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Developing a Settlement Hierarchy of Rural Settlements

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Developing a Settlement Hierarchy of Rural Settlements TENDRING DISTRICT COUNCIL LOCAL DEVELOPMENT FRAMEWORK Planning Services Establishing a Settlement Hierarchy April 2008 2 Contents 1 Introduction 4 2 Defining Settlements 5 3 Reviewing the Local Plan Settlement Hierarchy 8 4 Settlement Hierarchy as envisaged through RSS14 15 5 Applying the settlement hierarchy on a district sub-area basis 23 6 Conclusions and recommendations 25 APPENDIX 1 – Methodology For Accessibility Assessment APPENDIX 2 – Accessibility Assessment: Rural Settlements APPENDIX 3 – Accessibility Assessment: Colchester Fringe APPENDIX 4 – Scoring Matrix for Accessibility Assessment APPENDIX 5 – Policies SS3 & SS4 of emerging RSS14 3 1. Introduction 1.1 As part of the Local Development Framework (LDF), the Council is required to produce a Core Strategy that will set out the vision for the longer term development of the District, establishing the key principles which will underpin the content of more detailed planning documents. Among other elements, the Core Strategy will need to establish a ‘Spatial Strategy’ for the distribution of housing (and other uses) in accordance with the Government’s guidance contained in Planning Policy Guidance notes (PPG) and Planning Policy Statements (PPS) and the requirements of the East of England Plan (RSS14). 1.2 Within the Spatial Strategy, it will be important to identify the settlements that have the potential to accommodate some of the housing growth required by the East of England Plan, whether that be infill development within tightly drawn settlement development boundaries or peripheral expansion outside of those boundaries. 1.3 This study has three core objectives: • Set out minimum criteria for settlements to be included in the Spatial Strategy; • Establish a hierarchy of settlements looking at the size of settlement and their relative accessibility to jobs, shops, services and public and taking into account the requirements of the East of England Plan which talks about urban areas, market towns and rural service centres; and • Explain how the settlement hierarchy fits into the district sub-area approach that has been developed as a strategic framework for housing distribution (see document entitled “Defining District Sub-Areas”). 1.4 This study will not determine the amount of development that each settlement should receive as part of the LDF; that will be a job for the Core Strategy and housing allocations DPD taking into account the findings of this study, the Strategic Housing Market Assessment, the Strategic Housing Land Availability Assessment and other technical studies; and the results of public consultation on various options. 4 2. Defining Settlements 2.1 The new Local Plan (adopted in December 2007) includes a spatial strategy (Policy QL1) which identifies the settlements where development can, in theory, take place. To be included in that policy, a settlement had to contain a compact group of 30 or more dwellings and contain one key facility (primary school, convenience goods food shop (often including post office) or village hall) either within it, or within 800m of the settlement edge. 2.2 The spatial strategy was heavily criticised by some objectors at the Local Plan Inquiry in 2006 because they felt that the minimum criteria were somewhat crude and that it led to the exclusion of a number of smaller villages from having settlement development boundaries, bringing into question the role and existence of those communities. Whilst the Council did not accept these criticisms at the time, for sound sustainability reasons, the LDF does provide an opportunity to revisit that approach. 2.3 In the Tendring District, there is a large rural hinterland which contains settlements of varying size and character, for example nuclear settlements such as Great Bentley and Elmstead Market and more linear settlements such as Bradfield and Little Clacton to much smaller settlements such as Tendring and Great Bromley. There are also some areas of road-side ribbon development that often due to their remoteness and lack of facilities could not constitute a settlement in planning terms in their own right, but where local people consider that small group of dwellings to be a separate community. 2.4 The Council must be very careful not to include settlements in the spatial strategy that are inappropriate for additional growth, whether it be infill, peripheral expansion or affordable housing through the rural exception policy. 2.5 Some settlements are so small that even a modest development of new housing would represent a significant net percentage increase in dwellings and population. Some are so poorly accessible to jobs, shops, services and public transport that new inhabitants will be entirely reliant on the use of a private car, which in terms of promoting sustainable travel patterns (in accordance with PPS1 – “Sustainable Development” and PPG13 – “Transport”) is entirely inappropriate. For some families on lower incomes, or individuals who are disabled, a private car can be an unaffordable or impractical luxury, the absence of which could lead to social exclusion if living in a remote rural area. 2.6 However, in rural areas, we must recognise that communities can only thrive if there is a balanced demographic structure that can support local amenities and businesses. The risk is that with an ageing population and a strong housing market, many younger people are priced out of living in the village where they grew up or now work. Without the right balance of older and younger people, rural villages can become economically unviable and local businesses can move out of the area. 2.7 To strike the right balance between reducing the need to travel by private car and the need to sustain local communities, it is recommended that settlements be included in the spatial strategy following these broad principles: 5 • Each of the district’s urban settlements (population of 3,000 or more) be included in the spatial strategy including the Colchester Fringe (the small part of Colchester that falls within the Tendring District); • At least one settlement from each rural parish should be included in the spatial strategy as being representative of that local community; • Poor accessibility to jobs, shops, services and public transport should not necessarily justify the exclusion of a settlement from the spatial strategy, but it should influence the decision as to whether that settlement be earmarked for peripheral expansion for either market or affordable housing; and • Settlements, as set out in the 2007 Local Plan, must contain a compact group of at least 30 dwellings that can be identified as the core of a rural community. I.e. random areas of ribbon development within a rural parish with no identifiable centre should not be included. 2.8 The main consequences of the above approach is that Little Bentley and Little Bromley which were deleted from the spatial strategy of the Local Plan should be reinstated in recognition that they are the core centre of development in their respective rural parishes. In addition, Hare Green should be reinstated in recognition of its size. 2.9 Small hamlets such as Stones Green, Mistley Heath, Fox Street and St. Osyth Heath (among others) should remain excluded from the spatial strategy on the grounds that firstly they fail to meet the recommended criteria above and that secondly they each fall within a rural parish where the parent settlement (e.g. Great Oakley, Mistley, Ardleigh, St. Osyth etc) performs a much stronger core community function and to where, if any growth is required, any new housing should be directed. 2.10 Following the above principles, it is recommended that the following settlements be included in the spatial strategy for the LDF: Urban Settlements (population greater than 3,000): • Clacton-on-Sea & Jaywick (including Holland-on-Sea) • Frinton, Walton & Kirby Cross • Harwich & Dovercourt (including Little Oakley, Parkeston and part of Ramsey Parish) • Lawford, Manningtree & Mistley • Brightlingsea • Colchester Fringe Rural Settlements (population less than 3,000): • Aingers Green • Great Holland • Tendring • Alresford • Great Oakley • Tendring Green • Ardleigh • Hare Green • Thorpe-le-Soken • Beaumont-Cum-Moze • Kirby-le-Soken • Thorrington • Bradfield • Little Bentley • Weeley • Elmstead Market • Little Bromley • Weeley Heath • Frating Green and • Little Clacton • Wix Balls Green • Ramsey • Wrabness • Great Bentley • St. Osyth • Great Bromley • Point Clear 6 2.11 It is recommended that each of the listed settlements should be defined within a Settlement Development Boundary on the LDF Proposals Map, within which there will be a presumption, in principle, in favour of development. Those boundaries will be expanded, if necessary, to accommodate any peripheral growth proposed through the allocations document following consultation on options for both the Core Strategy and site allocations. 7 3. Reviewing the Local Plan Settlement Hierarchy 3.1 Urban settlements, thanks to their size and the way they have grown over the years tend to have the biggest range of jobs, shops, services and access to public transport and consequently tend be the most sustainable areas for new housing development. 3.2 Rural settlements tend to have a more limited offer and, in comparison with their urban neighbours are generally considered to be unsustainable locations for new development, particularly as many people travel by car from rural to urban locations for work, schooling or shopping. However, where there is a need for some housing development
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