votes against Panshanger was over 600
Don't know what you mean by that - no council has that many councillors, and I haven't heard of a council running a referendum over a planning policy issue (is it even legal?).
If by "votes" you mean "responses to consultation" or "signatures on petitions" then those aren't "votes". Sometimes it is legally correct, and even legally the only option, to take planning policy decisions that hundreds of people oppose (or, at least, will sign a petition opposing, in order to get the organiser off their doorstep).