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You are here: BAILII >> Databases >> England and Wales High Court (Administrative Court) Decisions >> JR Cussons & Son v Secretary of State for Communities and Local Government & Anor [2008] EWHC 443 (Admin) (20 February 2008) URL: http://www.bailii.org/ew/cases/EWHC/Admin/2008/443.html Cite as: [2008] JPL 1597, [2008] EWHC 443 (Admin) |
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QUEEN'S BENCH DIVISION
ADMINISTRATIVE COURT
Royal Courts of Justice Strand London WC2 |
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B e f o r e :
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JR CUSSONS & SON | Applicant | |
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SECRETARY OF STATE FOR COMMUNITIES AND LOCAL GOVERNMENT | First Respondent | |
NORTH YORK MOORS NATIONAL PARK AUTHORITY | Second Respondent |
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Ms Lisa Busch (instructed by Treasury Solicitor, Planning Section, One Kemble Street, London WC2B 4TS) appeared on behalf of the First Respondent
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Crown Copyright ©
"... essentially livestock, primarily cattle but with some sheep, and totals some 110 hectares, about half of which is located at Woodside Farm."
"On Bridge Farm is located the main farmhouse, a 4-bedroom dwelling granted planning permission some 20 years ago; outline planning permission for a 3-bedroom house at Woodside Farm, together with the temporary siting of a residential caravan, was granted on appeal in July 2006."
"I note that the indoor accommodation for the livestock is split between the 3 sections of the holding, with the larger facilities being located at Howdale and Woodside Farms. With the existing house at Bridge Farm and the outline planning permission for a dwelling at Woodside Farm close supervision in relation to the needs of animal husbandry can be available at those sites. It is contended that similar supervision is required at Howdale Farm, and that it is not possible to provide cover from persons resident on the other sites."
"In relation to the first issue I understand that the holding is operated by the Appellants with the help of Mrs Cussons. Statistical calculation of the labour requirements would indicate a need for perhaps 3 standard labour units [SLU] for the current level of activity. Due to ill-health Mr Cussons Senior seeks to take a less active part in the physical activities of the enterprise."
In paragraph 20 he said:
"I accepted that, on the basis of the calculation of SLU, additional labour may be required in order to operate the holding effectively in the light of the reduced input from Mr Cussons Senior. However, the fundamental questions are whether it is essential for that additional labour to be resident on the holding, and whether additional housing is required."
"14. It has been argued that the nature of the stock-rearing activity requires close supervision of the animals especially during calving and lambing — which can occur over some 6 months of the year. It is contended that this requires an additional worker to live close to the livestock accommodation. While accepting the desirability and convenience of such an arrangement, national and local planning policy require that the need is essential. I am aware that many livestock farms operate without all workers being resident on the holding.
15. Mr Cussons Senior's medical condition has, according to the information supplied, been a factor since 1999 and in the intervening period the holding has operated successfully without someone resident at Howdale Farm. Even after the initial renting and subsequent purchase of the land at Woodside Farm, and the erection of livestock buildings there, the enterprise operated effectively with no one at Howdale Farm."
"For the appellant, it was submitted that only on-site living accommodation at Howdale would meet the needs of the enterprise. However, the Authority was able to demonstrate to my satisfaction that a combination of living accommodation at Bridge Farm and the continued authorised use of the appeal building as an office to provide occasional warmth and shelter in winter conditions would adequately meet the needs of the enterprise as it now operates. Although the track between Bridge and Howdale Farms is in places steep and narrow, it is only some 10 minutes' walk uphill and clearly far quicker by vehicle. The Authority's undisputed evidence is that this would not be an uncommon situation on farms, even where there was no on-site office available. Moreover, the use of additional surveillance, such as CCTV appears practical in that only those few cows closest to calving at any one time need the closest attention."
"The ADAS appraisal places particular emphasis on the personal skill of the appellant as a farmer in making this holding viable. Unfortunately, he is unwell and is able to do less of the physical work but that role is being increasingly undertaken by his 19 year old son and the appellant intends to continue to manage the business."
"... I have had a double heart by-pass operation and remain on medication and as a result of the rigours of many years of outside physical work in all weather extremes I am the sufferer of severe arthritis. Having farmed independently from the age of 16 and will be 60 next year I am facing reality in that I am no longer able to work in excess of normal hours."
"As I explained in my letter to the planning officer, since 1999 I have had a double by-pass heart operation and remain on medication and having to continue to work in the cold, damp night air which brings on angina pains is an unacceptable situation.
As the application has been refused I am again having to take responsibility for the livestock at Howdale. I have taken the decision not only in the interests of my health but with that of my family who share the workload of the business, that this will be the last time that I am prepared to put my health at risk. The calving period which has started in October this year and will extend to possibly May 2007 will be the last I will supervise. ..."
"I accept that Mr Cussons Senior's health may make it more difficult for him to play as active a role as previously, but his health condition appears to have been a factor since at least 1999. Again I have no evidence that in the period since then significant problems have occurred, nor has any more recent medical evidence been submitted."
"24. I also accept that it is not appropriate to require Mr Cussons Senior to surrender occupation of the house at Bridge Farm in order to accommodate an additional worker. However, national and local policy requires that alternatives to an additional dwelling should be investigated. From my site inspection I noted that the house at Bridge Farm is quite large and that it could accommodate, permanently or temporarily as needed, an additional worker, certainly now that Mr Cussons Junior is resident at Woodside Farm. While this may not be appealing to Mr and Mrs Cussons it is not unknown for an additional worker to be accommodated in this way.
25. In addition the appeal premises themselves could provide temporary accommodation for a worker at those specific times when close animal supervision is essential. I also understand that the original farmhouse at Howdale Farm has been vacant for some time, but I have no evidence that the possible rental or purchase of that dwelling has been investigated."
"I have no doubt that it would be possible for your client and his wife to meet the requirements of the enterprise by making the house or part of it available, if only at the most critical time of year, to whomever is appointed to take over responsibility for the stock. ...
I appreciate that moving from Brookside Farm, or adapting the property so that part could be made available to an employee could result in substantial inconvenience or financial loss, and any adaptation of the house might itself require planning permission, depending on what was proposed." (see page 14)
"The effect is to require a part-time farmer, who has built up a successful and still expanding agricultural enterprise, on which amimals require skilled on the spot care and where the need for a full-time specialist stockman living on or very close to that enterprise is not in dispute, to move out or share his imposing and spacious four-bedroom family house in order to accommodate that stockman. Having established the need, it is reasonable to expect clear-cut planning reasons as to why it should not be met in the way proposed unless other available and suitable accommodation exists. ...
I seek to identify with a little more precision the respects in which I believe the inspector has gone wrong. The policies require that in order to test the need the question whether there exists accommodation which is both suitable and available must be answered. Accommodation may de facto exist but its availability and suitability must be subjected to some scrutiny. The decision letter does not disclose the basis upon which this exercise was carried out. While purporting to acknowledge the approach in para 6, the inspector fails to gather the relevant information and identify the considerations on which he relies. There is no material disclosed in the decision letter as to whether, applying the ordinary canons of commonsense, the house or any part of it was or would be available as a matter of fact. As I have indicated, its mere existence cannot suffice. What other demands are being made or are likely to be made on it? Nor is there any material or any sufficient material to justify a conclusion, which prima facie flies in the face of good sense, that a house of this kind is suitable. Relevant unanswered questions abound. Is it really to be expected that, in the circumstances where a clear need has been established, the applicant must leave his house and presumably buy another house elsewhere for his wife and family? How are the sharing operations to operate in reality in the various hypotheses that the stockman may be single, married or married with children. Does the house lend itself to sharing? What is the position with regard to common use of the bathroom facilities and kitchen accommodation? Does the house reasonably lend itself to adaptation? I have only given some indication of the multiplicity of matters that would require rational consideration."
"The possible use of Bridge Farm to accommodate an additional worker temporarily or permanently was raised by me at the site visit. Mr Cussons' response was that he did not want to use the property and thought it unreasonable and that Bridge Farm was too far away to provide close supervision. However, the ability of Bridge Farm to provide accommodation to satisfy the need to supervise stock at Howdale Farm was a feature in the case for the [local planning authority] and indeed had been asserted by Mr Cussons when an application was made for planning permission for the dwelling of Bridge Farm."
"Looking after cattle, particularly when calving, and particularly on an upland farm, where the elements are often against you, and where urgent action is often required much more quickly, is clearly established as satisfying the functional need.
With cattle being kept inside for calving during the period October through to May, the bulls being kept inside all year round, and the local working hours throughout the summer months, when all cattle still need checking twice a day, the functional need lasts throughout the year.
It is well known that when looking after cattle, particularly during calving times, it is essential to inspect stock last thing at night and first thing in the morning and often throughout the night. It is also considered good practice to continue with this level of management when looking after finishing cattle.
Being within earshot of the animals not only makes it more convenient when going out to inspect stock at all hours, but also assists as stock in distress usually make noise which then alerts the stockman to investigate the cause of the noise. ..."
"The Cussons have been clients of our veterinary practice for a number of years. They currently run one hundred and thirty suckler cows between the two farms at Wragby [Woodside Farm] and Howdale. During calving time cows need almost continuous observation to spot any problems before they become too advanced and this would be greatly facilitated by a property at the farm buildings at Wragby. The Cussons currently travel back and forwards to provide this observation as the farm at Howdale does not have sufficient capacity for 130 cows and calves. It is against government welfare guidelines to transport cows within 72 hours of calving so it is not possible to keep moving cows as they calve to create more space. Cattle tend to live in groups with a regimented social structure and it is wise not to move cows between groups once this is established as it leads to fighting and bullying.
... I believe it is in the interest of the welfare of all stock to have as near continuous observation as possible to spot disease and injury as quickly as possible and to provide feed, water and bedding as often as possible."
"This issue was in fact raised and examined at the hearing, and the [local planning authority] agreed that temporary use for occupation, while needed for livestock supervision outside usual working periods during calving and lambing, could be acceptable. The appeal building which is described as an office/store/general purpose building, contains a fully fitted kitchen, a fully fitted bathroom, together with five further rooms. All the interior walls are plastered. The [local planning authority] had also previously taken enforcement action against use of the building for permanent residential occupation and an appeal had been dismissed."
"The availability of the original Howdale Farm was specifically raised by me during the hearing. Mr Cussons' response was that he did not get on with the current owner. Clearly, no attempt had been made to clarify the possible availability of the premises, even though they were vacant."
"In relation to the effect of the proposed change of use on the character and appearance of the landscape of the National Park, I recognise that the building exists and in many ways presents the appearance of a residential dwelling. Nevertheless I consider that permanent residential occupation would have an impact, particularly in relation to the miscellaneous structures and activities commonly found in and around dwellings. Such increased domestication of the local landscape would be readily visible from the public rights of way in the area, especially that which passes along the lane immediately to the west of the building. I consider that this would be harmful to the more rugged landscape of the National Park and thus fail to comply with Local Plan policies GP1 and F1."