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FINAL REPORT Cambridge, Milton Keynes and Oxford Future Planning

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FINAL REPORT Cambridge, Milton Keynes and Oxford Future Planning Cambridge, Milton Keynes and Oxford Future Planning Options Project FINAL REPORT NOVEMBER 2017 TABLE OF CONTENTS EXECUTIVE SUMMARY 3 MAIN REPORT 1.0 Introduction 7 2.0 Spatial Framework 29 3.0 Typologies and Case Studies 39 3.1 Town Centre Intensification 43 3.2 Suburban Intensification 47 3.3 Edge Intensification 53 3.4 Strong Edge and Satellite 59 3.5 Compact City - Urban Extension 65 3.6 New Small Settlement 71 3.7 New Town 77 3.8 String City 83 3.9 New City 89 Produced for: The National Infrastructure Commission 4.0 Conclusions and Recommendations 95 Eastcheap Court 11 Philpot Lane London EC3M 8UD APPENDICES 103 A Corridor Definition Maps 105 B Background Mapping 109 C Spatial Framework Drawing Sequence 119 by: D Best Practice Examples 127 E List of references and sources 139 Cambridge, Milton Keynes and Oxford Future Planning Options Project EXECUTIVE SUMMARY INTRODUCTION OVERARCHING OBJECTIVE SCALE OF THE CHALLENGE CASE STUDIES The Oxford-Milton Keynes-Cambridge corridor The Chancellor of the Exchequer asked that the Savills’ report for the NIC, The Property Market in the Having established that a spectrum of forms of encompasses a line of towns and cities some 50 National Infrastructure Commission (NIC): Corridor (2016), established three potential housing housing may be useful in delivering the corridor’s miles out from London, each with an unusually growth scenarios reflecting different levels of housing needs, this study went on to examine a wide range of productive economy. The corridor is bookended by “make recommendations to maximize the potential of delivery within the corridor (see page 9 for further settlement typologies in further detail – from the scale two world-class universities, and contains a fine grain the Cambridge – Milton Keynes – Oxford corridor as discussion). of a small village up to city the size of Milton Keynes, of research locations and educational institutions, as a single, knowledge intensive cluster that competes and embodying radically different approaches. well as 9 of the UK’s top 100 high growth tech firms. on the global stage, whilst protecting the area’s high For the purpose of this report, this study explores a Each of those places is established on the strong quality environment and securing the homes and transformational scenario which supposes a rate of This investigation was conducted through a series radial transport network emanating from the capital, jobs the area needs. The commission will look at delivery of 23,000 homes per year, which, with a time of nine speculative case studies. Each case study the strength of which has eclipsed effective concentric the priority infrastructure improvements needed and horizon to 2050, equates to a population increase involved applying a given typology to an appropriate connectivity. Currently experienced, links between assess the economic case for which investments of 1.4 million people within the area defined by the real world site - allowing an understanding of their these places are weak: the corridor is not a functional would generate the most growth.” Savills study. As evidenced in Chapter 1, this matches strengths and weakness, their suitability in different one in terms of east-west interrelationships. the average rate of population growth of the last situations and contexts, and the particular conditions In support of this inquiry, 5th Studio were appointed century. or qualities needed for the success and sustainability Yet obscured by the awkwardness of transitioning to: of a particular typology to be explored and illustrated. between these places are strong latent continuities, With the addition of a share of London’s housing and not only in terms of economic orientation and “reach conclusions and make recommendations for need (that might not be able to be met within its own The list of typologies investigated in detail is as growth. To a geologist this landscape really is the forms of housing development that best fit the boundary) these figures would increase to 30,000 follows: a corridor, united by a common clay watershed needs of the corridor, meeting housing need and homes per year and a 1.9 million total population substrata which has brought similar influences to the supporting jobs and growth.” increase to 2050. 1. Town Centre Intensification settlements within it, each shaped and defined by the 2. Suburban Intensification major rivers flowing through the territory. This report is the conclusion of that investigation, While it would certainly be possible to build fewer 3. Edge Intensification examining where development could occur to homes, or take longer to deliver them, this scenario 4. Strong Edge + Satellite Competing on a global stage, the knowledge-driven maximise the value of planned and committed seems to best illustrate the spatial challenges in the 5. Urban Extension economy of this collection of cities is impressive, but infrastructure investments. corridor. 6. New Small Settlement (i.e. new village) its future economic health is threatened by a lack of 7. New Town suitable and affordable housing, and the appropriate This study illustrates what this scale of growth looks 8. String City connective infrastructure to support ‘good growth’. INTERIM REPORT FINDINGS like, beginning from the coarse grain representation, 9. New City The congestion caused by inward commuting and ultimately refining that into an illustrative spatial threatens the environment, and the productivity of The NIC published an Interim Report on the corridor scenario. These case studies are presented in detail in Chapter Oxford and Cambridge in particular. The question of in late 2016. 3, and the findings from each has informed the housing has been delegated to the market, which, conclusions and recommendations of this report as left to its own devices, is failing to deliver adequate The Commission’s central finding was that a NEW PLACES set out on the following page, and in more detail in numbers and is also making poor use of finite lack of sufficient and suitable housing presents a Chapter 4 resources. The diagrams on page 22 illustrate the fundamental risk to the success of the area. Without It is unlikely that the ‘transformational’ (or indeed the scarce nature of available land on which to build in the a joined-up plan for housing, jobs and infrastructure lower ‘incremental’) levels of growth can be sustained corridor. To paraphrase Mark Twain “land - they ain’t across the corridor, it will be left behind by its if focussed exclusively around existing towns making it any more”. It is critical that this resource is international competitors. By providing the foundations and cities, given the constraints of their contexts used to its full potential in support of a regional-scaled for such a strategy, new east-west transport links and limitations on the expansion of their existing vision for accommodating growth. present a once-in-a-generation opportunity to secure infrastructure. A wider range of approaches therefore the area’s future success. need to be considered, including the development This study implicitly explores the potential that could of wholly new settlements, in order to reach those emerge from making the corridor more functional, The Cambridge-Milton Keynes-Oxford corridor faces projections. using road and rail infrastructure to link existing a chronic under-supply of homes, made worse by economic clusters in a way that creates more than poor east-west transport connectivity. Two of the least East West Rail and the Expressway, if routed affordable cities in the UK lie within the corridor, and the sum of its parts. A more connected corridor and specified correctly, could enable substantial would establish a stronger sense of unity, but it is the area as a whole has consistently failed to build the opportunities for the growth of new settlements essential that this is achieved in a way that reinforces number of homes it needs. between Bicester and Bletchley, in Marston Vale, at the diversity and different contributions of the places Sandy, and between Sandy and Cambridge. along the way. Final Report: Cambridge, Milton Keynes and Oxford Future Planning Options Project Executive Summary Page 4 of 144 5th studio INTEGRATED SPATIAL & TRANSPORT SINGULAR AND DIVERSE BEST PRACTICE EXAMPLES PLANNING GOVERNANCE & NEXT STEPS While we believe that a stronger singular identity To illustrate the potential of particular typologies, this the corridor, and this study highlights a missing scale will demand strong political leadership and democratic for the corridor has the potential to unlock a series report draws upon exemplars from both the UK and of infrastructure planning and expertise at the level support. of benefits to support economic resilience, greater abroad of world class urban design and architecture. of the metropolitan network. This “missing scale” of coherence needs to be balanced by a strengthening connectivity - which might be light rail, tram or bus This study is intended as a starting point for planning of the identity of each place. The study commenced with a thorough review of best services - is critical in resolving city congestion issues authorities to develop a co-ordinated corridor-wide practice examples and the creation of a series of case and “final 5 mile” connectivity, but, with the exception vision, within which their own plans can be related. It The “high quality environments” that make the studies which informed the development of typologies. of London, has not been part of local area planning identifies three types of sub-regional spatial planning, settlements in the corridor attractive are threatened Relevant themes drawn from these exemplars include: and delivery for some time: the repercussions of nested within the overall framework: by generic approaches to development which do not which are evident. recognise and celebrate the particular qualities and 1. Oxford and Cambridge City Regions • Neighbourhoods should be organised around contexts of each location.
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