What is a village? As a result of the government’s latest green belt planning practice guidance (see my 2 March 2025 blog post Colouring In The Grey Belt: The PPG) the answer to that question has practical policy consequences. When judging whether land is grey belt:
- in assessing the extent to which the site strongly contributes to green belt purpose (a), to check the unrestricted sprawl of large built up areas, the guidance states categorically: “Villages should not be considered large built up areas”.
- in assessing the extent to which the site strongly contributes to green belt purpose (b), to prevent neighbouring towns merging into one another, the guidance states categorically: “This purpose relates to the merging of towns, not villages.”
So if you have land on the edge of a village, the role that the land plays in separating that village from another village, or from a town, or in preventing the settlements from merging with one another, is irrelevant for the purposes of determining whether it is grey belt. Of course any potential development would have to meet other criteria, such as whether the location is “in a location that is or can be made sustainable”, but the distinction between town and village is now profound, for the purposes of applying green belt policy, both at local plan making stage and in determining planning applications and appeals.
Guess what, there is no definition of “village” in the glossary to the NPPF or indeed in national planning practice guidance. The issue is not entirely new given that one of the exceptions to development in the green belt being inappropriate has for many years been “limited infilling in villages” (now NPPF paragraph 154 (e)) but that was a relatively narrow point.
Because I live an interesting life, I participated this week in some lively WhatsApp debate on the issue (yes I’m looking at you, you and you others at this point). Someone pointed to the House of Commons Library’s research briefing City & Town Classification of Constituencies & Local Authorities (21 June 2018). Whilst interesting, this just deepened the mystery. It explains that according to an adjusted version of a taxonomy developed by the Centre for Towns, its classification (which is for wider public policy statistical purposes) was as follows:
12 Core Cities: twelve major population and economic centres (e.g. London, Glasgow, Sheffield)
24 Other Cities: other settlements with a population of more than 175,000 (e.g. Leicester, Portsmouth, Aberdeen)
119 Large Towns: settlements with a population between 60,000 and 174,999 (e.g. Warrington, Hemel Hempstead, Farnborough)
270 Medium Towns: settlements with a population between 25,000 and 59,999 (e.g. Gravesend, Jarrow, Exmouth)
674 Small Towns: settlements with a population between 7,500 and 24,999 (e.g. Falmouth, New Romney, Holbeach)
6,116 Villages and small communities: settlements with a population of less than 7,500 (e.g. Chapel-en-le-Frith, Cottenham, Menai Bridge)
But then the paper goes on to explain:
“This classification isn’t intended to resolve long-standing disputes about which settlements deserve to be called ‘cities’, ‘towns’, or ‘villages’. In fact, it takes no account of the ceremonial definition of ‘city’, using the term only as a way to identify larger settlements. For instance, St Albans is identified as a ‘large town’ here because its population is 86,000 – even though it has city status. Luton, on the other hand, doesn’t have city status, but is classified here as an ‘Other City’ because its population is 225,000.
The precise division between ‘large’, ‘medium’ and ‘small’ towns is, to a large extent, subjective.”
Hmm. So that doesn’t help. By coincidence I then saw a blog post on Bluesky posted by the Urban History Group, What is a town? It starts: “What exactly is a town? The answer to this question has been debated for many decades by medieval historians.” Oh no, many decades is no good. The short piece refers to the definitional uncertainty as between small towns and large villages – resonating with the equivalent uncertainty that there is in our modern planning world. Most local plans will have a table settling out the area’s settlement hierarchy, eg
Tier 1 – city/large town
Tier 2 – town
Tier 3 – small town
Tier 4 – large village
Tier 5 – medium sized village
Tier 6 – green belt village
Tier 7 – green belt hamlet
The distinction between ”small town” and “large village” is going to come under additional scrutiny, but without any government guidance, that I am aware of, as to the criteria to be applied in drawing that distinction.
I did have a brief, far from comprehensive, look at planning appeal decisions. There was one dating from 2019 for instance (APP/B3438/W/18/3211000) which revolved around whether the proposal was “limited infilling in a village” or in fact just a hamlet. The inspector resorted to a dictionary:
“The main parties dispute whether Ridgeway is a village or a hamlet. This has consequences in terms of whether the scheme accords with Framework paragraph 145 e). The Oxford Dictionary defines a village as a group of houses and associated buildings, larger than a hamlet and smaller than a town, situated in a rural area. It defines a hamlet as a small settlement, generally one smaller than a village, and strictly (in Britain) one without a Church. While a church may have once existed in Ridgeway, there is no church there now as it has been replaced by a dwelling known as Chapel House. There are also no other associated buildings in Ridgeway that would, in my judgement, mean that Ridgeway is anything more than a hamlet. The proposal does not accord with the exception in Framework paragraph [(now) paragraph 154(e)].
I think we are going to need some more specific guidance than dictionaries can provide. One WhatsApp response proposes an “if it has a Greggs it isn’t a village” test. I suppose that is a start but I am sure you can do better?
Whilst I’m being an annoying pedant, I would also like separately to draw attention to an inaccuracy in the NPPF glossary’s definition of “major development”:
The definition of “major development” in Article 2 of the Town and Country Planning (Development Management Procedure) (England) Order 2015 is as follows:
“major development” means development which involves one or more of the following—
(a) the winning and working of minerals or the use of land for mineral-working deposits;
(b) waste development;
(c) the provision of dwellinghouses where—
(i) the number of dwellinghouses to be provided is 10 or more; or
(ii) the development is to be carried out on a site having an area of 0.5 hectares or more and it is not known whether the development falls within sub-paragraph (c)(i);
(d) the provision of a building or buildings where the floor space to be created by the development is 1,000 square metres or more; or
(e) development carried out on a site having an area of 1 hectare or more;
The definition of “major development” in the NPPF glossary is:
“For housing, development where 10 or more homes will be provided, or the site has an area of 0.5 hectares or more. For non-residential development it means additional floorspace of 1,000m2 or more, or a site of 1 hectare or more, or as otherwise provided in the Town and Country Planning (Development Management Procedure) (England) Order 2015.”
The green belt “golden rules” only apply to “major development”. What if you have a scheme of say nine units on a site of between 0.5 and 1 hectares? Under the Development Management Procedure Order that is not major development. But under the glossary, because it has imprecisely summarised the definition in the Order, it would seem to be. Error?
What a time to be a planning lawyer.
NB Back on the main theme of this blog post: shortly after we announced we were setting up our new law firm eight or so years ago, Peter Village KC called me to say that Village Legal would have been such a better name. Maybe so.
Simon Ricketts, 23 March 2025
Personal views, et cetera
