Bude, Stratton,
Flexbury and Poughill
Framework
Urban Extension Assessment
December 2011
Planning Delivery Team (East)
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions Assessment 2
December 2011. Contents Page Contents 3
Introduction 5
Methodology Step 1: Mapping Review 7 Step 2: Cell Identification 7 Step 3: Environmental Constraints 9 Step 4: Accessibility 11 Step 5: Initial Review and Discount of Cells 12 Step 6: Landscape Character Assessments 12 Step 7: Urban Design Analysis 13 Step 8: Heat Mapping Assessment 16 Step 9: Qualitative Review and Discount Inappropriate Sites 17 Step 10: Stakeholder Discussions 19 Step 11: Informal Sustainability Appraisal (SA) Review 19 Step 12: Submit Sites in Core Strategy Strategic Sites Consultation 20
Figures Figure 1: Urban Sites Assessment – Twelve Step Process 6 Figure 2: Bude, Stratton, Flexbury and Poughill Structures and Neighbourhood Map 8 Figure 3: Bude, Stratton, Flexbury and Poughill Original Cell Boundaries 9 Figure 4: The Environmental Constraint Map for Bude, Stratton, Flexbury and Poughill 10 Figure 5: Overview Map of the Accessibility Assessment Results 11 Figure 6: Overview Map of the Landscape Assessment Results 13 Figure 7: Overview Map of the Urban Design Results 14 Figure 8: The Merged Cells 15 Figure 9: Results of Heat Mapping Exercise 17 Figure 10: The Map Resulting from Step 9 18 Figure 11: The Agreed Sites for Inclusion in the Core Strategy Strategic Sites Consultation 22-26
Appendices
Appendix A: Environmental Assessments Appendix B: Accessibility Assessments Appendix C: Landscape Character Assessment Methodology Appendix D: Landscape Character Assessment Results Appendix E: Urban Design Methodology Appendix F: Urban Design Results Appendix G: Heat Mapping Results
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions Assessment 3
December 2011. Appendix H: Sustainability Appraisal Summary Tables
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions Assessment 4
December 2011. Introduction
Work is currently underway on the preparation of the Core Strategy for Cornwall as part of the Local Development Framework. The Core Strategy will set out the long- term spatial vision for the County and the strategic policies and proposals that will deliver this vision. It will also provide an indication of the broad locations for new development in Cornwall, through to 2030.
To promote sustainable development a large proportion of the growth that will be identified within the Core Strategy will be directed towards the existing main towns of the County. Town Framework Plans are being produced for most of Cornwall’s main towns, which will identify the most sustainable options to accommodate projected growth. The Town Framework Plan firstly identifies the town’s ability to accommodate growth within the urban area and on brownfield sites. It then goes on to assess the most suitable options of land on which to extend the existing urban areas (to accommodate remaining growth requirements) and considers the impacts of developing these sites.
This paper has been produced to summarise the work that has been undertaken to assess these predominantly greenfield areas, which adjoin the urban areas of Bude, Stratton, Flexbury and Poughill, in order to support the strategic vision for the county’s main towns, as set out within the Core Strategy.
The investigation followed a twelve step assessment process, to ensure consistency in approach to urban extensions assessments across the majority of Cornwall’s main towns. Figure 1 illustrates the twelve step process undertaken as part of the Town Framework Plan process.
Steps 1-5 seek to identify land that is either potentially appropriate for further detailed assessment, or land which should be discounted at an early stage for reasons based on significant environmental and/or accessibility grounds. Steps 6 to 9 involve a more detailed landscape character assessment; an urban design assessment and an assessment of the potential for renewable or low carbon energy to supply any potential development. Inappropriate cells are discounted at Step 9 following a review.
All remaining cells are then assessed at Steps 10-12, as potential options for urban extension locations. These options are informally discussed with key stakeholders, including the Environment Agency, Highways Agency and Natural England, for views on the technical and infrastructure challenges of developing these areas. This stage also includes an informal Sustainability Appraisal of all cells and the final urban extension options.
Once this has been completed the ‘preferred’ urban extension sites are consulted on through the Core Strategy process as options for future growth.
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions Assessment 5
December 2011. Figure 1: Urban Sites Assessment – Twelve Step Process.
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions Assessment 6
December 2011. The assessments that are set out in these twelve steps have been discussed throughout the process at officer workshop sessions and with the Steering Group for Bude, Stratton, Flexbury and Poughill’s Framework process.
The Steering Group comprises local Cornwall Council Members, and representatives of the Town Council and neighbouring Parish Councils. Meeting regularly since August 2010, the Steering Group has been working towards an agreed approach to the future distribution and level of preferred growth for the town, providing local input, context and endorsement. Part of this work involved the analysis of the shape of the cells and which cells/sites would progress to more detailed assessment (detailed below i.e. from Step 6 onwards).
The flow chart in Figure 1 illustrates the twelve step process undertaken to assess the suitability of land for urban extensions in order to accommodate growth as part of the Town Framework.
Methodology
Step 1 - Mapping Review This involved a desk based assessment to help understand the structure of Bude, Stratton, Flexbury and Poughill and how the areas currently function, including what services and facilities are available for the communities here. The results of this exercise, including Figure 2, the Structures and Neighbourhoods Map, help to inform and guide the subsequent assessments throughout the process, but primarily the initial desk based urban extension assessments at Steps 2, 3, 4 and 5.
This mapping exercise sought to identify the main movement corridors: A, B and local distributor roads and key services such as schools, health facilities, community buildings, and formal and informal open spaces - as well as identifying the neighbourhood centres.
This work also helps to identify Green Infrastructure (GI) information such as public open space, and existing green corridors and networks (e.g. waterways, cycle routes and footpaths) and water elements (e.g. lakes, significant pond systems, wetlands etc) which will inform Step 7 in particular.
Step 2 – Cell Identification This exercise reviewed all of the land surrounding the town to identify appropriate and workable study areas (referred to as ‘cells’) for further assessment. In determining the extent of the individual cells, consideration was given to features that would potentially create barriers between cells, such as significant transport corridors and landform features, for instance topography and watercourses. Once these features had been identified, it provided definition to the boundaries for the cells surrounding the town. The landscape cells identified for Bude, Stratton, Flexbury and Poughill are illustrated below in Figure 3. It should be noted that these cell boundaries are amended and refined as the assessment and consultation progresses.
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions Assessment 7
December 2011. Figure 2: Bude, Stratton, Flexbury and Poughills Structures and Neighbourhoods Map
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions 8 Assessment December 2011. Figure 3: Bude, Stratton, Flexbury and Poughills Original Cell Boundaries
Step 3 – Environmental Constraints This involved an assessment to record the relationship of the different cells with significant and less significant environmental features. The main intention of this step was to identify any land where significant environmental features (predominantly national designations e.g. SSSI; flood zone 3b; ancient woodland etc) would mean that future development potential would be highly unlikely due to the obvious constraints.
In the same way, the step identifies the areas where any potential growth would not be constrained by such significant environmental constraints. Each cell was analysed in this way based upon the assessment criteria and a ‘traffic light system’ which are detailed at Appendix A.
The environmental map relating to Bude, Stratton, Flexbury and Poughill is presented as Figure 4. This step identified those cells which contained significant environmental features or assets. Consideration was made as to whether nationally/internationally significant sites should be discounted from any further study in the urban extension assessment process.
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions 9 Assessment December 2011. Figure 4: The Environmental Constraint Map for Bude, Stratton, Flexbury and Poughill.
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions Assessment 10 December 2011. Step 4 - Accessibility An initial desk based accessibility assessment was undertaken at the same time as Step 3. This assessed each cells performance with respect to accessibility to essential local facilities e.g. schools, health facilities, town centres etc. Accessibility was assessed for both pedestrians (Step 4a) and vehicular access (Step 4b). Distances of 400m, 800m and 1200m representing 5, 10 and 15 minute walks respectively were used in the assessment (based on national planning and urban design good practice guidance).
Each cell was assessed utilising a traffic light rating system, (the detail of which is set out at Appendix B) with the aim of establishing whether cells performed either well or poorly in terms of their accessibility to local services and facilities. Potential shortfalls in the availability of local services and facilities were also highlighted through this assessment.
With regards to vehicular accessibility (Step 4b), consideration was given to whether the existing highway infrastructure had potential to provide existing or new vehicular access points / routes to the cells.
Two key issues were considered:
• Whether there was deliverable vehicular access to serve the cell; and • Whether there was possible vehicular connection from the cell to the nearest Town or Neighbourhood Centre.
Figure 5: Overview Map of the Accessibility Assessment Results
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions 11 Assessment December 2011. The results of this assessment were considered along with Step 4a, to determine an overall performance rating for each cell in terms of accessibility.
The results of the Accessibility Assessment are shown in Figure 5, whilst the detailed assessments are contained in Appendix C.
Step 5 – Initial Review and Discount of Cells Following Steps 3 and 4, Step 5 was a key step where a review was carried out to highlight and discount inappropriate cells based on their environmental and/or accessibility results. To assist this process, and to ensure consistency of assessment method across Cornwall’s Towns, Step 5 was also reviewed at a Town Framework Project Manager Workshop. The recommendations of Step 5 were subsequently discussed and agreed at the Framework Members Steering Group.
The result of Step 5 for Bude, Stratton, Flexbury and Poughill was that no original cells should be discounted from further consideration.
This paper goes on to look at all the original cells around these urban areas in greater depth before discounting a large number of these from the final recommendation of potential sites.
The Bude, Stratton, Flexbury and Poughill Framework Plan Steering Group The Steering Group is comprised of Cornwall Council Members, and representatives of the relevant Town Councils and neighbouring Parish Councils as well as a representative of the Bude Partnership.
The Steering Group has met regularly since August 2010 and worked to agree on the shape of the cells analysed and which cells/sites would progress to more detailed assessment, as outlined below (i.e. from Step 6 onwards).
Detailed assessment of the cells
Step 6 Landscape Character Assessments Landscape character assessments were undertaken by Landscape Architects from the Councils Environment Service. A methodology was drafted and agreed by relevant officers, which recorded important landscape features of the cells and assessed the landscape according to its character and sensitivity to change. The assessment resulted in each cell being rated according to a traffic light system indicating its overall landscape quality. Each cell was assessed by a detailed site visit and by incorporating the environmental information recorded at Step 3. The methodology for this Step is attached at Appendix C. The results of the Landscape Assessment are presented in Figure 6.
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions 12 Assessment December 2011. Figure 6: Overview Map of the Landscape Assessment Results
As Figure 6 illustrates no areas that were assessed as having a low landscape value.
Landscape is an important consideration as to the suitability of an area for development however it should be considered along side accessibility, sustainability and how well the area is able to integrate with the existing urban form. Consequently no cells were discounted at this stage; the landscape information instead being used to inform Step 9.
The landscape maps and tables resulting from Step 6 are presented in Appendix D. In addition, the 5 potential sites submitted at Step 12 also underwent a landscape assessment and the tabular and map results for these areas are also included within Appendix D.
Step 7 Urban Design Analysis The purpose of this step was to carry out an analysis of the cells with the aim of further clarifying how well they would integrate and function with the existing town and its communities; would they be sustainable locations to accommodate the future growth envisaged by the Core Strategy? Equally, it was used to demonstrate which cells would not function as well and to clarify the reasons why.
The assessment involved a sketch exercise relating to each cell which sought to identify existing or potential connections and routes, to enable ease of movement and accessibility. A table was then used to record the results of
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions 13 Assessment December 2011. each cell by assessing against a set of criteria as determined by the methodology. The methodology used can be viewed in Appendix E.
Figure 7: Overview Map of the Urban Design Results
Each cell was assessed in this way and cells where the assessment showed potential or benefits for the purpose of ease of connectivity, landform or sustainability were then merged, resulting in a number of new ‘merged cells’. The merged cells are illustrated in Figure 8 and were used to inform Step 9 of this process.
The assessment provides a final comment noting the conclusions from the exercise and indicating the suitability of the cell or merged cells as either:
• a potential expansion of an existing neighbourhood; • an opportunity to create of a new neighbourhood through an urban extension; or, • the constraints found showed that neither of the above could be achieved sustainably.
The results of the Urban Design Assessment on the original cells are presented in Figure 7. The full results can be viewed in Appendix F.
The intention was not to discount cells at this stage. The information from this assessment was used at the following Step 9 ‘Qualitative review and discount sites’ to inform decisions, along with the landscape character
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions 14 Assessment December 2011. Figure 8: The Merged Cells
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions Assessment 15 December 2011. assessment and wider growth option implications as broadly indicated in the Core Strategy i.e. scale of long term growth required/achievable.
The best scoring cells in urban design terms were Cells 1, 14 and 15. With the exception of Cell 1, these cells were of a scale that could potentially offer the opportunity for the development of a new neighbourhood centre, with some existing links to a number of key services and facilities. Although Cell 15 is relatively distant from Bude town centre, there is potential to take advantage of the level access offered on the heritage trail which provides good links for pedestrians and cyclists between this and areas of this cell.
Cells 7, 8, 9, 10, 16 and 17 scored poorly in the urban design assessment. Many of these areas were remote from the town centre, key services and facilities with limited opportunities to improve access routes.
It should be noted at this stage that although a high scoring cell, Cell 1 is unlikely to be considered a realistic development area, as it accommodates prominent open space between Bude and Flexbury. Any development in this area would be likely to impact negatively on the local identity and character of the town.
Step 8 Heat Mapping Assessment Step 8 carried out an assessment of renewable or low carbon energy opportunities in relation to each of the cells, in particular the potential for each cell to link into or support a possible decentralised energy or district heating network, providing renewable or low carbon energy.
The assessment sets out an initial assumption in relation to the location of each of the potential urban extension cell areas i.e. a cells proximity in relation to areas of existing high heat demand areas and so called ‘anchor load’ buildings, within the built area of the town, to determine whether a cell area has the following:
• Good opportunity to link into a potential district heat network;
• Limited opportunity to link into a potential district heat network - unlikely but requires further assessment; or,
• Poor or no potential to link into a potential district heat network - highly unlikely to be a viable area to support district heating due to low heat demand and or large distances between the new development and existing heat loads.
The assessment was not seeking to discount any cells based on their potential or lack of, but allows the information to be considered as a strength or a weakness of a cell which can be highlighted along with other considerations when consultation takes place regarding potential options for future growth of the town. The full results can be seen in Appendix G. The results of the assessment are illustrated below in Figure 9.
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions 16 Assessment December 2011. Figure 9: Results of the Heat Mapping Exercise
Step 9 Qualitative Review and Discount Inappropriate Sites Step 9 was a key point to review all steps to date, undertaking evidence based and qualitative review.
This step involved a meeting with all parties involved in undertaking the urban extension assessments from landscape, urban design and spatial planning to discuss, explore and agree on the cells to remain as potential options and those that should be removed, prior to consultation with wider stakeholders at Step 10. The merged cells presented in Figure 8 formed the basis for these discussions.
The merged cells were amended at this Step due to these discussions and also as a result of input from the Bude, Stratton, Flexbury and Poughill TFP Steering Group. At the meeting of the Steering Group on the 28th February 2011, a number of amendments to the merged cells were agreed on the basis that these would receive comment from wider stakeholders (Step 10) and then be returned to the group for further discussion and agreement, at Step 12 of the process. The map resulting from this step is illustrated in Figure 10.
Within Figure 10, additional areas are highlighted at cells D and F. Cell D was introduced by members of the Steering Group who wanted to give consideration to a neighbourhood extension to Poughill, although it was emphasised that any development in this area would have to avoid coalescence between Poughill and Flexbury. Cell F was highlighted at the peer review officer workshop as a direction of growth that could provide an opportunity to alleviate traffic issues in Stratton.
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions 17 Assessment December 2011. Figure 10: The Map Resulting from Step 9
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions Assessment 18 December 2011. Step 10 Stakeholder Discussions Workshops were arranged with key statutory stakeholders in order to discuss the options identified through Step 9 (Figure 10). The key statutory stakeholders consulted at this stage included: the Environment Agency, the Highways Agency, Natural England, Cornwall Councils Strategic Transport Officers and Cornwall Councils Heritage and Archaeological Officers.
Figure 10 was presented at the workshops with the reasoning behind each of the cells, highlighting remaining issues and questions that each of these posed. One of the key reasons for the workshops was to provide the opportunity for stakeholders to highlight any issues that had not been identified already. Issues could mean that either a cell was not a realistic option or could highlight further strengths and/or weaknesses of a particular location.
With the exception of cell B (which subsequent to these discussions has gained planning approval for a large mixed use development at Binhamy Farm), cell A was received most positively. Cell A was considered to be a promising area for development due to the potential it has to develop linkages to services and facilities, including cycling and walking to the town centre. It was noted that the alignment of the old railway and canal would need protection and that sensitive design would be fundamental to development in this area.
The primary concerns for cell C were poor access and the avoidance of coalescence between Bude and Stratton. The area is also classed as Ancient Enclosed Land and would therefore require geo-physical surveys, but this is the case for all areas under consideration around Bude, Stratton, Flexbury and Poughill.
Cell D gained a negative reception, due to poor access through both Poughill and the town centre and also the potentially negative impact any development would have on the existing Conservation Area.
For cell E, it was considered that only very small scale local development would be suitable due to highway constraints within Stratton and at Skitches Corner. Cornwall Councils Heritage and Archaeological Officers recognised potential benefits that development, in either cell E or F, could bring to Stratton, in that the area could possibly be reinvigorated, enhancing its historic environment. For cell F, it was felt that due to topographical and landscape constraints realistic delivery of development throughout this area would be unlikely in the timeframe of the Core Strategy.
Step 11 Informal Sustainability Appraisal (SA) Review A Sustainability Appraisal (SA) review was carried out on the original cells and the consultation site options (see Step 12, Figure 11). An SA assesses the environmental, social and economic impacts of proposed plans and policies and is required by legislation. It provides a quality check and aims to ensure that the options within the Town Framework are moving towards achieving sustainable development.
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions 19 Assessment December 2011. The methodology and full results of this process comprise a separate document entitled ‘Bude, Stratton, Flexbury and Poughill Framework Plan: Interim Sustainability Appraisal’ which is available on the Council’s website (www.cornwall.gov.uk/ldf).
Appendix H presents the summary SA results for the original cells and the consultation site options.
Step 12 Submit Sites in Core Strategy Strategic Sites Consultation Step 12 was the concluding point of this process, where the options to be submitted in the Core Strategy Strategic Sites consultation were agreed by Officers and the Bude, Stratton, Flexbury and Poughill’s TFP Steering Group.
This stage involved a further meeting with the Steering Group, together with site visits to the potential areas. The sites agreed to be submitted for consultation are illustrated in Figure 11.
In arriving at these sites consideration was given to the outcomes of the process so far and the levels of growth anticipated for the town for the next 20 years (i.e. 2010-2030).
BUE1 takes advantage of a lack of environmental constraints and its potential in terms of sustainable access to the town centre. The north eastern area of this site offers an opportunity for an extension to Kings Hill Industrial Estate; benefiting from suitable topography and ease of access to the A39. Development within this site could also offer the potential for local highways improvements to the A3072 together with the creation of a wide open space corridor to the west of the site.
BUE2 and BUE3 present the option for the public to avoid development in this area that would result in coalescence between Bude and Stratton. Both areas benefit from limited environmental constraints and are in good proximity to most services and facilities. In addition this area was identified as one demonstrating the greatest potential to support a District Heating scheme.
BUE4 is a site that was raised for inclusion by the Steering Group. The site has a number of limitations, primarily due to access constraints, its proximity to the Conservation Area at Poughill and distance from many facilities and employment. However, it was felt that it should be included as an option to provide the choice to the public, who may wish to encourage development at Poughill. This was agreed and four differing options were provided in relation to this site, to allow for varying degrees of development.
BUE5 provides for an area of development that should only be considered for residential growth. Cell E and cell F (Figure 10) were reduced to this smaller site due in part to the topographical constraints incumbent upon cell F. This reduced area would form a neighbourhood extension to Stratton. Much of the land surrounding Stratton is designated as an Area of Great Landscape Value, including this site, however potential development in this pocket of land was considered to pose a limited threat when compared with other options around Stratton.
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions 20 Assessment December 2011. The consultation options agreed provide land surplus to the requirements of what is forecast by the Core Strategy. At the time of writing, the recommendation for the Core Strategy consultation is likely to suggest a figure of approximately 900 new homes for Bude, Stratton, Flexbury and Poughill over the next twenty years. The details of the Housing Paper, compiled as part of the wider Framework work for Bude, Stratton, Flexbury and Poughill, outlines that the existing urban areas could deliver 605 dwellings (the Housing Paper, entitled ‘Potential Housing Sites Assessment – Working Draft’, can be found on the Council’s website at www.cornwall.gov.uk/ldf). The site options put forward at this stage, should all 5 go forward in their current form, could potentially deliver in the region of 1,695 dwellings, far in excess of what is required (approximately 295 dwellings, i.e. the 900 minus the 605 dwellings).
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions 21 Assessment December 2011. Figure 11: The Agreed Sites for Inclusion in the Core Strategy Strategic Sites Consultation
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions Assessment 22 December 2011.
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions Assessment 23 December 2011.
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions Assessment 24 December 2011.
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions Assessment 25 December 2011. Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions Assessment 26 December 2011. Prepared by: Zoe Bernard-John
Job Title: Senior Planning Policy Officer
Service Name: Planning and Regeneration
23 December 2011
If you would like this information in another format please contact:
Cornwall Council County Hall Treyew Road Truro TR1 3AY
Telephone: 0300 1234 100
Email: [email protected] www.cornwall.gov.uk
Bude, Stratton, Flexbury and Poughill Framework: Urban Extensions 27 Assessment December 2011.