Meeting documents
Cabinet
Wednesday, 7th September, 2005
APPENDIX 1
First Detailed Proposals for the Sub-Regional Spatial Strategy for the West of England and the next steps
1.0 Introduction
1.1 Under the Planning and Compulsory Purchase Act 2004, the Development Plan comprises the Regional Spatial Strategy, (RSS) and Development Plan Documents, replacing Structure Plans and Local Plans. The RSS includes a Regional Transport Strategy which will be the framework for Local Transport Plans and an influence on investment decisions. The RSS for the South West for 2006-2026 is being prepared by the South West Regional Assembly as the Regional Planning Body and will include sub-regional policies for the West of England (former Avon area) and other sub-regions in the South West.
1.2 As part of the `arrangements' allowed for in the Act the West of England Partnership has been set up to provide input into the RSS by carrying out studies for the West of England Joint Study Area and preparing a sub-regional spatial strategy for the area in the form of `First Detailed Proposals' (FDP). The West of England Partnership comprises the Leaders and other Members from the four Unitary Authorities covering the former Avon area and eight social, environmental and economic partners. Based on these studies it is for the four Unitary Authorities (UAs) to submit First Detailed Proposals (FDP) as strategic `advice' to the Regional Assembly setting out a sub-regional spatial strategy and associated policies to be incorporated into the RSS. The matters to be covered in both the Joint Studies and FDP have been set out in briefs from the Assembly to the Partnership and UAs and include spatial distribution of development and housing allocation for each District.
1.3 The Partnership has now completed preparation of the FDP for a sub-regional spatial strategy and it now needs to be considered by the four Unitary Authorities and approved for submission to the Regional Assembly. The FDP (which are attached as Annex 1) must be submitted to the Assembly by 13th September 2005. The report seeks the endorsement of the First Detailed Proposals by the Executive for submission to the Regional Assembly.
2.0 Process
2.1 Members should note that the FDP presented for approval in this Report is not necessarily the final sub-regional spatial strategy that will be included in draft RSS. The FDP will be submitted to the Regional Assembly for their consideration and may be subject to amendment. Ultimately it will be for the Assembly to decide whether it accepts the submitted FDP. In addition further revisions during the next few months may emerge from the conclusions of outstanding work referred to below and also as a result of stakeholder involvement in the preparation of draft RSS.
2.2 Set out below is a summary of the Assembly's programme for the preparation of RSS and the Sub-Regional Spatial Strategy (which is an integral part of it):
2005
13th September - submission of FDP to South West Regional Assembly
10th October- 11th November - stakeholder consultation on first draft RSS (including West of England Sub-Regional Spatial Strategy)
November/December - revisions to first draft RSS
2006/07
January - launch of draft RSS
9th January - 10th February - stakeholder consultation on draft RSS
March 2006 - submission of draft RSS to Secretary of State
Late spring/early summer - formal 12 week public consultation on draft RSS
Late 2006/early 2007 - Public Examination of draft RSS
Late 2007 - RSS approved and issued by Secretary of State
3.0 First Detailed Proposals (see Annex 1)
3.1 Meetings of the Partnership and its various specialist sub-groups throughout 2004 and 2005 have developed a vision and sub-regional spatial strategy. Members may recall the consultation document "2026 - The Vision for the West of England in 2026 and delivering priorities" and "Your Area: your Vision - directions for change (sub-regional planning strategy)" reported to the 12th January Executive and 20th January Council. A further update report was considered by the Executive at the June 29th meeting.
3.2 The purpose of the FDP is to ensure that the South West Regional Assembly provides a policy framework for sustainable investment, development, regeneration, transport and conservation in the West of England, as a Core City region, to benefit the area and the regional and national economies, and to maintain and improve the quality of life of the area's residents. The FDP sets out a number of objectives in support of the Vision for the area. These are set out in more detail in Section 2 of the FDP.
3.3.1 In summary some of the main objectives and policies that are particularly relevant to Bath & North East Somerset are as follows:
The Vision for the sub-region is for continuing high rates of growth in jobs, population and housing enabled by accelerated investment in housing, transport and other social infrastructure, which realises the economic strengths of the West of England, improves the quality of life, and achieves mixed and balanced communities.
Promotes urban renaissance, particularly in the Principle Urban Area (PUAs) of Bristol, Bath and Weston-super-Mare
Overcoming existing deficits in physical and social infrastructure and providing infrastructure to create balanced new communities.
To provide affordable housing in a variety of locations that responds to the distribution of needs.
Delivering a step change in the quality of public transport and traffic management
Protecting and enhancing key environmental assets
Pursues a high growth strategy that results in the provision of 92,500 dwellings between 2006 and 2026 in the West of England
Distribution of the housing between the four Unitary Authorities including 15,400 dwellings (17% of the total for the West of England) in Bath & North East Somerset (which equates to 770 per annum for the 2006-2026 period compared to 413 per annum in the Joint Replacement Structure Plan period 1996-2011)
Broad locational steer for sustainable urban extensions - subject to leaving more specific development locations to be determined through further strategic review of the Green Belt and individual Unitary Authority Local Development Frameworks(LDFs)
Seeks to concentrate development in the PUAs as a first priority, followed by sustainable mixed use urban extensions (and associated Green Belt review) potentially:
1. adjoining Bristol to the south east and south west in order to aid regeneration of South Bristol;
2. adjoining Emerson's Green to the north east of Bristol;
3. south of Bath or if suitable urban extensions at Bath are not possible due to environmental or transport reasons, then settlements south of the Green Belt will be considered;
4. Weston-super-Mare;
5. Outside the main urban areas significant development considered at smaller towns where it will deliver significant improvements to public transport to main urban areas and meets other sustainability and Green Belt objectives.
Policy for Bath that recognises the importance of the city as a centre for history, culture, education, tourism, as a regional centre for business and shopping, as a World Heritage Site and that seeks to build upon its success and economic strengths (e.g. knowledge based employment sectors and tourism) whilst also optimising the opportunities to provide additional housing and address transportation issues.
The role, amenity value, social and economic vitality of rural areas needs to be maintained while discouraging unsustainable patterns of development or movement. In these areas, development will reflect local needs, including affordable housing, changes in the rural economy, and the need for local services.
In rural areas adjoining the main urban areas, including areas where new urban extensions are planned, measures should be taken to manage the urban fringe, provide `green infrastructure' for recreation and conserve landscape and biodiversity. The aims and objectives of the Forest of Avon will be supported.
3.4 The FDP provides the overall outline of a sub-regional spatial strategy with a series of policy approaches addressing the following areas:
Section 3 - Economic Development
Section 4 - Meeting the Need for New Homes
Section 5 - Social and Cultural Provisions including Education & Health
Section 6 - Transport Priorities
Section 7 - Environmental Resource Use and Management
Sections 8 -10 - Urban Areas - Bristol, Bath and Weston-super Mare
Section 11 - Implementation and Delivery
4.0 Key Issues for Bath & North East Somerset
Growth Levels and Infrastructure Provision
4.1 As referred to in the June Executive Report the most contentious issue related to the levels of economic growth and therefore, level of housing to be accommodated. Based on its economic growth forecasts the Assembly is keen for the West of England Partnership to test the implications of accommodating new housing at the rates set out in existing Regional Planning Guidance - RPG10 (3,700 per annum) plus 25% (4,625 per annum) and plus 50% (5,550 per annum).
4.2 In relation to transport testing the Greater Bristol Strategic Transport Study (GBSTS) has already tested housing growth up to 2031 at a rate of RPG10 plus 25%. This amount of housing approximately equates to the higher growth option of RPG10 plus 50% over the RSS period to 2026. Therefore, the transport implications of higher growth have been tested. In addition further work has been undertaken by the Joint Strategic Planning & Transportation Unit analysing future job growth. This analysis suggests that the rates of job growth, which would require housing provision at RPG10 plus 50%, could not be sustained and that growth levels resulting in housing provision at RPG10 plus 25% would represent a high growth strategy in the West of England.
4.3 The West of England Partnership has therefore agreed that a high growth strategy at RPG plus 25% should be followed in order to ensure that the sub-region continues to be the economic driver of the South West. Therefore, the FDP proposes that provision should be made to meet an employment growth rate averaging 5,000 jobs per annum and for additional housing at a rate of RPG plus 25% i.e. 92,500 dwellings in the sub-region during the period 2006 - 2026. This level of development will also rely upon and strengthen the case for much needed investment in physical and social infrastructure including transport infrastructure in the sub-region. The FDP is very explicit that the level of infrastructure investment will affect the ability of the West of England to deliver the levels of growth envisaged (FDP paras 2.3, 6.2 & 11.1). Para 11.1 sums this up succinctly:
`Implementation of the proposals set out in this spatial strategy depends on commitments from national, regional and local government, together with the private sector, to provide investment in infrastructure and services (including affordable housing) that is in phase with the demands of development and that addresses existing deficiencies. Without this commitment, the spatial strategy cannot be delivered.'
4.4 In Bath & North East Somerset the proposed housing allocation of 15,400 dwellings represents a step change in previous rates of building. The need for sustainable mixed use urban extensions in order to accommodate development levels associated with a high growth strategy is clear. The approach of the FDP is to set out a broad locational steer, thereby giving each Unitary Authority the flexibility to determine more precise development locations through their respective Local Development Frameworks (local planning policies).
Green Belt
4.5 With approximately 70% of the District covered by Green Belt, to deliver the levels of development proposed will mean reviewing the Green Belt in Bath & North East Somerset. Paras 2.19 - 2.24 of the FDP set out how in this process it is important to meet fundamental Green Belt objectives for the sub-region but also to assess whether in some cases this is outweighed by the need to meet the sub-regions requirements for sustainable development.
4.6 The level of growth envisaged for the West of England, including housing provision equating to 4,625 dwellings per annum for the sub-region (RPG10 plus 25%) will require significant levels of greenfield development to be primarily located in sustainable urban extensions. In Bath & North East Somerset initial assessment of urban housing capacity suggests that around 40% of the total proposed dwelling provision of 15,400 could be accommodated within the urban areas. Allowing also for the development of existing commitments and some development in the rural areas this still leaves a significant element to be accommodated in urban extensions. The assessment of potential locations for these urban extensions has necessitated a strategic review of the Bristol and Bath Green Belt.
4.7 The strategic review of the Bristol and Bath Green Belt has sought to re-establish its fundamental objectives in the sub-region (having regard to government guidance set out in PPG2 and previous Structure Plans) and to establish the locations where meeting these objectives is most critical. The fundamental purpose of maintaining the separation of Bristol and Bath and the settlements between the two cities has been recognised and therefore the importance of the Green Belt in locations in the Bristol to Bath corridor. However, given the number of dwellings apportioned to Bath & North East Somerset there will be a need to critically assess the Green Belt in Bath & North east Somerset through further work on the strategic review of the Green Belt and preparation of Local Development Documents. This will consider whether the strategic value of areas in meeting the fundamental role and objectives of the Green Belt is outweighed by the benefits of developing communities to meet the sub-region's requirements for sustainable development.
4.8 The Green Belt around Bath also serves fundamental objectives for the area including preserving the setting of the World Heritage Site. However the Green Belt to the south of Bath will also need to be critically assessed to explore the possibility of sustainable urban extensions. If it is found that there are insufficient opportunities because of environmental and transport constraints then locations beyond the Green Belt would also require assessment for development potential.
4.9 Any urban extensions to the south east of Bristol must deliver essential transport infrastructure to serve the area and the regeneration of South Bristol. The need for infrastructure would equally apply to extensions either at Bath or south of the Green Belt.
Greater Bristol Strategic Transport Study (GBSTS) and Provision of Transport Infrastructure
4.10 Members will recall that the GBSTS was commissioned by Government Office for the South West (GOSW) and supported by the four UAs, South West Regional Development Agency and the Highways Agency in order to assess current and future strategic transport needs of the West of England. In particular it is assessing the transport implications of development up to 2031 (see also paragraph 4.2 above). Initial results were summarised briefly in the Report to Executive in June, when it was also stated that the final report is due at the end of November 2005 and this remains the case. The initial results, which were the subject of public consultation, projected continuing long-term growth in road traffic, congestion and delays. The results of this work are still being examined and they will assist in developing the sub-regional spatial strategy. Further testing of land use scenarios has also been undertaken which will help the development of a preferred spatial strategy and the necessary transport solutions. It is clear that to overcome predicted transportation problems significant investment in transport infrastructure will be essential if the proposed strategy is to be delivered successfully. Section 6 of the FDP sets out the transport priorities for the sub-region.
4.11 The final stages of assessing the implications of the preferred spatial strategy, including public consultation on the results, will inform any necessary revisions to the FDP. The Regional Assembly is aware of this timetable and is content that any revisions arising from the final results of the study can be incorporated within the draft RSS.
Bath Area Commuting Study
4.12 Work is ongoing on investigating the relationship between Bath as an economic and employment centre and the growth in commuting from towns in north east Somerset and West Wiltshire. This investigation is important as it will inform the development of a strategy which should seek to address issues surrounding the balance of living and working opportunities and housing affordability problems in Bath as well as commuting patterns. 2001 Census figures show that the level of in-commuting into Bath from these towns is significant and is dominated by car travel. However, comparison with other cities and towns shows that the levels of in-commuting into Bath are not exceptional.
4.13 Further work is still needed to estimate future levels of housing need (partly resulting from forecast job growth) and reassess housing supply in Bath and to assess whether growth in population and employment in surrounding towns would lead to further specific transport problems and/or opportunities to enhance public transport links to Bath. This work and its outcomes need to be discussed with the adjoining authorities in Wiltshire and Somerset in order to explain and explore the relationships between Bath and the surrounding towns and agree a way forward.
4.14 This work will inform the spatial strategy e.g. with regard to how and where new housing will be provided. If necessary, revisions to the spatial strategy set out in the FDP will need to be made in the autumn. Maintaining an open dialogue with the SWRA on this issue is therefore important.
Conclusion
4.15 Further work on the strategic review of the Green Belt, the results of the Greater Bristol Strategic Transport Study and the Bath Area Commuting Study and in addition work on strategic sustainability appraisal will further influence the emerging sub-regional spatial strategy. The West of England Partnership will continue to report on the results of this work to the South West Regional Assembly as the preparation of Draft Regional Spatial Strategy continues.
4.16 It is therefore recommended that the First Detailed Proposals are endorsed by the Council Executive and forwarded to the Regional Assembly as this Council's strategic advice for a sub-regional strategy for the West of England in the knowledge that there will be the opportunity to propose further revisions if necessary. The risk of not submitting First Detailed Proposals at this stage is that the Regional Assembly may impose their own strategy. This is in the context of pressures from the ODPM through the Sustainable Communities agenda to achieve high rates of growth in the sub-region.
5.0 Next Stages
5.1 After receipt of the FDP from the West of England and other Joint Study areas the Regional Assembly will prepare the Draft Regional Spatial Strategy and follow this with further stakeholder consultations during October and November. During this period there will be the opportunity for the West of England Partnership to further influence the sub-regional strategy. This will include a visit by the Joint Study Area Panel from the Regional Assembly to discuss the Assembly's response to the FDP.
5.2 Between December 2005 and February 2006 the Regional Assembly will finalise the draft RSS before submission to the Secretary of State in March. This will be followed by a period of 12 weeks for formal public comment and then testing of the document at the Examination in Public in front of an independent Panel appointed by the Secretary of State anticipated to take place in late 2006 or early 2007.
5.3 Following receipt of the Panel's Report the Secretary of State will publish proposed changes to the draft RSS with a statement of reasons allowing an eight week for comment before the final RSS is issued by the Secretary of State probably by late 2007.