAL PROTECTION STANDARD
OPERATING PROCEDURE ON STANDARD OPERATING PROCEDURES (OC-
PE-0001).
5.3 MAINE DEPARTMENT OF ENVIRONMENTAL PROTECTION, BUREAU OF
LAND AND WATER QUALITY, STANDARD OPERATING PROCEDURE
SUPPLEMENT TO OC-PE-0001 (DEPLW2001-22).
5.4 LANDSCAPE AESTHETICS: A HANDBOOK FOR SCENERY MANAGEMENT.
REVISED OCTOBER 2000. U.S. FOREST SERVICE.
5.5 SMARDON, R.C. AND HUNTER, M. 1983. THE FUTURE OF WETLANDS:
ASSESSING VISUAL – CULTURAL VALUES. TOTOWA, NJ.
Standard Operating Procedure
Bureau of Land and Water Quality
Date: July 20, 2003
Doc num: DEPLW0541-A2003
Page 3 of 5
APPENDIX A:Basic Visual Impact Assessment Form
VISUAL ELEMENTS VISUAL SUB
ELEMENTS
INDICATORS/CLUES ELEMENT
RATINGS
ELEMENT
SCORES
Severe 3
Moderate 2
Minimal 1
LANDSCAPE
COMPATIBILITY COLOR
Significantly different color,
hue, value chroma
None 0
Severe 3
Moderate 2
Minimal 1FORM
Incompatible 2/3 dimensional
shape with landscape
surroundings None 0
Severe 3
Moderate 2
Minimal 1LINE
Incompatible edges, bands, or
silhouette lines introduced
None 0
Severe 3
Moderate 2
Minimal 1TEXTURE
Incompatible textural grain,
density, regularity or pattern
None 0
SUBTOTAL
Major scale
introduction/intrusion
Severe 12
One of several major scales or
major objects in confined setting
Moderate 8
Significant object or scale Minimal 4
Small object or scale None 0
SCORE
SCALE CONTRAST
LANDSCAPE Dominate 12
Co-Dominate 8
SITUATION
Sub-ordinate 4
BACKDROP
Object/activity dominates or is
prominent in whole landscape
composition; oris promently
situated within the landscape; or
dominates landform, water, or
sky backdrop
Insignificant 0
SPATIAL
DOMINANCE
SCORE
TOTAL VISUAL
IMPACT SEVERITY
Severe 27-36
Strong 26-18
DEPLW0541-A2002 Moderate 17-9
Used with permission
of R.C. Smardon Weak or Negligible 8-0
Standard Operating Procedure
Bureau of Land and Water Quality
Date: July 20, 2003
Doc num: DEPLW0541-A2003
Page 4 of 5
Definitions associated with Appendix A.
A. Backdrop. The distant part of a landscape located from 4 miles to infinity from the viewer.
B. Color. The property of reflecting light of a particular wavelength that enables the eye to
differentiate otherwise indistinguishable objects. A hue (red, green, blue, yellow, etc.) as
contrasted with a value (black, white, or gray).
C. Contrast. Diversity or distinction of adjacent parts. Effect of striking differences in color, form,
line, or texture of a landscape.
D. Dominance. The extent to which an object is noticeable when compared to the surrounding
context.
E. Form. The structure, mass or shape of a landscape or an object. Landscape form is often defined
by the edges or outlines of landforms, rockforms, vegetation patterns, or waterforms, or the
enclosed spaces created by these attributes.
F. Landform. One of the attributes or features that make up the Earth’s surface, such as a plain,
mountain, or valley.
G. Landscape. An area composed of interacting ecosystems that are repeated because of geology,
landform, soils, climate, biota, and human influences throughout that area.
H. Landscape Character or Landscape Composition. Particular attributes, qualities, and traits of
a landscape that give it an image and make it identifiable or unique.
I. Landscape Compatibility. The elements of color, form, line, and texture that typically determine
landscape character.
J. Line. Anything that is arranged in a row or sequence. In landscapes – ridges, skylines,
structures, changes in vegetation, or individual trees and branches – may be perceived as line.
K. Scale Contrast. The degree to which an activity or object dominates or intrudes into a landscape
or confined setting.
L. Situation. The position of the activity or object within the landscape.
M. Spatial Dominance. The degree to which an activity or object dominates the landscape; is
prominently situated within the landscape; or dominates landform, waterform, or sky backdrop.
N. Texture. The grain of a landscape or repetitive pattern of tiny forms. Visual texture can range
from smooth to coarse.
O. Visual Elements. The landscape’s components that make up the overall visual character of a
landscape.
P. Waterform. One of the attributes or features that make up the Earth’s surface, such as a pond,
lake, stream, river, waterfall, estuary, or ocean.
Standard Operating Procedure Bureau of Land and Water Quality Date: July 20, 2003 Doc num: DEPLW0541-A2003Page 0 of 5APPENDIX B:Visual Impact Assessment MatrixLEGENDImpact severity RatingScenicsignificanceSevere36-27Strong26-18Moderate17-9Weak/None8-0UNACCEPTABLE. High level of visual contrast in line,form, color, or texture between existing high qualitylandscape and development proposal; view of water or othersignificant visual resource obstructed. May be grounds forproject denial.HighACCEPTABLE WITH MAJOR MITIGATION. Highdegree of contrast on landscape of medium significance;moderate degree of contrast on highly significant landscape.Project re-design necessary.MediumACCEPTABLE WITH MITIGATION. Somemodification to project siting or design necessary to achievebetter landscape ‘fit.’LowACCEPTABLE WITH MINOR MITIGATION.Relatively minor adjustments to plan or siting necessary toachieve a higher level of project compatibility.SCENIC SIGNIFICANCE OF VIEWUnratedLOW/NO IMPACT. No perceptible change to the visuallandscape. No mitigation required.Chart is recommended method for reviewing visual impactsand determining level of effort required for mitigation and/orreconsideration of project siting and design. Application ofthe recommended actions should consider length of view andviewer expectation.Appendix BBasic Visual Assessment FormDEPLW0451-A2002(Used with permission of Terrence DeWan &Associates)
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Chapter 315: ASSESSING AND MITIGATING IMPACTS TO EXISTING SCENIC AND
AESTHETIC USES
SUMMARY: This chapter describes the process for evaluating impacts to existing scenic and aesthetic uses resulting from activities in, on, over, or adjacent to protected natural resources subject to the Natural Resources Protection Act, pursuant to 38 M.S.R.A. § 480-D (1).
1. Introduction. In the Natural Resources Protection Act (NRPA), 38 M.R.S.A. §§ 480-A through Z, the Legislature has found and declared that Maine’s rivers and streams, great ponds, fragile mountain areas, freshwater wetlands, significant wildlife habitat, coastal wetlands, and sand dune systems are resources of state significance. Section 480-A states that these resources have great scenic beauty and unique characteristics, unsurpassed recreational, cultural, historical, and environmental value of present and future benefit to the citizens of the State and that uses are causing the rapid degradation and, in some cases, the destruction of these critical resources. The Legislature’s recognition of the scenic beauty of these protected natural resources through statute distinguishes the visual quality of those resources and its value to the general population.
Applicants for permits under the NRPA are required to demonstrate that a proposed activity
meets the standards of the NRPA that have been established by the Legislature. Standard 1 in
Section 480-D of the NRPA requires an applicant to demonstrate that a proposed activity will not
unreasonably interfere with existing scenic and aesthetic uses.
2. Purpose. This rule specifies State regulatory concerns, defines visual impacts, establishes a
procedure for evaluating visual impacts generated from proposed activities, establishes when a
visual assessment may be necessary, explains the components of a visual assessment when
required, and describes avoidance, mitigation, and offset measures that may eliminate or reduce
unreasonable adverse impacts to existing scenic and aesthetic uses.
3. Applicability. This rule applies to the alteration of a coastal wetland, great pond, freshwater
wetland, fragile mountain area, river, stream, or brook, as defined in 38 M.S.R.A. § 480-B of the
Natural Resources Protection Act (NRPA), that requires an individual permit or is eligible for
Tier 3 review. This rule does not apply to an activity that is exempt from permit requirements
under the NRPA or that qualifies for a Tier 1 or Tier 2 permit. This rule does not apply to a
Permit by Rule unless the Department exercises its discretionary authority to require an
individual permit as described in Chapter 305, Section 1 (D). In the review of an application for a
permit, the Department must evaluate the potential for unreasonable adverse visual impacts
resulting from a proposed activity located in, on, over, or adjacent to a protected natural resource.
4. Scope of Review. The potential impacts of a proposed activity will be determined by the
Department considering the presence of a scenic resource listed in Section 10, the significance of
the scenic resource, the existing character of the surrounding area, the expectations of the typical
viewer, the extent and intransience of the activity, the project purpose, and the context of the
proposed activity. Unreasonable adverse visual impacts are those that are expected to
unreasonably interfere with the general public’s visual enjoyment and appreciation of a scenic
resource, or those that otherwise unreasonably impair the character or quality of such a place.
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5. Definitions. As used in these rules, the following terms have the following meanings. Other
terms used in these rules have the meanings set forth at 38 M.S.R.A. § 480-X and Chapter 310,
the Wetlands and Waterbodies Protection Rules.
A. Adverse visual impact. The negative effect of a regulated activity on the visual quality
of a landscape.
B. Composition. The arrangement of the component parts of a landscape. Component parts
are objects or activities usually described in terms of color, texture, line, form,
dominance, and scale.
C. Contrast. Comparing the component parts of a landscape in terms of form, line, color,
texture, dominance, or scale.
D. Existing uses. The current appearance and use of the landscape, considering previous human alterations.
E. Landscape. An area characterized by its geology, landform, biota, and human influences throughout that area.
F. Mitigation. Any action taken or not taken to avoid, minimize, rectify, reduce, or eliminate actual or potential adverse environmental impact, including adverse visual impact.
G. Practicable. Available and feasible considering cost, existing technology and logistics based on the overall purpose of the activity.
H. Scenic Resource. Public natural resources or public lands visited by the general public , in part for the use, observation, enjoyment, and appreciation of natural or cultural visual qualities.. The attributes, characteristics, and features of the landscape of a scenic resource provide varying responses from, and varying degrees of benefits to, humans.
I. Viewshed. The geographic area as viewed from a scenic resource, which includes the proposed activity. The viewshed may include the total visible activity area from a single observer position or the total visible activity area from multiple observers’ positions.
J. Visual Quality. The essential attributes of the landscape that when viewed elicit overall
benefits to individuals and, therefore, to society in general. The quality of the resource
and the significance of the resource are usually, but not always, correlated.
6. Application submissions. An applicant is required to demonstrate that the proposed activity will
not unreasonably interfere with existing scenic and aesthetic uses of a scenic resource listed in
Section 10. Basic evidence must be provided to ensure that visual concerns have been fully
addressed in each application. The applicant must describe the location of the activity and
provide an inventory of scenic resources within the viewshed of the proposed activity by
completing the MDEP Visual Evaluation Field Survey Checklist (doc. #DEPLW0540) provided in the application. The applicant must describe the activity relative to its location and scale within the viewshed of any scenic resource, including a description of the existing visual quality and landscape characteristics. The applicant may request a pre-application meeting during which
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the Department can provide guidance for determining the location of the activity relative to scenic resources in the vicinity of the applicant’s parcel.
7. Visual impact assessments. The Department may require a visual impact assessment if a proposed activity appears to be located within the viewshed of, and has the potential to have an unreasonable adverse impact on, a scenic resource listed in Section 10. An applicant’s visual impact assessment should visualize the proposed activity and evaluate potential adverse impacts of that activity on existing scenic and aesthetic uses of a protected natural resource within the viewshed of a scenic resource, and to determine effective mitigation strategies, if appropriate. If required, a visual impact assessment must be prepared by a design professional trained in visual assessment procedures, or as otherwise directed by the Department. In all visual impact assessments, scenic resources within the viewshed of the proposed activity must be identified and the existing surrounding landscape must be described. The assessment must be completed following standard professional practices to illustrate the proposed change to the visual environment and the effectiveness of any proposed mitigation measures. The radius of the impact area to be analyzed must be based on the relative size and scope of the proposed
activity given the specific location. Areas of the scenic resource from which the activity will be
visible, including representative and worst-case viewpoints, must be identified. Line-of-sight
profiles constitute the simplest acceptable method of illustrating the potential visual impact of
the proposed activity from viewpoints within the context of its viewshed. A line-of-sight profile
represents the path, real or imagined, that the eye follows from a specific point to another point
when viewing the landscape. See Appendix A for guidance on line-of-sight profiles. For
activities with more sensitive conditions, photosimulations and computer-generated graphics may
be required.
A visual impact assessment must also include narratives to describe the significance of any
potential impacts, the level of use and viewer expectations, measures taken to avoid and
minimize visual impacts, and steps that have been incorporated into the activity design that may mitigate any potential adverse visual impacts to scenic resources.
8. Mitigation. In the case where the Department determines that the proposed activity will have an
adverse visual impact on a scenic resource, applicants may be required to employ appropriate
measures to mitigate the adverse impacts to the extent practicable. Mitigation should reduce or
eliminate the visibility of the proposed activity or alter the effect of the activity on the scenic or aesthetic use in some way. The Department will determine when mitigation should be proposed and whether the applicant’s mitigation strategies are reasonable. The Department may require mitigation by requesting that the applicant submit a design that includes the required mitigation or by imposing permit conditions consistent with specified mitigation requirements. In its determination whether adverse impacts to existing scenic and aesthetic uses are unreasonable, the Department will consider whether the applicant’s activity design is visually compatible with its surroundings, incorporating environmentally sensitive design principles and components according to the strategies described below.
A. Planning and siting. Properly siting an activity may be the most effective way to mitigate potential visual impacts. Applicants are encouraged, and may be required, to site a proposed activity in a location that limits its adverse visual impacts within the viewshed of a scenic resource.
06-096 DEPARTMENT OF ENVIRONMENTAL PROTECTION
Chapter 315, Assessing and Mitigating Impacts to Existing Scenic and Aesthetic Uses
- 4 -
B. Design. When circumstances do not allow siting to avoid visual impacts on a scenic
resource, elements of particular concern should be designed in such a way that reduces or eliminates visual impacts to the area in which an activity is located, as viewed from a scenic resource. Applicants should consider a variety of design methods to mitigate potential impacts, including screening, buffers, earthen berms, camouflage, low profile, downsizing, non-standard materials, lighting, and other alternate technologies.
C. Offsets. Correction of an existing visual problem identified within the viewshed of the same scenic resource as the proposed activity may qualify as an offset for visual impacts when an improvement may be realized. Offsets may be used in sensitive locations where significant impacts from the proposal are unavoidable or other forms of mitigation might not be practicable. An example of an offset might be the removal of an existing abandoned structure that is in disrepair to offset impacts from a proposal within visual proximity of the same scenic resource. Offsets can also include visual improvements to the affected landscape, such as tree plantings or development of scenic overlooks.
9. Determination. It is the responsibility of the applicant to demonstrate that the proposed design does not unreasonably interfere with existing scenic and aesthetic uses, and thereby diminish the public enjoyment and appreciation of the qualities of a scenic resource, and that any potential impacts have been minimized. The Department’s determination of impact is based on the following visual elements of the landscape: A. Landscape compatibility, which is a function of the sub-elements of color, form, line, and texture. Compatibility is determined by whether the proposed activity differs significantly from its existing surroundings and the context from which they are viewed such that it becomes an unreasonable adverse impact on the visual quality of a protected natural resource as viewed from a scenic resource; B. Scale contrast, which is determined by the size and scope of the proposed activity given its specific location within the viewshed of a scenic resource; and C. Spatial dominance, which is the degree to which an activity dominates the whole landscape composition or dominates landform, water, or sky backdrop as viewed from a scenic resource. In making a determination within the context of this rule, the Department considers the type, area, and intransience of an activity related to a scenic resource that will be affected by the activity, the significance of the scenic resource, and the degree to which the use or viewer expectations of a scenic resource will be altered, including alteration beyond the physical boundaries of the activity. In addition to the scenic resource, the Department also considers the functions and values of the protected natural resource, any proposed mitigation, practicable alternatives to the proposed activity that will have less visual impact, and cumulative effects of frequent minor alterations on the scenic resource. An application may be denied if the activity will have an unreasonable impact on the visual quality of a protected natural resources as viewed from a scenic resource even if the activity has no practicable alternative and the applicant has
minimized the proposed alteration and its impacts as much as possible through mitigation. An
06-096 DEPARTMENT OF ENVIRONMENTAL PROTECTION
Chapter 315, Assessing and Mitigating Impacts to Existing Scenic and Aesthetic Uses
- 5 -
“unreasonable impact” means that the standards of the Natural Resources Protection Act, 38 M.R.S.A. § 480-D, will not be met.
10. Scenic resources. The following public natural resources and public lands are usually visited by the general public, in part with the purpose of enjoying their visual quality. Under this rule, the Department considers a scenic resource as the typical point from which an activity in, on, over, or adjacent to a protected natural resource is viewed. This list of scenic resources includes, but is not limited to, locations of national, State, or local scenic significance. A scenic resource visited by large numbers who come from across the country or state is generally considered to have national or statewide significance. A scenic resource visited primarily by people of local origin is generally of local significance. Unvisited places either have no designated significance or are “no trespass” places. Sources for information regarding specific scenic resources are found as part of the MDEP Visual Evaluation Field Survey Checklist (doc. #DEPLW0540) provided in the application. A. National Natural Landmarks and other outstanding natural and cultural features (e.g., Orono Bog, Meddybemps Heath);
B. State or National Wildlife Refuges, Sanctuaries, or Preserves and State Game Refuges (e.g., Rachael Carson Salt Pond Preserve in Bristol, Petit Manan National Wildlife Refuge, the Wells National Estuarine Research Reserve); C. A State or federally designated trail (e.g., the Appalachian Trail, East Coast Greenway);
D. A property on or eligible for inclusion in the National Register of Historic Places
pursuant to the National Historic Preservation Act of 1966, as amended (e.g., the
Rockland Breakwater Light, Fort Knox);
E. National or State Parks (e.g., Acadia National Park, Sebago Lakes State Park);
F. Public natural resources or public lands visited by the general public, in part for the use,
observation, enjoyment and appreciation of natural or cultural visual qualities.(e.g., great
ponds, the Atlantic Ocean).
STATUTORY AUTHORITY: 38 M.R.S.A. § 480-A ADOPTED DATE:
June 5, 2003
EFFECTIVE DATE:
June 29, 2003 - filing 2003-198
06-096 DEPARTMENT OF ENVIRONMENTAL PROTECTION
Chapter 315, Assessing and Mitigating Impacts to Existing Scenic and Aesthetic Uses
- 6 -
APPENDIX A
GUIDANCE FOR THE PREPARATION OF
LINE-OF SIGHT-PROFILES
06-096 DEPARTMENT OF ENVIRONMENTAL PROTECTION
Chapter 315, Assessing and Mitigating Impacts to Existing Scenic and Aesthetic Uses
- 7 -
06-096 DEPARTMENT OF ENVIRONMENTAL PROTECTION
Chapter 315, Assessing and Mitigating Impacts to Existing Scenic and Aesthetic Uses
- 8 -
06-096 DEPARTMENT OF ENVIRONMENTAL PROTECTION
Chapter 315, Assessing and Mitigating Impacts to Existing Scenic and Aesthetic Uses
- 9 -
APPENDIX D
CANYON OAKS STORY POLES
Canyon Oaks
Story Poles Discussion
A request to install story poles, per the attached story pole plan, for the proposed development of a 77-acre vacant site located at 4790 Las Virgenes Road at the eastern terminus of Agoura Road (APNs: 2069078009 and 2069078011). The proposed project includes: (1) a residential component consisting of 67 single-family detached homes and four affordable units located within two duplexes; and (2) a commercial component consisting of a four-story hotel. Approximately 80% of the site would be preserved as permanent open space.
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Location Map
Project
Site
N APN: 2069078009 APN: 2069078011
500’
Scenic
Corridor
Buffer
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Proposed Development Summary
•The project site is currently zoned PD – RMF (20) –
OSDR.
•Commercial component: 120-room, 66,516 square-foot
hotel on approximately three acres;
•Residential component: 67 small lot, single-family
residences and two duplexes (four units) on
approximately 13 acres;
•Approximately 61 acres of dedicated open space.
•The project site is located within the Las Virgenes Road
Scenic Corridor. The hotel and 19 of the 71 total
residential units fall within the 500-foot Las Virgenes
Road scenic corridor buffer.
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Review Authority
•Per the City of Calabasas Story Pole Procedures:
Story poles are required for all new projects located within a
Scenic Corridor Overlay Zone.
Story poles are required for all projects seeking an exception in
building height by way of variance or development plan, and the
subject project does include a development plan request to
exceed a height of 35-feet). Hotel component
•The Planning Commission is being requested to review the
proposed story pole plan due to the impracticability of erecting the
poles for the all of the houses in the scenic corridor in complete
compliance with the guidelines.
•Story Pole Goals: (1) public notification; (2) assessment of visual
impact.
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
The
Colony
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Views from Las Virgenes
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Views from Las Virgenes
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Views from Las Virgenes
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Section D
Views from Las Virgenes
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Views from Las Virgenes
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Views from Las Virgenes
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Views from Las Virgenes
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Story Pole Plan
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Hotel + Story Poles
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Story Pole Plan - Hotel
Tallest
Pole:
Pole
Height =
36.5’
Proposed
Tower
Height =
53’
Tallest
point of
proposed
building
= 54.9’
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Proposed Residential Development +
Story Poles
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Proposed Res. Story Poles
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Story Pole Plan - Residential
Pole with Highest
Elevation:
Pole Height = 43’
Proposed Building Height
(at roof eave) = 26.5’
Planning Commission
January 21, 2016
File No. 140000011
A request to install story poles for the proposed development of
a 77-acre vacant site located at 4790 Las Virgenes Road.
Recommended Action
That the Commission authorize the applicant
to proceed with the proposed story pole
plan.
APPENDIX E
WAIKAPU COUNTRY TOWN VISUAL IMPACT
ASSESSMENT
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CHAPTER 5 AFFECTED HUMAN ENVIRONMENT, POTENTIAL IMPACTS AND MITIGATION MEASURES
WAIKAPŪ COUNTRY TOWN V-26
DRAFT ENVIRONMENTAL IMPACT STATEMENT
6.Visual Resources
Existing Conditions. The WCT project area is located between the town of Wailuku to the north
and Māʻalaea to the south along the Honoapi’ilani Highway. The project site generally slopes
from west to east with a high elevation of approximately 710 feet mean sea level (msl) at the
northwesterly corner and a low elevation of about 256 feet above msl at the southerly corner,
within the fertile Central Maui isthmus.
Views from within the project site are both diverse and dramatic. Largely unobstructed views of
Haleakalā, the West Maui Mountains, the Central Maui isthmus and the Pacific Ocean are
available at the mid and upper elevations. At the higher elevations Wailuku and Kahului, East
Maui and South Maui are all visible. From the lower elevations largely unobstructed views are
available of the West Maui Mountains, Haleakalā, and sugar cane lands that stretch from
Honoapi’ilani Highway to Māʻalaea and Kīhei.
These same lower elevation views are presently available from Honoapi’ilani Highway looking
into the project site. The existing mauka view from Honoapi’ilani Highway into the project site is
of agricultural fields planted in sugar and diversified crops, the MTP, and the valley and
ridgelines of the West Maui Mountains. The makai view from the highway, where not
obstructed by right-of-way vegetation, is of the existing sugarcane fields and Haleakalā. When
the sugarcane has been harvested there are intermittent views of the ocean horizon (See: Figure
8 A-N, “Site Photographs”).
Potential Impacts and Mitigation Measures. Chris Hart & Partners, Inc. prepared an island-wide
Scenic Resources Inventory Study for the County of Maui, Department of Planning, in July 2006
in support of the General Plan 2030 Update. The purpose of the study was to inventory and rate
the island’s scenic resources so that appropriate advanced planning and mitigation strategies
could be employed to protect these resources. The MIP incorporates the study’s scenic
roadway corridor recommendations into its “Context and Character Map” and references the
corridors in policies within Chapter 3, Heritage Resources (See: Figure No. 34, “Maui Island Plan,
Context and Character Map”).
Figure 34: MIP Context & Character Map
Property
Location
CHAPTER 5 AFFECTED HUMAN ENVIRONMENT, POTENTIAL IMPACTS AND MITIGATION MEASURES
WAIKAPŪ COUNTRY TOWN V-28
DRAFT ENVIRONMENTAL IMPACT STATEMENT
The Scenic Resources Inventory Study identifies the area along Honoapi’ilani Highway, fronting
the project site, as an area of “High” scenic resource value. In the study, areas of “Exceptional”
and “High” resource value are described as having “dramatic and diverse resource values
consistently throughout the corridor” and are “typically in a natural condition and unmarked by
development.” The study’s GIS inventory provides “field study” notes that describe the
character of the subject corridor. The notes describing the Honoapi’ilani corridor, fronting the
project site, are as follows:
“High concentration of agricultural lands; open space; and distant Haleakalā
views. Intact West Maui mountain views and expansive views of Māʻalaea and
the Kīhei coastline and Lana`i views exist. There is considerable utility clutter
along the highway. Sprawl conditions along the highway between Waikapū and
Māʻalaea should be avoided through the establishment of clear boundaries and
features such as landscape plantings and entry signage.”
Chapter 3, Heritage Resources, of the MIP contains policies that discourage sprawl and the
merging of the island’s small towns. MIP policies also protect views of Haleakalā, the West Maui
Mountains, the Pacific Ocean and other scenic resources. As such, design strategies are needed
to mitigate the impact of the WCT on visual resources from the Honoapi’ilani Highway fronting
the project site. The following documents scenic resource impacts and describes proposed
urban design strategies to help mitigate these impacts.
xSprawl. The WCTs urban and rural development will have approximately 4,700 linear
feet of frontage along the Honoapi’ilani Highway. The proposed development pattern
will produce a significant change from the largely undeveloped and open space views
that currently exist along what will become the frontage of the project. It is unavoidable
that the current open space views of sugarcane will be impacted by the development.
However, the following urban design and landscape architectural treatments will be
implemented to help reduce the appearance of sprawl like conditions and to create an
aesthetically pleasing sense of place fronting the project site:
Large Setbacks along the Highway. Setbacks of at least 60 feet, and in some
areas significantly more than 60-feet, will be utilized along each side of the
CHAPTER 5 AFFECTED HUMAN ENVIRONMENT, POTENTIAL IMPACTS AND MITIGATION MEASURES
WAIKAPŪ COUNTRY TOWN V-29
DRAFT ENVIRONMENTAL IMPACT STATEMENT
Honoapi’ilani Highway to separate the development from the public right-of-
way.
Landscape Planting within the Right-of-Way. Within the setbacks, the planting
of large canopy Monkey Pod trees, tropical shrubs and ground covers will be
maintained to create a sense of separation and definition between the urban
development and the highway and to create a green canopy enclosure and
greenway as a passage through the town.
Separated Pedestrian and Bicycle Facilities. An approximate 10-feet wide
shared pedestrian and bicycle track, separated from the highway, will meander
along the highway frontage. The shared use path will promote non-motorized
transportation, while producing more opportunities for the public to experience
the pleasant scenery along the highway.
xHaleakalā and West Maui Mountains from Honoapi’ilani Highway. From Honoapi’ilani
Highway, the elevation of the project site rises rather gradually, at a 3% to 6% slope,
from about 325-feet above msl to about 550-feet above mls where the Waikapū Ditch
traverses north to south across the property. From the Waikapū Ditch the slopes
increase to between 10% and 15% as the elevation increases to the foot of the West
Maui Mountains. The foot of the West Maui Mountains is at an elevation of
approximately 1,250 feet at the upper reaches of the WCT property and is about 6,800
feet from the highway.
In order to mitigate the obstruction of views from the highway to the West Maui
Mountains and Haleakalā, buildings will be setback at least 75-feet from the highway
and building heights will be limited to a maximum of 30-feet along the highway
frontage. Building placement and areas of separation will also help to create view
corridors between the highway and the mountains.
Within the project, roadways are purposefully aligned, where practicable, to capture
mauka and makai view corridors. This opportunity exists at each entrance into the
project site and along these roads as they travel east to west. In addition, views of the
West Maui Mountains, Haleakalā and the Pacific Ocean will also be preserved in various
CHAPTER 5 AFFECTED HUMAN ENVIRONMENT, POTENTIAL IMPACTS AND MITIGATION MEASURES
WAIKAPŪ COUNTRY TOWN V-30
DRAFT ENVIRONMENTAL IMPACT STATEMENT
locations from public spaces within the WCT, including the Village Green, the Waikapū
River Park, Waiheʻe Ditch Greenway and the Waikapū Station Greenway.
xOpen Space Resources. The project will impact views of agricultural lands on each side
of the Honoapi’ilani Highway fronting the development. While these views are not
unique within Central Maui, they do enhance Maui’s beauty and are an important visual
resource. In order to mitigate this impact, approximately 800 acres of agricultural land
will be preserved in perpetuity as an open space buffer and permanent separation
between Waikapū Town and Māʻalaea. Along the section of the highway where
agricultural land is to be preserved, largely unobstructed views of Haleakalā, the West
Maui Mountains and partial views of the Pacific Ocean exist.
Within the project site, the WCT will transform the current character of the MTP from a visitor
oriented attraction to a park-like village center, with its existing lagoon, gardens, open spaces,
shops, and restaurant coming together to create a new sense of place. While the existing
agricultural and open space ambiance of the lands abutting the MTP will become an urban and
rural settlement pattern, the WCT will maintain a rural and agricultural ambiance at its
boundaries because of the preservation of agricultural lands and incorporation of agricultural
supporting activities, such as a farmers market, within the project site.
From an urban design perspective, the proposed project will complement the unique country-
town architectural character that exists in Waikapū, Wailuku, Pāʻia, and Makawao. WCT design
guidelines are being developed to control the density, architectural design, and variation of all
buildings in the WCT to help preserve scenic resources and the aesthetic character of the
development. Goals of the design guidelines will be to preserve views and maintain the
aesthetic character of the community. A defining quality of the urban design character of the
development will be to create architecturally pleasing streets with landscape planting that
frames the travel ways and provides scale around architectural elements. As part of the DEIS, a
visual impact assessment was conducted to determine how views might be impacted along
Honoapi’ilani Highway, fronting the project site, following the Project’s build-out. Figure No. 35
A-E, is a simulation of before project and after project views along Honoapi’ilani Highway.
Visual Simulation of Pre- and Post Project Views
Figure 35, A
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1. Before. Looking in a south-easterly direction towards sugar land with Haleakala in the background.1. After. Looking in a south-easterly direction over the makai development with Haleakala in the back-
ground and separated pedestrian and bicycle path in the foreground.
Visual Simulation of Pre- and Post Project Views
Figure 35, B
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2
2. Before. Looking in a south-easterly direction towards sugar land with Haleakala in the background.2. After. Looking in a south-easterly direction over the makai development with canopy trees in the
background and separated pedestrian and bicycle path in the foreground.
Visual Simulation of Pre- and Post Project Views
Figure 35, C
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3
3. Before. Looking in a north-westerly direction with the West-Maui Mountains in the background and the MTP grounds in the foreground.3. After. Looking in a north-westerly direction through the project with the West-Maui Mountains in
the background.
Visual Simulation of Pre- and Post Project Views
Figure 35, D
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4. Before. Looking in a south-westerly direction through the MTP with the West Maui Mountains in the background.4. After. Looking in a south-westerly direction through the project with the West Maui Mountains in the
background and the separated pedestrian and bicycle path in the foreground.
Visual Simulation of Pre- and Post Project Views
Figure 35, E
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5. Before. Looking in a westerly direction through the MTPs agricultural fields with the with the West Maui Mountains in the background.5. After. Looking in a westerly direction through the project with the West Maui Mountains in the
background and the separated pedestrian and bicycle path in the foreground.
APPENDIX F
THE SILL, LANDSCAPE AND VISUAL IMPACT
ASSESSMENT
Planning Application for the demolition of existing National Park Visitor Centre (D1), Offices (B1), Retail (A1) and Café (A3) and 79 bed Youth
Hostel (Sui Generis) and associated car parking, and redevelopment of site as new Landscape Discovery Centre incorporating Exhibition
Space (D1), Retail (A1), Café (A3), Offices (B1) and 86 bed Youth Hostel (Sui Generis) together with 87 Permanent Car Parking Spaces, 93
Overflow car parking spaces, associated landscaping, substation and crossing point across the B6318 Military Road, pedestrian ramp within
the roadside ditch and formation of pedestrian refuges and route within wooded copse. Application situated at land South and North of the
B6318 at Once Brewed, Haydon Bridge, Northumberland, NE47 7AN
Landscape and Visual Impact Assessment
The Sill
‘The Sill’ Landscape Discovery Centre and Youth Hostel, Once Brewed. Landscape and Visual Impact Assessment
Northumberland National Park Authority and The Youth Hostel Association.
Page | 1
Glen Kemp Ltd., January 2014
THE SILL LANDSCAPE DISCOVERY CENTRE AND YOUTH HOSTEL
LANDSCAPE AND VISUAL IMPACT ASSESSMENT:
CONTENTS PAGE
1.0 Introduction 2
1.1 Scope of Assessment 2
2.0 Policy Context 3
2.1 Introduction 3
2.2 Northumberland National Park Management Plan 2009 – 2014 3
2.3 Northumberland National Park Local Development Framework 4
2.4 Hadrian’s Wall Management Plan 2008 – 2014 5
2.5 Landscape Character Assessment for Northumberland National Park 2007 6
2.6 Exterior Lighting Masterplan 6
3.0 Assessment Methodology & Significant Criteria 7
3.1 Introduction 7
3.2 Landscape and Visual Effects 7
3.3 Landscape Sensitivity 8
3.4 Visual Sensitivity 8
3.5 Magnitude of Change 9
3.6 Impact Significance Thresholds 9
3.7 Survey Area 10
3.8 Consultation 10
4.0 Baseline Conditions 11
4.1 The Landscape of the Study Area 11
4.2 The Development Site 12
CONTENTS PAGE
4.3 Landscape Character 14
4.4 The Landscape at Night 16
4.5 Landscape Value 17
4.6 Visual Baseline 18
5.0 Potential Effects 21
5.1 Introduction 21
5.2 Description of the Proposed Development 21
5.3 Effects During Construction 24
5.4 Effects After Completion 24
Schedule of Selected Viewpoints for Assessment of Visual Effects 31
6.0 Mitigation Measures 37
6.1 Introduction 37
6.2 Design Evolution 37
6.3 Alternative Car Park Options 38
6.4 During Construction 38
6.5 After Completion 39
7.0 Residual Effect 40
7.1 After Completion 40
8.0 Summary and Conclusions 41
8.1 Summary 41
8.2 Conclusions 44
FIGURES 1 – 20 (see separate schedule after page 44)
‘The Sill’ Landscape Discovery Centre and Youth Hostel, Once Brewed. Landscape and Visual Impact Assessment
Northumberland National Park Authority and The Youth Hostel Association.
Page | 2
Glen Kemp Ltd., January 2014
1.0 Introduction
1.1 Scope of assessment
1.1.1 This Landscape and Visual Impact Assessment (LVIA) considers the anticipated landscape and visual
effects arising from construction of a proposed new Landscape Discovery Centre and Youth Hostel by
Northumberland National Park Authority in partnership with the Youth Hostel Association. The new
facilities are to replace those currently present on the site at Once Brewed. The assessment has been
undertaken by a member of staff at Glen Kemp Ltd. who is a Chartered Member of the Landscape
Institute.
1.1.2 Having first established the planning policy context for the site in question, the report sets out the
methodology upon which the assessment has been based. It is important that the methodology employed
is transparent if the findings are to be interpreted correctly by the reader. In broad terms, both the
sensitivity of the landscape / visual receptor and the anticipated magnitude of change resulting from the
development are analysed and by combining these two factors, a level of significance of effect (which may
be positive or adverse) is predicted.
Effects on the landscape.
1.1.3 A description of the baseline physical and perceptual landscape of both the proposed development site
and the broader study area, includes a review of its recognised value. The likely impacts on the landscape
resulting from the development are then identified and the resulting effects noted. This includes direct
effects on physical elements within the landscape and indirect effects on landscape character and
distinctiveness.
Visual effects
1.1.4 In assessing visual effects, this report identifies and examines the nature of the public and private views
from the surrounding area which could be affected by the proposed development and predicts the
magnitude of the ‘degree of change’ in view and – taking account of the sensitivity of the visual receptor –
evaluates the significance of the anticipated visual impact resulting from the proposed development.
1.1.5 Photomontages and visual impact schedules based on selected viewpoints from within the study area are
used to assist the assessment of visual effects.
Cultural heritage
1.1.6 The archaeological and cultural heritage within this part of the Northumberland National Park is of
international importance and fundamental to the unique character of the landscape within the study area.
While this report makes an assessment of the anticipated effects on the physical landscape and its
perceived character, an assessment of the effects on the setting of designated heritage assets such as
the Hadrian’s Wall World Heritage Site and associated Scheduled Ancient Monuments is specifically
excluded. Such an assessment is the remit of the specialist archaeologist or landscape historian using a
methodology established by English Heritage (‘Seeing the History in the view: A method for assessing
heritage significance within views’, 2008). Such an assessment is covered in the relevant section of the
Environmental Statement prepared for this development project.
Effects and mitigation
1.1.7 The potential landscape and visual effects are identified for the demolition, construction and management
stages of the project and, where relevant, an assessment is made of how mitigation measures have been
used to minimise the significance of any adverse effects on the landscape or visual amenity. Finally,
residual effects – those that would remain after mitigation measures have been employed – are identified.
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2.0 Policy Context
2.1 Introduction
2.1.1 This section provides a brief review of existing policy and management strategy frameworks which are
directly relevant to landscape issues relating to the proposed development. It concentrates primarily on
the Northumberland National Park Management Plan and the Northumberland National Park Local
Development Framework (LDF) and the relevant documents contained within it, but also makes reference
to the External Lighting Management Plan prepared as part of the successful bid to the International Dark
Sky Association for Dark Sky Park status .
2.2 Northumberland National Park Management Plan 2009 – 2014:
2.2.1 The Northumberland National Park Authority (NNPA) was established in 1997 as a special purpose local
authority with the role of delivering the specific National Park statutory purposes as set out in law. The two
statutory purposes are: i) to conserve and enhance the natural beauty, wildlife and cultural heritage; and ii)
to promote opportunities for the understanding and enjoyment of the special qualities by the public - the
first purpose taking precedence over the second in instances where the two purposes might conflict with
each other.
2.2.2 The NNP Management Plan is the over-arching strategic document setting out the guiding principles,
vision, objectives and actions for managing the National Park and outlines the framework which will guide
Park’s future and ensure delivery of the two statutory purposes. It also identifies an additional statutory
duty, that of fostering the economic and social well-being of local communities within the National Park, in
recognition of the fact that the living and working landscape and the Park is the result of the interaction of
human activity and natural forces. Consequently, local communities need to be empowered to take on an
active role as custodians of the landscape and the concept of ‘Action Area’ working has been adopted by
NNPA as a framework to enhance the variation in locally distinctive character throughout the Park. Four
Action Areas have been identified, the proposed development site falling with the Hadrian’s Wall and
South Tyne Action Area.
2.2.3 The four guiding principles identified as underpinning the delivery process are:
i) sustainable development – “The National Park will aim to serve as a model of sustainable
development within the North East Region”.
ii) equality and diversity – “Northumberland National Park is for everyone and should be accessible
to the whole community regardless of economic social or physical constraints”.
iii) partnership working
iv) transparency and openness.
2.2.4 The ‘special qualities of the National Park are identified as being:
i) A distinctive landscape character – a stunning and varied landscape, a key characteristic of which
is its “openness, with landscapes and horizons free from significant human intrusions which
contribute significantly to the high levels of tranquillity”;
ii) A landscape rich in biodiversity and geology;
iii) A rich cultural heritage, reflected in the many layers of historic landscape in the Park ;
iv) A true sense of tranquillity – freedom from noise and visual disturbance is a key component of
experiencing the National Park. It is an area with an emotional and spiritual quality. One third of
respondents to a visitor survey in 2007 stated that tranquillity was the thing they liked most about
the Park.
2.2.5 In addition, a survey by the Campaign for the Protection of Rural England (CPRE) in 2006 identified
Northumberland as the most tranquil local authority on England, and this is one of the characteristics most
valued by visitors to the Northumberland National Park.
2.2.6 Together, these qualities have helped shape the vision for the National Park which is summarised in the
vision statement:
“Northumberland National Park will be a truly welcoming and distinctive place, easily accessible to all. Its
inspiring and changing landscapes, characterised by open spaces, tranquillity, diverse habitats, geology
and rich cultural heritage, will be widely recognised and valued. The living, working landscape will
contribute positively to the well-being of the thriving and vibrant communities in and around the Park”.
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2.2.7 In turn, the vision of the Park is embedded in five Strategic Aims, set out below, with outcomes relevant to
this assessment noted as follows:
1) A welcoming Park – i) people who come to the National Park will feel they have had an exceptional
experience in relating to the landscape and in finding peace, tranquillity and adventure; ii) the National
Park will be accessible to a wider and more diverse audience; iii) a more diverse range of learning
opportunities will be available.
2) A distinctive place – i) that will maintain a sense of inspiration and tranquillity; ii) the natural qualities
and diverse habitats will be safeguarded and enhanced.
3) A living, working landscape for now and the future
4) Thriving communities
5) A valued asset.
2.2.8 Of particular relevance to this assessment is the Strategic Aim of delivering a ‘distinctive place’. This has
generated a number of objectives directly relevant to landscape with the most notable means of achieving
them outlined below:
Objective Means to achieve
To protect and enhance tranquillity levels as the
highest in England
New development to be in line with policies set out
in the LDF.
To ensure all new development will conserve or
enhance the natural and cultural qualities of the
National Park.
Ensure effective design guidance is promoted and
good design is celebrated.
Ensure visitor and recreational use complements
the character and capacity of the locations in
which it takes place.
Positively promote and enhance low impact
recreational access to tranquil areas.
2.3 Northumberland National Park Local Development Framework:
2.3.1 The LDF consists of a set of documents which together guide new development in the National Park and
assist in delivering the strategy set out in the National Park Management Plan. The three documents
within the LDF which are of particular relevance to this LVIA are:
1) Core Strategy and Development Policies Document
2.3.2 The following policy extracts are of particular note:
Policy 1 – Delivering Sustainable Development: sustainable development should conserve / enhance the
special qualities of the National Park, making efficient use of land, materials and infrastructure. It should
provide opportunities to understand and enjoy the special qualities of the Park and demonstrate high
quality design, promoting accessibility via public transport, cycling or walking.
Policy 3 – General Development Principles: new development must promote principles of sustainable
development, protecting and enhancing local character and distinctiveness through careful integration with
the existing built form. It should be sympathetic in terms of scale, height, massing, siting, form, materials,
colour and to the protection of open space which contributes to the amenity, character and setting of a
settlement. The well being of local communities should be supported by ensuring amenity is not adversely
affected in terms of visual impact, pollution, noise and waste and that services and infrastructure can be
provided without compromising the quality of the landscape.
Policy 19 – Tranquillity: Development proposals which conserve or enhance the tranquillity of the National
Park will be supported. In order to determine the extent to which tranquillity is affected there will be an
assessment of the impact on the level of noise, traffic and light generated; on the sense of openness of
the National Park and on the quite enjoyment of the landscape.
Policy 20 – Landscape Quality and Character: All proposals will be assessed in terms of their impact on
landscape character and sensitivity as defined in the Landscape Supplementary Planning Document.
Development which would adversely affect the quality and character of the landscape will not be
permitted.
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2) Landscape Supplementary Planning Document
2.3.3 The above document aims to assist an assessment of the potential impact of development on the
landscape of the National Park and is to be considered alongside a broader Landscape Strategy which it
is understood is under preparation. It builds on the work of Natural England in assessing landscape
character. Consequently, the relevant content of this Supplementary Planning Document is referred to in
section 4.3 which considers issues relating to landscape character.
3) Design Guide Supplementary Planning Document
2.3.4 This is the current format of a Building Design Guide which has been in use since 1995. Rather than
setting out new policy, the Supplementary Planning Document (SPD) helps interpret existing policies. This
specific SPD aims to improve the quality of the built environment and safeguard the special qualities of the
area, while at the same time promoting sustainable construction. It is intended to help deliver the vision
that all development will contribute to protecting, sustaining and enhancing the special qualities of the
National Park, and that it will be sensitively located and designed.
2.3.5 Guidance of particular relevance to the development project is noted below:
- Form and hierarchy is evident in individual buildings within the National Park and has traditionally been
dictated by function and intended status.
- The building materials used often reflects what materials were locally available, the intended status of a
building or even what was fashionable at the time of construction. The material most commonly used was
stone, reflecting the diverse granites and whinstone.
- External features help tie a building into the wider landscape and anchor it into its setting, occasionally
declaring its status.
- New technologies, designs and materials must be embraced and contemporary design is to be
supported, but it must be appropriate and locally distinctive.
- Design quality of new development is of the highest importance and should consider siting, massing,
scale, proportion, rhythm, materials and colour, as well as the contribution to sustainable development.
Distinct design considerations for new buildings which are either in the ‘open countryside’ or in a
‘settlement’ (both of which are applicable to the Once Brewed site given its position within the hamlet of
Twice Brewed) are listed.
New development in open countryside should:
- take account of wider views into and out of the development site;
- sit comfortably within the site and not harm views through the use of inappropriate materials;
- reflect the form of the surrounding landscape;
- take care not to break the skyline;
- have boundary treatments that avoid a suburbanising effect.
New development within settlements should:
- look at the form and rhythm of existing buildings;
- consider height, scale and massing in relation to surrounding buildings;
- use boundary treatments to anchor the building into the wider setting;
- consider opportunities for creating new habitats.
With regard to external works:
- site boundaries should reflect surrounding character;
- consideration should be given to the facing material of retaining walls;
- hard surfacing should be kept to a minimum and be permeable where possible;
- soft landscaping should use dominant native species and should aim to connect with other natural
features to assist the movement of wildlife.
2.4 Hadrian’s Wall Management Plan 2008 - 2014
2.4.1 Hadrian’s Wall was designated as a World Heritage Site (WHS) in 1987 by the United Nations Educational
Scientific and Cultural Organisation (UNESCO) as the most complex and best preserved of the frontiers of
the Roman Empire. In 2005 it became part of the transnational WHS called ‘Frontiers of the Roman
Empire’, being judged to be of universal importance to humanity.
2.4.2 As the whin escarpment on which the Wall sits and, to a lesser extent the Wall itself, are prominent
features in the landscape in which the development site is located, policies designed to protect the setting
of Hadrian’s Wall are directly relevant to the Once Brewed site. Indeed the site sits within a designated
‘Buffer Zone’, mapped as a visual envelope extending 1-6km from the designated WHS itself, one of the
primary objectives of which is to protect the WHS from development that would be detrimental to its visual
setting.
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2.4.3 The Hadrian’s Wall Management Plan notes that the “presence of the Wall has had a lasting effect on the
landscape and perceptions of it”, and that the particular characteristics of the landscape are “its open
aspect, the maintenance of space between rural settlements, the existing patterns of fields and open
country, the use of traditional local materials in building, and woodland developed to reinforce the patterns
of the landscape”.
2.4.4 The Hadrian’s Wall Path – a National Trail – opened in 2003, running on or close to the remains of the
Wall and in 2006 the Hadrian’s Cycleway (National Cycle Route 72) was opened.
2.4.5 Appendix 7 of the Hadrian’s Wall Management Plan summarises the policies set out within it, listing
amongst other things, the need to maintain and reinforce the special character of the Wall landscape
including its beauty and natural heritage, and to retain the vitality of the landscape.
2.5 Landscape Character Assessment for Northumberland National Park 2007
2.5.1 This document has been used to inform the content of the Landscape Supplementary Planning Document
referred to above and the character of the landscape around the development site is covered in detail in
section 4.3 of this report. However, for each Landscape Character Type (LCT) identified in the above
Landscape Character Assessment, an outline strategy principle is defined to help shape future
management of the specific landscape and guidelines are offered for what is considered to be appropriate
land management and development. The strategy for the LCT within which the site is located is set out as
follows:
“This landscape has a strong identity and many valuable landscape features which remain in good
condition. The overall strategy for this area is to conserve and sensitively manage.”
2.5.2 With regard to future management, the following guidelines are relevant:
- Forestry and woodland: Restocking of shelterbelts to increase native species. Planting to have softer
outlines with shapes designed to integrate with local topography.
- Field boundaries: Rebuilding and restoration of stone walls should be encouraged.
- Historic sites: conservation of historic sites and their settings and areas of earthworks should be
encouraged, particularly where they act as local focal points and create strong landscape patterns and
textures.
- Tourism and recreation: Any development should be low key, conserving the wild character of the Wall’s
setting, with care taken to avoid altering or suburbanising the landscape character. New buildings should
respect the local surroundings in terms of materials and scale. New development should not be visually
prominent and should not detract from the scenic quality of the area.
- Transport: Any improvements to road safety on the Military Road must have minimum visual impact on
the open moorland character and the World Heritage Site. Night lighting should be resisted and signage
kept to a minimum.
2.6 Exterior Lighting Masterplan
2.6.1 In December 2013 the International Dark Sky Association (IDA) awarded Dark Sky Park status to the
combined areas of the Northumberland National Park and the Kielder Water and Forest Park – a total area
of 1,482km2. An essential component of the successful bid for Dark Sky Park status was an Exterior
Lighting Masterplan (LMP) prepared by Lighting Consultancy And Design Services Ltd. which aims to
provide practical advice on mitigating stray light within the Dark Sky Park for the NNPA, adjacent Local
Authorities, local businesses and residents. The document is not regulatory but outlines strategies of best
working practice with regard to design and planning guidelines and choice of lighting fixtures and correct
installation practice.
2.6.2 The LMP sets out nine Plan Statements which describe how a Basic Light Limitation Plan is to be applied
to defined ‘Environmental Zones’ within the Dark Sky Park. The Once Brewed site falls within the broad
Environmental Zone E0-250.
2.6.3 Appendix H of the LMP contains a Planning Application Guidance Note for all new or refurbished exterior
lighting installations. It confirms that an assessment of existing and future lighting effects should now form
an essential element for planning applications within a designated Dark Sky award area. It makes
reference to the Institution of Lighting Professionals (ILP) ‘Professional Lighting Guide 04: Guidance on
Undertaking Environmental Lighting Impact assessments:2013’ which focuses on the external lighting
aspects of new development applications and includes design and assessment methodology.
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3.0 Assessment Methodology & Significance Criteria
3.1 Introduction
3.1.1 The methodology for this LVIA is based on the ‘Guidelines for Landscape and Visual Impact Assessment’:
Third Edition: 2013 (GLVIA 3, 2013), edited by the Landscape Institute and the Institute of Environmental
Management and Assessment. This document is regarded as the industry standard work, setting out the
principles for the assessment process. While the accepted methodology for LVIA work is now reasonably
well established, qualitative judgements and a degree of subjectivity remain a critical part of LVIA with
regard to gauging the significance of identified effects for example, or identifying impacts on perceptual
aspects of landscape character. Consequently, it is important that such professional judgement is based
on a logical and transparent methodology so that it can be examined and understood by others. This
section of the LVIA chapter sets out the framework upon which the assessment has been made.
3.1.2 The ‘Landscape Character Assessment: Guidance for England and Scotland’ published by the then
Countryside Agency (2002) in association with Scottish Natural Heritage, has also been used as a
reference.
3.2 Landscape and visual effects
3.2.1 Following the recommendation in the GLVIA, in this assessment the term ‘impact’ is used to refer to the
action being taken and the term ‘effect’ is defined as the change resulting from that action. It is the
purpose of the LVIA to assess effects both on the landscape as a resource in its own right, and on views
of the landscape and general visual amenity.
3.2.2 It should be noted that issues relating specifically to the potential effects of the proposed
development on the historic landscape and the setting of sites of cultural heritage significance
have been assessed by specialist landscape historians within the Cultural Heritage chapter of the
Environmental Statement. Consequently, a detailed analysis of such effects has been excluded
from this report.
3.2.3 The GLVIA defines the assessment of landscape effects as “assessing effects on the landscape as a
resource in its own right.” Components of the landscape that are likely to be affected by a proposed
development are referred to as landscape receptors and can include individual elements or features,
overall character and key characteristics and aesthetic or perceptual aspects. Landscape effects derive
from changes in the physical landscape which may give rise to changes in its character and how this is
experienced. This may in turn affect the perceived value ascribed to the landscape.
3.2.4 The Guidelines define the assessment of visual effects as “assessing effects on specific views and on
the general visual amenity experienced by people.” People who will be affected by changes in views or
visual amenity are referred to as visual receptors and visual effects relate to the changes that arise in the
composition of available views as a result of changes to the landscape, to people’s responses to the
changes, and to the overall effects with respect to visual amenity.
3.2.5 Landscape and visual effects can be negative (adverse) or positive (beneficial). They can be direct,
indirect, secondary or cumulative and be either permanent or temporary (short, medium or long term).
They can also arise at different scales (local, regional or national).
3.2.6 The level of significance ascribed to landscape and visual effects depends primarily on the interaction
between, and combination of, the sensitivity of the landscape / visual receptor and the scale, or
magnitude of the predicted effects of the development.
3.2.7 To assess levels of sensitivity, both the susceptibility of the receptor to the type of change arising from
the specific development proposal and the value attached to the receptor, need to be considered. In
assessing landscape value, a measure of the physical state of the landscape (ie. its condition or quality)
may be made in terms of its intactness from a visual, functional or ecological perspective. It also ‘reflects
the state of repair of individual features and elements which make up the character in any one place’,
(Countryside Agency & Scottish Natural Heritage, 2002).
3.2.8 In considering the magnitude of change, judgements need to be made about the size and scale,
geographical extent and the duration and reversibility of the effect identified. Once levels of receptor
sensitivity and the magnitude of change resulting from a specific effect have been defined, a judgement
can be made about the overall significance of the landscape / visual effect.
3.2.9 To assist in establishing clarity and transparency of the assessment process used in this LVIA, the criteria
for the classification of: i) receptor sensitivity; ii) the value of the baseline landscape and visual receptors,
iii) the magnitude of landscape and visual effects, and iv) the resulting significance of the impact identified,
are set out in the following tables.
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3.3 Landscape sensitivity
3.3.1 The objective of the baseline study of the physical landscape of the development site and its setting is to
assemble a comprehensive audit of those landscape character and land use features on and around the
proposed development site that could contribute to a distinct ‘sense of place’. From such an audit, the
more valued landscape receptors that could be directly or indirectly affected and physically altered by the
development proposals are identified and the significance of that effect assessed.
3.3.2 Landscape susceptibility (the degree to which a landscape can accommodate change without
unacceptable detrimental impact on its character) is not an absolute criterion as its definition is dependent
on the nature of the potential development in question. Consequently, an assessment of landscape
susceptibility is not strictly part of the baseline study, but is considered at the time of assessing landscape
sensitivity in relation to specific identified impacts inherent in the specific development proposals.
3.3.3 The criteria for assessing landscape value is set out in Table 1.
TABLE 1 – Criteria for assessing landscape value
Value Typical criteria Typical scale Examples
High Exceptional High importance and
rarity.
No / very limited
potential for
substitution.
International,
National.
World Heritage Site, AONB, National
Park, National Scenic Area.
High High importance and
rarity.
Limited potential for
substitution.
National, regional,
local.
AONB, National Park, National Scenic
Area, AHLV / AGLV.
Moderate Moderate Medium importance
and rarity.
Limited potential for
substitution.
Regional, local. AHLV / AGLV, Regional Scenic Area.
Moderate - low Medium importance
and rarity.
Some / good
potential for
substitution.
Regional, local. Undesignated but value expressed in
demonstrable use.
Low Low Low importance and
rarity.
Local. Area identified as having some aspect
of local value but with scope for
improvement.
Very low Low importance and
rarity.
Local. Areas identified for recovery /
enhancement.
3.3.4 To assist the understanding of landscape value, landscape designations over a study area defined by a
minimum 3km radius from the centre of the site were identified using Defra’s ‘MAGIC’ web-based data
base.
3.4 Visual sensitivity
3.4.1 The sensitivity of a visual receptor is defined by the type of viewer (taking into account the expectation
and activity of the receptor), viewer numbers, the duration of exposure to the view and the factor of
distance. It also takes into account the importance of both the view itself and the point from which the view
is experienced (see Table 2.).
TABLE 2 – Criteria for assessing the sensitivity of visual receptors
Level Typical criteria
High
Sensitivity:
A strategic view or panorama of acknowledged national or regional importance, in which the proposed
development could be clearly seen from a highly sensitive public viewpoint.
Communities where the development results in changes to the landscape setting or valued views enjoyed by
the community.
Users of recreational facilities including public rights of way outside designated areas, whose interest is
focussed on the landscape.
Occupiers of residential properties with views affected by the development.
Moderate
Sensitivity
A moderately valued view or panorama of local importance, reasonably tolerant of change or a strategic
view, or view of acknowledged national or regional importance, seen from a less sensitive public viewpoint
and / or from a significant distance.
People travelling through or past the affected landscape in cars, trains or other transport routes and whose
attention might be focused on the landscape.
Users of outdoor sports and recreational facilities in designated areas where the landscape is unlikely to be
the primary focus.
Low
Sensitivity
A relatively unimportant view which is potentially tolerant of change or may benefit from that change or
moderately valued view or panorama of local importance seen from less sensitive viewpoint and / or from a
significant distance.
People engaged in outdoor recreation in non-designated areas whose attention maybe focussed away from
the change in the view and where tolerance to change is likely to be high.
People at their place of work or engaged in similar activities whose attention maybe focussed away from the
change in the view and where tolerance to change is likely to be high.
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3.5 Magnitude of change
3.5.1 The magnitude or scale of physical or visual change can be measured in terms of the degree of change,
whether it is adverse or beneficial and whether it is likely to be permanent or temporary. Criteria for the
assessment of magnitude of change are set out in Table 3 below.
TABLE 3 – Criteria for assessing magnitude of change
Level Typical criteria
Substantial: Total loss of or major alteration to key elements / features / characteristics of the baseline landscape.
Introduction of elements considered to be totally uncharacteristic in the context of the baseline
landscape.
A large number of sensitive receptors experiencing a major or fundamental change in nature of the
baseline view, particularly in near views with the baseline urban skyline substantially changed.
Moderate Partial loss of or alteration to key elements / characteristics of the baseline landscape.
Introduction of elements that may be prominent but may not necessarily be considered substantially
uncharacteristic in the context of the baseline landscape.
A moderate, but not fundamental, change in nature of view affecting a notable number of sensitive
receptors. Open, uninterrupted views with some middle distance obstruction of part of that view resulting
from the proposed development; baseline urban skyline not adversely infringed in view typically seen
over medium / long distance.
Low Minor loss of or alteration to key elements / features / characteristics of the baseline landscape.
Minor but non material change in nature of view; long distance views across urban landscape panorama,
or restricted views (upstairs bedroom windows only) with relatively few receptors affected.
Negligible Very minor loss of or alteration to key elements / features / characteristics of the baseline
landscape.Changes unlikely to be perceived by the majority of visual receptors.
3.6 Impact significance thresholds
3.6.1 Significance is not absolute and can only be assessed in relation to each development in its location. The
two principal criteria used in determining significance are: i) the sensitivity of the landscape / visual
receptor and ii) the magnitude of change anticipated.
3.6.2 For the purposes of this report, the summary range of the significance of the predicted landscape and
visual effects has been subdivided into five levels or grades. These ‘grades’ of significance are defined in
Table 4 as follows:-
TABLE 4 – Criteria for assessing levels of impact significance
Sensitivity of
Receptor
+ Magnitude of change = Impact Significance
High High Substantial
(Proposals have a large effect within the context of the wider
area.)
High Moderate Moderate - substantial
High Low Moderate
(Proposals have a noticeable effect within the context of the
wider area.)
Moderate High Moderate - substantial
Moderate Moderate Moderate
(Proposals have a noticeable effect within the context of the
wider area.)
Moderate Low Low - moderate
Low High Moderate
(Proposals have a noticeable effect within the context of the
wider area.)
Low Moderate Low - moderate
Low Low Low
(Proposals have only a limited effect within the mainly local
area.)
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3.6.3 No discernible deterioration or improvement in the baseline landscape character or the baseline level of
visual amenity would obviously result in no significant or negligible change being attributable.
3.6.4 Impacts may be short term (or temporary), essentially related to changes evident during the construction
period of the proposed development, or longer term (or comparatively permanent) resulting in changes in
landscape character and to the perception of that landscape after final construction.
3.6.5 For the purposes of this report, impacts which are assessed as being moderate or substantial (adverse)
are considered to be of a significance which should influence the design process and mitigation strategy
for the proposed development.
3.7 Survey area
3.7.1 The extent of the survey area used for the purpose of assessing landscape and visual effects was defined
initially as a result of a desk top exercise, during which a Zone of Theoretical Visibility (ZTV) was
established using digital terrain model with an OS raster backdrop. This ZTV was then tested and refined
as a result of observations made in the field.
3.7.2 Once a ZTV had been defined, key viewpoints were identified within it (see section 3.8) from which to
base the assessment of visual effects on the broader landscape and those moving through it. Analysis of
the visual effects has been summarised for each selected viewpoint.
3.8 Consultation
3.8.1 Viewpoints upon which the broader visual assessment has been made have been selected in consultation
with the Local Planning Authority.
3.8.2 Of the 13no. viewpoints selected in total, those considered to be of greatest significance have been used
to generate a photomontage which aims to show how the proposed development is likely to appear when
seen from the viewpoint in question. These viewpoints are identified as PM1-8. In order to show the
context of the Once Brewed site in the wider landscape at a scale that could be readily reproduced as part
of this document, the baseline photographs were taken using a digital SLR camera with the lens set at a
focal length of 32mm. To compensate for the loss of detail in these images when reproduced at A3 size,
the specific area of the Once Brewed development site has been increased to a size which, when held at
arms length, reflects the size of the image of the development as it wold appear in the field when seen with
the naked eye. The viewpoints for which no photomontage has been produced are labelled VP1-5.
3.8.3 It has been agreed with the Planning Authority that landscape and visual effects experienced from a
distance of 10km or more are generally likely to have a negligible effect on visual receptors. However, it is
acknowledged that an exception to this broad principle could result from the visual effects of night time
illumination. Consequently a long distance viewpoint (VP6) located within the North Pennies Area of
Outstanding natural Beauty (which comes within 5km of the site at its closest point) has been selected
specifically for this purpose at an elevated location on the B6305, just south of Langley Castle and
c.10.5km to the south east of the Once Brewed site.
3.8.4 At the RIBA Stage C design stage, the initial design concepts for the building and external spaces where
presented to the North East Design Review and Enabling Service (NEDRES) – a panel of professional
experts in the field of architectural and landscape design, set up to promote high building design quality
within the region. It was their shared opinion that the building should have a ‘presence’ when seen from
the Military Road corridor and that the visual connection with both the Whin Sill and the Vallum should be
maximised. In their view, this would contribute to the sense of drama already evident in the broader
landscape.
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4.0 Baseline Conditions
4.1 The landscape of the study area
(See Figure 1)
4.1.1 In describing the baseline landscape, the aim is to understand the landscape of the area that may be
affected by the proposed development. The study area used for the purposes of this assessment has
been informed largely by the Zone of Theoretical Visibility (ZTV) - see section 4.6 - backed up by a
desktop survey and observations in the field. However, it extends beyond the ZTV in places in order to
capture the relevant setting and visual context for the proposed development site, particularly for those
visual receptors who experience the site while passing through this distinct and characterful landscape.
4.1.2 The topography of the study area is very much dominated by the form of the Whin Sill, an intrusion of
dolorite (known locally as whinstone) which runs from Upper Teesdale to the Farnes on the Northumbrian
coast. It forms a ridge running on a generally east – west alignment, reaching a high point within the study
area of 345m AOD at Winshield Crags to the north west of the site. Along this section of the Whin Sill, the
outcrops at Peel Crag and Steel Rigg present particularly dramatic focal points on the skyline when
viewed from the B6318 corridor, the route from which most people are likely to experience the landscape
within the study area.
4.1.3 From the Whin Sill, the land falls to the bottom of the valleys formed by Brackies Burn and Bradley Burn,
both of which feed into Chainley Burn which enters the River South Tyne at Bardon Mill. South of Brackies
Burn and Bradley Burn, the land rises again to form another ridge, not quite as high as the Whin Sill, but
running parallel with it. In broad terms, these two ridgelines define the extent of the most significant part of
the ZTV for the proposed development.
4.1.4 Rough grazing and semi-improved pasture dominate the landscape, with medium scale fields defined
primarily by dry stone walls but also by post and wire fencing. Tree cover is limited to small clumps and
individual specimens along the course of Brackies Burn and Bradley Burn and the small blocks around the
Once Brewed site and the adjacent Twice Brewed Inn. Elsewhere, tree and shrub cover is restricted to
individual specimens growing along field boundaries or along the B6318 road corridor.
4.1.5 Settlement is sparse, being restricted generally to individual farmsteads, the largest group of properties
being the loose cluster defined as Twice Brewed. The only other notable elements of urban infrastructure
are the road signs associated with the B6318 and in particular, the group located around the junction
adjacent to the Once Brewed site.
4.1.6 The proposed development site at Once Brewed is located on the south side of the B6318 (known locally
as the ‘Military Road’) which runs in generally straight sections on an east – west alignment following the
line of Hadrian’s Wall. Once Brewed is positioned on the south facing slopes of the valley formed by the
Brackies Burn and is 2.5 km north of the major transport route of the A69 road corridor and the valley of
the River South Tyne along which it runs. The nearest town is Haltwhistle 5.6km to the south west and the
village of Bardon Mill lies 3.5km to the south east, both settlements being located on the A69.
4.1.7 Once Brewed is part of the settlement of Twice Brewed, a dispersed group of buildings along the B6318
comprising the existing Once Brewed NNPA visitor centre and YHA building and the neighbouring Twice
Brewed Inn, the Winshields camp site, three domestic residences including West Twice Brewed, the
Vallum Lodge guest house and a domestic residence and farm stead at East Twice Brewed.
4.1.8 Other isolated properties of note within the vicinity of the site but set back from the B6318 corridor are:
- Seatsides and Smith’s Shield on the top of a prominent ridgeline to the south of the site which
defines the southern boundary of the National Park designation;
- The National Trust owned holiday cottages of Springwell Cottage and Peel Bothy located on the
minor road leading from the B6318 up to the Whin Sill to the north;
- The farm of East Bog on the south facing slope of the Whin Sill escarpment.
4.1.9 The Once Brewed site lies at the point at which one of the occasional minor roads running north – south
connecting the A69 with the B6318, intersects the Military Road. Having crossed the Military Road, the
minor road continues north over the Whin Sill and provides access to the Steel Rigg car park operated by
the NNPA.
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4.1.10 Public Rights of Way and designated recreational routes within the study area are shown in Figure 1.
The most notable are listed below:
- Hadrian’s Wall Path National Trail – follows Hadrian’s Wall on the crest of the Whin Sill
escarpment but occasionally runs on lower ground to the south of the ridge.
- Pennine Way National Trail – follows the line of the Hadrian’s Wall Path before striking off
northward at a point 1km west of Houseteads Roman fort.
- National Cycle Routes 68 and 72 – connect the site with the Whin Sill to the north, Vindolanda
Roman fort to the east and the A69 to the south.
- Several public footpaths running from the B6318 corridor southward up slope to the ridge south of
the Brackies Burn.
4.1.11 Designated heritage sites are covered in the heritage section of the Environmental Statement, however
three specific sites or features are of such significance that they should be mentioned here. The first is
Hadrian’s Wall and the associated linear earthworks of the Vallum. The former follows the ridge of the
Whin Sill and the latter runs close to the B6318. Consequently, both have a strong visual profile and play a
major part in defining the drama and romance of this ancient landscape. The other two sites are the
Roman forts of Housesteads and Vindolanda (4.2km to the north east and 1.8km to the south east of the
site respectively), both major tourist destinations drawing visitors to this local area.
Also of note is the specific location on Hadrian’s Wall know as ‘Sycamore Gap’ just to the east of
Milecastle 39 and 1.2km from the Once Brewed site. The view of the mature sycamore tree which has
established in the centre of a dramatic dip in the Whin Sill ridgeline has become an iconic image in the
region, made all the more famous as a result of it being the location for a scene in the film ‘Robin Hood
Prince of Thieves’ staring Kevin Costner (1991).
4.2 The development site
(To be read in conjunction with Figure 2 - ‘Existing Site Plan’)
Location and topography
4.2.1 The proposed development site is located at the junction of the B6318 Military Road with the minor road
which connects it with the A69 at Heshaw and at Bardon Mill to the south. It lies 400m within the southern
boundary of the Northumberland National Park on the south facing slope of the valley containing the
Brackies Burn flowing in a west – east direction.
4.2.2 The boundaries of the site are clearly defined by the Military Road to the north, the minor road to the east
and the Brackies Burn to the south. The western boundary is shared with the Twice Brewed Inn and
associated car park at the northern end, and is largely defined by a field boundary and the course of a
tributary to the Brackies Burn on its central and southern sections. The northern part of the site currently
contains the existing Northumberland National Park Authority’s visitor centre (NNPA) and a hostel
operated by the Youth Hostel Association (YHA). The central and southern sections are defined by a field
owned by the National Trust which is currently used by a tenant farmer for grazing sheep.
4.2.3 From a level of 224.5m AOD at the north eastern corner, the site slopes to 201.3m AOD at the valley
bottom. In its central and southern sections, the site is slightly elevated above the minor road to the east
along much of its length and there is a marked change in gradient along the western boundary where the
land falls more steeply to form a small valley for the stream which flows south into the Brackies Burn.
4.2.4 Similarly, a section of the southern field falls south at a more pronounced gradient before levelling out at
the valley bottom to form a distinct landscape character sub-zone within the site.
Site features
The northern part of the site:
4.2.5 All existing built development on the site is restricted to the northern section. The current NNPA visitor
centre is a single storey building finished in natural stone cladding and with a pitched slate roof. Glazing
and timber cladding on the north elevation facing the service area and car park is of low visual quality but
has a low visual profile. On the eastern elevation, signage in the form of large, white individual letters fixed
to the plain stone clad wall identify the building as a tourist destination point when seen from the Military
Road corridor.
4.2.6 The main entrance to the visitor centre is on the southern elevation and is marked by larger glazed panels.
Outside the entrance, riven faced stone flags and dry stone wall raised beds form a patio garden
containing a haphazard arrangement of timber picnic tables and benches, steel bike stands, litter bins and
interpretation / information panels. Solar panels are located on the roof above the main entrance.
4.2.7 The western elevation of the visitor centre is dominated by a depot area with a large steel container
enclosed by a close board fence of low visual quality. Adjacent to this storage area is a pathway to the
youth hostel which is largely screened from view by a block of tree and shrub planting.
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4.2.8 The hostel building itself takes the form of a stone clad single storey, flat roof building on the east side
(separated from the NNPA visitor centre to the south by a narrow paved area) which is connected by a
central timber clad single storey block with large glazed panels, to a two storey accommodation block with
a slate pitched roof, stone cladding and pebble-dash finish above ground floor level. The main entrance
within the central section is accessed via a courtyard garden area paved in precast concrete flags and
containing a random arrangement of timber planters, picnic tables and benches. The garden space
extends around the western side of the hostel building where it takes the form of an overgrown naturalistic
garden dominated by individual mature trees and tree / shrub groups.
4.2.9 Immediately to the south of the YHA garden is a compacted stone footpath linking the neighbouring Twice
Brewed Inn site with the main NNPA car park. The path passes between the garden and a fenced off,
overgrown area containing septic tanks which once served both buildings on site.
4.2.10 The main car park to the visitor centre is located immediately to the south of the building and is formed in
tarmacadam with a stone sett edging and with unmarked parking bays formed in compacted gravel. A
grass strip with a couple of picnic tables and timber post and rail fence define the southern edge of the car
park area.
4.2.11 A second car park serving the youth hostel is located right in the visually prominent north eastern corner of
the site where the large area of tarmac also caters for services vehicles and provides access to timber
sheds / garage (in poor condition), a LPG compound and an unfenced bin store. The overall visual effect
is one of low visual quality. This car park area has its own entrance directly off the minor road close to the
junction with the Military Road. Vehicular and pedestrian access gates are in timber and of an agricultural
style.
4.2.12 From this service area, a narrow concrete path runs along the northern edge of the youth hostel, the
northern elevation of which is formed predominantly by a single storey stone clad block with a narrow strip
of glazing just below the eaves. The path marks the southern toe of the earth mound which is the Vallum –
a Roman military earthwork and Scheduled Ancient Monument. Within the site, the Vallum is barely
legible, its form being hidden by tree and shrub cover, much of which is in poor condition and is of low
visual quality.
4.2.13 A low dry stone wall, generally in good condition, defines the site boundary on the Military Road corridor
and on the eastern boundary. Breaks in the wall mark the entrance points into the site and at these
locations there is a scattered collection of individual but uncoordinated road signs and site markers
relating to the existing facilities.
4.2.14 The stone wall also runs down the northern section of the western site boundary. Although it forms the
boundary to the youth hostel garden, for the most part it is well screened from within the site by tree and
shrub planting.
4.2.15 Details of the tree cover on site is recorded in a Tree Survey produced by AMR Geomatics, 2013. The
survey records 51no. individual trees with a diameter greater than 75mm (the majority of which are
assessed as being of fair to poor condition) and 9 tree groups (Groups A – H) of varying sizes. With
regard to the individual trees, beech (Fagus sylvatica) and cherry (Prunus sp) are dominant, although 70%
of the cherries are noted as dead or in such poor condition as to warrant felling. Oak (Quercus petraea),
sycamore (Acer pseudoplatanus), Scots pine (Pinus sylvestris) and Norway maple (Acer platanoides) are
also present together with smaller numbers of silver birch (Betula pendula), ash (Fraxinus excelsior),
alder (Alnus glutinosa), rowan (Sorbus aucuparia) and Norway spruce (Picea abies).
4.2.16 In terms of tree groups, the largest by far is the triangular block of woodland on the eastern site boundary
to the south of the NNPA car park which comprises an even aged stand of ash, rowan, Scots pine,
sycamore and hawthorn (Crataegus monogyna) approximately 10m in height. A sign on a timber gate
giving pedestrian access into the woodland at its northern end identifies it as a woodland play area,
although signs of play activity are limited. Also visually prominent is a younger (but still well established)
group of alder, ash, beech and hawthorn which screens the YHA building and its garden from the NNPA
car park to the south. A small engraved timber sign suggests this planting was undertaken by the NNPA
and the Northumbrian Tourist Board in 1992 as part of ‘Beacon Europe’.
4.2.17 Other tree groups of note are the narrow strip of mature Scots pines and overgrown leylandii hedge which
form a dense evergreen screen along the western edge of the YHA garden at the north west corner of the
site, and the small fenced group of hawthorn and beech marked as a ‘wildlife garden’ on the edge of the
NNPA car park near the northern corner of the triangular woodland block.
4.2.18 As for the pattern of distribution of individually recorded trees within the site, the most prominent grouping
is that of the belt of trees which have become established on and adjacent to the Vallum on the site’s
northern boundary. Small patches of ornamental shrubs such as cotoneaster and rhododendron are also
present within this tree belt in which the size and condition of the trees varies enormously. Interconnected
groups of individual trees also define much of the character of the YHA garden space and the enclosed
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nature of the western end of the NNPA car park. Elsewhere within the site, individual trees are generally
seen in isolation, particularly along the north eastern and eastern boundary within the grass verge
between the buildings / car parks and the public roads. Of these specimen trees, the only one worthy of
particular note is the mature ash tree on the south side of the NNPA site entrance which acts as a focal
point and an informal gateway feature. However, this tree leans at a significant angle out over the public
highway and the tree survey has identified signs of rot in a hollow at the base of the trunk which merits
further investigation if the tree is to be retained.
4.2.19 One impact which is likely to affect the site, regardless of the development proposal, is the spread of
Fraxinus chalara, a disease which causes the gradual death of ash trees and which has been detected in
mature trees of this species in Northumberland. Once infected, the life span of a tree is likely to be less
than 10 years, however it is impossible to predict whether the trees on site will succumb to the disease or
show resistance, or at what stage any effects might become apparent.
4.2.20 For the purpose of this assessment it is appropriate to note that the three individual ash trees on site are
all located adjacent to the entrance to the NNPA car park and represent the three age classes of ‘young,
‘middle aged’ and ‘mature’. In the tree survey, all three are regarded as being of low quality and value
(category C) but do provide some screening or softening effect to the locality (subcategory 2). If these
three trees were lost, the eastern boundary of the site would become marginally more permeable in terms
of views into the site in this location.
4.2.21 The loss of ash trees which are present within the planting block south of the youth hostel and in the
triangle of woodland on the eastern boundary (tree groups A and D respectively) is unlikely to have a
significant visual effect, on the basis that the space created by dead / dying trees is likely to be filled by
the growth of neighbouring trees as they respond to the increased light levels.
The central and southern section:
4.2.22 The remaining two thirds of the main proposed development site comprises a field of semi-improved
pasture, together with the triangle of woodland referred to in section 4.2.16 above. A timber field gate in
the south eastern corner caters for agricultural vehicular access into the site but pedestrian access is also
possible via timber gates in the post and rail fence along the southern edge of the NNPA car park.
4.2.23 A post and wire fence prevents stock from gaining access to the Brackies Burn which flows in a small
incised channel along the southern edge of the field. In contrast, access to the tributary which runs
through the site temporarily on its western boundary, is not fenced off. The western field boundary is
defined primarily by a dry stone wall but with a post and wire fence featuring at the southern end of the
site.
4.2.24 Timber poles located at intervals within the field near the top of the tributary’s west facing valley slope,
support over head electric cables which run from a pole mounted transformer near the western end of the
NNPA car park, to a pole in the bottom of the valley. From here they run across the southern section of
the field in two directions, both up and down stream on a broadly east – west axis.
Copse north of the Military Road:
4.2.25 Directly opposite the north eastern corner of the site on the north side of the B6318 Military Road, there is
a group of alder and rowan which forms a small copse within an area enclosed by a dry stone wall.
Believed to be a former garden space associated with a previous youth hostel building, the regularly
spaced trees cover gently sloping ground falling towards the back of the Military Road highway verge. The
only break in the dry stone wall is on the southern boundary at a former narrow gateway marked by two
stone gateposts.
4.3 Landscape character
Broad landscape
4.3.1 Landscape character refers to the distinct pattern of elements relating to geology, soils, topography, land
use, vegetation cover, settlement patterns etc. that differentiates one landscape from another and
contributes to a recognisable sense of place.
4.3.2 The National Character Areas (NCA) as defined by Natural England, based on the Character Map of
England (Countryside Commission, 1998) that fall within the study area are illustrated in Figure 3 and
include:
- 11 Tyne Gap and Hadrian’s Wall
- 5 Border Moors and Forests
- 10 North Pennies
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4.3.2 The site itself lies within the western section of NCA 11 Tyne Gap and Hadrian’s Wall. Listed
characteristics of note include:
- it is visually contained to the north by the parallel scarps of the Whin Sill;
- farmland is pastoral in the west, merging to mixed and arable in the east;
- there is a variety of enclosure patterns, with large, walled enclosures predominant in the west and
hedged enclosures in the east;
- north of the Whin Sill there is open, windswept semi-improved and rough grazing on elevated
land, with loughs and rushy pastures;
- very evident remains of the Roman wall, forts and associated features occur on the Whin scarp.
4.3.3 The landscape of this NCA has been analysed in more detail by Julie Martin Associates and Alison Farmer
Associates with Countryscape as part of their Landscape Character Assessment of Tynedale District and
Northumberland National Park, 2007.
4.3.4 This more detailed analysis has identified the Landscape Character Type (LCT) 14: Parallel Ridges and
Commons within the part of the NCA in which the site is located, Landscape Character Types being
landscapes with broadly similar combinations of basic landscape elements and which can therefore be
found in different places.
4.3.5 The key characteristics of LCT 14: Parallel Ridges and Commons are identified as follows:
- repeating pattern of elevated ridges and shallow troughs with strong east-west alignment:
- cuesta landscape;
- dramatic outcrops of igneous rock forming pronounced north-facing scarps and south facing dip
slopes;
- open moorland with mat-and purple moor grass, peat bogs, improved pastures and
commons and loughs;
- medium to large-scale enclosure pattern defined by stone walls and post and wire fencing;
- extensive Roman archaeology associated with Hadrian’s Wall but also earlier archaeology;
- limited habitation of dispersed farmsteads nestling into landform and surrounded by shelter
planting;
- limited tree cover of small broadleaved copses and blocks of coniferous plantation;
- significant area for outdoor recreation.
4.3.6 In addition, other observations of note include:
- The outcrops of Whin Sill are seen rising often abruptly from the gently undulating moorland,
creating a sense of drama and ruggedness;
- There are extensive areas of open mat-grass moorland and patches of carr woodland, reed bed
and bog habitats associated with lower lying areas and glacial loughs and within these areas the
landscape has a large scale and exposed character;
- Elsewhere, the land has been enclosed by sandstone walls or fencing (particularly to the south of
the Whin Sill and around isolated farmsteads) to create a medium scale pattern of semi-improved
pastures, many of which are wet, the rushes creating visual texture.
- Tree cover is limited to small copses of ash and thorn and blocks of coniferous plantation;
- Many of the farmsteads date to the 19thC and are located in a dispersed pattern, nestled into the
landform among rocky outcrops.
- More recent man-made features in this landscape relate to the area’s importance for
recreation and tourism. Signage, car parks, footpaths and interpretation are frequent and
characteristic and are particularly concentrated along the Military Road and Whin Sill.
- This landscape character type feels remote because of its narrow roads, sparse settlement,
extensive agriculture management, and exposure to the elements. The landscape seems timeless
and unmodified since Roman times. The complex, enduring form of the Whin Sill, set within a
simple and uniform landscape of gently rolling moorland and enclosed pastures, remains its
defining feature.
4.3.7 The LCT is broken down further into Landscape Character Areas – landscape units which share the same
characteristics as the LCT but which display their own individual character and identity. The Parallel
Ridges and Commons LCT is divided into three LCAs, the development site lying close to the centre of the
largest of the three – LCA 14b Haltwhistle, Melkridge and Ridley Commons which is defined primarily for
the dramatic escarpment and associated outcrops of the Whin Sill and the overt signs of Roman
occupation. Scattered farmsteads are often surrounded by small copses of trees and visitor signage is
also prominent in parts.
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Site character
4.3.8 At a more detailed level, the proposed development site itself can be divided into 5 sub-character zones
as follows:
Zone 1: Military Road corridor – a largely utilitarian area of low visual quality along the north side of the
existing buildings, dominated by the service area (bin store, LPG compound, sheds) YHA car park, and
the noise and movement of traffic on the B6318. The ‘back’ of the YHA building is presented to the Vallum
Scheduled Ancient Monument and this important earthwork is barely legible in the landscape largely due
to the tree and shrub cover growing on it, much of which is in a very poor condition. The proximity of the
buildings and the continuous tree cover means much of the area is in shade for prolonged periods and the
resulting sense of enclosure is at odds with the proximity of the B6318. In contrast to the immediate
surroundings however, this part of the site does give striking views (some filtered) north to the dramatic
landscape of the ridge of the Whin Sill, and in particular, the view to Peel Crag.
Zone 2: YHA garden – although similar to the western end of zone 1 in terms of being enclosed and
shaded by boundary tree cover and buildings, this ‘garden’ space is more domestic in character. Signs of
a fire pit and the presence of a suspended basket seat from a tree indicate that the space functions as an
informal garden. Much of the vegetation appears to be unmaintained giving it a naturalistic appearance
which has a certain appeal. Although neglected, the space is secluded, relaxing and a offers a degree of
escapism and communion with nature.
Zone 3: NNPA and YHA environs – The sequence of linked, generally small spaces that combine to make
up the ‘front of house’ areas to the existing facilities on site lack visual quality but have a low key charm
nonetheless, being domestic in scale and welcoming. The absence of any coordinated design to the
layout of the external spaces is apparent but is perhaps appropriate for such a location. The NNPA car
park is of low visual impact from the main entrances to both buildings and allows the view south across
the valley of the Brackies Burn to dominate.
Zone 4: South facing slope within the southern field – From within this grazed field, the dominant view is to
the south and to the ridgeline of the north facing slope of the Brackies Burn valley. Consequently, the
presence of the NNPA car park and visitor facilities has a reduced impact on the character of this space
which is rural and open. In amenable weather conditions the view can be stimulating. In poor conditions,
the openness of the site can translate as being exposed.
Zone 5: Brackies Burn valley bottom within the southern field – With very few urban elements present in
the view from this enclosed and secluded spot within the valley, the sense of being in a peaceful rural
location is enhanced. Being in an incised channel, the Brackies Burn itself has limited impact on the visual
character of the space yet its presence still contributes to the sense harmony in the landscape character.
4.4 The landscape at night
4.4.1 As might be expected in a landscape where buildings are generally isolated and sparsely scattered and
where roads are not lit, levels of illumination after sun set are extremely low within the study area. The
main sources of light are:
- External security lights to domestic / commercial properties and farm buildings, some of which are
temporary, responding to the movement of vehicles / people – generally the most visible light
sources being uncovered and bright;
- Internal lighting to domestic properties – generally muted in intensity due to the presence of
curtains / blinds used at night;
- Car lights – bright but transient. Catch the eye due to movement.
4.4.2 Light levels for the existing NNPA visitor centre are very low at night as the site facilities only operate
between the hours of 10am and 3pm during the months between the end of October and end of March.
Pin-point red and green security lighting is visible within the building but only from within the southern car
park area of the site itself. The entrance and associated signage into the site are not illuminated.
4.4.3 On the south side of the youth hostel, external spot lighting and a wash of lighting at the main entrance is
visible but only from the southern car park where it is largely screened by a combination of existing
vegetation and the fenced depot area to the NNPA visitor centre. The visual impact of existing lighting
when seen from locations to the south and which are outside the site, is very subtle. What is more
noticeable is the orange glow from a wall mounted security light to the Twice Brewed Inn car park.
4.4.4 In views westward into the site from the YHA car park to the north, external wall mounted lighting is more
visible but still has a limited visual profile in views from outside the site.
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4.4.5 In views south from the road leading up to the Steel Rigg / Peel Crag car park, the regular spacing of
uncovered wall mounted external lighting along the length of the north elevation of the youth hostel is
uncharacteristic of lighting in the area and gives the impression that there is a large building present, even
if the building itself is not visible. On the neighbouring site the Twice Brewed Inn car park security light is
dominant and internal lighting to the entrance porch is visible. Together, the Twice Brewed Inn and YHA
sites represent the main clusters of lighting visible in the view but the overall effect is not intrusive to a
significant degree.
4.5 Landscape value
The broader landscape
4.5.1 Establishing the value of the landscape in which the proposed development site is located and of the
landscape features within the site itself, is of direct relevance when it comes to assigning a level of
susceptibility to change to those identified landscape receptors.
4.5.2 The role of Northumberland National Park as a ‘special place’ and a valued resource not just for the North
East but for the nation as a whole, has been noted in section 3 above. The NNPA Management Plan itself
notes that: “National Parks are the most beautiful, spectacular and dramatic expanses of countryside in
England, Scotland and Wales and are landscapes of national importance. They contain a wealth of
nationally and internationally important wildlife and cultural heritage.” The Northumberland National Park is
expansive, covering 20% of the county. However, there is no doubt that the specific landscape within
which the Once Brewed site is located is as valued as any within the remainder of the Park. The dramatic
topography created by the Whin Sill outcrop inspires and challenges. It can have an emotional and
spiritual quality and a sense of tranquillity that is one of the main perceptual qualities valued by visitors to
the area.
4.5.3 The Once Brewed site falls within the WHS ‘buffer zone,’ identified as the area beyond the WHS which
defines its setting.
4.5.4 Other heritage assets of the Roman period of national value, designated as Scheduled Ancient
Monuments, surround the site and one, the Vallum Earthworks, actually lies within the northern
section of the proposed development site.
4.5.5 A Grade II post medieval listed building lies 200m to the west of the site at West Twice Brewed.
4.5.6 The value of the local landscape for recreational activities in which direct experience of the landscape is
important is confirmed by the presence of designated routes of national significance such as the Hadrian’s
Wall Path and the Pennine Way, and National Cycle Routes 68 and 72.
4.5.7 At ‘Sycamore Gap’ 1.2km to the north east of the site, a single mature sycamore tree growing on the line
of the Wall ( just east of Milecastle 39) in the centre of a dramatic dip in the escarpment, is associated with
a scene in the film ‘Robin Hood Prince of Thieves’ staring Kevin Costner and many visitors are drawn to
that specific point on the line of Hadrian’s Wall for that reason.
4.5.8 Although issues relating to ecology are beyond the scope of this report, it is worth noting that there are
2no. National Nature Reserves and 3no. Sites of Special Scientific Interest within 3.5km of the site (see
Figure 1). The nearest of these is the Roman Wall Escarpment SSSI on the north side of the B6318.
4.5.9 Consequently, there can be no doubt that the local landscape within which the proposed development
site is located is valued at a national and international level. In addition, as of December 2013, the site
falls within an area which has been granted International Dark Sky Park (Gold tier) status by the
International Dark Sky Association (IDA). It is the largest area of protected night sky in Europe, and
amongst the largest in the world.
Landscape receptors on site
4.5.10 This section considers the value of the main individual landscape features within the site in terms of their
quality and aesthetic appeal and their contribution to the recognised value of the broader landscape.
4.5.11 The existing buildings themselves are considered to be of little architectural merit and value. Although they
generally blend into the landscape as a result of the use of stone and slate in construction, when seen
close up, the elevational treatment and detailing and the surrounding external spaces are seen to be of
low visual quality.
4.5.12 The Tree Survey for the site prepared by AMR Geomatics notes that: “The mature trees on the site make
a significant contribution to the landscape of this part of the Hadrian’s Wall corridor and help to blend the
existing buildings into the landscape.” The value of the trees lies predominantly in the role they perform as
a group in terms of their screening function, habitat provision and generating a feature characteristic of a
landscape in which trees are generally restricted to groups and clumps associated with individual
farmsteads or residential properties.
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4.5.13 When considered in isolation, many of the trees are in poor to fair condition, and there are few highly
valued individuals. One notable ‘landmark’ tree is the mature ash at the existing entrance to the NNPA car
park. However, there are concerns over its future stability.
4.5.14 Although the trees on the Vallum along the northern site boundary perform a valuable screening role to
the existing buildings in views from the north, it is acknowledged that their presence could be detrimental
to the condition and preservation of the Vallum Scheduled Ancient Monument.
4.5.15 Tree cover on the site is therefore generally assessed as being of low to moderate value.
4.5.16 The low dry stone wall which defines the extent of the site on its northern and eastern boundaries is
generally in good condition. It is a distinctive feature of the site and an element which is characteristic of
the broader landscape. It is of moderate value.
4.5.17 The field to the south of the existing NNPA car park is of moderate value, providing an attractive setting to
views south across the Brackies Burn valley from the current visitor centre. The southernmost section of
this field which forms the valley floor, is visually segregated from the site facilities by the local topography.
This isolation and containment generates a distinct sense of place which is of a higher value.
4.5.18 The site feature of most significant value is the Vallum – an earthwork feature from the Roman period
which runs along the northern boundary of the site and which is designated as a Scheduled Ancient
Monument of national importance.
4.6 Visual baseline
Visual context – broader landscape
4.6.1 A digital terrain model covering the area within a 15km radius of the Once Brewed site has been used to
generate a Zone of Theoretical Visibility (ZTV) for the existing site (see Figure 4). This uses elevation data
alone to predict points from which ground level of the existing site is theoretically visible assuming a ‘bare
earth’ landscape in which the potential screening impact of vegetation and buildings etc. is not taken into
account.
4.6.2 The ZTV in Figure 4 shows that, given the parameters set out above, the areas on the north side of the
River South Tyne from which the site may be visible are restricted to a comparatively short section of the
Military Road corridor, including the line of Hadrian’s Wall and the World Heritage site itself, and a section
of road to the south east of the Once Brewed site and due east of the Vindolanda Roman fort site.
4.6.3 Further a field (c. 5+km), on the south side of the river and the A69 road corridor, views of the site are
theoretically possible from an area south of Beltingham and a much smaller area north west of Whitfield,
and from higher ground to the west, east and south of Langley Castle, including sections of the A686 and
B6305. Further south still, the ZTV includes an area of moorland between Ninebanks and Allendale Town,
c. 13km from the site. Although further from the Once Brewed site, these potential viewpoints south of the
River South Tyne are of particular significance as most fall within the North Pennines Area of Outstanding
Natural Beauty (AONB).
4.6.4 Given the theoretical nature of the zone of visual influence illustrated in Figure 4, survey work in the field
has been carried out to establish actual levels of visibility from the more distant viewpoints within the North
Pennines AONB. As expected, the screening effect of tree cover, buildings and roadside walls and hedges
reduces significantly the actual area from which the site can be seen. Photographs in Figure 5 taken at the
five key viewpoints VP 6 – 10 identified in Figure 4 give an indication of the extent to which the site is
visible at such distances. Clearly, at distances greater than 5km, the existing site has a low visual profile
within the broader views north and in most instances there are other landforms or features on the horizon
that draw the eye and provide a focus away from the area in which the site is located. One exception is
viewpoint VP6 on the B6305 east of Langley, where the Once Brewed site, although virtually
indistinguishable in the broader landscape, is located just below one of the most visually prominent ridges
(Winshield Crags) on the horizon.
4.6.5 It should be noted that the site is not visible from Langley Castle which is located within the wooded valley
of the Langley Burn and the number of public rights of way within the ZTV south of the River South Tyne
is limited. The only public footpath providing sustained long distance views northwards to the Once
Brewed site is that running on an east-west axis across a grouse moor at Greenrigg Moor south east of
Langley.
Visual context – local landscape
4.6.6 A more detailed illustration of the ZTV based upon site ground level covering the area to the north of the
River South Tyne is provided in Figure 6
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4.6.7 It shows that the site may be visible from a 3km section of the B6318 Military Road corridor between
Shield on the Wall to the west, and East Twice Brewed to the east. It also indicates that the ZTV is
contained by the ridge of the Whin Sill and the line of Hadrian’s Wall to the north, and the ridge formed by
the top of the southern slopes of the Brackies Burn valley to the south (and which marks the southern
boundary of the National Park).
4.6.8 To the east, the areas from which the existing site might be visible are limited, being restricted mainly to
sections of the Whin Sill ridge extending as far as Hotbank Crags and the point at which the Pennine Way
leaves the Hadrian’s Wall Path, striking off northward, and a strip of elevated ground on the north western
edge of Thorngrafton Common, c.300m east of Vindolanda.
4.6.9 Most visual receptors experience the local landscape around Once Brewed from the Military Road corridor
and as such, the Once Brewed site must be seen in the context of a broader visual experience which,
whether travelling from the east or the west, captures the drama of Hadrian’s Wall and the cuesta
landscape with which it is associated. Within this setting, the existing site and its features have a generally
low visual profile. However, the precise nature of this visual profile depends very much on the direction
from which the visual receptor, passing through the landscape, approaches the site.
4.6.10 The existing buildings on the site are most visible when approached from the east, yet due to the
screening effect of the dry stone boundary wall on the south side of the B6318, the NNPA visitor centre is
not clearly visible in the view from the road until one is comparatively close to the buildings. From a
distance, the warm grey of the stone and slate building materials blends well with the surrounding
backdrop of tree cover and it is only the large white lettering on the east facing elevation which marks the
building as a feature of public note.
4.6.11 Approaching from the west, ridges to the north and south prevent a broader outlook and concentrate
views along the road corridor to a greater extent. The other dwellings and agricultural buildings which
make up the hamlet of Twice Brewed are notable at stages in the view. The large property at Seatsides on
the skyline to the south draws the eye, as does the longer distance view of the ridge formed by
Thorngrafton Common. The field to the south of the existing NNPA visitor centre is visible in this view but
has a low visual profile. However, as one approaches the Once Brewed site, not only is the Twice Brewed
Inn much more dominant in the view than the YHA building, which is largely screened by mature tree
cover around the outer edges of the site, but distinctive earthworks to the north of the highway provide a
focus for attention together with the profile of the Whin Sill forming the horizon. Consequently, the existing
site buildings go almost unnoticed until the receptor is travelling along the northern edge of the site. From
this close viewpoint, the stone and pebbledash finish to the youth hostel, which is filtered by vegetation on
the Vallum, is of low visual quality. The Vallum itself is barely legible, obscured as it is by existing tree and
shrub cover.
4.6.12 When travelling towards the site along the road from Henshaw and Bardon Mill to the south, although the
Twice Brewed Inn together with a scattered cluster of other buildings are visible, the existing visitor centre
and youth hostel buildings are all but hidden from view by existing tree cover. Once past Smith’s Shield,
direct and unobstructed views of the field to the south of the existing car park are possible from limited
sections of road before it drops down into the bottom of the Brackies Burn valley. When present, vehicles
(minibuses in particular) parked in the existing YHA car park and at the western end of the NNPA car park,
are notable. These views form part of a broader vista north in which the outcrop of Peel Crag forms a
locally distinct focal point. From the point where the road crosses the Burn, views into the lower section of
this field are possible, but these are transitory.
4.6.13 Although not a direction from which visual receptors are likely to encounter the existing site for the first
time, the visual profile of the site from the north is highly significant as this is the direction from which the
site is seen from the Hadrian’s Wall World Heritage Site and the Hadrian’s Wall and Pennine Way
recreational routes. Currently, views of the existing buildings are heavily filtered, even in winter, by tree
and shrub cover within the site. Vehicles parked in the YHA car park at the north east corner of the site
are visible and are unscreened.
4.6.14 The south facing field south of the existing NNPA car park is hidden from view. In contrast, the Twice
Brewed Inn, painted white on its north facing elevation, is clearly visible, as are cars parked in its car park
to the east of the Inn. This is the building which most draws the eye, although other buildings such as
Seatsides, East Twice Brewed and Smith’s Shield are also visible.
Visual receptors
4.6.15 There are only c.11no. residential properties shown to fall within the ZTV illustrated in Figure 6. These
include one public house (The Twice Brewed Inn), one campsite (Winshields Farm Campsite), a guest
house (Vallum Lodge) and two holiday cottages owned by the National Trust (Springwell Cottage and Peel
Bothy). By their very nature, private domestic residences are generally considered to be highly sensitive
visual receptors.
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4.6.16 Out of these properties, three have direct views of the northern site boundary (East Bog, Springwell
Cottage and Peel Bothy) and two (Seatsides and Smith’s Shield) have direct views of the field to the south
of the existing facilities on site.
4.6.17 The remaining properties which make up the hamlet of Twice Brewed to the west of the Once Brewed site
have very restricted views of the site, screened as it is by buildings and tree cover. Some limited views of
the field forming the southern part of the proposed development site are possible.
4.6.18 In terms of properties providing accommodation for visitors and tourists, there are no significant views of
the site from the Winshields Campsite and the Vallum Lodge Guest House. Unobstructed views of the
site’s north western boundary are possible from the neighbouring Inn but the boundary vegetation
provides a strong filter to views of the YHA building. Similarly, as seen from the Springwell Cottage and
Peel Bothy holiday lets, both of which are located on the road up to the Steel Rigg car park. Given that the
great majority of visitors to the locality are attracted by the highly valued landscape and heritage assets,
properties providing accommodation for tourists (short term and long term) are generally considered to be
visual receptors of high sensitivity unless specific site conditions suggest otherwise.
4.6.19 Despite being subservient to the A69 with which it runs parallel, the B6318 still functions as an important
transport route for those who live and work in the area, connecting the hamlets and isolated farmsteads
along the line of the Whin Sill. Some receptors using this route will be of low to moderate susceptibility to
change. However, it is its role in providing both visual and physical access to some of the most significant
heritage sites in the North East which is of particular relevance, as it carries the great majority of the c. 50-
70,000 people who visit the existing Once Brewed site every year, on average. As previously noted, the
quality of the landscape is one of the key factors that attracts visitors to this part of the county, and
consequently it should be assumed that potential visual receptors travelling on the B6318 could be
moderately to highly sensitive to change.
4.6.20 For the same reason, visual receptors travelling on the road linking the Once Brewed site with the A69
and the road skirting the western edge of Thorngrafton Common, should also be considered to be of
moderate to high sensitivity.
4.6.21 It is apparent that the existing site is potentially visible from sections of the Hadrian’s Wall World Heritage
Site between Turret 37A and Milecastle 41. It is not visible from the Roman fort and Scheduled Ancient
Monument at Housteads nor is it visible from the Roman fort and Scheduled Ancient Monument at
Vindolanda. However, the site is visible in the background in views of the Vindolanda site as experienced
from the elevated ground of Thorngrafton Common.
4.6.22 The visual impact on these and other significant heritage and cultural assets is assessed in detail in the
heritage chapter of the ES. For the purposes of this LVIA, the visual effects of the proposed development
on views both from and to landscape features of heritage value, are assessed on the basis of selected
viewpoints at locations. These are analysed in more detail in section 5 of this report.
4.6.23 Other highly sensitive receptors engaged in recreational pursuits would be those using the National Cycle
Route 68 which passes by the site.
4.6.24 Figure 6 identifies a number of public footpaths within the ZTV and although some of these are likely to be
used only infrequently, all recreational users should be considered to be potentially highly sensitive visual
receptors. Aside from the recreational routes associated with Hadrian’s Wall and the Whin Sill ridge, the
footpaths providing the most notable views of the existing site are the two routes which run from Twice
Brewed (one from the Winshields Campsite) up the south side of the Brackies Burn valley and over the
ridge on which Seatsides is located. Although much of the existing buildings are screened or filtered by
tree cover, open views of the southern field within the proposed development site are possible from the
higher ground.
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5.0 Potential Effects
5.1 Introduction
5.1.1 Within this section the effects of the proposed development on both landscape and visual receptors is
assessed and the significance of that effect is graded according to the methodology set out in section 4.2.
Consideration is given to the generally temporary effects which relate directly to the construction process,
such as the movement and noise of heavy plant etc., and to the more long term effects evident once the
construction process is completed. For each effect identified, where appropriate, the level of significance
is assessed first without, and then with, reference to mitigation measures which have been incorporated
into the design proposal.
5.1.2 Some measures taken to mitigate the impact of the proposed new building on the landscape were defined
at a very early stage in the design process and are fundamental to the final architectural vision and design
concept. These inherent mitigation measures are outlined in section 7.
5.2 Description of the proposed development
5.2.1 The development which has been assessed is illustrated in Figures 7 and 8.
Basic design concept
5.2.2 The new building has a single footprint of c.2,157m2 and is made up of the NNPA’s Landscape Discovery
Centre (the eastern part of the building) and the new YHA 86 bed hostel (the western section of the
building). Understanding the design concept behind the proposed building helps with the interpretation of
its complex form which is largely inspired by the undulating cuesta landscape in which it is located. The
bold northern elevation captures the drama of the north facing Whin Sill escarpment, while the more gentle
profile of the southern elevation reflects the softer south facing escarpment slopes. Similarly, building and
landscape are fully integrated at the north eastern corner as the lower section of the sloping roof rises out
from existing ground levels at a constant gradient before turning back on itself in order to create a dramatic
viewpoint and architectural statement aligned with the vista north towards the local focal point of Peel Crag
and the Whin Sill.
5.2.3 In response to the site’s sloping topography, the north eastern end of the Landscape Discovery Centre is
recessed into the ground while the south western end (the two storey YHA accommodation block which
drops half a floor level in relation to the main building mass) appears to project out from the ground. In
addition, the provision of a green roof further assimilates the built form with the surrounding green space.
5.2.4 As the building is to function as a ‘gateway’ to the landscapes of the National Park, it is intended that it
should have a presence in the landscape and be legible and distinctive. However, it is also a fundamental
part of the design concept that the building should be constructed using materials which are of a local
character and provenance as much as possible.
The building
5.2.5 The shared main entrance is central to the southern elevation, much of which supports a projecting
canopy at first floor level made up of photovoltaic panels. The Landscape Discovery Centre is two storeys
at its north eastern end (8m above existing ground level), with a café at the upper level aligned with the
striking vista to Peel Crag and the Whin Sill. Although the YHA accommodation block is two storey, the
fact that it is dropped half a floor level in relation to the main building allows the first floor café and viewing
terrace to the Landscape Discovery Centre to function as the feature which draws the eye. Much of the
northern and western elevation reads as two storey although a pronounced section of sloping roof
deliberately breaks up the straight roofline at the centre of the building and brings it down close to ground
level.
5.2.6 On the northern elevation which faces out onto the Military Road corridor, the building is to be faced in
whin stone filled gabion baskets at the lower levels with timber cladding used at the higher levels. The
junction between the two is stepped so as to reflect the block-like profile of the actual Whin Sill outcrop.
Window voids are irregular for the same reason. The stepped form of the whin stone gabions will provide
opportunities for incorporating appropriate native planting on the building façade. On the south facing
elevation, although the principle of using timber cladding at higher levels is repeated, lower levels are to
be faced in sandstone as a softer contrast to the darker whin stone on the northern aspect.
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5.2.7 On the northern elevation the main area of glazing is that of the café. This glazing continues, running
along the length of the south facing elevation of the first floor as it projects above the lower sloping section
of the green roof to form an atrium. Below this, much of the central section of the southern elevation is
glazed with panels in between stone buttresses formed using dry stone walling techniques. On the YHA
accommodation block, glazing is restricted to bedroom windows although a linear skylight is present along
the length of the roof to this block.
5.2.8 The green roof to the main body of the building is to be formed using transplanted whin vegetation typical
of the rare and threatened plant communities which are associated with the Whin Sill outcrop. Plant plugs
are to be planted into a predominantly whinstone gravel – dust and compost mix. A ramp extending from
the building at its north eastern end is to continue up on to the roof where it connects with a timber deck
walkway. This weaves through the whin vegetation passing seating or rest areas, until it reaches the
highest point on the roof which takes the form of a viewing deck over the first floor café. Balustrading to
the publicly accessible green roof is to be provided using c.1m high galvanised steel mesh panels of
irregular lengths. The green roof to the YHA accommodation block is to be constructed using a basic
matrix of appropriate grass species as used on the main green roof. At the southern end, where the
accommodation block terminates with the main plant room for the whole building, flues from the plant
room will extend 1.5m above the level of the green roof.
5.2.9 The internal lighting for the building has yet to be specified but it is understood that the one of the key
objectives would be to minimise light spill by specifying fittings which cast no light above the horizontal
plane.
External spaces
5.2.10 The overriding design principle for the treatment of external spaces is that they should be treated with a
light touch and blend seamlessly with the surrounding landscape. The main challenge has been to
accommodate a requirement for approximately 180no. car parking spaces (87 permanent spaces and 93
overflow spaces, the latter in a grassed field). Prior to fixing the design solution illustrated in Figure 7, a
number of alternative layouts were considered before being rejected and these are described in section 6
as part of the early mitigation process.
5.2.11 On the north side of the new building, the demolition of the existing visitor centre and youth hostel sees
the removal of the existing car park and service area at the north eastern corner of the site. This is
replaced with a green events space and the ramped access to the green roof. The new building line is set
further back from the Vallum SAM and active management of the vegetation currently growing on the
Vallum would include the removal of much of the lower growing ornamental shrubs including
rhododendron, and dead / dying trees. Over a prolonged period, there would be a phased approach to the
continued selective removal of vegetation on the Vallum which would run parallel with a programme of
new planting designed to recreate some of the screening and filtering function of the removed vegetation
but in a more considered location where it would not have an adverse impact on archaeological remains.
5.2.12 Key trees marked for retention along the boundary with the Military Road corridor are identified in Figure
9. At the western end of this green buffer strip between the new development and the SAM, a new woven
willow hedge planted behind a dry stone wall would provide privacy and security to the YHA garden space
which is laid out in the space between the new youth hostel and the western boundary. Much of the
mature coniferous planting along the north western boundary is to be retained. The garden space is to
incorporate an informal play space, an open events area and a patio with pergola and seat swing etc. A
garden path will connect with the gateway to the Twice Brewed Inn site. The north west corner of the
garden is also to accommodate a timber bat loft - a 4x4m x 4.7m high structure with a slate pitched roof.
The floor of the loft would be 2.5m above ground and the space below it enclosed for use as a cycle
storage facility. This element would be constructed in advance of the demolition of the existing buildings.
5.2.13 To the east of the building, a series of dry stone walls (both free standing and retaining) accommodate
changes in levels as the green roof and main building integrate with the external landscape. A new lay-by
set back from the highway verge is to be formed to cater for service deliveries. Just south of this lay-by, a
covered bin store and cycle storage facility are to be constructed in dry stone walling and with a green turf
roof. This storage area marks the eastern boundary of a courtyard area defining the arrival / gathering
space outside the main entrance. A feature wall projecting out of the building segregates the main
entrance area from the neighbouring outdoor classroom space to the west. This educational gathering
space is to be separated from the main circulation route to the south by a hawthorn hedge. To the west of
the outdoor classroom is an outdoor dining space for the YHA, the southern edge of which is defined by a
dry stone retaining wall at the northern end of the YHA accommodation block. Along the southern edge of
this ‘front of house’ area, a sweeping arc of a footpath connects the main entrance with the parking areas
to the south.
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5.2.14 Vehicular access to the site remains in its existing southern position and a new timber double leaf field
gate is to be provided which can be closed during the movement of livestock along this. The main car park
area is located between the new building and the existing triangle of woodland on the eastern site
boundary. The space allocated to parking is broken up by the inclusion of new belts and clumps of native
tree and shrub planting. A raised hedgebank c. 1m high defines the northern edge ofthe central parking
area. All linear planting is to be maintained as informal hedgerow with unrestricted vertical growth. Two
low pressure gas tanks are located near the car park entrance, screened by an extension to the existing
dry stone boundary wall and by a fence with hedge planting. At the southern end of the upper car park, set
against the western edge of the triangular woodland, an electric substation is to be located. It would have
a 5x5m footprint, be faced in dry stone walling and have a pitched slate roof, giving it the appearance of
an agricultural out-building.
5.2.15 A second tier of car parking is located further down the existing slope and south of the triangle of
woodland. It ends on an area of comparatively level ground, approximately 12m back from the top of the
crest of a steeper slope down into the Brackies Burn valley bottom. Coach parking bays are positioned
alongside the wood’s western boundary. Larger planting areas are used to break up the area of
hardstanding and a broad belt of native screen planting runs along the southern edge of the car park and
up the eastern boundary.
5.2.16 The main circulation route through the car park areas is to have an asphalt surface finish. Most bays
within the upper car park, together with the accessible parking and drop-off area are to be top dressed
with tar spray and chippings, giving a softer visual texture. Throughout the remaining car park areas,
parking bays are formed using a gravel filled plastic grid.
5.2.17 Between the upper and lower car parks lies a play space focusing on naturalistic play. It also includes a
concrete platform for astronomical observation. Although a detailed design for the play area has yet to be
created, the provision of some fixed play equipment is anticipated but any such structure would be in
timber and have a maximum height of c.3m.
5.2.18 South of the YHA accommodation block a ramped compacted whin stone path (together with resting areas
and timber benches) connects the car parks and play area with the main building. A retaining wall formed
in gabions with hand placed stone to the face would have a maximum height of 1.5m and run between the
southern edge of the upper car park and the path which is at the lower level. New embankments are to be
formed to tie the ramped path levels into the existing steep slope leading down to the south flowing
tributary.
5.2.19 Within the valley bottom, the more level part of the field is to be allocated for dual use as overflow parking
and events space. Minor grading of levels together with land drainage will be required to facilitate this as
will a visually discreet means of reinforcing the grass surface. Access to the overflow car park is to be via
an existing field gate location in the south east corner of the field. To the north of the entrance, a
submerged water treatment plant is to be located in the field, discharging into the Brackies Burn.
5.2.20 The existing overhead electric cable mounted on timber poles which runs down the field and along the
valley bottom, is to be relocated underground as part of the development works.
5.2.21 External lighting of the pedestrian route from the two car park areas up to the Landscape Discovery
Centre and youth hostel is to be in the form of low level, directional timber bollard lighting to give the
lowest level of illumination required to allow safe access.
5.2.22 A camera for registration plate recognition purposes is to be installed near the entrance gate at a point
along the existing fence line. A clump of new native shrub planting would form a backdrop.
Military Road crossing point
5.2.23 It is proposed that the works on site would include improved access across the Military Road for
pedestrians wishing to make the journey up to Hadrian’s Wall and the Whin Sill. This is to be delivered in
the form of a break in the site’ northern boundary wall and millstone flags placed within the highway verge
at the north eastern corner of the site (see Figure 7) with millstone flags defining a route along the
opposite verge to a step down into the existing ditch, and which then continues along the base of the ditch
to an existing gateway into a small rectangular copse enclosed by a dry stone wall on all sides. The
millstone flag path runs around the inner face of the southern and eastern boundary walls before crossing
over the wall, via a newly formed break near the north east corner, and into the highway verge of the road
leading up to Peel Crag.
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Junction improvements
5.2.24 Improvements to the sightlines at the junction of the Vindolanda road with the Military Road are also to be
carried out as part of the development proposal. This would involve the lowering of the height of the
existing dry stone retaining wall that forms the field boundary on the south side of the Military Road on the
east side of the junction. The wall would be taken down to the level of the highway verge over a c.30m
length and the existing stock proof post and wire fence running in the field immediately behind the wall,
would be renewed. On the west side of the junction, the height of the dry stone wall forming the northern
site boundary would be reduced by approximately one course over a 30m length.
5.3 Effects during construction
5.3.1 It is anticipated that during the construction process there will be adverse landscape and visual effects of
low to substantial significance. These would relate primarily to the effects of construction plant movement
(both on and off the site) and noise on the local landscape character and sense of tranquillity but would be
temporary. It is expected that the effects would be of greatest significance during the early demolition and
earth moving stages of an approximately 18 month construction phase.
5.3.2 Although stockpiles of crushed concrete, stone and brick generated during the demolition process would
look out of place until the time they could be re-cycled during the construction phase, they would only be
visible from a comparatively limited area. The presence of site cabins and storage containers themselves
would represent an urban intrusion into the rural landscape. It is unknown where site cabins are likely to
be located, but in the event that they are positioned off-site on neighbouring land to the west, perhaps on
the site of the existing Twice Brewed Inn car park, then they would only really have any visual significance
in views from the B6318 road corridor when travelling west and from East Bog farm in its elevated location
to the north.
5.3.3 Increased levels of illumination are expected to an extent during hours of darkness when the construction
site is operational or when site cabins are occupied and the significance of any adverse effects are likely
to be low to moderate given their limited duration and would only be visible from a restricted area.
5.3.4 During the construction process, signage and site security fencing would be required, the visual effects of
which would be difficult to mitigate. The temporary urbanisation of the landscape character of the site
would be a temporary adverse landscape and visual effect of low to moderate significance when
experienced closer up.
5.3.5 It is expected that the receptors most affected by the adverse effects would be the few residents around
the hamlet of Twice Brewed who live close to the site or who are located in elevated positions overlooking
the site from the south. Another group of receptors who are likely to be particularly sensitive to noise are
those using the recreational routes on the Whin Sill ridge and for whom noises generated by the
construction process could be carried northwards on the prevailing wind, resulting in a transient but
moderately - substantially adverse effect on their experience and enjoyment of a landscape otherwise
valued for its tranquillity and escapism.
5.4 Effects after completion
Effects on individual landscape receptors within the site
5.4.1 The following sections consider the anticipated effects on the main physical elements that constitute
landscape receptors within the site.
Existing buildings:
5.4.2 These have been identified as being of low value and are considered to be of low susceptibility to change
and therefore to be of low sensitivity. Their demolition represents a magnitude of change which is
assessed as being beneficial to a moderate – substantial degree resulting in an effect of moderate
beneficial significance.
The Vallum:
5.4.3 As a landscape feature which is designated as a Scheduled Ancient Monument, it is of high – exceptional
value and potentially highly susceptible to change as a result of new built development, making it a
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landscape receptor of high sensitivity. The removal of the existing youth hostel building along its southern
boundary and the creation of new open space between the new buildings and the SAM boundary would
improve the setting of the Vallum. In addition, the proposed initial tree removal on the mound itself would
enhance its legibility in the landscape. This represents a magnitude of change which is moderately
beneficial. This is likely to increase to a magnitude of substantially beneficial in the longer term as a
sensitive vegetation management plan sees the gradual removal of the great majority of the existing tree
cover on the Vallum. Consequently, the significance of the effect of the proposed development on the
Vallum within the site is assessed as being moderately beneficial, increasing to substantially beneficial
over the 20-40 year period after construction of the new facilities on site.
5.4.4 Footpath works proposed for within the copse on the opposite side of the Military Road .would have no
significant impact on the visual character of this part of the SAM.
Tree cover:
5.4.5 The tree cover on site has been assessed as being of low to moderate value for the reasons set out
section 5.2. It is a resource which can be recreated easily enough, but it is acknowledged that new
planting may take slightly longer to reach the levels of maturity currently present on site compared to the
majority of development sites due to the exposed nature of the location and more harsh growing
conditions. Consequently it is considered to be of moderate susceptibility to change and of low to
moderate sensitivity overall.
5.4.6 Despite the generally poor quality of much of the tree cover, its value lies largely in its screening function
and the resulting contribution it makes to the character of the local landscape. As much of the most
significant tree cover in this regard is to be retained, the magnitude of change as a result of the proposed
development is expected to be low adverse. The overall significance of the effect on tree cover across the
site is therefore assessed as being low to moderately adverse.
5.4.7 However, as the proposed new native structure planting establishes and makes visual connections with
existing mature tree groups on this and adjacent sites, the effect on this landscape receptor is expected to
become of low beneficial significance.
Boundary dry stone walls:
5.4.8 Of moderate landscape value, the boundary walls within the site are moderately susceptible to the
redevelopment of the site on this scale and are therefore of moderate sensitivity.
5.4.9 Most of the existing walls are to be retained or extended and, where removed, replaced with new walls on
slightly different alignments. The new boundary wall construction would match the visual character of the
existing walls. In places they would be higher and incorporate pedestrian access gates, perhaps giving the
boundary feature a slightly more domestic rather than agricultural character.
5.4.10 On balance, the expected magnitude of change to this landscape receptor is negligible to low adverse,
giving an effect of negligible to low adverse significance.
Southern field:
5.4.11 The field to the south of the existing NNPA car park on site is considered to vary in landscape value from
moderate to high largely as the result of the subtle change in landscape character between the upper and
central part of the field and the more enclosed lower section in the bottom of the Brackies Burn valley.
Given the simple nature of this landscape receptor it is highly susceptible to change as a result of new
build development making it generally highly sensitivity overall.
5.4.12 For the lower section of the field, the introduction of a camera on the southern boundary as part of the
system for administering parking charges and a footpath connecting the proposed overflow car park /
events area with the main building, represents a low adverse magnitude of change. The proposed system
for providing additional strength to the existing grass sward would have a negligible effect on the visual
character of this part of the field.
5.4.13 However, in the central and upper sections a greater magnitude of adverse change is anticipated. A
significant proportion of the grass sward would be replaced with hard standing for the vehicular access
road and parking bays, although the latter would be formed in reinforced gravel so as to generate a more
natural colour and visual texture. Parked vehicles and features associated with the proposed play area
would add three dimensional elements currently lacking in the field, although it should be noted that the
existing timber poles carrying the overhead power line down the length of the field would be removed as a
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result of the development project. In addition, the movement of vehicles within the area of the car park
would be very different from that of the sheep which occasionally graze the field. Consequently, the
magnitude of change for the central and upper part of the field is expected to be moderate to substantially
adverse.
5.4.14 As a result, whereas the significance of effect on the lower section of the field is assessed as being minor
adverse, the effects on parts of the more elevated sections are likely to be of moderate to substantial
adverse significance within a very local context.
5.4.15 Obviously the proposed new planting which forms part of the mitigation strategy for this landscape effect
would take time to establish and fulfil its role as a visual barrier and filter to areas of hardstanding and
vehicles on site. Based on apparent growth rates for existing mass planting on site, it is anticipated that
the significance of the adverse effect would be reduced to ‘moderate’ within ten years, and to ‘low’ within
twenty years.
Effects on landscape character
5.4.16 Having considered the effects on individual landscape receptors on the site, the cumulative effects need to
be examined alongside other anticipated impacts such as new building construction and potential changes
to the way the site is used in order to assess the overall effect on the perceived landscape character of the
site and the contribution it makes to the broader landscape. The interrelationship between these elements
is complex and in line with good practice it is proposed that the assessment process should focus on what
are expected to be the most significant effects on the key aspects of the baseline landscape character.
5.4.17 In Section 3 of this report, the review of planning and management policies relating to the landscape of the
Northumberland National Park and of the local area around the Once Brewed site provided an overview of
the characteristics of the landscape which are considered to be of most value and therefore most worthy
of protection. It is suggested that the key aspects of greatest significance can be summarised as being:
- the sense of tranquillity;
- distinctive local character;
- dark skies and the night time landscape.
5.4.18 In all instances, when assessed in these terms, the landscape around the proposed development site is
judged to be of high value, increasing to exceptionally high with regard to distinctive local character.
5.4.19 In the context of the above, the landscape’s susceptibility to the potential changes associated with the
construction of a new building on the existing site is considered to be moderate due to the scale of the
landscape and the visual character of the facilities already on site. In terms of establishing landscape
sensitivity, this is assessed as being moderate - high in all instances.
5.4.20 Due to the complexity of establishing the anticipated magnitude of change resulting from the many facets
of the development on the key aspects of landscape character, it is proposed that critical aspects of the
development project should be assessed individually. A judgement can then be made on the composite
magnitude of change.
5.4.21 Using the Design Guide Supplementary Planning Document within the NNP’s Local Development
Framework as a reference, the main aspects of the development selected for assessment are: scale –
(building and external works), rhythm, materials – (colour, texture, reflection), signage, function, lighting,
movement and noise. Each one is considered in turn, although some are inevitably interconnected.
Scale:
5.4.22 Building - the footprint of the new building (2,157m2) is greater than the combined footprints of the existing
buildings (957m2) and it would reach two storeys in height (8m) at its eastern end where currently the
visitor centre is only one storey. At its western end the accommodation block to the youth hostel is also
two storeys but this part of the structure drops half a floor in relation to the main new building utilising the
sloping site to best advantage. Similarly, in the north east corner, the ground floor exhibition space is cut
into existing ground level by c.1m.
5.4.23 The observer’s perception of scale is influenced to a degree by levels of visual screening, built form and
construction materials (see below). In this instance, much of the tree cover on the site boundaries is to be
retained, however the tree group currently screening the YHA building on its southern aspect would be
lost.
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5.4.24 Although larger in size, the designed form of the new building is a more sensitive response to the site
topography, rising out of the ground in part at its eastern end with a split level roof which breaks up the
visual mass of the building. The proposed use of natural materials such as whin stone, sandstone and
timber cladding would help reduce the apparent size of the building, allowing it to blend into the
surrounding soft landscaping as is the case with the existing structure. Significantly more glazing is
proposed in the new structure than currently exists and this can help reduce the perception of visual mass
by reflecting surrounding colours and textures. Magnitude of change in relation to size of building = low to
moderate adverse.
5.4.25 External works - an increase in the area of car parking is proposed. The existing site has capacity for c. 77
no. vehicles whereas the new permanent car park facility would accommodate c. 90 vehicles including 3
coaches. The majority of these would be located in a field currently used for pasture to the south of the
existing site, resulting in the permanent replacement of soft landscaping with hard standing and static
vehicles. The magnitude of change in relation to the scale of the external layout for the upper sections of
the field is moderate to substantial adverse but is experienced from a comparatively restricted area locally.
In addition, when considering the change in size or extent of car parking, changes in distribution of the
areas of parking are also important. The new development would see the removal of parking on one of the
most visually prominent parts of the site (that being the north east corner – visible from the WHS and the
Military Road corridor) with the area being given over to soft landscaping. This would bring a beneficial
change of low magnitude. A further c.90 overflow parking spaces are proposed for the more level lower
area at the southern end of the field but as this would be only occasional and is reversible, the net level of
change for this more sensitive part of the site is assessed as being negligible.
Rhythm:
5.4.26 The form of the new building’s green roofline is intended to flow out of the landscape and the elevational
treatments, on the north side in particular, are designed to reflect the rhythm of the Whin Sill escarpment
itself. The pattern of level changes in the built form mimics that of the local cuesta landscape as do the
lines and terraces in the external layout. This contrasts favourably with the regular geometric patterns of
the existing site features and layout. Magnitude of change in relation to rhythm of built structures and
external layout = substantial beneficial.
Materials:
5.4.27 Colour – in terms of surface finishes to the new main building, colours would generally be the natural and
muted warm / dark / silver greys and browns associated with whinstone, sandstone and timber. These
softer colours would extend out into the external surface finishes through the use of natural aggregates
and stone flags. Although parking areas would be formed in natural aggregates, main vehicular circulation
routes would be formed in black tarmac – as is the case in the existing car park on site. Extensive areas of
glazing would generally reflect colours in the surrounding external landscaping. With regard to the colour
of materials used for miscellaneous items within external circulation spaces, it is anticipated that a
considered and coordinated approach to specification on the new project would generate a more subtle
palate of colours than currently exists. There would be a very strong emphasis on the use of appropriate
native tree, shrub, herbaceous and grass species throughout the site and it is anticipated that colours of
the soft landscaping would blend successfully with the wider landscape. The effects of the colour of the
whin vegetation proposed for the green roof are difficult to assess given that the recreation of such
specialist and unique plant communities in a green roof location is untested and colonisation / success
rates are unknown. However, it is expected that the colour of the vegetation that does establish, although
having a resonance with grassland in the wider local landscape, will differ from that of the grazed fields
adjacent to the site – particularly as the harsher micro climate of the green roof may result in the rooftop
vegetation responding earlier to seasonal changes than the plant communities in the neighbouring fields.
In the light of the above, the magnitude of change in relation to the colour of materials for built structures
would be expected to be low beneficial. However, when considered together with the introduction of cars
into the green field to the south of the existing site, (which is off-set to a degree by the beneficial effect of
the proposal to remove vehicles from the northern site boundary) the magnitude of change shifts to being
one of moderate adverse.
5.4.28 Texture – the issues are very much the same as those set out above for the colour of materials used on
the development, the main exception being that of the proposed glazing. Although large glazed panels do
occur on the existing buildings, the proposed glazed southern elevation at the main entrance, the glazed
first floor café and the glazed atrium are designed to feature as key elements of the fabric of the building.
Long sections of glass present a visual texture which is very contemporary in character and its use in this
manner represents a departure from the scale to which it is characteristically used in buildings elsewhere
within the local landscape. Consequently, the magnitude of change in relation to the visual texture of
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materials used on site is assessed as being low - moderate adverse. However, see section on ‘function’
below.
5.4.29 Reflection – the issue of light reflection off glazed surfaces within the building and off the metallic surfaces
of vehicles is significant given the proposed increase in both these elements within the development
proposals. The glare resulting from sunlight reflecting off such surfaces may be only transient but when
seen in the context of a landscape which is generally regarded as being free from overt signs of significant
human intrusion, the experience is readily interpreted as an indicator of the presence of man-made
objects in the landscape. A computer generated sun path model has confirmed that the large area of
glazing to the café which faces north east towards the Whin Sill and Hadrian’s Wall WHS will not
experience direct sunlight and would not therefore result in reflected light being visible from elevated view
points to the north.
5.4.30 The glazed south facing elevation is shielded by a canopy of photovoltaic panels that projects 3m from the
building and which would therefore screen the windows from direct sunlight. The panels themselves are
positioned at an angle that would not result in visible solar glare and which gives them a very low visual
profile when seen in views form the south. However, the south and south east facing glazing to the atrium
could result in reflected light being seen from points within a restricted area on the south side of the
Brackies Burn and Bradley Burn valleys, although this would be occasional and obviously of a transient
nature. The same applies to the reflection of light off the metallic surfaces and windscreens of parked /
moving cars within the proposed south facing car park. It is also worth noting here that light reflection is
not uncommon within the broader landscape depending on weather conditions and time of year. The glare
of reflected strong sunlight can be seen across the landscape from multiple sources such as standing
water in fields and on roads and from wet black plastic bale wrap. Magnitude of change in relation to
increase in reflective surfaces = low adverse.
Signage:
5.4.31 Badly located or poorly coordinated signage can lead to the urbanisation of the landscape. As well as
signage proposed for the area within the site, where required, effects relating to the introduction of new
signage within the public highways on the approach to the new facilities needs to be taken into account.
5.4.32 Existing signage within the site, although uncoordinated, does not appear to have a significant adverse
effect on landscape character. New signage for the Landscape Discovery Centre and Youth Hostel would
be kept to a minimum and would be coordinated in terms of form, style and materials. A main site marker
for the project could be the subject of an artist’s commission and as such no design proposals are
available for assessment. However, it is anticipated that part of any design brief would be the requirement
that any installation must represent a creative response to the character of the local landscape.
5.4.33 The presence of signage and interpretation along the Military Road is identified as being characteristic of
the landscape of the area in the Landscape Character Assessment of Tynedale District and
Northumberland National Park (see section 5.3). Existing bus stop signs located in the highway verge
either side of the road leading into the site would be removed as part of the project (buses would pick-up /
drop-off within the site) bringing some beneficial effect.
5.4.34 A comprehensive review of the existing road signage and the need to replace damaged signs and the size
and positioning of signs has yet to be carried out. This process may become linked to the possible
introduction of a 40mph speed restriction along the Military Road at Twice Brewed. However, given the
level of signage already in place, it is anticipated that the magnitude of change in relation to signage
would be negligible.
Function:
5.4.35 The ‘Design Guide Supplementary Planning Document’ reviewed in section 3.3 above observes that
within the National Park, form and hierarchy is evident in individual buildings and that this has traditionally
been dictated by function and intended status. It is the case that public knowledge about the function or
role of a building will influence how its presence in the landscape is interpreted. In the case of The Sill
project, the scale and form of the building and use of contemporary sustainable construction techniques
may be regarded more favourably in the knowledge that the building represents a public gateway to the
National Park and acts, quite literally as a window to the riches of its landscapes, than if it were a private
commercial venture or domestic residence. The Landscape Discovery Centre would be one of the primary
visitor destinations in the National Park and possibly the region. The principle that this status should be
reflected in its appearance and presence in the landscape is one which has been long established in this
ancient landscape. Magnitude of change in relation to the visual interpretation of the intended function of
the building = substantially beneficial.
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Lighting:
5.4.36 There are three main aspects relating specifically to the issue of lighting in relation to the landscape and
visual effects of the development proposal:
Light spill from internal light sources – the existing YHA facility is operational 24hrs a day but between the
end of October and the end of March, the NNPA visitor centre closes during the week and is only open
between 10am – 3pm at weekends during this period. The new YHA would operate on the same basis as
the existing, but the new Landscape Discovery Centre is expected to operate all year round and to provide
a venue for evening activities. Whereas the glazing to the proposed first floor café would have black-out
blinds, the glazed atrium, the glazed sky light to the YHA accommodation block and the floor to ceiling
glazing at the main entrance which provides access to the YHA part of the building and so would be
operational 24hrs a day, would not have any screening. Consequently, there is higher potential for light
spill to occur at these points. Such light spillage would most likely present itself as a soft glow along the
length of these glazed features at a scale and form which would be uncharacteristic of existing patterns of
night time illumination in the locality. There is some internal glow within the existing youth hostel but it is
generally screened from public view by planting. Without any mitigation measures in place, the expected
magnitude of change in relation to light spillage from the building would be moderately adverse, the
change being greatest when observed from the south. However, it is expected that internal light fittings in
the public circulation space in these areas would prevent any light spillage beyond the horizontal and
would comply with the design guidance set out in the Lighting Management Plan. Together with the impact
of screen planting as it matures, the magnitude of change would be revised to low – moderate adverse
after approximately 10years, and low – negligible after 20 years.
5.4.37 Light spill from external lighting – in section 4.4 it was noted that wall mounted external lighting on the
existing buildings are not covered and the main effect of this is experienced in views from the north where
the regular spacing of external light units gives the impression of there being a large commercial scale
building present in the night landscape. Consequently, their removal would be a change of low beneficial
magnitude. All external lighting associated with the new development would be covered to prevent light
spill beyond the horizontal and light sources would be orientated so as to face away from primary public
view points beyond the site boundary. On the new development proposal, the element most likely to
generate adverse effects would be the lighting required for the car park areas and for the pedestrian
routes linking the upper, lower and overflow parking area with the main building. Light sources would be
present in views from the south where there currently are none and there is the potential for lighting to the
footpath route to read as a regular linear feature which is out of keeping with the general distribution
pattern of infrequent and scattered light sources across the night landscape. Without mitigation, this would
generate a magnitude of change which was moderate - substantially adverse over a limited local area.
Again however, it is expected that the design of the external lighting would comply with guidance in the
Lighting Management Plan. Lighting to the footpath in particular could be movement activated so that its
presence is only temporary and it could be switched off after a certain time in the evenings. On this basis,
the potential magnitude of change is assessed as being low - moderately adverse.
5.4.38 The visual impact of illumination from car headlamps – although transitory in nature, the moving glare from
car headlamps draws the eye in an otherwise tranquil night time landscape and is visible from a significant
distance. The existing car parking for the YHA is on the northern boundary of the site where night time
vehicular movement is a feature of the Military Road corridor. The NNPA car parking where vehicles are
generally off site by 4pm in winter months is located on the more peaceful southern side of the building.
In contrast, the new development would see all vehicle parking provided on the south facing valley slope.
The increase in both the likely duration of periods of night time vehicle movement and the actual number
of movements would represent a substantial adverse magnitude of change with regard to the effects of
illumination from car headlamps when seen from limited areas within the lower parts of the Brackies Burn
valley, but would reduce in significance as one moved up the valley slopes (see schedule 1 – PM5).
Movement:
5.4.39 The movement of objects within a landscape can influence the perceived levels of peacefulness and
tranquillity ascribed to its character. It is expected that the new site facilities could attract 80,000 visitors a
year – with the potential for this to increase to 100,000 within a three year period from opening and
perhaps up to 120,000 over a longer period. Although current visitor numbers are at a level of c. 45,000 a
year, in the 1990’s they stood at around 100,000, dropping to c. 70,000 by 2005-6. Consequently, the
target visitor numbers for the new facility do not represent a significant departure from the numbers of
visitors accommodated on the site within the last 20 years. The two main factors associated with higher
visitor numbers to the new building are the increase in vehicle movements and the heightened visibility of
people accessing the café terrace and green roof. The effect associated with static parked cars is
considered under the heading of ‘materials’ above. The effects relating specifically to moving cars are
considered to be secondary but would still be adverse when occurring an a part of the site which is
predominantly static in character – apart from when sheep are present in the field. In a landscape where
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thousands of visitors walk along visually prominent sections of the line of Hadrian’s Wall and along the
minor roads adjacent to the Once Brewed site, the presence of visitors to the site walking up the ramped
green roof does not represent an adverse change and could even be considered as another feature of
interest on the B6318 route. Consequently the magnitude of change relating to issues of increased
movement on the site is assessed as being low adverse.
Noise:
5.4.40 Given the presence of the B6318 road corridor immediately to the north of the site and the lack of
permanent neighbouring receptors who might be affected by any moderate increase in noise as a result of
increased visitor numbers and external events, the magnitude of change in the landscape character
relating to increased noise levels is considered to be negligible adverse.
5.4.41 In section 4.2 of this report it was noted that any effects which are assessed as being moderately or
substantially adverse should influence the mitigation strategy for the proposed development.
Consequently, it is worth looking in more detail at the elements that are believed to generate the most
significant magnitudes of adverse change in landscape character – namely: scale of external works; colour
of materials, and lighting. In all instances the critical issues relate to the impact of extending car parking
into the southern field where the resulting effects have been assessed on the basis of the condition of the
site at the time of completion of the construction works. Obviously, the proposed screen planting within the
car park areas and particularly along the southern edge will have a significant mitigating effect given time
in terms of the screening / filtering of views of parked cars and associated external lighting. Consequently,
it is assessed that after ten years growth, effects judged to be moderately adverse will be mitigated to low
adverse, diminishing to negligible adverse after 20 years when the planting should be approaching a
height comparable to existing tree groups.
Effects on visual receptors – overview
5.4.42 The Zone of Theoretical Visibility (ZTV) for the site containing an 8m high structure (see Figure 4) is only
marginally larger than that based on ground level. In the wider landscape it is more extensive in the area
to the south of Beltingham and the area north of Whitfield and includes new areas of moorland west of
Whitfield and at Blenkinson Common south of Greenfield. Nearer the site (see Figure 6) it is slightly more
extensive in the area around Thorngrafton Common, on the southern slopes of Hotbank Crags and south
of Sycamore Gap. However, given the nature of the terrain affected, this increase in the ZVT is not
considered significant.
5.4.43 For those resident in the cluster of properties making up the hamlet of Twice Brewed, the new building on
the Once Brewed site would be hidden by the tree cover around the boundary of the site or by existing
buildings. A view of the southern field containing vehicles in the new car park would be possible from a
short section of road east of Winshields Farm campsite but would be of low significance in the view. In
terms of night time views, the potential effect on residential visual receptors located on the south side of
the Brackies Burn valley, from where the impact of lighting is likely to be greatest, is assessed in relation
to viewpoint PM 5 in Schedule 1 below.
5.4.44 In the broader landscape within the ZTV, one of the areas potentially most sensitive to increased night
time illumination is the higher ground south east of Langley on the basis that this is probably the most
readily accessed part of the AONB within the ZTV which gives long distance vistas that include the Once
Brewed site. From the viewpoint VP6 (see Figure 4) on the B6305, uncovered light sources associated
with the new facilities could potentially be visible. A softer glow arising from light spillage from hidden light
sources such as might occur along the line of the glazed atrium, would be much less legible at this
distance. However, any lighting would be seen in the context of a night time view which already features
bright lights on the horizon to the west of Once Brewed; moving lights on the A69 (and to a lesser extent
on the B6318); small clusters of lights generally across the landscape (including Bardon Mill,
Humshaugh), and a larger cluster at Haltwhistle. Consequently, the significance of any additional external
lighting on views from the North Pennines AONB is assessed as being negligible.
Effects on selected representative visual receptors
5.4.46 The nature of more direct views of the site from within the wider local area is assessed using the selected
viewpoints identified in Figure 6. These have been picked on the basis of selecting what are considered to
be the most sensitive visual receptors whether they are private properties, public recreational routes or
landscape viewpoints of aesthetic, cultural or heritage significance and the selection has been make in
consultation with the National Park planning authority. To assist the assessment process, photographs
taken from those visual receptors thought to be of highest value have been used to generate
photomontages of the proposed development (PM nos. 1-8). Photographs with the development site
identified have been used for the remaining viewpoints (VP nos. 1-5).
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Schedule 1: Selected viewpoints for assessment of visual effects. (To be read in conjunction with Figures 11-20.)
Ref. Visual Receptor with OS grid ref. Distance from site Assessment of visual effect Mitigation
PM1 Winshields Crags (Hadrian’s Wall Path and
Pennine Way)
374211, 567564
1.2km Receptor sensitivity:
WHS and national recreational route. High
Magnitude of change:
Extensive views south to the North Pennines AONB are possible from the most elevated point on
the Whin Sill ridge. The site is visible in the middle distance. The YHA accommodation block is
visible in part above peripheral tree cover but the scale not dissimilar to the neighbouring Twice
Brewed Inn which is much more prominent in the view. Negligible.
Significance of effects:
Negligible.
None required.
PM2 Peel Crags (Hadrian’s Wall Path and
Pennine Way)
375390, 567540
650m Receptor sensitivity:
WHS and national recreational route. High
Magnitude of change:
Views south to the North Pennines AONB are possible over the southern ridge of the Brackies
Burn Valley.
The site is visible in the middle distance. The eastern end of the glazed café is prominent but
much of the remainder of the new building is heavily filtered by retained tree cover along the
Vallum. The contemporary materials of the visible structure have no strong colours to draw the
eye, unlike the Twice Brewed Inn which contrasts strongly with the muted natural colours of the
surrounding landscape and which is comparable in scale with the visible sections of the proposed
new structure. Vehicles currently visible at the north east corner of the site when present, would be
removed from the view. The property of Seatsides is also prominent in the view on top of the ridge
just below the skyline. Negligible - Low adverse.
Significance of effects:
Low adverse.
None required.
PM3 Military Road corridor to the west (nr.
Twice Brewed Inn)
375110, 566900
100m Receptor sensitivity:
This road is the main route for tourists passing through this valued landscape but views of the site
are transitory. The eye of travellers is likely to be drawn to prominent views of Peel Crag to the
north. Moderate
Magnitude of change:
Like the existing YHA building, the new facility would be largely screened by existing boundary
tree cover. A short section of the YHA accommodation block would be visible in views across the
eastern end of the Twice Brewed Inn car park. Negligible.
Significance of effects:
Negligible.
None required.
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Ref. Visual Receptor with OS grid ref. Distance from site Assessment of visual effect Mitigation
PM4 Military Road corridor to the east (near
junction)
375470, 566986
150m Receptor sensitivity:
This road is the main route for tourists passing through this valued landscape and views of the site
are less transitory when heading west. For many visitors travelling for leisure purposes, the new
building may represent their destination point. Moderate - high
Magnitude of change:
Screened in part on the approach by the boundary wall on the south side of the road for those
travelling by car, once visible the building would draw the eye, the glazing and steelwork of the
green roof balustrade representing a very contemporary structure. Colours however would be
neutral with the possibility of some late afternoon sun reflecting off the café’s south facing
windows. The lower section of the sloping green roof breaks up the visual mass of the building.
The vertical support of the café canopy and vertical balustrade posts are characteristic of other
vertical elements such as fence posts, telegraph poles and exposed tree trunks.
The bat roost structure in the YHA garden in the north west corner of the site would be screened
to a significant degree by a retained oak tree near the corner of the café terrace.
Low adverse.
Significance of effects:
Low - moderate adverse.
Specimen tree planting proposed on the eastern boundary of the site would
further break up the visual mass of the building and the amount of glazing
which can be seen, reducing the significance of the visual effect over time to
Low adverse.
PM5 Seatsides residential property and PROW
374933,566131
520m Receptor sensitivity:
Private residence and minor recreational route but with clear views of the Whin Sill Ridge and the
WHS. High
Magnitude of change:
The new building sits below the skyline but close to the landform of Peel Crag which draws the
eye. Much of the new building is visible at this angle of view and would appear as the largest built
structure in the local landscape. Although cars in the existing NNPA car park are visible in the
current view, the new car parking would be more extensive and coaches parked against the back
drop of existing woodland would be visible. The play area would also be seen. As the viewpoint is
higher than the new development, it is unlikely that there would be a significant issue relating to
sunlight reflecting off the south facing atrium glazing but visual receptors could experience
temporary sun glare off vehicles at times.
Seatsides is likely to be the private property most affected by the impact of external lighting.
However, from this vantage point two bright light sources can be seen on the existing site and
lighting from neighbouring properties (Vallum Lodge, East Bog, Twice Brewed Inn, Smith’s Field)
is also visible. In addition, car headlamps can clearly be seen moving along the Military Road
along much of the section from Hotbank Crags to a point past Winshield Farm camp site. Seen in
this context, the introduction of vehicle lights into the southern field is less significant than might be
first anticipated.
Low – Moderate adverse.
Significance of effects:
Moderate adverse.
As it matures, the structure planting proposed within the car park and along
its southern and western edges would reduce the significance of this
adverse effect to Negligible – Low by eventually screening the car park and
providing a heavy filter to views of the building.
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Ref. Visual Receptor with OS grid ref. Distance from site Assessment of visual effect Mitigation
PM6 ‘Long Stone’ view point, minor road and
PROW, Thorngrafton Common
377851, 566414
2.58km Receptor sensitivity:
This viewpoint represents views gained from a minor road and recreational route but which include
views down on to the site of Vindolanda. Moderate - High
Magnitude of change:
The Once Brewed site is visible in the same direction of view as both the Roman heritage site of
Vindolanda and Winshields Crag, but any new building would be barely noticeable when seen
from this distance, especially when other buildings such as farmsteads are clearly visible as a
feature of the local landscape. Negligible.
Significance of effects:
Negligible.
None required.
PM7 ‘Springwell Cottage’, National Trust holiday
cottage
375280, 567068
130m Receptor sensitivity:
Holiday cottage owned by National Trust.
No permanent residents but occupiers likely to be staying for the purpose of recreational
engagement with the landscape., although property looks out towards B6318 road corridor.
Moderate
Magnitude of change:
Principle view from front of property is south to Military Road which virtually forms the skyline, with
no significant distant horizon the draw the eye. Roof of existing NNPA visitor centre is visible
above old earthworks on the foreground but is visually indistinct. The eastern end of the new
building with its glazed café would be higher and materials more contemporary in appearance.
People on the café terrace and the green roof observation point above the café would be visible,
introducing colour and movement into the view, with associated possible increased noise levels
above the sound of any traffic movements. However, proposed events spaces between the
building and the B6318 would be hidden from view. The western end of the YHA facilities would be
visible as are the existing, but with slightly less filtering following selected tree removal on the
Vallum. This is one view where the screening / filtering of the new building by tree cover would be
significantly higher when deciduous trees are in leaf, than during winter months.
Low- Moderate adverse.
Significance of effects:
Low - Moderate adverse.
Longer term management of tree removal on the Vallum should be sensitive
to the visual effects experienced by this visual receptor. New planting
proposed for the space between the new building and the Vallum SAM to
maintain light filtering of views of the new building, could be positioned to
maximise the screening effect from this property.
If necessary, there is scope to plant a hedge for screening purposes along
the inner edge of the southern boundary wall to the cottage.
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Ref. Visual Receptor with OS grid ref. Distance from site Assessment of visual effect Mitigation
PM8 Henshaw to Once Brewed minor country
road
375409, 566515
160m Receptor sensitivity:
Main direction of approach to the Once Brewed facilities for tourists leaving the A69. Views from
the road are transient with direct views into the southern field often filtered by roadside vegetation,
but the site is seen in the context of the first open dramatic views of Peel Crag and the Whin Sill
ridge line as travellers cross the local ridgeline and the NNP boundary and drop down into the
Brackies Burn valley.
Moderate - High
Magnitude of change:
The NNPA Landscape Discovery Centre would be hidden behind the existing woodland along the
eastern site boundary but there would be direct open views of the YHA accommodation block.
Whereas the proposed neutral facing materials of stone and timber for the visible part of the
building would sit comfortably in the landscape, the colours and reflective nature of parked
vehicles in the southern field would draw the eye. Although the far eastern corner of the café is
likely to be seen projecting out from behind the semi-mature woodland block, parked vehicles such
as cars, vans and minibuses which are currently visible when present in the YHA car park in the
north eastern corner, would be removed from view.
Other buildings such as the Twice Brewed Inn, West Twice Brewed and East Bog farm are also
visible in the view, but the new building is greater in scale. The scale of the new parking area is
significantly foreshortened in the view so that cars at the southern end of the car park would
screen those further up the slope. Parked coaches would be seen, but against a woodland
backdrop.
Moderate adverse.
Significance of effects:
Moderate adverse.
The visual effect on receptors at this viewpoint is based on the condition of
the site at time of completion of the contracted works and so the effects of
mitigating screen planting is not taken into account. It is anticipated that as
the planting matures, after 10years the adverse significance of visual effects
would be reduced to Low, reducing further to Negligible – Low after twenty
years, when the new structure planting would blend seamlessly with the
existing tree groups either side.
VP1 Military Road corridor to the west of the
Twice Brewed Inn
374872, 566838
320 Receptor sensitivity:
This road is the main route for tourists passing through this valued landscape but near distance
views tend to be transitory. The eye of travellers is likely to be drawn to prominent views of Peel
Crag to the north. Moderate
Magnitude of change:
The northern part of the site is screened from view by existing buildings and vegetation cover.
Although limited transient views of the upper section of the southern field are possible, even when
containing parked cars, this is unlikely to draw the eye. Negligible.
Significance of effects:
Low – Negligible adverse.
In time, screen planting would reduce this level of significance to Negligible.
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Ref. Visual Receptor with OS grid ref. Distance from site) Assessment of visual effect Mitigation
VP2 PROW nr. Melkridge Tilery Campsite
373400, 566040
1.95km Receptor sensitivity:
A view from a minor recreational route but which provides open vistas north in which the profile
and drama of the Whin Sill escarpment is particularly legible. Moderate - High
Magnitude of change:
The proposed new building would be hidden by existing tree cover in the locality but a limited view
of the southern field is possible. Although indistinct in the broader landscape at present, this
element of the site is more likely to catch the eye when containing parked cars (which may reflect
strong sunlight at times) and the proposed play area. It is worth noting however, that vehicles
moving on the B6318 are a regular feature in this view. Negligible – Low adverse.
Significance of effects:
Low adverse.
Proposed native structure planting would reduce the significance of this
effect to Negligible
VP3 ‘Peel Bothy’, National Trust holiday cottage
375278, 567410
460m Receptor sensitivity:
Holiday cottage owned by National Trust.
No permanent residents but occupiers likely to be staying for the purpose of recreational
engagement with the landscape. Moderate - High
Magnitude of change:
Principle views from the front of the property are southward across the Brackies Burn valley. From
this elevated position, unlike Springwell Cottage, much more extensive views over the southern
valley ridge to the North Pennines AONB beyond, are possible. The glazed north-east facing café
is likely to be visible in the position where the current visitor centre is seen now. The YHA facility is
likely to be less filtered in the view than the existing building due to proposed selective tree
removal on the Vallum. The actual scale of the building would be broken up by the retained tree
cover with the result that visible sections of the building would be in keeping with the scale of the
neighbouring Twice Brewed Inn, but would blend more successfully into the visual texture of the
landscape. In this view, other elements such as the North Pennine moors on the horizon and the
property of Seatsides in its prominent location on top of the Brackies Burn valley ridge are also
likely to register as focal points of interest. Negligible - Low adverse.
Significance of effects:
Low adverse.
None required.
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Ref. Visual Receptor with OS grid ref. Distance from site Assessment of visual effect Mitigation
VP4 Milecastle 39nr ‘Sycamore Gap’, (Hadrian’s
Wall Path and Pennine Way)
376150, 567717
1.05km Receptor sensitivity:
WHS and national recreational route. Regional visitor destination of contemporary cultural
significance. High
Magnitude of change:
The Once Brewed site features in the middle ground of vistas which extend a significant distance
to the North Pennines – weather permitting. In this view southward, the landscape appears to be
very simple and rolling and the Once Brewed site facilities would register with receptor as a focal
point of interest, set within a clump of existing trees. The visible sections of new building would
compare favourably in terms of scale compared with the neighbouring Twice Brewed Inn.
Negligible.
Significance of effects:
Negligible.
None required.
VP5 Hotbank Crags, (Hadrian’s Wall Path and
Pennine Way)
378045, 568616
3.3km Receptor sensitivity:
WHS and national recreational route.
High
Magnitude of change:
Site is only just discernable in long distance views gained from just below the Whin Sill ridge. From
the ridge itself the site is hidden by an existing plantation.
Negligible.
Significance of effects:
Negligible.
None required.
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6 Mitigation Measures
6.1 Introduction
6.1.1 Mitigation of potential significant adverse effects can be addressed through the processes of prevention or
avoidance (the preferred option); through reduction, or through compensation (generally considered to be
the least favourable option).
6.1.2 This section of the LVIA explains how a review of potential landscape and visual effects has been a
fundamental part of the broader iterative design process for The Sill project and that the mitigation of
potential adverse effects has been considered from the earliest stages of the first site analysis and
identification of site constraints and opportunities. As well as providing an overview to the design
development of the project and identifying the main mitigation measures embedded in the final design
scheme, it also reviews alternative design options for the car parking element which were rejected on the
basis of landscape and visual considerations. It then considers mitigation proposals relating specifically to
the potential construction and post-construction phases of the project.
6.1.3 The impact that the mitigation measures incorporated within the development proposal are expected to
have on the potential significant adverse landscape and visual effects identified, is taken into account
within the assessment process set out in section 5.
6.2 Design evolution
6.2.1. Right from the outset, the design brief for The Sill project has specified that the proposed new facilities on
the Once Brewed site (ie. the Landscape Discovery Centre and new youth hostel) should be ‘of the
landscape’ and a landscape architect has been part of the design team working closely with the project
architect from the preliminary site analysis stage. Community consultation has also taken place throughout
the design process and has informed the final development proposal.
6.2.2 The positioning of the proposed building and its alignment within the site has been influenced by a desire
to respond positively to both the detailed site characteristics and the broader landscape character. The
alignment of the building maximises the opportunity to bed the structure into the sloping topography,
thereby minimising the visual effects of providing a two storey buildings on the site, while at the same time
making the most of the visual connection with the dramatic views of Peel Crags to the north east. It also
allows the green roof to merge with the existing ground levels in a seamless integration of landscape and
building. The green roof itself is also intended to reduce the apparent visual mass of the proposed new
built structure.
6.2.3 The positioning of the building avoids adverse physical impact on the Vallum Scheduled Ancient
Monument and facilitates the retention of the majority of the key trees on the northern and western site
boundaries and the visual screening / filtering function which they perform. Much of the proposed tree
removal on the northern boundary is driven by a desire to improve the legibility and interpretation of the
Vallum as a heritage asset and promote its preservation.
6.2.4 Similarly, to protect and enhance the setting of the Vallum, a decision was taken to remove any car
parking or service / delivery area from the zone between the northern elevation of the building and the
Scheduled Ancient Monument.
6.2.5 With regard to the layout of external spaces, the car parking for the new facilities has been located to the
south of the building where it is screened from views gained from the Hadrian’s Wall and the World
Heritage Site. Alternative locations for the car parking were considered during the design process prior to
being discounted and these are reviewed in section 6.3 below.
6.2.6 The layout of the final car park design is intended to balance a requirement to deliver as many parking
spaces close to the main building as possible with the desire to provide green infrastructure throughout the
car park which would break up the visual mass of the associated hard landscaping and integrate it into the
landscape. The result is a series of tiers to the parking provision which work with the existing contours.
6.2.7 The existing triangle of woodland on the eastern boundary is retained so as to make the most of its
screening potential. Coach parking is located along its western edge so that these larger vehicles are
positioned against a backdrop of mature tree cover.
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6.2.8 Where potential adverse effects cannot be avoided, in order to minimise the visual effects of proposed car
parking within the open field to the south of the existing facilities on site, the southern edge of the parking
has been set back from a break in slope which means that parked cars would be screened by the local
landform in views up the field from the adjacent public highway as it crosses the Brackies Burn. It also
means proposed screen planting can be positioned on subtle mounding along the southern edge of the
parking area thereby maximising its screening impact. Where appropriate, hazel or willow hurdles would
be used to act as a wind break to facilitate plant establishment and to provide an early screen to parked
vehicles.
6.2.9 Throughout the external site layout, native tree and shrub planting has been designed in a manner that will
allow it to integrate visually with existing planting beyond the site as it matures when seen in the broader
landscape context in views from the south of the Brackies Burn. Similarly, plant species associated with
the Whin Sill are proposed for the green roof (rather than commercially available sedum carpets) in order
to create visual textures and colours more appropriate to the local landscape.
6.2.10 Proposed materials for the construction of the new building and of the external areas of hardstanding have
been selected with a view to minimising adverse visual effects and reflecting existing landscape character.
The proposed use of whinstone and sandstone as facing material for the building makes reference to
locally available building materials and where practical, external hard surfaces would be formed or surface
dressed with granular materials such as gravel or whinstone aggregate.
6.2.11 Where the loss of wildlife habitat in the form of tree and shrub cover or semi-improved grassland is
unavoidable, it is intended that new habitats should be fully integrated with the fabric of the building and
external structures as compensation. Although 25no. individual trees and 710m2 of native structure
planting would be lost, c80no. new individual trees, 1,745m2 of native structure planting and 110 linear m
of new hedging would be planted as part of the development. In time, it is proposed that the new
development would enhance the biodiversity of the site.
6.2.12 With regard to lighting and the requirement to comply with the Dark Sky Park Lighting Management Plan,
external lighting is to be kept to an absolute minimum. A detailed lighting scheme is not currently available
but it is anticipated that it will follow the recommendations set out in both the LMP and the Lighting Impact
Assessment prepared for the development. Movement activated lighting and cut-off / timing devices are
likely to be employed as necessary together with the use of concealed sources of red light for external
footpath links with the car parking area.
6.3 Alternative car park options
6.3.1 During the early stages of the design process, a number of options for delivering the appropriate number
of parking spaces required were considered before being rejected. These are illustrated in Figure 10.
6.3.2 As an alternative to extending the proposed development footprint beyond the southern boundary of the
existing site, options for using the adjacent field to the east of the site were examined. In the past, overflow
parking for the existing NNPA facility has been accommodated on occasion in the northern part of the
eastern field, but this was rejected as a more formal solution to accommodating increased parking
numbers due to the potential adverse effect on views from the World Heritage Site and on known
archaeological features.
6.3.3 The use of the lower sections of the same field as an additional or overflow car park where rejected for
similar reasons. It also became apparent that the local highway authority was concerned about issues of
highway safety with regard to any proposed new vehicle access / exit point to the field. In addition, the
permanent use of such a large section of the field for car parking would have compromised the viability of
the field for agricultural purposes.
6.4 During construction
6.4.1 Section 5.3 of this report identifies the potentially significant adverse landscape and visual effects that
might be associated specifically with the construction phase of the proposed development. Measures to
mitigate such effects are generally secondary measures in that they are not an integral part of the
proposed development but relate more to the manner in which the construction process is carried out and
to working methods or constraints identified within the building contract documentation.
6.4.2 The positioning of site cabins either within the site or on adjacent land should be carefully considered in
order to minimise any associated adverse visual effects. This is likely to be most relevant to the
construction phase rather than any demolition phase.
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6.4.3 The visual effects of the post demolition phase, when existing buildings have been levelled and stockpiles
of crushed concrete and stone have been formed for reuse in the construction phase, would be minimised
if the construction phase commenced immediately as part of the same contract.
6.4.4 Opportunities to store stripped soils on site in a manner that provides temporary screening to vehicle
movement and construction operations should be maximised.
6.4.5 Working methods will be required to address the requirement to reduce external light emissions to the
minimum necessary for safe working and restrictions on working hours during winter months may be
employed.
6.4.6 The timing of vegetation removal would be restricted so as to avoid the bird nesting season and the
building demolition phase would need to be carried out in strict accordance with the bat mitigation strategy
forming part of the bat licence issued by English Nature.
6.4.7 Protective fencing compliant with BS 5837:2012 ‘Trees in relation to design, demolition and construction’
would be maintained throughout the construction phase to protect the root protection areas of trees to be
retained.
6.5 After Completion
6.5.1 After completion of the construction phase there are certain elements relating to the management of the
site which would be required to ensure the delivery of key components of the primary landscape and visual
mitigation strategy. One of the most important of these would be the maintenance of the soft landscaping
and, in particular, the screen planting to the car park areas. To ensure this is carried out in an appropriate
manner, a comprehensive maintenance regime covering an appropriate establishment period for new
native structure planting would form part of the soft landscape specification for the project. Issues relating
to plant replacements, thinning and pruning operations to promote healthy growth rates and rapid
establishment would be covered.
6.5.2 In a similar vein, a management plan for the green roof would be required to ensure that it is adequately
maintained and that the necessary expertise is available to monitor and guide the maintenance process so
that it responds appropriately to the various evolutionary stages of the plant communities evolving on it. It
must also be capable of responding to any unforeseen events - particularly as the process of establishing
whin vegetation in the form of a green roof is unique to The Sill project.
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7.0 Residual Effects
7.1 After Completion
7.1.1 In section 6 it was noted that the landscape effects assessed as being of moderate to substantial adverse
significance at the time of completion of the works are the subject of a mitigation strategy based on
reducing the adverse effects identified rather than preventing them. As the mitigation relies on the growth
of soft landscape structure planting to perform a screening and filtering function, it would take time for the
mitigating benefits to be apparent on site. Plant growth rates on this exposed site are expected to be
slower than might be anticipated on most construction projects, but it is suggested that a significant
reduction in the relevant adverse effects would be noticeable within 10 years, and continue to reduce for a
further ten years after which point the adverse effect would be diminished to a point requiring no further
mitigation. This being the case, it is considered that there are no permanent adverse effects of significance
relating to landscape and visual effects anticipated for this project.
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8.0 Summary and Conclusions
8.1 Summary
Scope of assessment and methodology
8.1.1 This report considers the anticipated landscape and visual effects arising from the construction of a
proposed new Landscape Discovery Centre and Youth Hostel to replace the existing Northumberland
National Park visitor centre and YHA hostel at Once Brewed.
8.1.2 The assessment methodology used in this report is based on the ‘Guidelines for Landscape and Visual
Impact Assessment’ Third Edition:2013 (LI and IEMA). The level of significance given to identified
landscape and visual effects (effects can be adverse or beneficial) depends on the combination of the
sensitivity of the landscape element, / landscape character / view or observer, and the scale of the effects
predicted. When defining the sensitivity of the existing landscape, one must consider the value attached to
it. The criteria for making such judgements are set out in section 4 in order to make the assessment
process as transparent as possible.
8.1.3 It should be noted that issues relating specifically to the potential effects of the proposed development on
the historic landscape and the setting of sites of cultural heritage significance have been assessed by
specialist landscape historians within the Cultural Heritage chapter of the Environmental Statement
prepared for the project. Consequently, a detailed analysis of such effects has been excluded from this
report.
Existing policy
8.1.4 A brief review of existing planning policy and management strategy frameworks for the landscape in which
the site is located concentrates mainly on the Northumberland National Park Management Plan and the
Northumberland National Park Development Framework. These documents confirm just how special the
landscape is around Once Brewed. It is a landscape with a distinct character and a much valued sense of
tranquillity and contains a rich cultural heritage as well as being a landscape rich in biodiversity and
geology. The designated Hadrian’s Wall World Heritage Site and its associated Management Plan
indicates the landscape being considered is of international value. In addition, the landscape around Once
Brewed is part of a much larger area which has recently been awarded Dark Sky Park status by the
International Dark Sky Association, making it the largest area of protected dark sky in Europe. As such any
new project involving external lighting must comply with the Exterior Lighting Masterplan.
The existing landscape
8.1.5 The landscape of the area covered by this report is dominated by the Whin Sill, a well known geological
feature in the region, running from Upper Teesdale to the Farne Islands on the Northumberland coast.
This high ridge of hard rock defines the northern skyline within much of the study area, the southern
skyline being defined by another smaller ridge running parallel with the Whin Sill. This second ridge marks
the southern boundary of the National Park. The road B6318 (known locally as the Military Road) follows
the line of the landscape corridor formed by these two ridgelines and provides the main route from which
to view the dramatic Whin Sill, Hadrian’s Wall and the simple landscape dominated by rough grazing in
which settlement is sparse and tree cover is generally restricted to small clumps around isolated
properties. The area is rich in Roman heritage sites and the line of the Roman Wall is also the route of two
National Trails – the Hadrian’s Wall Path and the Pennine Way. Two National Cycle Routes connect the
area of the development site with the Whin Sill, the local Roman site of Vindolanda and the A69.
8.1.6 The proposed development site itself is located on the south side of the Military Road which forms its
northern boundary and extends southwards to the bottom of the Brackies Burn valley. The northern
section of the site contains the Vallum Scheduled Ancient Monument but is dominated by the existing
visitor centre and YHA building, both of which are of little architectural merit. The majority of trees on site
are assessed in the site’s tree report as being in fair to poor condition. Their main value is in the screening
they provide to the existing facilities on site. South of the existing buildings, a the upper sections of a
sloping grazed field provide an attractive setting to views out across the Brackies Burn valley and the
lower section is comparatively enclosed at the bottom of the valley, providing a sense of peace and
intimacy not available elsewhere on the site.
8.1.7 As might be expected, in the night time landscape, sources of light are limited to isolated properties and
car headlamps. Light sources from the buildings are generally hidden, the most noticeable impact resulting
from uncovered external wall mounted lights on the northern side of the buildings.
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8.1.8 There is no doubt that the proposed development site is located within a highly valued landscape of
international importance in terms of its cultural heritage and its dark skies. In addition, it is perceived as a
‘special place’ with a sense of tranquillity that brings with it a spiritual quality and as such, it is of national
importance for the recreational opportunities it provides. Of the existing features on site, the main features
of significance are the tree cover, the dry stone boundary walls, the field to the south and the Roman
earthwork of the Vallum.
Visual context of the existing site
8.1.9 Using electronic Orndnance Survey data, a map covering the area within a 15km radius of the Once
Brewed site is used in Figure 4 to show the area from which the ground level of the existing site can be
seen. This is only theoretically as the process by which the map is produced assumes there are no
landscape features above ground level which could screen or interrupt the view from any given point.
8.1.10 Because the strong ridgelines in the local landscape contain views of the site to a large degree, on the
north side of the River South Tyne and the A69 corridor, the area from which the site can be seen is
restricted to a short section of the Military Road corridor (including the line of Hadrian’s Wall and the World
Heritage Site) and a much smaller area on Thorngrafton Common just east of Vindolanda Roman fort.
8.1.11 In theory, views of the site are also possible from vantage points south of the River South Tyne, mainly
from higher ground west of the River Allen and south of Haydon Bridge, most of which fall within the North
Pennines Area of Outstanding Natural Beauty. However, fieldwork has shown that at these longer
distances (5+km) the Once Brewed site is difficult to identify and has a low visual profile within the broader
landscape.
8.1.12 The facilities at Once Brewed are most likely to be seen first when travelling on the Military Road. Because
of the existing tree cover around the boundaries of the site to the north and the west which serves to
screen the buildings on site, the direction of travel very much influences how much of the site can be seen.
When travelling from the east, the existing visitor centre is visible but the YHA building is largely hidden.
When travelling from the west, virtually all buildings on the site are screened until the observer is alongside
the site. In views from the north (ie. the Hadrian’s Wall World Heritage Site, the Hadrian’s Wall and
Pennine Way National Trails) although vehicles parked in the YHA car park at the north eastern corner of
the site are visible, the buildings are well screened by existing trees on the Vallum and it is the
neighbouring Twice Brewed Inn which draws the eye. When approaching the site from the south along a
minor country lane, again the buildings are well screened by trees and it is the field to the south which can
clearly be seen.
8.1.13 Most of the properties within the hamlet of Twice Brewed have no or very limited views of the site. Only
three have direct views of the site from the north and two from the south. People in private residences and
visitors engaged in recreational activities which focus on this valued landscape are considered to be highly
sensitive to changes in the view.
Description of the proposed development
8.1.14 A plan of the proposed Landscape Discovery Centre and Youth Hostel scheme is shown in Figure 7. and
images of the building shown in Figure 8.
8.1.15 The design of the proposed building is inspired by the distinctive landforms of the landscape in which it is
located. The north face of the building captures aspects of the north facing Whin Sill outcrop itself with the
south facing side of the building being softer in form. The main features of the building (which is a
maximum of two storeys) are a glazed café facing north east so as to make the most of dramatic views to
Peel Crags on the Whin Sill escarpment and to the Roman Wall; a long YHA accommodation block on the
west side, and a green roof which takes the form of a long ramp rising out of the ground at the north east
corner and which doubles back on itself, eventually ending at a viewpoint above the café. The green roof
is to support establishing plant communities associated with the harsh conditions of the Whin Sill outcrop.
8.1.16 The National Park Authority are keen that the new facility should be well integrated with the landscape.
However, as the Landscape Discovery Centre is to function as a ‘gateway’ to the landscape of the
National Park, it should still be distinctive, acting as a marker in the landscape.
8.1.17 In terms of the project’s external spaces, it is intended that they should blend with the existing rural
landscape. On the northern boundary the largest trees would be kept but the poorest quality trees and
shrubs would be removed from the Vallum making it easier to see. They would be replaced by new trees
planted outside the protected archaeologically sensitive area. On the western boundary, most of the
existing tree cover within the YHA garden would be retained as would the footpath link to the Twice
Brewed Inn.
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8.1.18 On the east side of the site new dry stone walls would form the edge of the building and the existing YHA
car park (which is currently in the most publicly visible parts of the site) would be removed. As a result
there would be only one vehicle access point into the site and that would be in the position of the existing
entrance into the National Park visitor centre car park. Near the south facing main entrance to the new
building there would be an entrance courtyard, a cycle store and bin store built in dry stone walling with a
green roof, and an outdoor classroom space. Just to the south of these spaces would be an upper car
park which would lead past a new play area into a lower car park further down the field which is currently
used for grazing sheep. The existing triangle of woodland on the eastern site boundary would be retained.
8.1.19 The field slopes down to the Brackies Burn and at the bottom of the valley it is proposed that the more
enclosed flatter ground should be used as both an events space and an overflow car park. This would be
done in a manner that allowed this attractive area to stay as a green field.
8.1.20 A new footpath would link all the car park levels to the main building and these paths would have low level
lighting activated by movement in hours of darkness when necessary. All external lighting would be kept to
a minimum and would be designed so as to prevent light pollution.
8.1.21 Outside the site boundary, on the north side of the Military Road opposite the Once Brewed site, a new
path would be made through an existing group of trees surrounded by a wall in order to create a safer
route from the site, over the road to the Whin Sill and Peel Crags. In addition, an existing field boundary
wall would be lowered to improve sight lines at the existing road junction at the north east corner of the
site.
Anticipated landscape and visual effects
8.1.22 During the early phases of the construction process in particular, when the existing buildings are
demolished and earthworks are carried out, the movement and noise of construction traffic would have a
substantial adverse effect on the sense of tranquillity. Although seen directly without any screening from
only a few viewpoints, the construction site would read as an urban feature out of keeping with the
character of the local landscape. This would be temporary however, and the impact would generally
reduce as the expected c. 18 month construction project progressed.
8.1.23 By the end of the building works, the removal of the existing poor quality buildings and the improvements
to the setting of the Vallum would be beneficial landscape effects. The main adverse effect on the
landscape within the site would relate to the creation of the new car park on the upper and central sections
of the green field south of the existing visitor centre. This is largely due to the introduction of vehicles and
man-made materials which are a strong contrast to the natural appearance of the field. Vehicles could also
reflect glare from the sun in certain light conditions. The negative impact of this on the field would be
moderately to substantially significant so the scheme includes screen planting within and around the car
park which, once established would reduce the negative impact to low significance after 10 years. After 20
years the car park would be virtually completely hidden.
8.1.24 In considering the potential impact of the development project on the special character of this highly
valued and sensitive landscape, the assessment looks at: the scale of the new building and external
facilities; the form of the building; the materials proposed for both the building and the external spaces
including the car park in terms of colour, texture and levels of reflection; signage; the function of the
building as a potential primary visitor attraction in the region and the impact of the potential increase in the
number of visitors to the site; lighting; movement, and noise. The main negative impacts all relate to the
impact of extending car parking into the southern field. As noted , once the planting proposed around the
car parking has grown enough to form a screen, this negative impact would be reduced to low levels after
10 years and low – negligible levels after 20 years.
8.1.25 The impact of the proposed development on the quality of views from within the surrounding landscape
are assessed using selected representative viewpoints which have been agreed with the National Park
planning authority. These viewpoints are identified in Figure 11 and include views from key points to the
north along Hadrian’s Wall / the Pennine Way / Hadrian’s Wall Path, as well as views from the Military
Road to the east and west, and from near / more distant viewpoints to the south on the south side of the
Brackies Burn valley. Where views are considered to be particularly sensitive or significant,
photomontages of the proposed development have been produced using computer generated images to
show how the building would look in the landscape. These key viewpoints are identified by the reference
‘PM’. Other viewpoints labelled ‘VP’ are shown in a photograph with the location of the Once Brewed site
marked.
8.1.26 The impact of the proposed development on the views identified can be summarised as follows:
- The effect on views from within the Hadrian’s Wall World Heritage Site and from the two National
Trails is assessed as being of negligible significance increasing to low adverse significance at the
closest viewpoint (Peel Crags);
‘The Sill’ Landscape Discovery Centre and Youth Hostel, Once Brewed. Landscape and Visual Impact Assessment
Northumberland National Park Authority and The Youth Hostel Association.
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Glen Kemp Ltd., January 2014
- From the Military Road corridor, the scheme would have negligible to low adverse impact when
approaching from the west, increasing to low to moderate adverse impact when travelling from
the east. The latter effect can be reduced to low adverse in time with the mitigation proposed.
- From properties / public highway on the south side of the Brackies Burn valley the impact on the
view would be of low to moderate adverse impact, reducing with time to negligible – low as screen
planting established. From holiday rental properties to the north of the Military Road the negative
impact would vary from low to moderate depending on distance from the site.
- The impact of the scheme on views in which the site of Vindolanda is visible would be negligible.
Mitigation measures
8.1.27 The main reason for the relatively limited adverse impact of the development proposal on the landscape
and its views is that right from the first stages of the design process, the integration of the building and its
associated car parking into the landscape has been a primary objective. This is reflected in the way the
building and car parking is positioned on site and how it relates to the local landform.
8.1.28 In addition, the materials proposed for the building and the external hard landscape elements have been
selected for their natural colours and textures and new planting would be carried out using species that
grow naturally in the area.
8.1.29 Although the extension of car parking into the field to the south of the existing buildings is seen to have the
potential to generate some of the most adverse impacts on the landscape and certain views in the area,
on balance, the layout proposed is considered to be the best option available. Other layouts which
explored the potential to provide parking in the field to the east of the site were considered and rejected on
the basis that they were likely to have unacceptable levels of negative impact.
8.1.30 It is noted that appropriate management plans for the proposed planting and green roof vegetation must
be put in place after the works on site are completed in order that these features can perform the roles
intended in terms of screening and integrating the building into the landscape. The planting is required to
reduce the few individual effects which have been identified as being of moderate to substantial adverse
significance, to an appropriate level. A significant reduction in adverse impact would be seen within ten
years with continued reduction occurring during the next ten year period.
8.2 Conclusion
8.2.1 The landscape of the Whin Sill escarpment is indeed a special landscape, prized for its unique landscape
character, sense of tranquillity and for its dark skies. A series of policies and management plans have
been put in place to protect these aspects and make them relevant to the lives of those who live and work
in the area and more accessible to those visitors who wish to engage with the landscape in a manner
which is completely sustainable. The fact that the new facility is designed specifically with the aim of
delivering this broad objective and that, to an extent, the project represents a re-birth of the existing site
facilities, is likely to have a positive influence on the way the building is perceived and interpreted in the
landscape by those who visit it or view it without any direct engagement.
8.2.2 That the new building is to function as a ‘gateway’ to the National Park landscape means it is expected to
have a presence worthy of the role and it is this ‘public’ profile which must be carefully balanced against
the requirement to minimise adverse effects on the valued and sensitive landscape and visual character
of both the site and the broader landscape of which it is a part.
8.2.3 The fundamental design concept behind the design of the building and the external works appears to
have ‘built in’ a significant component of the mitigation strategy for the development which would assist in
integrating it into the landscape to a significant degree. The ‘Design Guide Supplementary Planning
Document’ within the National Park Local Development Framework notes that sustainable contemporary
design is to be supported. The proposed building undoubtedly has contemporary themes but the design
follows many of the recommendations, such as using locally available materials; not breaking the skyline;
avoiding a suburbanising effect; use of native plant species etc. to help blend it into the local landscape.
8.2.4 There are three principle aspects of the Whin Sill landscape upon which a new building of size and
character could potentially have an adverse effect: i) landscape elements within the site; ii) landscape
character; iii) visual quality.
8.2.5 With regard to anticipated effects on the physical landscape elements within the site, both adverse and
beneficial effects are recorded initially but with time, it is the adverse effects which diminish and the net
beneficial effects which are strengthened.
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Northumberland National Park Authority and The Youth Hostel Association.
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Glen Kemp Ltd., January 2014
8.2.6 The effects of the project on landscape character have been reviewed in detail against various criteria and
it is noted that generally, in instances where an effect of ‘moderate adverse’ significance is identified, it is
in relation to the extension of the car park into the southern field. As above, this adverse effect is one
which can readily be mitigated in time (effective within the first ten years) to a level of low and ultimately
negligible significance.
8.2.7 Given the recent award of Dark Sky Park (gold tier) status to the area in question, the issue of potential
adverse effects on the quality of the night sky and the night time landscape is of particular resonance.
This report has found that the potential for greatest adverse impact occurs when the southern part of the
site is experienced from the lower parts of the Brackies Burn valley which, by its very nature involves
transient views experienced by comparatively few receptors. From more elevated positions, the potential
for adverse impact diminishes and it is confirmed that anticipated impact on night time views of the
broader landscape as experienced from within the North Pennines Area of Outstanding Natural Beauty,
would be negligible. In all instances, the soft landscaping proposed to address mitigation issues relating to
the car park in particular, would successfully mitigate against adverse effects on landscape character
relating to external lighting.
8.2.8 In terms of the effects of the development project on key views and the visual character of the area, it has
been seen that beyond distances of 5km the anticipated change in the view would be negligible. From the
viewpoints of international value gained from the line of Hadrian’s Wall World Heritage Site, the visual
effects are assessed as being of low adverse significance at worst.
8.2.9 From viewpoints closer to the development site where an overall visual effect of moderate adverse
significance is anticipated, it is seen that proposed mitigation measures in the form of appropriate planting
would reduce this level of significance to ‘low – negligible’ over time.
8.2.10 Given that much of the secondary mitigation (ie. that which reduces effects rather than prevents them) is
dependent on new structure planting, it is important to consider the overall effect of this planting itself and
it is concluded that once mature, the belts of native tree and shrub planting proposed for the southern field
in particular, would sit comfortably in the view, reading as natural extensions of existing blocks of tree
planting either side of the field.
8.2.11 In summary, it is concluded that no enduring adverse landscape or visual effects of substantial or
moderate significance are anticipated in association with the development proposal outlined in this report.
‘The Sill’ Landscape Discovery Centre and Youth Hostel, Once Brewed. Landscape and Visual Impact Assessment
Northumberland National Park Authority and The Youth Hostel Association.
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Glen Kemp Ltd., January 2014
THE SILL LANDSCAPE DISCOVERY CENTRE AND YOUTH HOSTEL
LANDSCAPE AND VISUAL IMPACT ASSESSMENT:
SCHEDULE OF FIGURES
Figure 1 Site Context Plan
Figure 2 Existing Site Plan
Figure 3 Landscape Character Areas
Figure 4 Zone of Theoretical Visibility (1:100,000 scale)
Figure 5 Views towards site from Viewpoints VP 6 – 9 within the North Pennines AONB
Figure 6 Zone of Theoretical Visibility (1:25,000 scale)
Figure 7 Proposed Site Masterplan
Figure 8 Proposed Architectural Details
Figure 9 Proposed Tree Retention & Removal Plan
Figure 10 Rejected Car Park Sketch Options
Figures 11 – 18 Photomontage Viewpoints PM1 – PM8
Figures 19 – 20 Viewpoints VP 1-5
'The Sill' Landscape Discovery Centre and Youth Hostel, Once Brewed.
Northumberland National Park Authority and The Youth Hostel Association
Landscape and Visual Assessment
Glen Kemp Ltd., January 2014 Figure 11.
FIGURE 11.
PHOTOMONTAGE VIEWPOINT PM1
WINSHIELD CRAGS
Photomontage Viewpoint PM1 - As Existing
Photomontage scaled so that when held at arm's length, it reflects
the size of the image of the development as it would appear in the
field when seen with the naked eye.
Proposed Building
Existing Building
Photomontage Viewpoint PM1 - Proposed
Proposed Building
Twice Brewed Inn
'The Sill' Landscape Discovery Centre and Youth Hostel, Once Brewed.
Northumberland National Park Authority and The Youth Hostel Association
Landscape and Visual Assessment
Glen Kemp Ltd., January 2014 Figure 12.
FIGURE 12.
PHOTOMONTAGE VIEWPOINT PM2
PEEL CRAGS
Photomontage Viewpoint PM2 - As Existing
Proposed Building
Existing Building
Photomontage Viewpoint PM2 - Proposed
Proposed Building
Photomontage scaled so that when held at arm's length, it reflects
the size of the image of the development as it would appear in the
field when seen with the naked eye.
Seatsides
Twice Brewed Inn
'The Sill' Landscape Discovery Centre and Youth Hostel, Once Brewed.
Northumberland National Park Authority and The Youth Hostel Association
Landscape and Visual Assessment
Glen Kemp Ltd., January 2014 Figure 13.
FIGURE 13.
PHOTOMONTAGE VIEWPOINT PM3
MILITARY ROAD CORRIDOR TO THE WEST (nr. Twice Brewed Inn)
Photomontage Viewpoint PM3 - As Existing
Proposed Building
Existing Building
Photomontage Viewpoint PM3 - Proposed
Proposed Building
Photomontage scaled so that when held at arm's length, it reflects
the size of the image of the development as it would appear in the
field when seen with the naked eye.
'The Sill' Landscape Discovery Centre and Youth Hostel, Once Brewed.
Northumberland National Park Authority and The Youth Hostel Association
Landscape and Visual Assessment
Glen Kemp Ltd., January 2014 Figure 14.
FIGURE 14.
PHOTOMONTAGE VIEWPOINT PM4
MILITARY ROAD TO THE EAST
Photomontage Viewpoint PM4 - As Existing Photomontage Viewpoint PM4 - Proposed
Proposed BuildingExisting Building
Proposed Building
Photomontage scaled so that when held at arm's length, it reflects
the size of the image of the development as it would appear in the
field when seen with the naked eye.
'The Sill' Landscape Discovery Centre and Youth Hostel, Once Brewed.
Northumberland National Park Authority and The Youth Hostel Association
Landscape and Visual Assessment
Glen Kemp Ltd., January 2014 Figure 15.
FIGURE 15.
PHOTOMONTAGE VIEWPOINT PM5
SEATSIDES RESIDENTIAL PROPERTY & PROW
Photomontage Viewpoint PM5 - As Existing
Proposed Building
Existing Building
Photomontage Viewpoint PM5 - Proposed
Proposed Building
Photomontage scaled so that when held at arm's length, it reflects
the size of the image of the development as it would appear in the
field when seen with the naked eye.
Peel Crags
'The Sill' Landscape Discovery Centre and Youth Hostel, Once Brewed.
Northumberland National Park Authority and The Youth Hostel Association
Landscape and Visual Assessment
Glen Kemp Ltd., January 2014 Figure 16.
FIGURE 16.
PHOTOMONTAGE VIEWPOINT PM6
'LONG STONE' VIEWPOINT & PROW, THORNGRAFTON COMMON
Photomontage Viewpoint PM6 - As Existing
Proposed Building
Existing Building
Photomontage Viewpoint PM6 - Proposed
Proposed Building
Photomontage scaled so that when held at arm's length, it reflects
the size of the image of the development as it would appear in the
field when seen with the naked eye.
Vindolanda Roman
Fort
'The Sill' Landscape Discovery Centre and Youth Hostel, Once Brewed.
Northumberland National Park Authority and The Youth Hostel Association
Landscape and Visual Assessment
Glen Kemp Ltd., January 2014 Figure 17.
FIGURE 17.
PHOTOMONTAGE VIEWPOINT PM7
SPRINGWELL COTTAGE, NATIONAL TRUST HOLIDAY COTTAGE
Photomontage Viewpoint PM7 - As Existing
Proposed Building
Existing Building
Photomontage Viewpoint PM7 - Proposed
Proposed Building
Photomontage scaled so that when held at arm's length, it reflects
the size of the image of the development as it would appear in the
field when seen with the naked eye.
'The Sill' Landscape Discovery Centre and Youth Hostel, Once Brewed.
Northumberland National Park Authority and The Youth Hostel Association
Landscape and Visual Assessment
Glen Kemp Ltd., January 2014 Figure 18.
FIGURE 18.
PHOTOMONTAGE VIEWPOINT PM8
HENSHAW TO ONCE BREWED MINOR COUNTRY ROAD
Photomontage Viewpoint PM8- As Existing
Proposed Building
Existing Building
Photomontage Viewpoint PM8 - Proposed
Proposed Building
Photomontage scaled so that when held at arm's length, it reflects
the size of the image of the development as it would appear in the
field when seen with the naked eye.
Twice Brewed Inn
'The Sill' Landscape Discovery Centre and Youth Hostel, Once Brewed.
Northumberland National Park Authority and The Youth Hostel Association
Landscape and Visual Assessment
Glen Kemp Ltd., January 2014 Figure 19.
FIGURE 19.
PHOTOGRAPHIC VIEWPOINTS VP1-VP3
Photographic Viewpoint VP1 - Military Road corridor to the west of the Twice Brewed Inn (nr. Vallum Lodge Guest House)
Photographic Viewpoint VP2 - PROW near Melkridge Tilery Campsite Photographic Viewpoint VP3 - Peel Bothy, National Trust holiday cottage
Existing Building
Existing Building Existing Building
Southern Field
'The Sill' Landscape Discovery Centre and Youth Hostel, Once Brewed.
Northumberland National Park Authority and The Youth Hostel Association
Landscape and Visual Assessment
Glen Kemp Ltd., January 2014 Figure 20.
FIGURE 20.
PHOTOGRAPHIC VIEWPOINTS VP4-VP5
Photographic Viewpoint VP4 - Milecastle 39 nr. Sycamore Gap (Hadrian's Wall Path and
Pennine Way). NB: Site is not visible from Sycamore Gap itself.
Photographic Viewpoint VP5 - Hotbank Crags (Hadrian's Wall Path and Pennine Way)
Existing Building
Existing Building
APPENDIX G
VILLAGE SPECIFIC PLAN, VISUAL IMPACT ASSESSMENT
Village Specific Plan
Visual Impact Assessment
Prepared for:
The City of Del Mar
Planning and Community Development Department
1050 Camino del Mar
Del Mar, CA 92014
Prepared by:
KTU+A Planning and Landscape Architecture
3916 Normal Street
San Diego, CA 92103
March 13, 2012
Revised July 5, 2012
Visual Impact Assessment Table of Contents
VILLAGE SPECIFIC PLAN
July March 2012 Page | i
Table of Contents
1.0 PURPOSE OF THE STUDY ............................................................................................. 3
2.0 PROJECT DESCRIPTION ................................................................................................ 3
3.0 ASSESSMENT METHOD ................................................................................................. 5
4.0 VISUAL ENVIRONMENT OF THE PROJECT ................................................................. 5
4.1 Project Setting ....................................................................................................... 5
4.2 Regulatory Setting ................................................................................................. 7
4.2.1 State Scenic Highway Program ................................................................. 7
4.2.2 California Coastal Act ................................................................................ 7
4.2.3 Del Mar Community Plan ........................................................................... 7
4.2.4 Scenic View Protection Ordinance ............................................................ 7
4.2.5 Tree Ordinance .......................................................................................... 8
4.2.6 Design Review ........................................................................................... 8
4.2.7 Historic Preservation Overlay Zone ........................................................... 9
4.2.8 Other Municipal Code Regulations ............................................................ 9
4.3 Visual Character Units ......................................................................................... 10
4.4 Project Viewshed and Views ............................................................................... 23
5.0 EXISTING VISUAL RESOURCES AND VIEWER RESPONSE ..................................... 36
5.1 Methods used for Visual Resource Analysis ....................................................... 36
5.2 Existing Visual Resources ................................................................................... 37
5.2.1 Scenic Resources .................................................................................... 37
5.2.2 Existing Visual Character ......................................................................... 41
5.2.3 Existing Visual Quality ............................................................................. 41
5.3 Methods of Predicting Viewer Response............................................................. 42
5.3.1 Existing Viewer Groups, Viewer Sensitivity, and Viewer Exposure ......... 42
6.0 VISUAL IMPACT ASSESSMENT .................................................................................. 45
6.1 Method of Assessing Impacts ............................................................................. 45
6.2 Definition of Visual Impact Levels........................................................................ 45
6.3 Analysis of Candidate Key Views ........................................................................ 45
6.4 Analysis of Key View Simulations........................................................................ 46
6.5 Impact Assessment Summary ............................................................................. 65
7.0 VISUAL MITIGATION ..................................................................................................... 67
7.1 Visual Mitigation Options ..................................................................................... 67
7.2 Visual Impacts After Mitigations .......................................................................... 68
8.0 REFERENCES ................................................................................................................ 71
List of Figures
Figure 4-1: Project Location and Village Specific Plan Boundary ................................................. 6
Figure 4-2: Viewshed and Human Eyesight Dynamics ............................................................... 24
Figure 4-3: Determining Ocean Views from Slopes .................................................................... 26
Visual Impact Assessment Table of Contents
VILLAGE SPECIFIC PLAN
July March 2012 Page | ii
Figure 4-4: Viewshed Trendline with Existing Buildings along CDM .......................................... 27
Figure 4-5: Viewshed Trendline with Proposed Buildings along CDM ........................................ 28
Figure 4-6: Viewshed Trendline Net Difference .......................................................................... 29
Figure 4-7: Viewshed of Existing Buildings along CDM .............................................................. 30
Figure 4-8: Viewshed of the Proposed Buildings along Camino del Mar .................................... 31
Figure 4-9: Viewshed Net Difference of Building Heights ........................................................... 32
Figure 4-10: Ocean Viewsheds and View Corridors Along and Through Camino del Mar ......... 33
Figure 6-1: Key View Simulation “A” ........................................................................................... 47
Figure 6-2: Key View Simulation “B” ........................................................................................... 49
Figure 6-3: Key View Simulation “C” ........................................................................................... 51
Figure 6-4: Key View Simulation “D1” ......................................................................................... 53
Figure 6-5: Key View Simulation “D2” ......................................................................................... 55
Figure 6-6: Key View Simulation “E” ........................................................................................... 57
Figure 6-7: Key View Simulation “F1” ......................................................................................... 59
Figure 6-8: Key View Simulation “F2” ......................................................................................... 60
Figure 6-9: Key View Simulation “F3” ......................................................................................... 61
Figure 6-10: Key View Simulation “F4” ....................................................................................... 62
Figure 6-11: Key View Simulation “G” ......................................................................................... 64
List of Tables
Table 5-1: Visual Quality Assessment of Character Units .......................................................... 41
Table 5-2: Summary of Viewer Groups ....................................................................................... 44
List of Appendices
APPENDIX A CANDIDATE KEY VIEWS ............................................................................. A-1
Visual Impact Assessment
VILLAGE SPECIFIC PLAN
July March 2012 Page | 3
1.0 PURPOSE OF THE STUDY
The purpose of this study is to assess the visual impacts of the proposed Del Mar Village
Specific Plan, also referred to as the Village Specific Plan. The study also proposes
measures to mitigate any adverse visual impacts associated with the implementation of
the plan and its effect on the visual environment.
2.0 PROJECT DESCRIPTION
The proposed project consists of a new Specific Plan for the Village that is designed to
implement the vision found in the Community Plan. Some of the major policies that may
affect the visual environment resulting from implementation of the Specific Plan include:
• increased development potential within the study area;
• requirements for a build-to line requiring a street wall along the walk for storefronts;
• requirements for various setbacks from property lines and stepbacks of upper building
elements;
• raised height limit to 26’-0” on the western side of Camino del Mar to match the
allowed height limit on the eastern side;
• height limit bonus for an additional 4’ 0” on top of the 26’-0” for articulated rooflines;
• creation of a mixed-use zone for commercial properties that also allows residential
development at a density of 20 dwelling units per acre;
• permitting parking structures in both the mixed-use and public facilities zones;
• redesigned sidewalks and on-street parking to be continuous and aligned within the
public right-of-way; and,
• redesigned Camino del Mar to be a 2-lane roadway with roundabouts at key
intersections.
The new Specific Plan would allow building parcels to increase their maximum
development potential from the existing .45 Floor Area Ratio (FAR) to a 1.0 FAR.
Proposed allowed building heights would be 26 feet above Camino del Mar for properties
that face Camino del Mar to allow two stories. Side street parcels within the Specific Plan
would be allowed to have a 26’-0” height from their average street front property
elevation. Roof articulation features may extend an additional four feet, but would not be
allowed to create habitable space.
Three parcel-specific Specific Plans have been previously adopted and fall within the
Village Specific Plan boundaries: the Hotel Specific Plan (L’Auberge), the Plaza Specific
Plan (Del Mar Plaza and 1435 Camino del Mar), and the Garden Del Mar Specific Plan
(941 Camino del Mar and 307 10 th Street). Both the Hotel and Plaza have been
developed according to their adopted Specific Plans. The Garden Del Mar site remains
entitled, but undeveloped and vacant. No build-out is anticipated beyond that which is
currently constructed at either the L’Auberge Hotel or the Del Mar Plaza, excluding 1435
Camino del Mar.
Visual Impact Assessment
VILLAGE SPECIFIC PLAN
July March 2012 Page | 4
Computer model outputs showing existing buildings (top), maximum building envelopes
(middle) and theoretical infill buildings (bottom). These views are looking from the north,
by the Del Mar Plaza at 15th Street, southward to 9th Street.
Visual Impact Assessment
VILLAGE SPECIFIC PLAN
July March 2012 Page | 5
3.0 ASSESSMENT METHOD
The study follows Appendix G of the California Environmental Quality Act (CEQA)
thresholds for visual impacts identified by the State of California and further defined by
the Association of Environmental Planners. In addition, methods used at the federal level
have also been included, even though this study is not a NEPA document, they are
relevant for visual studies. The processes from the federal level used in this visual impact
study generally follow the guidelines outlined in the publication "Visual Impact
Assessment for Highway Projects," Federal Highway Administration (FHWA), March
1981, as well as processes known as “Visual Resource Management” methods from the
Bureau of Land Management, National Park Service and the National Forest Service.
Local, state, federal guidelines and national standards commonly suggest six steps for
conducting visual impacts. They are as follows:
A. Define the project setting and viewshed.
B. Identify key views for visual assessment.
C. Analyze existing visual resources and viewer response.
D. Depict the visual appearance of project alternatives.
E. Assess the visual impacts of project alternatives.
F. Propose methods to mitigate adverse or significant visual impacts.
4.0 VISUAL ENVIRONMENT OF THE PROJECT
4.1 Project Setting
The Village Specific Plan boundary is shown in Figure 4-1. The plan occupies
approximately 40 acres within the urbanized town center of Del Mar. The Village Specific
Plan generally encompasses the central business district corridor that is along Camino
del Mar between 9th Street and approximately the easterly alignment of 17th Street.
Additionally, commercial and post office properties along 15th Street west to Stratford
Court are included.
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Figure 4-1: Project Location and Village Specific Plan Boundary
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4.2 Regulatory Setting
4.2.1 State Scenic Highway Program
California's Scenic Highway Program was created by the Legislature in 1963. Its purpose
is to preserve and protect scenic highway corridors from change, which would diminish
the aesthetic value of lands adjacent to highways. There are no designated or eligible
scenic highways in the area listed in the California Scenic Highway Program.
4.2.2 California Coastal Act
Under the California Coastal Act of 1976, scenic and visual qualities of coastal areas are
considered and protected as a visual resource. Permitted development should be sited
and designed to protect public views to and along the ocean and scenic coastal areas.
The act also requires minimizing the alteration of natural landforms, to assure that they
are visually compatible with the character of surrounding areas, and, where feasible, to
restore and enhance visual quality in visually degraded areas.
The City implements their Local Coastal Plan (LCP) through the Community Plan, various
policy reports, the San Dieguito Lagoon Enhancement Program, as well as other goals
and policies adopted by the City Council to guide future development within Del Mar.
Aesthetic components of the LCP relevant to the Plan area include development of a
community center with attractive walkways and landscaped court and open spaces,
pedestrian-oriented streetscapes, and architectural style which retains a small-town
character and preserves public ocean views and public access to the coastline.
4.2.3 Del Mar Community Plan
The Del Mar Community Plan (1976 amended 1985) includes goals and policies that
address aesthetics. The overall goal is to “[p]reserve and enhance the special character
of Del Mar, the elements of which are a village-like community of substantially single-
family residential character, a picturesque and rugged site, and a beautiful beach.” Other
goals applicable to aesthetics include minimizing the impact of vehicles on the character
of the City, and preserving and enhancing the “special residential character and small
town atmosphere with its harmonious blending of buildings and landscape in proximity to
a beautiful shoreline.” As identified in the Community Plan, Camino del Mar is a scenic
roadway and views of the Pacific Ocean and other visual resources such as bluffs and
trees are to be protected. Jimmy Durante Boulevard (formerly Turf Road), Crest Road,
Carmel Valley Road, Coast Boulevard, and Del Mar Heights Road are also considered
scenic roadways; however, the Plan area is not located within the scenic views identified
for preservation for these roadways.
4.2.4 Scenic View Protection Ordinance
DMMC Chapter 23.51 provides for protection of trees, scenic views, and sunlight that
contribute to the character of the City and benefit to residents. This chapter is informally
known as the Scenic View Protection Ordinance and gives residents the right to preserve
scenic views or sunlight that existed at the time they purchased or occupied the
residence or in the last 10 years, whichever is shorter. Scenic views are defined as “a
view of the ocean, lagoons, canyons, the community and its landscapes and urban
forest character, or other scenic vistas, from the Primary Living Area of a residence.”
Primary Living Areas are defined as the “[single] portion of a residence from which a
Scenic View is observed most often by the occupants and guests at the residence.”
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Under this ordinance, vegetation and trees must be properly maintained within 300 feet of
residential properties to preserve scenic views and sunlight. The Municipal Code has
established a procedure to resolve conflicts regarding protected trees, scenic views and
sunlight rights.
4.2.5 Tree Ordinance
The Tree Ordinance (Chapter 23.50 of the DMMC) provides for the orderly protection of
trees, including the following measures:
B. In the interest of the public health, safety and welfare, as well as general aesthetics
of the community and the importance of the ecology of the area, the City of Del
Mar finds it necessary to encourage conservation of trees and the application of
management techniques to create a healthy, diverse urban forest, including but
not limited to pruning, thinning, trimming, shaping, and selective planting and
removal of trees and vegetation within the City of Del Mar on private as well as
public property. [Ord. 749]
C. The species Torrey Pine, the species Monterey Cypress, and all species of trees
located within the Central Commercial zone and the environmentally sensitive
Open Space Overlay zone are of particular significance to the City, and should
therefore be protected to conserve the environmental qualities of the City.
To further enforce this protection, the City of Del Mar prepared a Public Tree Policy
Manual in 2004. This manual directs tree preservation in order to preserve the
community’s unique, village-like atmosphere, which is distinguished by its community
forest. Trees species of particular concern include Torrey pines and Monterey cypress,
although the manual indicates all trees within the Plan area are considered significant. A
Tree Removal Permit is required to remove a Protected Tree, except in certain situations
outlined in the Municipal Code Chapter 23.50.050. In the case of public trees, a separate
Encroachment Permit from the City is also required (this statement does not apply to the
City or its contractors). Implemented through the Design Review process, trees are also
required to be protected during construction to prevent tree loss.
4.2.6 Design Review Ordinance
The Design Review Chapter 23.08 of DMMC Title 23 (also known as Design Review
Ordinance) requires all new construction or major remodeling projects within the Plan
area to obtain a Design Review Permit (DRP). The purpose of the DRP is to “to achieve
and protect a residential, seaside community which is both beautiful and pleasant in
character, by fostering and encouraging good design which encompasses the use of
harmonious materials and colors, compatible proportional relationships and appropriate
use of landscaping, and to protect the citizens of the City of Del Mar.”
The DRP process includes several evaluation components, including many related to
aesthetics. Overall, the evaluation components provide the following guidance:
• Minimize the disruption of existing natural features such as trees and other
vegetation, natural ground forms, and view. This includes blending proposed grading
with existing topography.
• Include landscaping that matches existing landscaping in the area and compliments
and visually softens buildings.
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• Unattractive features shall be screened from view.
• Minimize blockage impacts to public and private coastal views, and retains scenic
resources.
• Development shall be similar in scale and design (including style, materials, or colors)
relative to the surrounding neighborhood; however, similar or identical building
façades shall be avoided on adjacent parcels.
• Design lighting to reduce adverse impacts to the local neighborhood and be
architecturally integrated.
• Views and designs shall be considered in all elevations.
The Design Review section of the Design Regulations (Section 23.08.070) does not allow
projects where “design unreasonably blocks significant public coastal views” or
“unreasonably encroaches upon primary scenic views of neighboring property.” As the
above information is only a summary of several pages of evaluation components, please
refer to the Design Review Ordinance for more information.
As a part of the Design Review aesthetics analysis, story poles may be required to
indicate the proposed alignment and massing of a development. Story poles are required
for projects that involve a new structure, a second-story addition to an existing structure,
or any addition which, in the estimation of staff or the Design Review Board, may cause
concerns about inappropriate bulk and mass, or view blockage. The story pole analysis
shall be completed per the City’s story poles application guide.
The Design Review Board, or City Council, has the authority to impose conditions on
projects to protect and enhance the health, safety, and welfare of the surrounding area,
and to ensure that projects fully meet the criteria as set forth in Chapter 23.08 of the
Municipal Code. As stated in Chapter 23.08.100, conditions shall be reasonably related to
the project.
4.2.7 Historic Preservation Overlay Zone
The DMMC designates the HP-OZ. The HP-OZ protects the architectural and historic
integrity of certain historically significant properties located within the City. The Stratford
Square and the City Library are the two sites within the Plan area with HP-OZ
designations. In addition, the residence at 110 15th Street, the former train station, the
Powerhouse Community Center located west of Coast Boulevard, and the “Rock House,”
a residence located adjacent to the east side of the Plan area are nearby properties with
HP-OZ designations.
4.2.8 Other Municipal Code Regulations
Other DMMC regulations also indirectly regulate aesthetic impacts. Supplemental
Municipal Code zoning regulations in Chapter 30.86 pertain to undergrounding utilities;
fences; screening of unsightly uses including garbage storage space; rooftop structures
(chimneys and vents); yard landscaping; and yard projections. The zoning code provides
height and density restrictions. Within the Plan area, height restrictions include 26 feet
for properties along east side of Camino del Mar and 14 feet along the west side of
Camino del Mar. Currently, 70 percent of the structures on the west side of Camino del
Mar are nonconforming in that they already exceed this 14-foot building height restriction.
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Assignment of a maximum FAR, the amount of building square footage relative to the
size of a development parcel is a primary means by which Del Mar and other
communities control the visible bulk and mass of structures. The maximum allowable
FAR in the Central Commercial Zone is 0.45 and the Public Facilities Zone does not have
a FAR limit. Forty percent of the existing buildings in the Village already exceed the
current CC Zone 0.45 FAR limitation. In addition, signs are regulated by Municipal Code
Chapter 30.84.
4.24.3 Visual Character Units
A visual character unit is a portion of the regional landscape that can be thought of as an
outdoor room exhibiting a distinct and definable visual character. A character unit will
often correspond to a place or district that is commonly known among local viewers. A
total of seven visual character units have been identified either within the specific plan
boundary or adjacent to the boundary: Civic, Residential, Commercial, Hotel, Plaza,
Vacant, Street and Streetscape. These units are important to establish the context of the
visual environment. Impacts to a visual environment resulting from project changes, all
depend on the visual character setting in which these changes occur.
Civic Character Unit
Civic spaces within the Village Specific Plan boundary include the City Hall, the Library,
and the Post Office. All three of these buildings are unique in character and are set off the
street. The City Hall site is underutilized and consists of a building on the corner of
Camino del Mar and 11th Street and a large parking lot adjacent to Camino del Mar.
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Residential Character Unit
The residential neighborhoods are both to the west and east of Camino del Mar. The
architecture and landscape ranges in style. The buildings are tucked behind the main
streets and are either moderately or highly hidden by mature landscape and trees. The
buildings heights are limited to protect views to the oceans and generally follow the
topography.
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Commercial Character Units
The commercial character unit along Camino del Mar varies in architectural style and
character. The buildings are limited and consistent in height because of the current
restrictions in the municipal code. The setbacks on the buildings vary and are
inconsistent, which creates a variable pedestrian space between the roadway and
building façade.
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Hotel and Plaza Character Unit
The Plaza development at the north end of the study area includes a variety of view-
oriented restaurants and retail that take advantage of the topography. The project is
generally oriented around a pedestrian experience. The Plaza includes an underground
parking garage at the north end of the character unit. Across the street to the west is the
L'Auberge Del Mar Hotel. It creates a visual gateway into the commercial core of Del Mar.
Both of these developments include manicured landscape with modernized, well-
maintained architecture.
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Vacant / Parking Character Unit
Most of the lots in the Del Mar Village area are developed, though the intensity of
development is only moderate compared to many downtown areas of similar size to Del
Mar. Much of the land not occupied by buildings is used for surface parking. Large lots
are found at the City Hall, and diagonal parking is in front of several businesses along
Camino del Mar. There is one parcel that is vacant. This parcel is comprised of an
asphalt-paved surface with a wooden fence surrounding the site.
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Street and Streetscape Character Unit
The existing right-of-way along Camino del Mar is 100 feet wide with parking, bike lanes,
two lanes of travel in each direction and a median. The parking along this street is
inconsistent and includes parallel, head-in and diagonal parking. There are mature
plantings within the median, which include random groupings of large, mature trees. The
pedestrian spaces between the face of curb and buildings fronting Camino del Mar vary
greatly because of the buildings setbacks and other unique site constraints. The paving,
planting, furnishings, lighting, and signage are inconsistent.
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Recreation Character Unit
The recreation character unit includes Powerhouse Park and the bluffs and coastline
along the Pacific Ocean. Many local residents and visitors use these areas for a variety of
recreational opportunities. Powerhouse Park consists of an expansive lawn with tables
and benches. Adjacent to this park heading south, there are pathways on top of bluffs
that are covered in native and non-native vegetation with direct views to the ocean below
that individuals use for walking and running.
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Existing Architectural Form and Street Character
The City of Del Mar has an eclectic and unique character resulting from a mixture of
architecture, landscape, parking facilities, and the streetscape elements. Camino del Mar
is the main road through the city and development is concentrated on each side of it. It is
comprised of two travel lanes in both directions with bike lanes inconsistently located
along its length. Parking includes of a variety of parallel and angled parking with some of
it within the right of way. Other spaces are arranged in a “town and country” style on
private property in front of buildings. The north and southbound lanes are divided by
landscaped medians with mature trees and a variety of smaller shrubs and groundcover.
Architectural Character: One of the major contributors to the eclectic style of Del Mar is
the variety of architectural styles present along Camino del Mar. The buildings generally
take elements from a specific architectural style or period but do not always follow one
style consistently. The mixture of styles from lot to lot creates a distinctive style and
character. This occurs throughout the Specific Plan area. A good example of this mixture
can be seen on the west side of Camino del Mar south of 15th Street. The photograph on
the left illustrates three unrelated styles for three different buildings. The building on the
far right was built in the Tudor Revival
style while the building at the far left has
elements of Spanish Revival. The
building in the middle has no distinct
style but was built during the 1970s. It is
this blend of variety of mixed styles that
contributes to the eclectic feel and
unique character of the Village of Del
Mar.
Although the architectural styles of the buildings are different along Camino del Mar,
there are consistencies with respect to materials, doors, and windows openings. The
buildings incorporate a variety of materials. All types of colors, textures and materials
from stucco finishes to brick can be found along Camino del Mar. Doors and windows
also have a significant impact on the success of the pedestrian environment and overall
streetscape. The buildings that contribute most to the streetscape environment are the
ones that activate the pedestrian experience. These buildings typically have doors that
are easily identifiable and windows that allow for shop displays starting no more than 24”’
above the exterior grade and extend to at least 6’ in height. The majority of buildings
along Camino del Mar have larger display windows with easily accessible doors. Below
are two photographs that illustrate the use of these larger windows and door entries.
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The architectural style varies, from Tudor and Scandinavian architecture to Polynesian hip roof styles.
Though of different heights and scales, these two buildings are good examples of period and style
consistent structures that add to the sense of place of Del Mar.
Other buildings do not portray much of a style and are either dominated by the front lot parking areas or
tend to be modern architecture with limited indoor/outdoor spatial connections.
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Street Character: Just as the buildings are architecturally varied, the sidewalk conditions
and building placements along Camino del Mar are varied as well. The sidewalk is
sometimes constructed of brick pavers, concrete, or a combination of materials. Buildings
are sometimes set back to accommodate larger café areas and planting areas and other
times buildings are placed in a zero lot line condition. The photograph below (upper left)
shows two buildings with two different setbacks. The building on the left has incorporated
the additional setback distance for a covered porch and clothing sales rack while the
building on the right is utilizing the space for exterior cafe seating. Larger setbacks can
also be used to create courtyards or additional exterior space to be shared amongst
buildings. The photograph below (right) shows two buildings with a building between that
is setback more than 10’. This large setback allows for some relief from the building edge,
but also provides an area of larger outdoor sale opportunities or alternatively a café or
restaurant. Variations in setbacks enhance the streetscape experience and add interest
to the physical environment while creating opportunities for additional exterior uses. The
addition of different sidewalk materials and varied building setbacks contribute to the
unique character of this area. The variation between design elements indicates that
changes to the area will not dramatically contrast or “stand out” by being different. A
unifying design element is missing from this portion of Del Mar. Efforts in the future may
attempt to provide uniformity through the walkway materials, street lights, benches and
plant material found along the corridor. Recently, some efforts have been made in terms
of adding a “Del Mar” branding to its benches and trash receptacles. Also, many of the
sidewalk areas recently added are providing a consistent exposed chipped rock
aggregate that will help to provide a unifying element along the street.
Many buildings along Camino del Mar
address the pedestrian experience
successfully. Although the average sidewalk
width is approximately 10’, the sidewalk
contains many streetscape elements
including, benches, planter boxes with small
shrubs, outdoor cafes, clothing racks,
signage and other human scaled elements.
The photograph at the left illustrates an
example of how street elements set the
character of the streetscape.
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Plazas associated with some of the larger developments are often activated by outside eating and
sitting areas. Shade, water features and defined spaces are often included.
Though both examples have outdoor spaces at the front of the buildings, the image on the left lacks
activation of its space based on adjacent land uses and lack of seating facilities.
Some buildings do not have clear windows that encourage window-shopping and others are negatively
affected by the angle parking that forces the walkways away from the street.
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There is a great deal of variety in rooflines and overall forms, as well as setbacks and parking areas.
Many of the streetscapes are highly detailed with plant material, overheads, seating and fountains.
Very nice examples include those with a great integration of interior or exterior spaces or those that
have used plant material and seat walls to define a transitional space from public to private.
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Some areas have great spatial definition, some created away from the street while others are spatially
flat and linear with limited façade variations that define the street wall.
The street wall varies and is often determined by the sidewalk and angle off-street parking. Pedestrians
are not always up against the road edge, which makes for a non-contiguous street edge.
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4.34.4 Project Viewshed and Views
Viewshed Definition: the natural environment that is visible from one or more viewing
points (Merriam-Webster). From a Geographic information systems (GIS) standpoint,
viewsheds can be described as the determination of visibility of a surface DEM (digital
elevation model) by one or more observer points located on that surface. The visibility of
each surface cell center is determined by comparing the altitude angle of the cell center
(surface) with the altitude angle to the local horizon of each observer point. The local
horizon is computed by considering the intervening terrain between the point of
observation and the current cell center. If the point lies above the local horizon, it is
considered visible (see Figure 4-2). The landform surface model was obtained from an
existing digital elevation model. The resolution of each surface cell analyzed in the model
is 10 meters by 10 meters, or approximately 1,076 square feet.
Viewshed Processes: A viewshed for a single vantage point may be run across a
surface in order to predict what can be seen from that single vantage point. This is
valuable in validating whether areas across the surface are visible or not from that
specific location. This does not, however, give us quantitative information about the
degree of visibility for a given area. To simulate how many project features, or how much
project area can be seen, a viewshed can be run from the project features (or area) using
this surface. Many visual test points are used in these models and the visible points can
be added up to give an idea of the overall extent of the Viewshed.
The dynamics of the Del Mar visual environment requires the development of two distinctively
different viewshed types. Views of the Pacific Ocean are an important aspect of living in Del
Mar. They affect property values and the quality of life. Though one large body of water, the
ocean in visual terms has: a horizon line or background view; an open water view or middle
ground view; and a coastal beach / shore view or a foreground view. The proposed buildings
on Camino del Mar have the potential of blocking views of the ocean by interceding or piercing
the view corridor. A viewshed model was developed first to determine the leading edge of the
ocean as seen by all of the residents on the slopes east of Camino del Mar. Then, the leading
edge of this view was selected and a viewshed model was developed to show the areas that
can see the multiple points along this linear leading edge in the ocean. Interceding buildings
along Camino del Mar, as well as other topography in the area, determine what can see this
leading edge and what cannot (see Figure 4-4). It should be noted that vegetation and other
buildings outside the Specific Plan area are not in the model, so the results should be
considered as the worst-case situation. The real viewshed model can be dramatically less
than this due to other buildings and vegetation. The computer model was then modified to
include increased building heights allowed in the Specific Plan and another viewshed model
was calculated (see Figure 4-5). Finally, the difference between the current viewshed and the
proposed viewshed based on the building height differences was calculated (see Figure 4-6).
Using the processes above, the viewsheds to the project and from the project were analyzed.
As shown in Figure 4-7, the majority of the buildings along Camino del Mar are visible from
residences located uphill between Camino del Mar and Luneta Drive and again at the
residences to the north and south of Crest Drive. Locations along Camino del Mar also have
high visibility of other buildings along Camino Del Mar. The remaining areas within the City
have a low to moderate visibility of the buildings along Camino del Mar.
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Figure 4-2: Viewshed and Human Eyesight Dynamics
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A second series of viewshed models were developed that show the visibility of the
buildings themselves, without regard to the background ocean views. This second
viewshed model was run showing the areas that can see the current buildings along
Camino del Mar. Then the computer model was adjusted by increasing building heights to
30’ with variable roof heights from 26’ to 30’ (see Figure 4-8). The difference between the
building heights and their affect on the viewshed extent is shown on Figure 4-9.
The view corridor summary map shown on Figure 4-10, illustrates where view corridors exist
through the Specific Plan area to the Pacific Ocean. This analysis indicates locations of
primary, secondary, intermittent and partial ocean view corridors. Generally, primary view
corridors consist of the east-west streets that extend through the Plan area to the bluffs. The
secondary views corridors originate from roadways located to the east of the Plan area along
streets that either do not go all the way through Camino del Mar, or where the angle of the
streets a few blocks to the east of the Specific Plan area, allow for additional views to the west.
The analysis also locates where intermittent views of the ocean are visible from Camino del
Mar, generally where buildings are currently missing, or large gaps between buildings are
available. In some cases, the elevation along Camino del Mar, affords some minor views
towards the northwest, over existing single story buildings. Finally, this analysis determines
where private parcels along Camino del Mar, have portals, gaps or plazas on the street that
allow users of Camino del Mar to see small portions of ocean views. However, most of these
views are very confined or are currently blocked by other buildings and trees.
The Viewshed summary map also indicates areas to the east of Camino del Mar that have
been grouped into view categories. Upper slopes east of Camino del Mar above a certain
elevation (shown in light yellow), see entirely over the buildings along Camino del Mar. In
some cases, they may see the views of buildings in the specific plan area, but they are not
blocking middle-ground views of the ocean beyond the beach, nor do they interrupt the
horizon line. Whether buildings are 14’ or 30’ from this area, their presence would not be
considered a blocking of a view corridor to the ocean. This zone is overlaid on the Viewshed
maps indicating visibility of the trend line in the ocean. Those area that are a very pale yellow,
do not have visibility of the ocean, due to interceding topography and canyon landforms.
Those that have an orange to red color showing through the pale yellow, have increasing
degrees of visibility of the ocean.
The lower slopes show in bright yellow on Figure 4-10, are those from approximately one to
two blocks east of Camino del Mar. Depending on topography, these roadway segments and
private parcels, potentially have a small portion of their views blocked by buildings that are 26’
or taller. Several existing buildings currently block views of the lower portions of the ocean,
and dozens of mature trees also interrupt these views. In general, a building between 26’ and
30’ would be part of the viewing scene of the middle-ground from this area, and the near
shoreline out past the trend line (shown on Figures 4-3 to 4-6). The horizon line is not likely to
be interrupted by buildings up to 30’.
The next zone shown on Figure 4-10 (in red) includes parcels that are generally from ½ block
to 1 block from Camino del Mar. These properties do have views blocked off by buildings on
the east side that are greater than 14’ in height and buildings on the west side of about 20’-24’
in height. Some views do exist from this location, but most of these properties are either
commercial properties on the back side of the eastern lots on Camino del Mar, or front the
alley. Finally, the green zone shows areas along Camino del Mar that have there views of the
ocean completely blocked by any building that is 6’ to 14’ in height.
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Figure 4-3: Determining Ocean Views from Slopes
This figure shows the ocean views as seen from the slopes east of Camino del Mar. The deeper
the red, the more houses (indicated with black dots) that can see this part of the ocean.
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Figure 4-4: Viewshed Trendline with Existing Buildings along CDM
Viewshed of the trendline (dashed line) on the ocean determined to be the most visible part of
the near ocean that most structures on the slopes east of Camino del Mar can see (given current
buildings and landforms that block views).
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Figure 4-5: Viewshed Trendline with Proposed Buildings along CDM
Viewshed of the ocean (trendline) given increased building heights (from 26’ to 30’
variable roofline) along Camino del Mar.
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Figure 4-6: Viewshed Trendline Net Difference
Net difference of areas where portions of the view of the ocean (trendline) would be partially
blocked by building heights along Camino del Mar versus existing building heights.
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Figure 4-7: Viewshed of Existing Buildings along CDM
Areas in color indicate those areas of Del Mar that can see existing buildings along Camino del
Mar. Red areas can see most all buildings, whereas areas with no color see no buildings.
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Figure 4-8: Viewshed of the Proposed Buildings along Camino del Mar
The viewshed shown indicates areas that can see the existing and proposed buildings. New
buildings have replaced existing buildings where it has been assumed the site would redevelop.
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Figure 4-9: Viewshed Net Difference of Building Heights
Net difference of properties affected by changes in building heights (note that blue colors
indicate minor change in visibility while orange indicates a more dramatic change).
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Figure 4-10: Ocean Viewsheds and View Corridors Along and Through Camino del Mar
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Most of the east to west streets have views of the ocean, but the amount of ocean seen can vary
dramatically as you head to the east, where just one block will allow you to see over most buildings.
Views heading north or southbound on Camino del Mar are much more limited. Where they do appear,
it is the result of a break in building masses and where mature plant material does not exist.
A few midblock views can be seen between buildings. A portion of the ocean can be seen from across
from the east side of the street, though more dramatic views can be seen from the west side.
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Other openings exist, but contain a large amount of walls or landscaping that blocks most of the view.
Current buildings block most of the views as seen from the road or sidewalk. Even a depressed 14’
building cannot be seen over the top from this side. Where buildings are missing, views do exist.
Views over buildings occur once you head east up the streets and gain altitude. Views over the west
side buildings from the first half block eastward only occur over the top of 14’ buildings. It is likely that
buildings at 26’ to 30’ will not be seen over unless you travel east of the alleyway.
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5.0 EXISTING VISUAL RESOURCES AND VIEWER RESPONSE
5.1 Methods used for Visual Resource Analysis
Individual visual resources, when combined, make up the uniqueness of visual character.
The visible individual components of a landscape include landform, landcover, water
bodies, vegetation and man-made development.
Step 1: Identify Visual Character – Visual character is descriptive and non-evaluative,
which means it is based on defined attributes that are neither good nor bad in
themselves. A change in visual character cannot be described as having good or bad
attributes until it is compared with the viewer response to that change. If there is public
preference for the established visual character of a regional landscape and resistance to
a project that would contrast that character, then changes in the visual character can be
evaluated.
Step 2: Assess Visual Quality – Visual quality is evaluated by identifying the vividness,
intactness and unity present in the viewshed. This method should correlate with public
judgments of visual quality well enough to predict those judgments. This approach to
evaluating visual quality can also help identify specific methods for mitigating each
adverse impact that may occur as a result of a project.
The three criteria for evaluating visual quality can be defined as follows:
Vividness is the visual power or memorability of landscape components as they
combine in distinctive visual patterns.
Intactness is the visual integrity of the natural and man-built landscape and its
freedom from encroaching elements. It can be present in well-kept urban and rural
landscapes, as well as in natural settings.
Unity is the visual coherence and compositional harmony of the landscape
considered as a whole. It frequently attests to the careful design of individual
manmade components in the landscape.
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5.2 Existing Visual Resources
5.2.1 Scenic Resources
The City of Del Mar begins at the edge of the Pacific Ocean and follows the topography
up toward the east. Many residences and businesses in Del Mar have views of the
ocean. Under the California Coastal Act of 1976, scenic and visual qualities of coastal
areas are considered and protected as a visual resource. Permitted development should
be sited and designed to protect views to and along the ocean and scenic coastal areas.
The act also requires minimizing the alteration of natural landforms to assure that they
are visually compatible with the character of surrounding areas, and, where feasible, to
restore and enhance visual quality in visually degraded areas.
View of Pacific Ocean from residential neighborhood along 10th Street
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There are a diverse collection of street trees in the Village Plan area, including
Eucalyptus species, and Monterey Pines and Torrey Pines along Camino del Mar in the
medians and throughout the residential neighborhoods. The Tree Ordinance (Section
23.50) of the Del Mar Municipal Code provides for the orderly protection of trees,
including the following measures:
B. In the interest of the public health, safety and welfare, as well as general aesthetics of
the community and the importance of the ecology of the area, the City of Del Mar finds it
necessary to encourage conservation of trees and the application of management
techniques to create a healthy, diverse urban forest, including but not limited to pruning,
thinning, trimming, shaping, and selective planting and removal of trees and vegetation
within the City of Del Mar on private as well as public property. [Ord. 749]
C. The species Torrey Pine, the species Monterey Cypress, and all species of trees
located within the Central Commercial zone and the environmentally sensitive Open
Space Overlay zone are of particular significance to the City, and should therefore be
protected to conserve the environmental qualities of the City.
Specimen Torrey Pines are found throughout the City of Del Mar
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The Del Mar Municipal Code designates the Historic Preservation Overlay Zone (HP-OZ).
The HP-OZ protects the architectural and historic integrity of certain historically significant
properties located within the City, but also provides the means to designate additional
properties as historically significant. Within the HP-OZ, no building, improvement,
structure, or portion thereof shall be erected, constructed, demolished, relocated,
converted, altered, or enlarged, nor shall any lot or premises be excavated or graded
unless approved by the Design Review Board.
The City of Del Mar has two designated Historical Sites. Both Stratford Square (1438–
1454 Camino del Mar; 225 West 15th Street) and the City Library (1309 Camino del Mar)
have HP-OZ designations and have been designated by the City as historic landmark
properties.
The Del Mar Library and Eucalyptus trees along Camino del Mar
Stratford Square
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Adjacent to the Plan area are other parcels with the HP-OZ designation, including a linear
parcel west of the Post Office along the east side of the railroad tracks, the Powerhouse
park located west of Coast Boulevard, and the Ivan Gayler Trust located adjacent to the
east side of the Plan area, north of 15th Street.
Powerhouse Park
The State Scenic Highway Program lists highways that are either eligible for designation
as a scenic highway or are already designated as a scenic highway. Designation as a
scenic highway depends on how much of the natural landscape travelers can see the
scenic quality of the landscape, and the extent to which development intrudes on the
traveler's enjoyment of the view (Caltrans, 2010). While there are no state designated or
eligible scenic highways in the area listed in the California Scenic Highway Program, the
Community Plan does designate scenic roadways. Camino del Mar is a scenic roadway
and views of the Pacific Ocean and visual resources such as bluffs and trees are to be
protected. Jimmy Durante Boulevard (formerly Turf Road), Crest Road, Carmel Valley
Road, Coast Boulevard, and Del Mar Heights Road are also considered scenic
roadways.
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5.2.2 Existing Visual Character
The City of Del Mar is made up of an eclectic style of architecture, landscape, parking
areas, and streetscapes. Camino del Mar is the visually prominent road through the city.
It is made up of two travel lanes in both directions with bike lanes and either parallel or
angled parking along much of its edges. In most locations, the north and southbound
lanes are divided by landscaped medians with mature trees and a variety of smaller
shrubs and groundcover. The pedestrian walkways adjacent to the road have variable
widths due to a variety of building setbacks. The walks are sometimes difficult to navigate
because they are discontinuous and the widths are inadequate for the number of people
along the walk during peak times. The walkway surfaces and landscape along the road is
also made up of a variety of materials and includes a few large trees. There is a
consistent change in elevation and landform from the ocean moving toward the east. The
majority of the buildings in Del Mar are limited to two stories in order to protect ocean
views. The architecture is a mixture of historical and modern styles but also contain a few
obsolete or poorly detailed buildings that detract from the visual intactness of this
corridor. The common design form found along the eclectic collection of architectural
treatments, is the dominance of human scale and visual interest provided by the variety
of shops and outdoor spaces. The changes in building materials, display of public art or
shop items for sale, all carry with it, a very human scale.
The primary concentration of businesses includes office, retail, restaurants, and hotels
located along Camino del Mar. The residential areas take advantage of the ocean views
and are located to both the east and west of Camino Del Mar. The beach and adjacent
bluffs along with Powerhouse Park provide recreational opportunities.
5.2.3 Existing Visual Quality
The visual quality of each character unit is shown in Table 5-1: Visual Quality
Assessment of Character Units. This qualitative evaluation takes into account the
vividness, intactness, and unity of the study area.
Table 5-1: Visual Quality Assessment of Character Units
Character Unit Vividness Intactness Unity Overall Visual Quality
Civic Low to
Moderate Low Low Low
Residential Moderate Moderate High Moderate
Commercial Moderate Moderate Low Moderate
Hotel and Plaza High High High High
Vacant / Parking Low Low Low Low
Street and Streetscape Moderate Moderate Low Moderate
Recreation High High High High
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5.3 Methods of Predicting Viewer Response
Viewer response is composed of two elements: viewer sensitivity and viewer exposure.
These elements combine to form a method of predicting how the public might react to
visual changes brought about by a project.
Viewer sensitivity is defined both as the viewers’ concern for scenic quality and the
viewers’ response to change in the visual resources that make up the view. Local values
and goals may confer visual significance on landscape components and areas that would
otherwise appear unexceptional in a visual resource analysis. Even when the existing
appearance of a project site is uninspiring, a community may still object to projects that
fall short of its visual goals.
Viewer exposure is typically assessed by measuring the number of viewers exposed to
the resource change, type of viewer activity, duration of their view, speed at which the
viewer moves, and position of the viewer. High viewer exposure heightens the
importance of early consideration of design, art, and architecture and their roles in
managing the visual resource effects of a project.
5.3.1 Existing Viewer Groups, Viewer Sensitivity, and Viewer Exposure
A summary of the viewer sensitivity and exposure can be found in Table 5-2 and are
described below. A total of 7 viewer groups include pedestrians, bicyclists, motorists,
retail workers or customers, and hotel and restaurant workers or customers, office
workers, and residents were considered.
Pedestrians are individuals utilizing adjacent walks within the project area. The view of
the project would be in the foreground for this group and as a pedestrian moving along
the corridor of Camino del Mar, the viewing duration would be short to moderate,
depending on their walking speed and dwell time in front of shops and restaurants.
Pedestrians using this area have a moderate sensitivity to visual change. Many of the
pedestrians are visitors to Del Mar and don’t frequently visit the area to notice changes.
Bicyclists are individuals biking along Camino del Mar. Del Mar sits along a popular
route that runs along the coast and bicyclists throughout the region use the bike lanes
along Camino del Mar. The number of bicyclists is moderate when comparing them to the
quantity of other viewer groups such as vehicular drivers, but still significant enough to
note. Similar to the pedestrians, the project is in the foreground as bicyclists are travailing
through the project area, but the viewing duration is short resulting in low viewer
exposure and low viewer sensitivity.
Motorists are drivers and passengers utilizing surface streets in the project area. The
viewer sensitivity to change is moderate to low. There are existing views to the ocean
along Camino del Mar and through street corridors running in the east/west direction also
exist to see views of the ocean. Camino del Mar is sometimes unfavorably used as an
alternative route to Interstate 5 which runs in the north / south direction, parallel to Del
Mar Village. This roadway is often congested during night and morning commute times. It
is also congested during weekends and when special events such as the San Diego
County Fair and Del Mar Racetrack are running resulting in a high quantity of viewers.
The viewing duration is short and the project is in the foreground of the view resulting in a
moderate viewer exposure.
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Retail Workers or Customers are individuals working or purchasing goods or service in
the project area. This viewer group has a moderate viewer exposure. The quantity of
viewers and the viewing duration is moderate, and the view of the project is in the
foreground. Retail workers and customers have a moderate sensitivity to the view and
changes. They are often concerned with the aesthetic and visibility of storefronts or
blockage of business façades and the visual relationship of the immediate visual
environment.
Hotel/ Restaurant Workers or Customers are individuals working or procuring services
at a hotel or restaurant within the project area. This group has a high sensitivity to
changes in the visual environment. They rely on the visual resource of the ocean to
create a unique experience for patrons or customers. They are also concerned with the
façade of the buildings and visibility of immediate surroundings and aesthetics. The
proposed project is in the foreground of this viewer group’s view. The viewing duration is
moderate and the quantity of viewers is moderate resulting in a moderate viewer
exposure.
Office Workers are individuals working in a business within the project study area. There
is a low quantity of viewers within this group, but the viewing duration is moderate to high.
The view of the proposed project is in the foreground. The viewer exposure and viewer
sensitivity to changes are low to moderate. This viewer group does not rely on the visual
resources to enhance their business, but it is an added benefit.
Homeowners/Residents are individuals owning homes adjacent to the project. There
are no residents within the project boundary; however, due to the topography of Del Mar,
the gradual slope up from the ocean in the eastern direction results in residents with
views to the project. Residents have a high viewer exposure because of their long
viewing duration, and close proximity to the project. The quantity of viewers is high, and
under the existing Del Mar Municipal Code, individual residents’ private views are
protected as seen by an owner’s designated primary viewing room. In addition, many of
the residents in Del Mar have a partial or full view of the ocean from their residence and
so the viewer sensitivity is high to visual changes.
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Table 5-2: Summary of Viewer Groups
Viewer
Group
Quantity of
Viewers
Viewing
Duration
Distance from Viewer to Project
Corridor
Viewer
Exposure
Viewer
Sensitivity
Pedestrian Moderate Short to
Moderate Foreground Low Moderate
Bicyclist Low Short Foreground Low Low
Motorist High Short Foreground Moderate Low to
Moderate
Retail Worker or
Customer
Moderate Moderate Foreground Moderate Moderate
Hotel /
Restaurant
Worker or Customer
Moderate Moderate Foreground Moderate High
Office
Workers Low Moderate Foreground Low to Moderate Low to Moderate
Home
Owners High Long Foreground to
Middleground High High
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6.0 VISUAL IMPACT ASSESSMENT
6.1 Method of Assessing Impacts
The visual impacts of a project under CEQA are determined by assessing the visual
resource change due to the project and predicting viewer response to that change. Visual
resource change is the sum of the change in visual character and change in visual
quality. The first step in determining visual resource change is to assess the compatibility
of the proposed project with the visual character of the existing landscape. The second
step is to compare the visual quality of the existing resources with projected visual quality
after the project is constructed. The viewer response to project changes is the sum of
viewer exposure and viewer sensitivity to the project. The resulting level of visual impact
is determined by combining the severity of resource change with the degree to which
people are likely to oppose the change. This project is particularly interested in impacts to
view corridors. The process for view quality impacts is to first determine the extent of view
corridors, model a viewshed and then determine if the project is likely to block a view
corridor of distant viewing scenes of the ocean.
6.2 Definition of Visual Impact Levels
This document will use the following levels of impact to determine significance:
Low - Minor adverse change to the existing visual resource, with low viewer response to
change in the visual environment. May or may not require mitigation. Moderate - Moderate adverse change to the visual resource with moderate viewer
response. Impact can be mitigated within five years using conventional practices. Moderately High - Moderate adverse visual resource change with high viewer response
or high adverse visual resource change with moderate viewer response. Extraordinary
mitigation practices may be required. Landscape treatment required will generally take
longer than five years to mitigate.
High – A high level of negative change to the resource or a high level of viewer response
to visual change such that architectural design and landscape treatment cannot
mitigate the impacts. Viewer response level is high.
Based on CEQA thresholds, a High or Moderately High Adverse impact would be
considered as a significant impact.
6.3 Analysis of Candidate Key Views
It is necessary to select a number of possible key viewpoints that most clearly display the
visual effects of the project. These candidate key views represent the primary viewer
groups that would potentially be affected by the project. Based on fieldwork, viewer
groups, probable changes, viewing duration, and viewer sensitivity, candidate key views
were selected and building massings were draped over the existing conditions to help
understand the impacts of the Specific Plan. Descriptions of the candidate key views can
be found in Appendix A.
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6.4 Analysis of Key View Simulations
Because the study area is visible from a very large area, key views that most clearly
display the visual effects of the project have been selected for simulation. These key
views represent areas where visually prominent project features would affect existing
views. The existing visual quality of each of these key views and the initial contrasts have
been evaluated and discussed below.
6.4.1.1 Key View Simulation “A”
This key view looks northbound on the west side of Camino del Mar, south of the 12th
Street intersection and is depicted in Figure 6-1.
Existing Visual Quality / Character
The existing visual character of the buildings in the key view are uniform in scale. The
mature trees and planting along the street also create a uniform view and are considered
to be visual resources contributing to the character of the area. However, large gaps in
storefronts along Camino del Mar create a visual environment that is not intact for a
pedestrian or motorist.
Proposed Project Features
This series of simulations depicts a transition of the proposed allowable building heights.
The first image shows the infill of buildings, which would include the allowable increase
14 feet for the first floor. The second image shows a second story on the west side of
Camino del Mar for a total of 26 feet. The third image shows the building with a four-foot
maximum articulated roof for a total of 30 feet. Note that a partial parking reconfiguration
is shown on this image, representing a probable phasing whereby portions of blocks
adjacent to new development will be reconfigured while other portions may remain with
“town and country” (storefront parking on private property) parking until redeveloped.
Change to Visual Quality / Character
The proposed changes have a low visual contrast and may actually increase the visual
quality of the streetscape as seen by a pedestrian or motorist along Camino del Mar.
There is an opportunity to improve the vividness and unity of the space through the
design of the pedestrian environment. The building heights are not excessive in terms of
scale and massing compared with other buildings along Camino del Mar. The articulated
roofline (30’) does not increase the appearance of height above the flat roof (26’) version.
No existing views along this segment of Camino del Mar will be affected by these
changes.
Viewer Response
The reaction to the proposed changes will not likely be negative from this view point. The
majority of the viewers include motorist bicyclists and pedestrians. Their sensitivity and
exposure to the view is low to moderate mostly because of the short viewing duration and
with the exception of the motorists, the low quantity of viewers.
Resulting Visual Impact
Overall, the resulting visual impact of this view has a low adverse change and might
actually improve the uniformity, intactness, and vividness of the view. The changes to the
view would not require mitigation and would be considered less than significant.
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Figure 6-1: Key View Simulation “A”
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6.4.1.2 Key View Simulation “B”
This view looks north on the east side of Camino del Mar south of the 12th Street
intersection and is depicted in Figure 6-2.
Existing Visual Quality / Character
Same as Simulation “A”.
Proposed Project Features
Same as Simulation “A”.
Change to Visual Quality / Character
Same as Simulation “A”.
Viewer Response
Same as Simulation “A”.
Resulting Visual Impact
Overall, the resulting visual change of this key view would only have a low adverse
change and might actually improve the uniformity, intactness, and vividness of the view.
The changes to the visual environment would not require mitigation and would be
considered less than significant.
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Figure 6-2: Key View Simulation “B”
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6.4.1.3 Key View Simulation “C”
This key view looks north on Camino del Mar just south of the intersection at 11th Street
and is depicted in Figure 6-3.
Existing Visual Quality / Character
The majority of the buildings on the west side of Camino del Mar are blocked by mature
trees and planting in the median. Along the east side of the street, the buildings,
landscape and setbacks are not vivid, nor are they uniform. The pedestrian environment
is disrupted by the parallel parking along the street and in front of store fronts. For a
pedestrian or a motorist, the visual experience is not intact nor would it be considered a
high visual quality area.
Proposed Project Features
The proposed project features include the reconfiguration of the street to include angled
parking, improved streetscape, infill of buildings, and the roundabout at the intersection.
Additional parkway planting is proposed to improve the pedestrian environment, while
assuring that the visibility through the traffic circle is open and clear for safety purposes
as well as to make sure that trees do not block view corridors from the east to the west on
11th.
Change to Visual Quality / Character
The proposed changes have a low visual impact and may actually increase the intactness
of the view as seen by a pedestrian or motorist. The proposed features would eliminate a
large mature tree in the existing median reducing the vividness of the median, but it
would be replaced by other trees on the parkway side of the street. Overall, the walkway
environment and the roundabout itself, will increase the visual quality of the area due to
increased landscaping, improved paving materials and the decrease in the scale of the
street resulting from the proposed improvements in the street.
Viewer Response
The reaction to the proposed changes will not likely be negative from this view point. The
majority of the viewers include motorist bicyclists and pedestrians. Their sensitivity and
exposure to the view is low to moderate mostly because of the short viewing duration and
with the exception of the motorists, the low quantity of viewers. Overall, the scale to these
viewers is positive and the pedestrian and vehicular environments have been clarified
and improved in visual quality.
Resulting Visual Impact
Overall, the resulting visual impact of this view has a low adverse change and might
actually improve the uniformity, intactness, and vividness of the view and improve the
visual environment. Because the large mature tree would be eliminated, the replacement
of this tree in the immediate visual area is assumed to be part of the project as proposed.
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Figure 6-3: Key View Simulation “C”
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6.4.1.4 Key View Simulation “D1”
This view looks west from the library patio adjacent to Camino del Mar and is depicted in
Figure 6-4.
Existing Visual Quality / Character
This view is high in intactness and visual quality. This is an important view of the ocean.
In addition, the architectural character represented in the view along Camino del Mar is
vivid and characteristic of Del Mar in its pedestrian scaled buildings, Spanish style
architecture, large storefront windows, and diverse pedestrian environments.
Proposed Project Features
Proposed project features include an extension of the height toward the back of the
parcel with an upper level building, while the pedestrian scaled architecture is maintained
along Camino del Mar. The preservation of the front portion of these very human-scaled
and high visual quality buildings is important and it is assumed that the Design Review
Board process would require something similar to what is shown in the simulationssuch
design features. Note that the proposed roadway and parking is not simulated in this
view, since the primary concern here is of view corridor blockage and building massing
and scale and its affect on the existing character.
Change to Visual Quality / Character
The proposed project will have a highly adverse affect on the view corridor from this
location due to blockage of the view of the ocean from this public viewing location.
However, the number of viewers is considered to be low. But, because of the view quality
the impact should still be considered significant. The height difference between a 26’ flat
roof and the 30’ articulated roof would be not different since they both would block the
views in this location.
The impact to the existing scale and character of the storefronts and adjacent buildings is
considered to be a moderately adverse impact. Much of the character and scale is left
intact as seen in the simulation. The overall height increase, though it impacts the view
corridor, it does not impact the scale and massing or the visual character of the
storefronts.
Viewer Response
This view represents what a person sitting on the library patio would see. The number of
viewers and viewer duration is low resulting in a low viewer exposure. The viewer
sensitivity would be high. This is an important view of the ocean and the viewers would
be concerned and notice this change. Viewer response to the changes in the building
massing and scale compared to the adjacent building and streetscape environment would
not be considered high.
Resulting Visual Impact
Overall, the resulting impact on the view corridor from a public viewing place would be
moderate to highly adverse and considered potentially significant. Though a limited number of
viewers are likely to see this, it would still be considered potentially significant. Ultimately, the
Design Review Ordinance would not allow future development to substantially block scenic
views and the potentially significant view impact would be avoided. The changes to the visual
quality and character of the area would also not be considered significant, given the
assumptions that the DRB review process requirementswould result in a similar design as
shown in the simulation.
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Figure 6-4: Key View Simulation “D1”
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6.4.1.5 Key View Simulation “D2”
This view looks northwest from the east side of Camino del Mar in front of the library and
is depicted in Figure 6-5.
Existing Visual Quality / Character
This view is highly intact. Different from Key View D1, there is not a view of the ocean in
this view given the height and position of the existing buildings. Again, the architectural
character represented in the view along Camino del Mar is vivid and characteristic of Del
Mar in its pedestrian scaled buildings, Spanish style architecture, large storefront
windows, and a diverse pedestrian environment. In addition, the streetscape provides
uniformity for the character of the area.
Proposed Project Features
Proposed project features include the existing architecture and extended building height
on the back side of the parcel. Setback and stepbacks are indicated in the rendering to
create visual interest and protect the first floor scaled buildings that do establish some of
the character of the village. The pedestrian realm is enhanced with outdoor dining,
shopping, seating, and plantings where setbacks occur along Camino del Mar.
Change to Visual Quality / Character
By maintaining some of the existing architectural character, on the front of the parcel
facing Camino del Mar, the change to the view scene and visual character is moderate.
The pedestrian scale of the buildings are maintained and the visual character remains
intact. But the overall change to the visual environment is not considered to be that
dramatic.
Viewer Response
Depending on a viewer’s outlook and opinion, some viewers may consider this change
objectionable while others may not. The reaction to the proposed changes will not likely
be overly negative from this viewpoint, but they may be adverse. The majority of the
viewers including cyclists and pedestrians, will see this view from a transitory or moving
perspective. Their sensitivity and exposure to the view is low to moderate mostly because
of the short viewing duration, movement and low quantity of viewers.
Resulting Visual Impact
The resulting impact on the view corridor from this public viewing place would be low and
would not be considered significant. The changes to the visual quality and character of the
area would not be considered significant, given the assumptions that the DRB review process
would result in a similar design as shown in the simulation.
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Figure 6-5: Key View Simulation “D2”
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6.4.1.6 Key View Simulation “E”
This view looks west to the ocean across Camino del Mar from the north side of 12th
Street at Maiden Lane and is depicted in Figure 6-6.
Existing Visual Quality / Character
This view represents a typical view corridor to the ocean found on most of the numbered
streets running in an east/west direction. The view is considered to be highly intact,
though it is partially blocked by mature vegetation. This is also typical of most of the view
corridors in the study area. These views are important to the City of Del Mar and create a
vivid view and uniform rhythm of views when driving, riding or walking down the street.
This is an important view of the ocean though it is somewhat interrupted by large mature
trees in the middle ground and background. However, enough of a view still exists to be
of concern. Based on the simple simulations, it can be seen that most of the view to the
ocean is maintained with the proposed building heights of 14’, 26’ or 30’. The side
stepback on the second floor is considered to be important to protecting this view
corridor.
Proposed Project Features
Proposed features in this view include the new building heights. The chamfer at the
corner lots will help to keep some of the view corridor when approaching from the north or
south as a pedestrian. In addition, the ten-foot stepback on the upper floor helps to
maintain the views to the ocean and the view corridor so it is not excessively blocked.
Change to Visual Quality / Character
The change to the visual quality and character would be moderate to low. The massings
of the buildings are similar to the existing forms, though higher. The visual quality of the
existing buildings on the west side are not high. Replacement buildings are likely to have
a higher visual and design quality. The existing vegetation is already partially blocking the
scenic vista to the ocean and would not be affected by the project.
Viewer Response
Currently residents, retail workers and customers have a partial view of the ocean that is
interrupted by mature plant material. The viewer exposure and sensitivity to these
changes would be low. The extended heights on the buildings do not completely remove
the view of the ocean and the scenic vista is maintained. The proposed scale is not out of
character with other buildings in the area.
Resulting Visual Impact
The resulting visual impact of this view would be considered low to moderately adverse.
The scenic vista to the ocean is mostly preserved, though a small notch would be
affected. This blockage would not be considered significant. The change to the visual
character and quality is also considered to be low to moderate. Depending on the final
design of replacement buildings, the visual character could be improved along with the
overall visual quality.
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Figure 6-6: Key View Simulation “E”
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6.4.1.7 Key View Simulations “F1, F2, F3, and F4”
Key view F1 looks west to Camino del Mar from the south side of 14th Street near the
intersection and is depicted in Figure 6-7.
Key view F2 looks west to Camino del Mar from the south side of 14th Street, mid-block
and is depicted in Figure 6-8.
Key view F3 looks west to Camino del Mar from the south side of 14th Street at Maiden
Lane and is depicted in Figure 6-9.
Key View F4 looks west to Camino del Mar from the intersection of 14th Street and
Luneta Drive is depicted in Figure 6-10.
Existing Visual Quality / Character
This series of views is typical of the view corridors to the ocean from the numbered
streets running in an east/west direction. This view is consistent along Camino del Mar
and is highly intact. These views are important to the City of Del Mar and are typical of
residential views on the lower slopes east of Camino del Mar. The view of the ocean is
blocked by existing buildings when a viewer is standing at Camino del Mar. Where there
are no buildings, the view is partially blocked by mature trees in the background. Moving
up the hillside to the east, the views to the ocean open up and more of the vista is
revealed.
Change to Visual Quality / Character
The proposed building heights from a massing and scale perspective are not in contrast
with other buildings in this area. The changes to the visual quality are also not likely to
negatively contrast with the current setting, assuming a Design Review Board process
that will assure that elements of the Del Mar Village are repeated and existing high quality
architecture and storefronts are preserved.
Viewer Response
Currently residents, retail workers and customers have a partial view of the ocean that is
interrupted by mature plant material and overhead powerlines. The viewer exposure and
sensitivity to these changes would be moderate. The extended heights on the buildings
do not completely remove the view of the ocean and the scenic vista is maintained by the
preservation of the view corridor on one of the lots. The view could actually be improved if
the background utilities were removed. Also, increased public views would be possible
with the development of a Paseo plaza open to the public, between these buildings. The
removal of surface parking would also be an improvement.
Resulting Visual Impact
The resulting visual impact of this view would be considered low to moderately adverse.
The scenic vista to the ocean is mostly preserved, though a portion would be affected
from the lower slope within the first half block from Camino del Mar. A moderately
adverse impact that would be considered less than significant would result to the views in
this corridor. A low to moderately adverse impact that is also less than significant, would
result to the character of the area, assuming that the Design Review Board process
would result in a similar form and character of as show in previous simulations.
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Figure 6-7: Key View Simulation “F1”
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Figure 6-8: Key View Simulation “F2”
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Figure 6-9: Key View Simulation “F3”
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Figure 6-10: Key View Simulation “F4”
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6.4.1.8 Key View Simulation “G”
This view looks north to the intersection of Camino del Mar and is depicted in Figure
6-11.
Existing Visual Quality / Character
The majority of the buildings on the east side of Camino del Mar are blocked by mature
trees and plantings in the median. Along the west side of the street, the buildings,
landscape and setbacks are neither vivid nor uniform. The pedestrian environment is
disrupted by the parallel parking along the street and in front of storefronts. For a
pedestrian, the visual experience is not intact. In addition, there are gaps in the building
storefronts along Camino del Mar. Within the view, the trees in front of the library are an
important visual element and enhance the visual character of the area.
Proposed Project Features
The simulation shows a series of images to depict a sequence of potential build out and
roadway environment changes. The second image shows the realignment of the street to
include angled parking, a bike lane, the realignment of the sidewalk, and one lane of
traffic. The last image includes building infill and other enhancements to the pedestrian
environment.
Change to Visual Quality / Character
The proposed changes have a low visual impact and may actually increase the intactness
of the view as seen by a pedestrian or motorist experiencing the space along Camino del
Mar. The overall scale and dominance of the roadway does improve and is not as
expansive and vehicular dominant.
Viewer Response
The reaction to the proposed changes will not likely be negative from this view point. The
majority of the viewers include motorists, bicyclists and pedestrians. Their sensitivity and
exposure to the view is low to moderate mostly because of the short viewing duration and
with the exception of the motorists, a low quantity of viewers.
Resulting Visual Impact
Overall, the resulting visual impact to this key view would be a low adverse change since
some of the visual environment would be improved through new design features and new
spatial organization and visual interest improvements. The proposed project changes
would not be considered to be significant.
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Figure 6-11: Key View Simulation “G”
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6.5 Impact Assessment Summary
The City of Del Mar does not currently have guidelines for determining significant
thresholds. Therefore, CEQA, Appendix G was used to determine the level of impacts the
project is likely to cause. The following criteria apply:
Have a substantial adverse effect on a scenic vista?
Many of the vistas in Del Mar are currently blocked by mature shrubs and trees or other
existing buildings and landforms. There are scattered scenic vistas throughout Del Mar of
the ocean depending on the topographic setting of the viewer. The most substantial
scenic vistas of the ocean occur at the streets running west and east. The Village Specific
Plan takes these vistas into account by requiring stepbacks from the side streets on the
upper levels and a chamfer corner at the first level of proposed corner lots buildings. This
design detail helps to reduce the adverse visual impacts associated with view corridor
blockage, but does not completely eliminate adverse effects on views not located along
the east-west street corridors. The proposed changes would potentially result in a
moderate impact on some scenic vistas not located along east-west street corridors, such
as View D1 and mitigation may be required. Ultimately, the Design Review Ordinance
requires projects to be designed so that they do not unreasonably block significant public
coastal views or scenic views from the primary living area of residences. With the
implementation of the Design Review Ordinance through the Design Review Board
review process, potentially significant scenic vista impacts would be mitigated.Therefore,
the proposed project is considered to have a significant impact on scenic vistas. This
impact would be considered unmitigable.
Substantially damage scenic resources, including, but not limited to trees, rock outcroppings, and historic buildings within the Village area defined by the Specific
Plan Boundary?
The traffic circles and the realignment of the street have the potential to reduce the
number of mature trees found along Camino del Mar. Other trees will be removed, but
many more will be added as a result of the proposed new developments and streetscape
improvements. These tree removals and additions would have the potential for either an
adverse or positive change to the visual environment depending on the viewer and the
viewer location. The removal of mature trees could potentially open views to the ocean.
However, the trees along Camino del Mar are also considered to be characteristic of the
Del Mar setting and are a scenic resource and help to strengthen the vividness of the
City. The proposed specific plan does not make recommendations to remove or modify
any existing historic buildings; therefore, there are no adverse changes to the historic
buildings. The view of the ocean must be considered as a scenic resource. The increase
in building heights proposed in the Village Specific Plan may result in a full or partial
blocked view of the ocean for a variety of viewer groups. As a viewer moves up the
hillside to the east, the resulting visual impact becomes less adverse because of the
changing perspective resulting from rising topography. The combination of these changes
would result in a moderate to high visual impact and would need to be mitigated.
Therefore, a significant impact to scenic resources and visual resources would be
expected, some of which can be mitigated through replacement of visual resources and
the Design Review Board review process.
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Substantially degrade the existing visual character or quality of the site and its surroundings?
The existing character of Del Mar is moderate in vividness, intactness, and unity. Most of
the existing inconsistencies are the varying building setbacks and the lack of a visually
identifiable pedestrian environment. The proposed changes in the Village Specific Plan
would create a uniform visual environment. The proposed changes would result in a low
visual impact and in some situations, would actually improve the visual character and
quality of the site. There may be some circumstances where visual character may be
removed and not replaced with the same level of pedestrian scale, building material
quality and overall character. However, it is assumed that through the application of
design guidelines and the Design Review Board process, that projects will be of a higher
quality and will address the visual character of the area and any removal of character
elements will be replaced by new improvements. Therefore, the proposed project is not
expected to have a significant impact on the visual character or visual quality of the
specific plan area.
Create a new source of substantial light or glare that would adversely affect day or
nighttime views in the area?
Shade calculations on adjacent residential units were completed for the longest day of
the year, December 22. Using computer modeling, it has been determined that the
proposed increase in the height of the building will not result in a low adverse change to
the shadow pattern on adjacent buildings. Existing conditions currently result in a partial
shade pattern on the façade of residential buildings at 8am; however, the shade pattern
disappears from the façade by 9am. The same is true when the building heights are
increased.
Computer modeling was also used to evaluate the shade patterns on Camino del Mar
during the equinox and solstice. The models showed an increase in shadow patterns as
the building heights increased. During the longest day of the year, shadow patterns form
the buildings on the west side of the street stretched to the median by mid afternoon, but
did not shade the entire corridor of Camino del Mar. The proposed setbacks and
articulation in the buildings will result in more light coming through the buildings to
Camino del Mar, and therefore results in a low adverse change.
The proposed building height increase would result in a low adverse change to the glare
and ambient light into the nighttime sky. This impact would not be considered to be
significant.
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7.0 VISUAL MITIGATION
7.1 Visual Mitigation Options
Visual mitigation for moderate to highly adverse project impacts addressed in the key
view simulation assessments of the previous chapter, are discussed below.
Implementation of the following mitigation measures will reduce impacts of the project.
• Because it is impossible to determine the impact on individual residents within this
study, the proposed project is subject to design review to guard against
unreasonable view blockage from public areas or from neighboring properties.
Story poles will be erected to fully determine visual impact of individual residence
as part of the Design Review process. The Design Review Board will review the
proposed development’s affect on individual residence on a project-by project
basis. The views will be evaluated from each residence, based on the property
owner’s primary viewing location within the residence.
• The proposed Village Specific Plan required stepbacks and the articulation of
roofs on buildings. This variety in architecture will result in more light into the
project and adjacent residential units as well as increased visual interest.
• Mature trees are considered to be a scenic resource and add to the vividness and
intactness of the City. A few of these trees may be disturbed with the realignment
of median and the addition of roundabouts per the improvements in the Village
Specific Plan. A tree replacement or relocation plan should be created and
implemented to reduce the visual impacts because of the tree removal. Any tree
requiring removal should be replaced with a tree of similar size or relocated in
close proximity to the existing tree without blocking scenic views to the ocean.
• Where setbacks of the proposed building occur on Camino del Mar, the space
between the building and curb shall be utilized for the pedestrian. Amenities such
as awnings, outdoor dining, seating, shopping, and plant material must be used to
enhance the pedestrian scale.
• Cohesive site amenities should be utilized throughout the Del Mar Village to
create visual intactness in the urban setting. This will improve the unity and
intactness of the Village and enhance the visual pedestrian setting. Consistent
site amenities are shown on the following pages.
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7.2 Visual Impacts After Mitigations
• Substantial impacts on scenic vistas
With the implementation of Design Review Board review, the use of story poles,
setbacks, stepbacks and corner lot 45 degree chamfers on corner lots, the
significant impact on scenic vistas would be avoided. The Design Review
Ordinance would ultimately not allow redevelopment that would substantially
impact scenic vistascan be lessened but they would remain significant after
mitigations. Since the view blockage cannot be eliminated, its impacts would be,
but not to a level below significance.
• Substantial impacts on visual resources
With the protection of significant tree resources found in the corridor and the
replacement of trees that are to be removed in accordance with the Tree
Ordinance, this significant impact on visual resources in the specific plan area,
would be reduced to below a level of significance. The mitigation assumes that
approximately 50% of the biomass removed, would be replaced and that this bio-
mass would grown to approximately 75% of the removed tree resources within a
3-5 year period.
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Benches with City
Branding
Sidewalks with a consistent finish and a
minimum width
throughout the Village
Tree Grates
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Planting
Signage with City Branding
Trash and Recycling Receptacle with City
Branding
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8.0 REFERENCES
Camino del Mar Streetscape Plan, Andrew Spurlock Martin Poirier Landscape Architects,
December 1996.
The Community Plan for the City of Del Mar, California, March 1976 with 1985
amendments.
U.S.D.O.T., Federal Highway Administration, Office of Environmental Policy, Visual
Impact Assessment for Highway Projects, U. S. Department of Transportation.
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APPENDIX A CANDIDATE KEY VIEWS
The locations of these keyviews are shown on the photo location map on the following
page. Based on fieldwork, viewer groups, probable changes, viewing duration, and
viewer sensitivity, candidate key views were selected and building massings were
draped over the existing conditions to help understand the impacts of the Specific Plan.
The yellow masses indicate a maximum building envelope for the west side of Camino
del Mar, and the red buildings represent the maximum building envelopes on the east
side of the street. Please note the massing overlays are not intended to look realistic in
any manner, and foreground elements have not been removed, so some perspective
distortions do exist in these graphics.
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Candidate Key View Photo Location
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Candidate Key View #1
This view looks west from the north side of 15th Street at 412 15th. This view is not
recommended for simulation. This view shows the affect of the 30’ maximum height on
the ocean view; it does not interrupt the horizon line.
Candidate Key View #1
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Candidate Key View #2
This view looks southwest from the north side of 15th Street at 412 15th. This view is not
recommended for simulation since the proposed changes will not interrupt the horizon
line.
Candidate Key View #2
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Candidate Key View #3
This view looks west from the north side of 15th Street at 383 15th. This view is not
recommended for simulation since potential changes do not fully block the horizon.
Candidate Key View #3
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Candidate Key View #4
This view looks west from the parking lot east of Maiden between 14th Street and Parish.
This view is not recommended for simulation since current regulations would block view.
Candidate Key View #4
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Candidate Key View #5
This view looks west from the east side of Maiden between 14th and 15th Street. This
view is not recommended for simulation since it would be blocked by current regulations.
Candidate Key View #5
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Candidate Key View #6
This view looks west from the south side of 14th street at 349 14th. This view is not
recommended for simulation because the existing foreground vegetation blocks the
proposed changes.
Candidate Key View #6
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Candidate Key View #7
This view looks west from the south side of 14th street at 323 14th. This view is not
recommended for simulation as a sequence as the building in the foreground will most
likely not change.
Candidate Key View #7
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Candidate Key View #8
This view looks west from the north side of 14th Street at 327 14th. This view is not
recommended for simulation it be used in a sequence with Error! Reference source not found.and Error! Reference source not found..
Candidate Key View #8
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Candidate Key View #9
This view looks west from the southeast side of the intersection of 14th Street and
Maiden. This view is not recommended for simulation as the building in the foreground
will most likely not change.
Candidate Key View #9
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Candidate Key View #10
This view looks west from the northwest side of the intersection of 14th Street and
Maiden. This view is not recommended for simulation, but shows a sequence of views to
the horizon line the with Error! Reference source not found..
Candidate Key View #10
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Candidate Key View #11
This view looks west from the north side of 14th Street at 309 14th. This view is not
recommended but shows how the view corridor could be kept open if development was
not allowed in the street extension.
Candidate Key View #11
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Candidate Key View #12
This view looks west from the east side of Camino del Mar between 13th Street and 14th
Street. This view is not recommended for simulation since no ocean view exists.
Candidate Key View #12
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Candidate Key View #13
This view looks west from the north side of 13th Street at the Del Mar. This view is not
recommended for simulation since only a minor view opening exists.
Candidate Key View #13
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Candidate Key View #14
This view looks west from the north side of 13th Street at the Del Mar. This view is not
recommended for simulation since only a minor view opening exists.
Candidate Key View #14
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Candidate Key View #15
This view looks west from the south side of 13th Street at 305. This view is not
recommended for simulation since a 14’ building would block the view.
Candidate Key View #15
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Candidate Key View #16
This view looks west from the east side of Camino del Mar at 1247 Camino Del Mar.
This view is not recommended for simulation since a 14’ building would block the view.
Candidate Key View #16
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Candidate Key View #17
This view looks west from the north side of 12th Street at 38112th. This view is not
recommend for simulation but shows the stepbacks on the side street and the heavy
vegetation blocks some views.
Candidate Key View #17
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Candidate Key View #18
This view looks west from the south side of 12th Street at 389 12th. This view is not
recommended for simulation due to the background vegetation.
Candidate Key View #18
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Candidate Key View #19
This view looks south at the intersection of 11th Street and Camino del Mar. This view is
not recommended for simulation since the existing buildings most likely will not change
with the proposed heights and FAR’s.
Candidate Key View #19
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Candidate Key View #20
This view looks west from the south side of 11th Street at 331 11th. This view is not
recommended for simulation since too much vegetation blocks the view.
Candidate Key View #20
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Candidate Key View #21
This view looks west from the south side of 11th Street at 317 11th. This view is not
recommended for simulation but shows a corner lot setback and could show a
roundabout in the simulation as well.
Candidate Key View #21
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Candidate Key View #22
This view looks northwest from the south side of 10th Street at 411 10th. This view is not
recommended for simulation, but shows the proposed building are less of an impact
moving up the hill.
Candidate Key View #22
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Candidate Key View #23
This view looks south at the intersection of 9th Street and Camino del. This view is not
recommended for simulation of the roundabout.
Candidate Key View #23