Cornwall Structure Plan Structure Plan 2004 Cornwall Structure Plan October 2004 Cornwall Structure Plan 2004

Foreword

I am most pleased to be associated with the preparation of the Cornwall Structure Plan. It is the last Structure Plan to be prepared for Cornwall but in many ways the most important. It provides us with an up to date framework for future development and transport in Cornwall at a time when the Government's new planning system starts to unfold.

We believe it to be a plan for its time. It is shorter and more concise than most and clearly focused on strategic development issues that impact across the whole of Cornwall. To achieve its aims we will work closely with a number of bodies particularly the District Councils in translating the Plan into their more detailed local development documents. I am grateful for the help and assistance we have received from a wide range of organisations and individuals during consultation on the plan's content.

Of course we cannot always take on board all the different and sometimes conflicting views expressed. However we have considered all the issues carefully and the result is more robust policies which I commend to the people and businesses of Cornwall and all other users of the plan.

Mr Robert Hichens, Executive Member for Strategic Planning and Transport Cornwall County Council. Foreword Cornwall Structure Plan 2004

Contents

Foreword Introduction 1 Vision 2 Layout of the Plan 3

Section One County-wide Policies Policy 1 Principles of Sustainable Development 6 Policy 2 Character Areas, Design & Environmental 8 Protection Policy 3 Use of Resources 13 Policy 4 Maritime Resources 16 Policy 5 Minerals 18 Policy 6 Waste Management 20 Policy 7 Renewable Energy Resources 21 Policy 8 Housing 25 Policy 9 Mix & Affordability of Housing 29 Policy 10 Location of Housing Development 31 Policy 11 The Urban & Rural Economy 33 Policy 12 Sites & Premises for Employment 36 Policy 13 Tourism and Recreation 38 Policy 14 Town Centres and Retailing 40 Policy 15 Implementation, Monitoring & Review 42

Section Two Spatial Strategy Policy 16 Overall Distribution of Development 44 Policy 17 -Pool- 46 Policy 18 Falmouth-Penryn 48 Policy 19 49 Policy 20 50 Policy 21 51 Policy 22 52 Policy 23 53 Policy 24 South East Cornwall ( & ) 55 Policy 25 Other Main Towns & Local Centres 57 Policy 26 Rural Areas 58

Section Three Transport and Accessibility Policy 27 Transport Strategy (and Proposals) 62 Policy 28 Accessibility 65 Key Diagram Contents Cornwall Structure Plan 2004 1

Introduction

1. The role of the planning process is to amended to take on board many of the bring about the most efficient and comments made during consultation effective use of land in the public and most of the recommendations interest. This is achieved through the made in the Report of the Panel which framework of policies set out in held the Examination in Public in 2003. development plans. These policies form the basis for day to day planning Planning Reforms decisions. The reforms to the planning system, 2. The Structure Plan forms a key introduced by the Government in element of that framework. It sets out 2004 involve the abolition of both the long term strategy for development Structure and Local Plans as well as in Cornwall, considering priorities for Regional Planning Guidance. They will the economy, transport and the be replaced by Local Development environment. The more detailed set of Documents and statutory Regional policies in District-wide Local Plans1 or Spatial Strategies. These will form Local Development Documents (LDD’s) Cornwall's new Development Plan. must relate to this. The Structure Plan, The necessary changes in primary in turn, has to be broadly in line with legislation include transitional the Government's national and regional arrangements from the old to the new planning policy. system. It is vital that the Development Plan is kept up-to-date and relevant. 3. The Development Plan2 does not For these reasons the Government has stand alone. The land use strategy must stressed the importance of continuing take account of and be supported by the current round of local and other strategies and programmes if its structure plan reviews. objectives are to be achieved and This Structure Plan responds positively contribute to an improved quality of life to the new agenda. It focuses on key in Cornwall. strategic issues and aims to present 4. The Structure Plan has undergone a and explain its policies and proposals rigorous process of public consultation in a streamlined and succinct manner. and Examination in Public. It has been

1The Planning and Compulsory Purchase Act 2004 introduces Local Development Documents to replace District-wide Local Plans. 2The Development Plan for Cornwall consists of the County Structure Plan, District-wide Local Plans and the Waste and Minerals Local Plans (where District Wide Local Plans are to still be adopted the Cornwall

Countryside Local Plan is extant). From the commencement of the new Planning Act the Regional Spatial Introduction Strategy (RSS) will also form part of the Development Plan. Cornwall Structure Plan 2 2004

5. The Plan was adopted on 6th 10. Crucially, sustainable development September, 2004 and became provides the core values that must operational on that date. It replaces the underpin other strategies and previous Plan adopted in 1997. It is programmes which relate to the now a key component in the interim objectives of our planning strategy. arrangements for the new local planning Particularly important in this respect are framework: Cornwall's new the emerging Community Strategies4 Development Plan. which are to be prepared by local authorities in order to promote the Sustainable Development economic, social and environmental 6. The County Council adopts the well-being of their areas and to Government's sustainability agenda as contribute towards sustainable the cornerstone of the Structure Plan development. These are overarching and recognises the important role the strategies and their land use planning system has in achieving these implications need to be implemented objectives. Its policies and proposals through the Development Plan. need to contribute towards : Vision • social progress that recognises the needs of everyone. 11. The long term vision for the Plan • the protection of the environment. puts the interests of social, economic and environmental wellbeing at the • the prudent use of natural resources. heart of the land use policies for the • higher and stable levels of economic County. This was established in the growth and employment 1997 Plan and has been amplified in 7. The Plan's policies have been subject the Cornwall Community Strategy. The to a Strategic Appraisal3 that has helped vision for this Plan is therefore: formulate and test its policies against Cornwall as a special place with a economic, social and environmental strong and sustainable community - objectives. its distinctive physical and cultural 8. Sustainability requires us to look at qualities protected and enhanced, the effects of our decisions over the recognised in the United Kingdom long term. It also requires us to think and Europe and providing the basis carefully about how the core strands of for a sustainable quality of life and sustainability, that is the economy, environment for its people, reflected society, the environment and the in a County: efficient use of resources, can complement each other in Cornwall. • with an ecologically sound, aesthetically pleasing and pollution 9. In Cornwall, sustainability must free environment; encompass many diverse issues in a relevant way including issues faced by • where individual communities are our main urban areas, the changing able to feel safe, flourish, retain roles of the smaller settlements and the their distinctiveness and contribute issues faced by the more rural areas. In to the way of life of their people; addition, consideration should be given • where all sectors of the population to global issues of sustainability where are suitably housed; appropriate.

3A Strategic Appraisal has been carried out to assess the Plan's policies and proposals against economic, social and environmental objectives. The results of the appraisal are available as a background paper to the Plan. 4Community Strategies - The Local Government Act 2000 requires local authorities to prepare strategies that Introduction will focus, shape and co-ordinate existing and future activity in their area so that they effectively meet community needs and aspirations. The strategy should be based on a partnership approach between Councils, the public, voluntary, community and private organisations. Cornwall Structure Plan 2004 3

• with a strong and sustainable core county-wide policies relating to the economy, able to employ all key aims of sustainable development in residents seeking jobs, in fulfilling respect of: work, based on development which • the environment and the prudent does not compromise its natural use of resources, including minerals, strengths and resources; waste and energy (Policies 2-7) and • with a commitment to promote • policies for economic and social health, tackle preventable disease needs, including resources and and provide high quality support implementation (Policies 8 - 15). and care to those in need; 15. Section Two sets out the • where all the population has access settlement strategy and it’s key spatial to a wide range of services and elements considering development and community facilities, including the transport issues in relation to: best in education and training, and • the seven main centres (Strategic can share in the attractions and Urban Centres) of Bodmin, qualities of the County; Camborne-Pool-Redruth, Falmouth- • where access is provided for Penryn, Newquay, Penzance, St. people and goods by an Austell and Truro, appropriate, effective, and more • Saltash and Torpoint and the energy efficient and relationship with environmentally friendly transport • the other main towns and local system. centres, and 12. This vision is the corner stone of • the rural areas, (Policies 16 - 26). the whole Plan. Each policy supports 16. Section Three deals with one or more components of the vision. transport and accessibility setting out The achievement of the vision, as it supporting transport policies and relates to development and transport, is proposals, including accessibility issues reflected in the Plan's objectives that are (Policies 27 & 28). set out within each policy. 17. Importantly the Plan should be Layout of the Plan read as a whole. Key elements of policies are not duplicated but still 13. The Plan is intended to be easily apply to issues where relevant. understood and has been drafted to complement other strategies for Monitoring and review Cornwall and the South West. It is divided into three main policy sections 18. Evidence based policy sums up the that are also supported by the Plan's approach taken in this Plan to the Key Diagram. development of its policies. It makes good sense to base policies on the latest 14. Section One looks at sustainable available and relevant information. The development and what it means for Government promotes a “Plan, Monitor, future development in Cornwall. It Manage” approach for housing provides an overarching set of policy provision. This is also relevant to other principles (Policy 1) and sets out the policy areas. Introduction Cornwall Structure Plan 4 2004

19. This is the last Structure Plan that will be produced for Cornwall. The policies of the Plan will need to be reviewed and carried forward as appropriate in the new style Regional Spatial Strategy or Local Development Documents. Consistent with the Government's reforms of the planning system, a slimmer, more focused Plan, that can be quickly updated in response to changing circumstance, has been produced. This will lend itself to future monitoring review within the context of the new types of development plan to be produced. 20. Key partners in this process are Cornwall's District and Borough Councils as well as other statutory agencies and Parish Councils. Monitoring is important and needs to be undertaken in partnership with local authorities and others. Introduction Cornwall Structure Plan 2004 5

County-wide Policies 1 County-wide Policies Section One: Cornwall Structure Plan 6 2004

Policy 1 Principles for Sustainable Development

Development should bring about a long term and sustainable improvement to Cornwall's economic, social and environmental circumstances without harming future opportunity. Development should be compatible with: • the conservation and enhancement of Cornwall's character and distinctiveness; • the prudent use of resources and the conservation of natural and historic assets; • the regeneration of towns and villages in meeting the needs of their population and surrounding area; • fostering the links between the environment and the economy; • a reduction in the need to travel, whilst optimising the choice of modes, particularly opportunities for walking, cycling and the use of public transport; • access for all sectors of the community to well paid and rewarding employment, satisfactory housing and adequate services and facilities; and • meeting needs where they arise.

21. Development must contribute 22. Development should enable towards sustainable development and economic prosperity for the people of the enhancement of the quality of life Cornwall, ensure everyone has in Cornwall. Policy 1 requires this and reasonable access to services and sets out the key principles against which facilities and also make a positive development will need to be assessed. contribution to the environment. These Cornwall has a distinct blend of culture, principles are developed further in wildlife, geology, landscape and subsequent policies of the Plan. townscape qualities. It has a range of Development is unacceptable where it towns and villages supporting in is in conflict with these principles. different ways the needs of their local communities. County-wide Policies Section One: Cornwall Structure Plan 2004 7

23. To contribute to these principles, (Rio Conference 1992). Respect for the development should focus on the environment should not be seen as a regeneration of our towns and villages negative influence on the present nor to meet our social and economic needs. indeed a constraint on a brighter future. This can do most to safeguard and Cornwall's rich and diverse character is enhance our environment and provide the bedrock, upon which sense of place for jobs, services and facilities for and quality of life is founded. Through everyone in locations where they are developing the principles of Policy 1 it most needed. The location of is intended to integrate environmental development in relation to transport values with land use and transport provision is also vital. Access is needed policies, achieving patterns of development for all sectors of the community to a that reflect strong environmental range of services and facilities. At the protection and stewardship of same time we need to reduce the resources. harmful effects of transport on the global and local environment. Dependency on the private car will remain in Cornwall for many journeys but this in no way diminishes the importance of reducing its usage. The long term development strategy is underpinned by the need to ensure that the most accessible location (by all means of travel) is chosen to meet the particular development need. 24. The environment and the economy are strongly linked in Cornwall. Development must always seek to enhance their inter-dependence rather than promote one at the expense of the other. The environment underpins the tourism and leisure industries, attracts new investment, provides a strong marketing platform for Cornish products and supports the traditional primary industries of farming, fishing, mining and quarrying. 25. When applying Policy 1 to development decisions it is important to consider the precautionary principle: "where there are threats of serious or irreversible damage, lack of full scientific certainty shall not be used for postponing cost effective measures to prevent environmental degradation" County-wide Policies Section One: Cornwall Structure Plan 8 2004

Policy 2 Character Areas, Design & Environmental Protection The quality, character, diversity and local distinctiveness of the natural and built environment of Cornwall will be protected and enhanced. Throughout Cornwall, development must respect local character and: • retain important elements of the local landscape, including natural and semi-natural habitats, hedges, trees, and other natural and historic features that add to its distinctiveness; • contribute to the regeneration, restoration, enhancement or conservation of the area; • positively relate to townscape and landscape character through siting, design, use of local materials and landscaping; • create safe, aesthetically pleasing and understandable places; • consider, where appropriate, a mix of uses that create vibrant and active places, including tenure, size and densities. Local plans should define Character Areas to inform planning decisions taking into account Regional and County-wide landscape assessments. The conservation and enhancement of sites, areas, or interests, of recognised international or national importance for their landscape, nature conservation, archaeological or historic importance, including the proposed World Heritage Site, should be given priority in the consideration of development proposals. Within Areas of Great Landscape Value and other areas or sites of county-wide significance for their biodiversity, geodiversity or historic interest, development proposals will be required to respect those interests. The following areas are of Great Landscape Value and are shown on the Key Diagram: St Buryan Helman Tor and Luxulyan Valleys Halsetown and St Ives Bay Boconnoc Godolphin and Tregonning Hills Mid- Carn Brea, Carnmenellis and Carn Marth Hill and Seaton Valleys Gweek and Constantine South-East Caradon St Gluvias Lynher Valley Devoran/Killiow Inny Valley and Lawhitton St Erme- Tresillian North Petherwin to St Clether County-wide Policies Fal Valley Upper Tamar Perranporth and Holywell Week St Mary Watergate and Lanherne Coast

Section One: Camel and Allen Valleys Gooseham to Launcells. Cornwall Structure Plan 2004 9

26. People appreciate and value important element in sustainable Cornwall's varied character and local development and one in which local distinctiveness. Where there is physical authorities must play a vital role through evidence of this character it should be example and encouragement. Good retained and where development is design should take full account of and proposed, it should reflect and respect these features. consolidate the character of Cornwall's natural, semi-natural and man made environments: wildlife, biodiversity, Better Design geodiversity, history, landscape, The new Design Statement for townscape and people. Cornwall - 'Achieving Quality in the 27. Policy 2 embraces the landscape Built Environment' (commissioned by the County Council with financial character assessment approach as a support from all six District Councils, basis for assessing development impacts. the South West Regional It also fully supports national policy Development Agency and the (together with Policy 3) to protect the Environment Agency) sets the countryside for the sake of its beauty, benchmark for future Cornish the diversity of its landscapes, wildlife architecture and major development, and wealth of natural resources. focusing on achieving the highest 28. The County Council will work with quality in the built environment, whilst the District Councils and other partners respecting the 'Cornish context' and on the implementation of the character local distinctiveness. area approach. Further guidance will The Design Statement (published in inform decisions across the County 2002) sets out how to achieve good encompassing both the rural and urban design and is structured around two environment. In the interim the 1994 main strands - the characteristics of Landscape Assessment of Cornwall good design in Cornwall and the (published by the County Council) process of developing good and should be used to inform development sustainable design. considerations along with the ongoing Cornwall is a diverse place and there Cornwall and Scilly Urban Survey and is no standard approach. Instead new Cornwall Industrial Settlements buildings should fit into a wider Initiative. The latter is particularly setting, creating places that are unique significant for informing and guiding to Cornwall and embedded in the change in historic settlements. community. 29. Development must be compatible It is intended that the Design with the conservation of Cornwall's Statement is reflected within the historic and natural heritage. This is not statutory planning system. Support is just confined to designated areas. Local needed from all District Councils to features are an important element of adopt the principles of the Design local character and all too often these Statement in Local Development elements are lost by gradual attrition. Documents. The protection, conservation, interpretation and stewardship of the environment for future generations is an County-wide Policies Section One: Cornwall Structure Plan 10 2004

Landscape Character Assessment (LCA) helps address "effective environmental protection" and prudent use of natural resources. In particular it can help: • identify the environmental and cultural features in a locality. • monitor change in the environment. • understand a location's sensitivity to development and change. • set the conditions for any development and change. LCA comprises two stages - characterisation and then making judgements. Nationally a Character Map of England has been published by the Countryside Agency and English Nature. This defines landscape character areas throughout the country. Within Cornwall there are 7 national character areas: The Culm, Cornish Killas, , Hensbarrow, Carnmenellis, Lizard and West . These have been further redefined in a county assessment, Cornwall Landscape Assessment 1994, into 28 individual character areas. The boundaries are generalised and often indicate where there is transition rather than marked changes on the ground. Determination of these character areas has brought together the components of the Landscape and the Historic Landscape Assessment creating a broad picture. Further work needs to be carried out to incorporate changes that have taken place over the last 10 years and to amplify the description, particularly in respect of the implications for development. Implementing a Character Approach The County Council will work with the District and Borough Councils and other partners on the implementation of the character approach. Initially it is proposed to make the 1994 Landscape Assessment more accessible to decision makers identifying more clearly for different character areas key characteristics, landscape sensitivity and environmental components with guidelines relating to their conservation. The aim will be to produce a Cornwall guide to the character approach - identifying for different areas the key implications for developments, including priorities for finer grain assessments. This work will underpin District Council preparations of Local Development Documents. To create clearer guidance, there is the opportunity to establish Landscape Character Policy Areas that have clear goals and objectives especially in terms of local distinctiveness, historical landscape and semi-natural vegetation. The basic information already exists in the Cornwall Landscape Assessment 1994

County-wide Policies but this, importantly, will be supplemented by the Urban Surveys and updated with additional information on the historic environment and from the Biodiversity Action Plan. Section One: Cornwall Structure Plan 2004 11

30. The Cornwall Biodiversity Initiative 33. These sites and areas require the and the Biodiversity Action Plan5 are strongest protection from any adverse complementary to development plans; effects arising from development, they also provide an important resource including any cumulative impact. The base to inform the character approach. key tests for the consideration of 31. It should be recognised that good development that may affect these areas quality development can and should are set out in national policy guidance. enhance Cornwall's valued and special Full account needs to taken of the environment. The landscapes and specific features or qualities which townscapes of Cornwall are the justified designation of the area, and combination of the natural environment sustain or further the purposes of that and the influence of people over designation. This must include the centuries. Continuous investment is relative weight to be given, where needed to keep Cornwall a place where appropriate, to the significance of people want to live, work and visit. international, national and local New buildings and spaces are the most designations. noticeable products of the planning 34. The impact of development on system and will always affect the these areas will require careful environment in some way. It is, consideration. To be acceptable the therefore, important that all need for the development will have to development has a positive effect on outweigh the reasons leading to the the environment through good design. designation. 32. The character area approach sits alongside and informs development plan policies and designations. It is a holistic approach that applies to all Historic Settlements areas as well as being integral to areas There is a need to take a more holistic of recognised national or international approach to Historic Settlements than significance. Such sites and areas in the 1997 Plan, in recognition of the include: special historic character of Cornwall's medieval, industrial, coastal and • Areas of Outstanding Natural Beauty tourist settlements. The historic • National Nature Reserves character of many of these settlements is being studied by the ongoing • Sites of Special Scientific Interest Cornwall and Scilly Urban Survey and • Special Areas of Conservation Cornwall Industrial Settlements Initiative which will build on the • Special Protection Areas Cornwall Landscape Assessment and • Scheduled Ancient Monuments provide further guidance on development in these urban areas. • Conservation Areas • Buildings, Parks and Gardens of Special Architectural or Historic Interest (Listed Buildings) County-wide Policies

5 The Cornwall Biodiversity Initiative is a partnership of over 100 organisations and individuals with an

interest in protecting Cornwall’s biodiversity. The Initiative published Cornwall’s Biodiversity Volume 1: Audit Section One: and Priorities in 1997 followed in 1998 by an Action Plan; the latter aims to facilitate the delivery of the UK Biodiversity Action Plan at the local level. Cornwall Structure Plan 12 2004

35. In addition, it is still considered important to identify particular areas Nature conservation and planning is not confined to statutory and non- and sites of special importance in the statutory sites and landscape features - County. The Areas of Great Landscape certain wild plants and animals, Value were reviewed in the preparation including all wild birds, are protected of the previous Structure Plan (1997) on under the Wildlife and Countryside the basis of the Cornwall Landscape Act, whilst some other animals either Assessment and have now been have their own legislation (eg. incorporated in District-wide Local Protection of Badgers Act) or are Plans. These are carried forward in the otherwise protected by international revised Structure Plan. agreements such as the Birds and 36. The coverage, role and objectives Habitats Directives. of the former Areas of Great Historic Value and Areas of Great Scientific Value will be more effectively achieved through the proposed character approach complemented by the protection of key sites and areas of County importance. These will include, for example, the Cornwall Wildlife and Geological sites which represent an important environmental resource. Archaeological and historic sites are registered in the Historic Environment Record maintained by the County Council and wildlife and geological sites are recorded at the Environmental Records Centre for Cornwall and the . County-wide Policies Section One: Cornwall Structure Plan 2004 13

Policy 3 Use of Resources

Development must be compatible with the prudent use of natural and built resources and energy conservation. Development should: • give priority to the re-use of previously developed land and buildings to meet development needs including, where appropriate, derelict land reclamation; • protect the best and most versatile agricultural land; • avoid land at risk from flooding, following a sequential approach to site selection ensuring priority is always given to low risk areas; • utilise sustainable drainage techniques dealing with surface water run-off as close to source as possible; • avoid, directly or indirectly, risk of significant levels of pollution or contamination to air, land, soil or water, including noise and light pollution; • facilitate energy conservation and the utilisation of renewable energy sources reducing energy consumption and CO2 emissions; • follow sustainable construction principles including consideration of the use of resources, energy efficiency and local materials.

37. Policy 3 sets out ways in which 38. Development should always make development must contribute to the the best use of existing land and prudent use of resources. This will be buildings. A number of policies in the important in respect of the location and Plan reflect this principle. It is siting of proposals and also in terms of particularly significant in terms of the design and construction. These contribution to meeting future housing considerations can make an important (Policy 10) whilst the utilisation of contribution to reducing the demand redundant buildings in the countryside for energy, improving efficiency, and can be important in meeting rural utilising renewable energy production. development needs (Policy 26). A further aspect is the relationship of However, not all previously developed development to the resources needed land or buildings are necessarily in the to sustain it, either physical right location for certain forms of infrastructure or community facilities. development. This might, for example, These issues are dealt separately in be due to accessibility or traffic Policy 15. considerations. Similarly previously County-wide Policies Section One: Cornwall Structure Plan 14 2004

developed land, particularly derelict off to be reduced or controlled as near land in Cornwall, may have particular to the source as possible. These historic, wildlife or landscape important principles are enshrined in importance that should be protected. Policy 3 and will need to be 39. The best and most versatile implemented at the local level agricultural land remains an important (including securing responsibility for resource that should be protected. It is, future maintenance of sustainable and will remain, best suited to adapting drainage). to the changing needs of agriculture and 42. Pollution can adversely affect the proposals to change its use will raise environment and our quality of life. The issues of national interest. Its County Council is committed to the development will be confined to minimisation of pollution to land, air circumstances where the need to (including the minimisation of noise and conserve such land is outweighed by light pollution) and water. The planning the importance of the development and system plays a key role in determining the lack of alternative sites. the location of development which may 40. The planning system, along with give rise to pollution and ensuring that the controls of agencies such as the development is not affected by it. These Environment Agency, has an important matters will largely depend on detailed role in ensuring that people and planning decisions and Policy 3 reflects property are not put at risk from the importance of this. The Plan's flooding including tidal inundation. policies for transport and accessibility, Within river and coastal floodplains new which seek to reduce the need for development may be liable to flooding travel and encourage alternative modes or increase the risk of flooding to the private car, is a major way in elsewhere by reducing storage capacity which planning policies can contribute or impeding flood flows. Development to improved air quality. anywhere in the catchment area may 43. The planning system also has a vital increase surface water run-off adding to role to play in the overall management the risk of flooding, pollution or damage of contaminated land. The importance to river habitats. The threats associated attached to brownfield development with global climate change point to sea often means dealing with contaminated level rises and an increase in storm land and the recycling of such land can incidence, both of which will add provide the opportunity to deal with further risk of flooding, as well as threats posed by contamination to coastal erosion, with an impact on land health and the environment. In resources and infrastructure. Cornwall, the effects of mining industry, 41. National policy (PPG 25) requires a including underground or surface sequential test in respect of collapse and disturbance to spoil heaps, development and flooding to ensure all have possible impacts on water that development does not proceed in supplies and the water environment areas at risk of flooding where generally as well as implications for alternatives are available. Sustainable development on unstable land. Where drainage techniques are also development may affect an area of encouraged, enabling surface water run- contamination or unstable land, a full County-wide Policies Section One: Cornwall Structure Plan 2004 15

analysis of the site and an assessment of the direct or indirect risks associated Energy conservation in development with the proposal should be carried out. has an important role to play in The precautionary approach to reducing wasted energy. Building contaminated and unstable land in materials, siting and overall design can planning decisions is of great contribute to energy efficient buildings importance. and facilitate the incorporation of renewable energy sources. 44. Local Development Documents have a key role in providing Sustainable construction should development that promotes energy promote environmental, social and considerations relating to the siting and economic gains now and for the design of new development. They also future. Key elements include: have a key role in providing for development that incorporates energy • careful siting taking account of efficiency or generates energy from existing infrastructure, heritage and renewable sources, although changes in culture the scope of planning control may be • the best use of recycled and local required to enable this to be materials as well as local skills and implemented most effectively. labour 45. Notwithstanding this it is important • energy saving design and that local authorities encourage construction methods negotiation with developers on the potential for on-site renewable energy • community involvement from the provision where appropriate. design stage to completion • easy adaptation to alternative uses. County-wide Policies Section One: Cornwall Structure Plan 16 2004

Policy 4 Maritime Resources

An integrated and co-ordinated approach to the coast will be taken to support the economic importance and conservation value of the maritime environment. Development relating to the coast, estuaries and maritime environment should be considered against the need to ensure the conservation of the environment for its own sake and for the economic importance of fishing and the other activities it supports. Development should avoid pollution of coastal or marine waters and minimise any harmful effects on coastal processes. Development should be within or well integrated with the existing developed coast and help enhance the quality of the environment and economic regeneration of the coastal towns. Waterside sites within the developed coast should be safeguarded for uses needing such locations giving priority to maritime industries. The undeveloped coast should be protected. Local plans should designate coastal zones where appropriate to take account of economic and social opportunity and environmental protection

46. Cornwall's coast represents a major 47. The coast and estuaries offer some resource. Many aspects of Cornwall's of the finest examples of maritime and economy are based on its maritime marine habitats in England. The waters resources. This includes its fish stocks off Cornwall contain many sites of and the availability of naturally national or international marine occurring deep water harbours, together biological importance, both for diversity with the associated range of economic and numbers of marine species present, activities serving the fishing and as well as archaeological sites. On land, commercial port activities as well as the much of Cornwall's coast is designated leisure and tourism sectors. Where as an Area of Outstanding Natural these uses compete for this limited Beauty, reflecting the quality and value resource, the policy favours economic attributed to the coastal landscape. activity that requires direct access to the About a quarter of England's Heritage maritime environment. Coast is in Cornwall where the needs of conservation and pressures of recreation need to be considered in a co- ordinated way. County-wide Policies Section One: Cornwall Structure Plan 2004 17

Government policy encourages the definition of coastal zones and development of associated policies at the local level. The principle of a co- ordinated and integrated approach is particularly important in Cornwall. Arguably the whole County is influenced to some extent by the sea and this may affect the need for specific coastal zones to be identified in all Districts. The underlying aim is not only the sustainability of the natural resource but the important economic resources this provides. It is fundamental to the aims of this Plan that these two strands are considered together to ensure that both the natural resources and their economic activities are managed as effectively as possible. County-wide Policies Section One: Cornwall Structure Plan 18 2004

Policy 5 Minerals

Mineral resources should be conserved and managed to provide a steady supply of minerals to meet needs subject to environmental and social considerations and the need for high standards in restoration and aftercare. Development should ensure: • the conservation of the mineral resources; • a steady supply of minerals is available; • impacts on the environment are minimised and encouragement is given to the use of secondary or recycled aggregates; • an increased use in non road based transport; • the improvement of operational standards at all mineral workings; • that high standards of restoration and aftercare are secured on a progressive basis; • that adequate overall capacity for mineral wastes arising in Cornwall is provided for during the Plan period.

48. Cornwall's minerals industry makes conserving the mineral resource whilst a significant contribution both to the enabling a steady supply of minerals economy and the physical appearance (where compatible with the need to of the environment. The exploitation of protect the environment); encouraging Cornwall's diverse mineral resource greater efficiency and effectiveness of produces a wide range of minerals, mineral usage; continuing to promote some of which are of international the reuse and recycling of waste significance. The industry is dominated materials (particularly china clay waste); by china clay extraction of a scale of improving standards of operation of national significance and directly mineral working and ensuring high and employs approximately 3,500 people. consistent standards of restoration. 49. The approach in this Plan is to Where opportunities arise to transport support the continued development of mineral, by rail and sea, this will be the minerals industry in Cornwall within encouraged. Cornwall has significant the context of the principle of resources of 'secondary aggregates' as a sustainability. This will necessitate by-product of the china clay industry and its exploitation will be encouraged. County-wide Policies Section One: Cornwall Structure Plan 2004 19

50. The continuing viability of the minerals industry is important for the Cornish economy as a whole. The detailed policy framework is set out in the Cornwall Minerals Local Plan6 which sets out a strategic approach to balance the need for minerals, their economic importance and environmental impact. County-wide Policies Section One: 6 Minerals Local Plan, 1998, Cornwall County Council Cornwall Structure Plan 20 2004

Policy 6 Waste Management

Overall capacity for wastes arising in Cornwall will be provided through the sustainable management of waste streams based on the principles of the waste hierarchy, the proximity principle and regional self-sufficiency. Development should be compatible with: • the minimisation of waste production; • the protection of the environment and local amenity from significant adverse effects of waste management facilities; • high standards of design; • the management of waste as close as practicable to its origin; • the development of an integrated network of waste management facilities in accordance with the spatial strategy of this Plan; • the best practicable environmental option - that is the most environmentally and economically acceptable; • the waste hierarchy.

51. A diverse range of waste is which targets will be set) and energy produced in Cornwall including from waste technology. Adequate household, commercial, industrial, capacity for waste arising in Cornwall hazardous, clinical, waste water, scrap must be provided throughout the plan metals, mine water, port, mineral and period. All waste management activities agricultural wastes. must be carried out in such a way that 52. The management of these wastes protects the environment and the in a more sustainable manner is one of amenity of local residents from any the key challenges currently facing significant adverse effects. The detailed Cornwall. The key aim is to minimise policy framework for the management the levels of waste production and to of all wastes is set out in the Cornwall continue and accelerate the move away Waste Local Plan. from the current levels of reliance on disposal by landfill to more sustainable forms of waste management, such as re- use, recycling and composting (for County-wide Policies Section One: Cornwall Structure Plan 2004 21

Policy 7 Renewable Energy Resources

Provision should be made for renewable energy generation to maximise environmental and economic benefits whilst minimising any adverse local impacts. A range of technologies for renewable energy production (for heat and electricity) will be encouraged. Schemes for electricity generation will contribute to a Cornwall target of about 93MW of installed capacity from renewable resources by 2010. This should be through development that increases local benefits, particularly diversification of the rural economy, and minimises any adverse effects on the natural or built environment. In respect of land-based wind energy, the scale and location of development should respect landscape character and distinctiveness and reflect, in particular, county-wide priorities to avoid adverse effects on the Area of Outstanding Natural Beauty, significant intrusion into coastal landscapes, and the unreasonable proliferation of turbines in the landscape. Local plans should consider potential sites and locations for all forms of renewable energy development against these considerations and should establish clear criteria or appropriate locations for development to contribute to the Cornwall target.

53. The use and the production of energy efficiency considerations. The energy both have an effect on the role of planning policy in the location environment. The conservation and and design of development in ways efficient use of energy should be which facilitate energy conservation is encouraged in the first instance equally important. (referred to in Policy 3- Use of 54. The aim of Policy 7 is to encourage Resources) and, in addition to this, the development of renewable energy more environmentally friendly ways of resources to maximise environmental producing energy need to be and economic benefits whilst developed. Although Policy 7 is minimising any local impacts. The target concerned with energy generation from for generation capacity is based on renewable resources, the overall work undertaken for the South West approach is one that couples this with County-wide Policies Section One: Cornwall Structure Plan 22 2004

Region which identified a target range REvision 2010 for Cornwall of 93 -108 MWs by the year 2010 - just over double the REvision 2010 is a project funded by existing capacity of 45MW. This target the Government Office for the South West, in partnership with the South was based on a contribution from a West Regional Assembly. The project range of different technologies - follows on from the South West onshore wind, biomass and energy from Regional Resource Assessment carried waste being most significant. At the out by Terence O'Rourke and ETSU, same time other sources such as (also funded by the Government geothermal (ground source heat pumps) Office for the South West) and and solar energy also have an important published in 2001. The Terence role in providing heat for buildings. A O'Rourke study provided the impetus more detailed study in Cornwall behind the adoption of a regional examined the implications of the target target within Regional Planning and concluded it to be reasonable in Guidance of 11-15% of the region's respect of the likely impact on generating capacity from renewable Cornwall's landscape character - sources by 2010 (or 597 Mega Watts nonetheless in the longer term it would of renewable electricity capacity) be increasingly difficult to meet targets REvision 2010 sought to work with satisfactorily through further on-shore county, unitary and district local technologies; increasing reliance would authorities to establish seven county need to be placed on off-shore or sub regional targets for the technologies for which the longer term development of renewable electricity potential around the coast of Cornwall up to 2010. The consultation was could be very substantial. based on a detailed resource mapping 55. Taking all these matters into exercise as well as an independent consideration Policy 7 proposes a target landscape sensitivity assessment for at the lower end of the possible range onshore wind and biomass identified. At this stage the contribution development. from some technologies, such as The target range proposed for biomass, has some uncertainty to 2010 Cornwall as part of this consultation and for this reason the lower end of the process was 93-108 Mega Watts of target is more realistic but remains renewable electricity capacity by challenging. 2010, providing enough electricity to supply between 91,750-101,750 homes. The REvision 2010 project suggested that this target could be met by the breakdown of technologies shown opposite. County-wide Policies Section One: Cornwall Structure Plan 2004 23

Revision 2010 - Suggested targets for renewable energy in Cornwall Technologies Target (MW) Resource (MW) Homes Shoreline wave 1 2 750 Offshore wave 0 0 0 (0) Tidal Barrage 0 28 0 Tidal Stream 0 0 0 (0) Small-scale Hydro 3 3 1,500 Solar PV 0.2 0.2 50 Biomass 10 15 19,750 Anaerobic Digestion 2 2 3,250 Poultry Litter 0 1 0 Landfill Gas 4 4 7,500 Energy from Waste 7 23 15,500 Onshore wind 66-81 500 43,500-53,500 Offshore wind 0 0 0 Totals 93-108 577 91,750-101,750 Notes • The resource figures represent the accessible economic resource for each technology by 2010. This takes into account, economic, technical, practical and environmental designation constraints. In reaching the target figure a significant amount of the onshore wind resource was further discounted based on the results of the landscape sensitivity assessment carried out by Land Use Consultants alongside the REvision 2010 project. • Biomass includes the production of energy primarily from the combustion of energy crops like short rotation coppice or miscanthus and forest residues. • The figures in the 'Homes' column represent the estimated number of homes that could be supplied by the equivalent amount of electricity generated by each source (rounded to nearest 250). The figures assume an average electricity consumption per home of 4,000 kWh and assume appropriate load factors for each technology. The load factors take account of the intermittent nature of a number of the renewable technologies. • These figures only apply to electricity production and don't therefore cover technologies such as Solar Water Heating, Ground Source Heat Pumps or heat only Biomass installations. The figures for each technology may well differ in practice and are not meant to be targets in themselves, thereby providing greater local flexibility to respond to opportunities as they arise. However, if the overall target is to be met it is unlikely that the balance of these figures will be greatly different County-wide Policies Section One: Cornwall Structure Plan 24 2004

Cornwall Sustainable Energy 57. The County Council will undertake Partnership (CSEP) further work in association with the District Councils to support Policy 7 and The County Council supports with to inform local planning on options for other partners the work of the achieving renewable energy targets as Cornwall Sustainable Energy well as incorporating energy Partnership. Planning policies for the considerations into planning policy. development of renewable energy schemes need to be supported by a Such joint work will consider how local range of other actions to reduce development documents should energy usage, encourage energy interpret the Cornwall target working efficiency and conservation. The closely with representatives of the recently agreed Sustainable Energy renewable energy industry to identify Strategy for Cornwall helps provide appropriate criteria or locations for this wider context. proposals.

Seapower 56. Land based wind farms raise In January 2004 the South West particular strategic issues in terms of Regional Development Agency both the extent of the resource and the sponsored study 'Seapower South effects of development on the West Review' was published. Some of landscape. Future development (which the main findings of the study include: is likely to be necessary if targets are to • potential for wave capture in a be met) needs to be carefully balanced large area from the Isles of Scilly, against the effects on the character of across to the landscape. At the County level this Ilfracombe in North Devon. means that areas of national landscape importance or other sensitive coastal • for tidal stream …. good resources landscapes should not be harmed by are identified around the Isles of wind farms. Equally, no one area of the Scilly and headlands of South County should be subject to domination Cornwall and South Devon. by the cumulative effects of turbines. • scenarios for 2020 suggest that This is likely to be minimised by installed devices could total around increasing the generating capacity of 150MW to 400MW depending on existing sites in preference to new the rate of growth of the industry. locations where possible. • developers expect to be installing small arrays of devices by 2006-9 and to be developing more substantial schemes by 2008-10. County-wide Policies Section One: Cornwall Structure Plan 2004 25

Policy 8 Housing

Development should enhance the opportunities for a home for everyone in Cornwall. About 29,500 (annual average 1,970) dwellings should be built in the period 2001 - 2016. The overall amount of housing in each District in the period 2001 - 2016 will be: Penwith 3,300 (annual average 220) 5,100 (annual average 340) Carrick 6,500 (annual average 430) 5,600 (annual average 370) North Cornwall 5,100 (annual average 340) Caradon 4,000 (annual average 270) and will be distributed according to the guidance set out in the spatial strategy (Policies 16 - 26).

58. The provision of adequate housing to reduce the demand for people to is fundamental to our quality of life. At move into the County, as incomers may the same time there is concern about buy into the existing housing market at the development implications in certain the expense of local people. This is areas and the impact of population likely therefore to exacerbate the lack of growth on services, jobs and affordable housing in some areas. infrastructure. The Plan needs to be Equally to over-provide is unsatisfactory. realistic about housing requirements It is wasteful in resources and and sensitive about how we meet them. unnecessarily commits land for 59. The need for additional housing development in the absence of need. relates partly to changes that are 60. The County Council has sought to occurring in society leading to more ensure that these issues are properly households that are, on average, reflected in considering future housing smaller. A further factor is that more development in Cornwall, in the people move into Cornwall to live than context of the South West as a whole. those who move away. To provide Having addressed issues relating to insufficient housing cannot be expected Plymouth and South East Cornwall, County-wide Policies Section One: Cornwall Structure Plan 26 2004

jointly with the Devon Authorities, some redistribution of housing from Population and Household 7 Cornwall to Devon is appropriate. This Change has meant that the Cornwall figure is Cornwall's population continues to reduced from that envisaged in grow. The South West Regional Regional Planning Guidance to the Planning Guidance (RPG10) has set an equivalent of 2000 dwellings per annual rate of development for annum (a reduction of 50 per annum or Cornwall of 2050 dwellings from 1996 1000 over the 1996-2016 period). to 2016. The robustness of the RPG Integral to the policy is the "Plan, dwelling figure has been assessed at a Monitor and Manage philosophy". This technical level, with consistent means that the rates of housing assumption across the region. Actual development and assumptions that rates of development in Cornwall underpin them are kept under close since 1996 (the RPG base) have, for a review and necessary adjustments number of years, been very close to brought forward accordingly. the anticipated annual rates but have increased significantly recently. Population growth has been slightly higher than the overall average due to a higher level of growth through net migration. This initial rise is not expected to be maintained throughout the plan period. Key factors in population and household change are: • the average household size in Cornwall is 2.3 (2002). • there is currently an imbalance in deaths over births, ie. the population is shrinking due to natural causes, this imbalance averaged 1150 per annum in the period 1996 - 2000 increasing to 1500 in 2001-2002. • there is a large net gain as more people move into Cornwall than move away. The average during 1996-2000 was + 4290 per annum but increased to +7400 in 2001-2002 County-wide Policies Section One: 7The Panel conducting a joint session of the Devon and Cornwall Structure Plans recommended the redistribution of 1000 dwellings from South East Cornwall to Plymouth. Cornwall Structure Plan 2004 27

Table 1 Housing Distribution, Completions and Commitments Table does not always total due to rounding. Information drawn from the 2004 Housing Land Availability Surveys. Proposed Completions New Built With Remaining Provision 1996-2001 Provision 2001-2004 Planning Requirement 1996-2016 2001-2016 & Under Permission Construction 2004* PENWITH 4,650 1,350 3,300 1,141 741 1,400 Camborne-Pool- 4,200 780 3,420 713 458 2,250 Redruth Other 2,500 820 1,680 791 500 400 KERRIER 6,700 1,600 5,100 1,504 958 2,650 Truro 4,050 560 3,490 568 761 2,150 Falmouth/Penryn 2,200 520 1,680 454 275 950 Other 2,000 650 1,350 521 246 600 CARRICK 8,250 1,730 6,520 1,543 1,282 3,700 St. Austell 2,700 670 2,030 809* 599 600 Newquay 2,800 700 2,100 436* 488 1,200 Other 2,600 1,150 1,450 820* 860 -230 RESTORMEL 8,100 2,520 5,580 2,065* 1,947 1,570 Saltash/Torpoint 1,600 551 1,000 628 65 300 Other 3,600 654 3,000 823 674 1,500 CARADON 5200 1,200 4,000 1,451 739 1,800 NORTH 7,050 1,960 5,100 2,285 1,626 1,200 CORNWALL CORNWALL 40,000 10,360 29,600 9,989 7,293 12,320 * With the exception of Restormel figures where under construction 2004 is included with the “with planning permission” column rather than built 2001-2004 and under construction.

Table 2 Average annual house-building rates. Years Penwith Kerrier Carrick Restormel Caradon North Cornwall Cornwall annual average 1976-81 231 281 386 406 561 415 2281 1981-86 298 315 462 392 435 333 2237 1986-91 401 342 517 646 544 617 3069 1991-96 217 227 207 398 325 365 1741 1996-01 269 320 346 504 240 392 2074 2001-2004 248 265 348 757 393 543 2424 1976-2001 283 297 384 469 421 424 2280 Proposed 2001-2016 220 340 433 373 266 340 1973 This table shows the annual average house building rate for different periods, compared with that County-wide Policies implied by the Plan's proposals 2001-2016. For Cornwall as a whole the rate of development proposed for 2001-2016 is a lower than the long term (1976-2001) average, but close to that achieved over the 1996-2001 period. Section One: Cornwall Structure Plan 28 2004

Plan, Monitor and Manage The expected distribution in relation to housing completions and further Government guidance reflected in planning permissions is set out in Table Regional Planning Guidance is for a "Plan, Monitor and Manage" approach 1. It takes into account a range of to housing provision. The overall considerations relating to the capacity of average rate of development in particular areas to meet housing Cornwall proposed in this Plan is 2000 requirements in ways which will per annum over the period 1996 to contribute to the strategic aims of the 2016. In each District the average Plan. These include focusing annual rates expected will be that development on the main towns, implied by the housing provision for relating housing to job opportunities the 15 year period 2001-2016. and transport provision as well as the impact on the local environment. The The actual rates of development in availability of previously developed land any one year will vary. In some cases is a further consideration, given the this may be due to the supply of land available, whilst fluctuations will priority attached to its release for always reflect the economics of the housing (Policy 10). The contribution building industry. Some areas already that can be expected from brownfield have high levels of commitments in sites overall will be about 40% but this the form of planning permissions or will vary across Cornwall. However in allocations, notably in Restormel. In all parts of the County some other areas, housing provision may contribution from greenfield sites will be need to be phased in respect of necessary over the Plan period. This infrastructure or in relation to the means that alternative distributions of supply of housing expected from housing development could not previously used land. These factors increase the potential to achieve the require a managed approach to the brownfield target; at best it could utilise release of land to achieve the more of the available potential in the provision set out in Policy 8. This will early part of the Plan period. To need to be monitored closely and implement successfully the objectives of adjustments made if appropriate to the Plan, it will be extremely important the distribution proposed, both in that the distribution within Districts terms of the feasibility of provision on reflects the specific proposals and the ground and any new information guidance for particular towns or areas. regarding the likely long term need for housing growth. 62. It is critical that planned provision is made to ensure that adequate homes can be made available. District Councils 61. Policy 8 reflects these will be expected to ensure that considerations. Taking account of sufficient new housing is provided in development between 1996-2001 (an line with the guidance given in Policy 8. average 2074 dwellings per annum) implies that about a further 29,500 houses will be required in the period 2001-2016. The broad distribution between Districts reflects the settlement strategy set out in subsequent policies. County-wide Policies Section One: Cornwall Structure Plan 2004 29

Policy 9 Mix and Affordability of Housing

A mix of house type and tenure that meets the needs of the whole community will be encouraged. Local plans should set targets for affordable housing based on assessments of defined local housing market areas, house price and household income characteristics and taking full account of: • the backlog of existing and rate of newly arising needs; • the supply of locally affordable dwellings; • an appropriate mix of house size and tenure rented or low cost; and • market conditions. Local plans should set out the circumstances where affordable housing will be provided as an "exception" to normal policy in rural areas, providing the basis for resources to be targeted at areas of greatest need in locations easily accessible to a range of services and facilities. They should also consider the need to define wider areas where provision for housing should be limited to affordable housing only.

63. The issue of affordable housing is a 65. Housing at a price people can critical problem. It has come about over afford is a national problem but is several decades and there is no easy particularly acute in Cornwall because solution. Land use planning can only of low average earnings, especially play a part in facilitating solutions, when compared with house prices. In which depend on a range of measures many areas the situation is made worse that can influence the housing market by the influence on the housing market and assist those in need. of second home buyers and the 64. A long term strategy is required to wealthier incomers. "Affordable housing" deliver affordable housing under the includes low-cost market and social constraints of the current national housing, whether for rent or shared planning framework. It is important that ownership, available to people who the Government is lobbied for a fairer cannot afford to rent or buy houses and more effective way of providing for generally available on the open market. affordable homes. County-wide Policies Section One: Cornwall Structure Plan 30 2004

66. Provision of affordable housing 67. The need for affordable housing under the current rules is best done by and the degree of affordability varies ensuring that, each year, there is a across Cornwall. It is, therefore, regular flow of a suitable mix of important that the approach to properties onto the market. Low cost measuring affordability, taking account market housing can make a of incomes and cost, and measuring contribution but the greatest need is for need (as opposed to aspiration), and provision of social housing that is delivering affordable housing, can be retained in perpetuity to meet needs applied in a relevant way to specific arising in the local community. Policy 9 locations and be consistent across the allows for both the provision of County so that it does not disadvantage affordable housing as part of one area compared to another. development on planned sites and the 68. Local needs housing assessment "exceptions" approach in villages. should be clearly set in the context of Affordable Housing - Planned an overall assessment of housing need. This should cover the whole spectrum sites and the "exceptions" of housing, to provide a context for the approach more specific assessment of needs for Currently, the planning system is affordable housing. specifically providing for affordable housing in two main ways. First, 69. Targets for affordable housing through "planned" sites, where a should be set by Local Development particular proportion of housing on Documents based on such assessments allocated land is to be "affordable". of need, contributions from the existing The proportion appropriate and the dwelling stock and the funding likely to type of affordable housing is be available to Registered Social determined through the local planning Landlords (RSL's). They should identify process. The second method has circumstances where lower thresholds become known as the "exceptions" for new development providing approach. This is specifically aimed at affordable housing should be set. In rural communities, where sites within particular circumstances, where and on the edge of villages can, in appropriate sites for new housing may certain circumstances, be granted be very limited, consideration should be planning permission for affordable given to identifying areas where only housing on sites where housing for the affordable housing will be permitted. open market would not be allowed. County-wide Policies Section One: Cornwall Structure Plan 2004 31

Policy 10 Location of Housing Development

Most housing development should be in or well integrated with the existing built-up areas of towns, giving priority to previously developed sites and having regard to the character of settlements. In order of preference development should: • re-use previously developed land and buildings (brownfield sites) in urban areas; • use other sites in urban areas; and • extend existing urban areas in locations with good public transport links or where they can be provided. Overall, about 40% of Cornwall's housing development in the period 2001-2016 should be on brownfield sites. Local plans should set out arrangements for the phasing of housing land to secure priority for the release of previously developed land in accordance with this target.

70. The thrust of the Plan, reflecting in this distribution could influence the also national and regional policy, is to rate of development of brownfield sites maximise the use of previously but not the overall contribution to the developed land in urban areas to meet countywide housing provision up to future housing requirements. Policy 10 2016. embraces this. The Cornwall Urban 8 71. The findings of the Urban Capacity Capacity Study of main towns Study need to be thoroughly tested identifies a broad level of potential for though the Development Plan process brownfield development in Cornwall. It at the local level. Its assumptions with is reasonable to seek to achieve around regard to the availability of previously 40% of new housing on brownfield land developed land, on a site by site and over the Plan period. The contribution projected trends basis, must be kept that can be expected in different areas under review. will vary as indicated in the study. As noted, in respect of Policy 8, variations County-wide Policies

8The Cornwall Urban Capacity Study looked into the potential for house building on brownfield land in each Section One: of the County's main towns in 2001. The study's conclusions provide a baseline assessment taking into account the availability of land and how soon it could be developed. Cornwall Structure Plan 32 2004

72. A sequential approach to the release of sites will be necessary to Definition of previously- ensure that brownfield sites are used developed land first to meet housing requirements There are various definitions of where they are available. It is, however, previously-developed land in use. important that a continuous supply of PPG 3: Housing uses the following land is available for housing. The definition: release of greenfield land should be balanced with the genuine availability Previously-developed land is that of previously developed land. Other which is or was occupied by a permanent (non agricultural) structure, land within urban areas should also and associated fixed surface make a contribution, where it is suited infrastructure. The definition covers to housing use. This should include the the curtilage of the development. re-assessment of sites identified for Previously-developed land may occur employment purposes where such a use in both built-up and rural settings. The is unlikely to proceed or be suited to definition includes defence buildings, future circumstances. Where it is and land used for mineral extraction necessary to extend existing urban and waste disposal where provision areas, this should be done in ways for restoration has not been made which can improve accessibility overall through development control by walking, cycling and public procedures. The definition excludes transport. The choice of location in land and buildings that have been respect of current and future used for agricultural purposes, forest opportunities in relation to public and woodland, and land in built-up transport provision is likely to be areas which has not been developed particularly significant. previously (e.g. parks, recreation grounds, and allotments - even though these areas may contain certain urban features such as paths, pavilions and other buildings). Also excluded is land that was previously developed but where the remains of any structure or activity have blended into the landscape in the process of time (to the extent that it can reasonably be considered as part of the natural surroundings), or has subsequently been put to an amenity use and cannot be regarded as requiring redevelopment. County-wide Policies Section One: Cornwall Structure Plan 2004 33

Policy 11 The Urban and Rural Economy

Economic growth and employment will be encouraged through the regeneration and investment in the Strategic Urban Centres (SUCs)and other towns and rural restructuring and diversification. In the towns this will be by: • prioritising the regeneration of urban areas and town centres as a focus for retail, commercial and business activity; • maintaining a range and choice of sites to meet the needs of existing and new firms within or well integrated with built up areas; • giving particular attention to the role of the Strategic Urban Centres as locations for housing and employment growth. In rural areas, the emphasis will be on the restructuring of the economy. Local plans should make provision for employment uses primarily in the centres which are most accessible to the wider area, including by public transport. Away from such centres, development should support the economic and social well-being of the area by: • supporting agriculture through farm diversification schemes appropriate in character and scale for their surroundings and in preference by the re-use of existing buildings; • provision for the adaptation and, where appropriate in scale and character, the expansion of existing tourism, industrial and business uses; and • provision for development essential for the rural economy where a location in a town or a village could not meet the need.

73. Policy 11 reflects a twin strategy for diversification. At the same time the the economy. Major economic growth policy recognises the needs of and employment should be focused on enterprises already located in rural areas the main towns where it supports their and that reasonable provision for further regeneration and where benefits can be development is justified to meet needs most accessible to the population. In which cannot be met in larger rural areas, the emphasis is on settlements. County-wide Policies Section One: Cornwall Structure Plan 34 2004

The economy…. context and outlook In July 1999 Cornwall and Scilly were designated as an Objective One area under the new Structural Fund Regulations. This identifies regions most in need of support from European Union funding. Due to the current availability of Objective One funding, there are high expectations of the Cornish economy. The amount of money available, however, is small in relation to the area's economy as a whole and cannot reverse past economic performance and current trends in earnings, industrial re-structuring and global competition overnight. However there is much to be optimistic about. Cornwall has firms that operate successfully in both global and local market places. The environment and quality of life in Cornwall are increasingly seen as important in terms of branding, image and sense of place. Skills needs are changing. Growth from within Cornwall remains the priority, but inward investment can also make a contribution. The locational requirements of firms are increasingly responding to the greater flexibility from improved electronic communications. Protecting, creating and drawing attention to the conditions for growth in key sectors such as maritime industries, spin-off from the Combined University in Cornwall or the Peninsula Medical School, and further re-structuring in farming and fishing can all be achieved. Tourism will continue to be significant and must be considered as an integral part of Cornwall's wider economy.

74. Local Development Documents diversification for new opportunities. should set out policies and proposals to Urban locations will be the focus for facilitate the growth of the main towns employment growth. in their areas to meet a range of 76. Development issues relating to business and commercial needs in rural areas can be sensitive. Local accordance with this strategy. The Development Documents will provide approach is strongly supported by the guidance on the type of proposals that Objective 1 programme which contains are suited in scale and function to their priority measures to support the location. This will include giving regeneration of the main towns in particular consideration to the needs of Cornwall. The need for new sites and the remoter rural areas. A range of premises, under Policy 12 below, should business and employment uses can be be considered in this context, to ensure met by development in villages, through they are consistent with this priority. the re-use of existing buildings and by 75. Employment in the more rural well designed new proposals well locations is also very significant. The integrated with existing development. objective here, however, will be to These opportunities will allow scope for sustain existing businesses and provide farm diversification as well as other County-wide Policies Section One: Cornwall Structure Plan 2004 35

proposals. The agricultural industry faces many challenges because of changing market conditions and as a result there has been a significant decline in employment. However, diversification offers a range of opportunities, either within farming or through alternative activities. Local Development Documents will need to identify where particular weight is to be given to the benefits of farm diversification over other development considerations. County-wide Policies Section One: Cornwall Structure Plan 36 2004

Policy 12 Sites and Premises for Employment

A range and choice of marketable and quality sites for employment should be made available based on assessments of likely demand from existing and new firms, the need for employment in the locality, the suitability of sites in terms of their prospect of development and accessibility by all modes of travel. In considering land allocations or development proposals local plans should review existing and new sites taking account of: • the need for better quality employment opportunities suitable to meet local skills; • the need to avoid any significant adverse effects on the natural or built environment and secure adequate mitigation where this may arise; • the need to reduce travel and widen the choice of travel modes, including the potential to incorporate effective arrangements for "green travel"; • the need to support traditional sectors of the economy and encourage the development of new and emerging sectors including the requirements of business clusters and science parks, and the importance of information communication technology; • the opportunities arising from the Combined Universities in Cornwall; maritime related activities and the development of ports and harbours; the potential expansion of ; and key visitor attractions; and • the potential benefits of mixed use development. Land for employment should be retained, and sites in local plans should be reviewed for alternative uses where development for employment is no longer likely to be appropriate or feasible.

77. The creation of an improved objectives of the Structure Plan. The business environment is an important underlying concern is improving skills strategic theme and forms the basis for and earnings and widening the achieving many of the key strategic economic base. The policy framework County-wide Policies Section One: Cornwall Structure Plan 2004 37

for business and industry seeks to need and resources available for ensure that appropriate sites for a range implementation. Local Development of different users are available Documents will need to review existing throughout Cornwall. The supply of sites against the criteria set out in Policy land available for development must 12. also be managed to reflect changing 81. Not all sites can be assessed on a demands. local basis. Policy 12 identifies key 78. The current supply of employment strategic opportunities that should be land which is either allocated or with reflected in new provision. These are planning permission is already considered further under the respective considerable. If developed, it could be policies in the Spatial Strategy section. expected to be more than sufficient to The County Council will work with the meet job needs over the plan period. District Councils, the South West of This, however, masks the reality of the England Regional Development Agency situation where a large number of sites and other partners in assessing needs are not available in the short term or and monitoring the supply and demand are unlikely to be developed. They may of sites in the county. be unsuited to business requirements, have particularly high costs for development or be insufficiently accessible to meet current planning Major Strategic Sites policy. Importantly, they depend very Regional Planning Guidance refers to much on public sector resources for the importance of a portfolio of major their implementation. strategic sites in the region to meet the 79. Provision is likely to be found in a needs of key sectors, including number of ways and in a number of industry, tourism and higher locations within a given area. For education. Such sites should be a example, clustering (including shared minimum of 12 and preferably of 50 workspace) and mixed use hectares and are expected to be well development have a role. In addition, related to the Principal Urban Areas the demand for new sites is difficult to or, in the particular case of Cornwall, quantify with any certainty, depending the Principal Regeneration Area on assumptions about the overall (Camborne-Redruth). amount of employment to be expected Sites of this type, however, are not on employment estates (as opposed to proposed in this plan. Major offices, retail etc.), job densities and the employment needs will be focused on demand arising from relocations. regeneration throughout the 80. In view of both these supply and Camborne-Pool-Redruth area and in demand considerations, it is no longer other towns in Cornwall; individual appropriate to include land figures for major sites would not complement this approach. The demand for such employment, which has been the a scale of development in a single practice in the past. Instead, the policy location is not supported by the requires a much more tailored and evidence. focused approach to future provision based on local detailed assessments of County-wide Policies Section One: Cornwall Structure Plan 38 2004

Policy 13 Tourism and Recreation

The quality and opportunity for tourism and recreation should be enhanced by improvements to the existing resource and through appropriate new provision. Development should seek, in the first instance, to improve existing tourism and recreation sites and infrastructure in sustainable locations. Major development should be in, or well related to, towns. Proposals that support the Plan's regeneration priorities will be encouraged. Outside towns and villages development should be limited to accommodation and facilities that could not, reasonably, be within them, or the adaptation and improvement of existing sites including the conversion and re-use of appropriate redundant buildings. Development should not harm visitor facilities or other features that contribute to Cornwall's attraction for tourism and recreation.

82. The strategy for tourism reflects the and sport. Major proposals will need to considerable extent of tourism be readily accessible by all forms of development - attractions and transport, particularly where they are accommodation - much of which is likely to generate travel from a wide located in rural areas and often in area. Incorporating opportunities for sensitive coastal locations. Policy 13 walking and cycling into development seeks to reflect the overarching aim of proposals are also important improving the quality of tourism considerations. development. The emphasis is, 83. The Policy recognises that Cornwall therefore, on improving and adapting has distinctive elements that attract the much of what we already have to meet tourist to its different parts. Some may changing circumstances and modern relate to attractions while others to the requirements before making new natural or built environment. Each of provision, particularly in rural areas. these will require different resources to Improvement in facilities is also vital to meet the needs of the tourist, the the regeneration of the main coastal worker and the attraction as resorts. The same principles apply to appropriate. Cornwall's varied natural other development related to recreation environment will also impact on the County-wide Policies Section One: Cornwall Structure Plan 2004 39

product and produce that the tourist chooses to consume and will, in turn, influence the use and re-use of rural buildings and rural diversification. 84. Local Development Documents will need to set out clear parameters for development on the basis of the strategy set out in Policy 13. New development can and will need to play a part when particular needs or requirements would not otherwise be met. Development for accommodation needs will seldom be justified in the countryside or locations where permanent residential use would be unacceptable, other than the conversion of redundant buildings that merit conservation. 85. The existing facilities for tourism and recreation represents a major resource for the . These comprise visitor accommodation and attractions, a range of sport and recreational facilities and also provision for informal enjoyment of the coast and countryside. In respect of the latter, the economic importance of walking and cycling facilities, such as the South West Coast Path and long distance cycle routes, should be recognised. Development should not dilute or undermine the value of these assets, for example, through the loss of accommodation which has significant importance to the locality, or through adverse effects on facilities and attractions that visitors and residents enjoy. County-wide Policies Section One: Cornwall Structure Plan 40 2004

Policy 14 Town Centres and Retailing

Priority will be given to the improvement and enhancement of town centres in providing shopping, office and leisure facilities to meet the needs and aspirations of the whole community. Retail, office and leisure development should be in or adjoining town centres where they can help sustain the centre's viability and vitality, contribute to the improvement of the town centre environment and can be accessible to all sectors of the community by a choice of means of transport. Major proposals should support the role and function of the Strategic Urban Centres (SUCs). Elsewhere, such development should be limited to circumstances where particular needs could not reasonably be expected to be met in or adjoining town centres, having taken account of the existing provision available and further development opportunities. In the case of retailing, it will be important to assess the capacity of the centre as a whole to meet future needs, rather than its ability to accommodate a particular retailer or form of development. In addition: • development should not be harmful to the vitality and viability of existing centres; • locations should be in or well integrated with towns where the impact on travel patterns would be unlikely to lead to increased car usage and where convenient access by public transport serving the catchment area is available; and • consideration should be given to the potential role of retail and other commercial development in the physical and economic regeneration of urban areas.

86. Shopping is an essential part of life important that the quality of provision for most people. Retail development meets the needs and aspirations of the underpins the physical character of communities served. Failure to do so town centres and is a key part of their can result in households having to travel vitality and viability. Planning policies further to obtain goods and services and must secure a pattern of shopping reducing local expenditure to the provision that is convenient to all detriment of the local economy. sectors of the community. Equally, it is County-wide Policies Section One: Cornwall Structure Plan 2004 41

87. Retailing offers significant 89. In considering retail locations employment benefits. The Plan's outside existing centres it is first strategic themes relating to accessibility necessary to assess the capacity of town to goods and services and consolidating centres as a whole to provide the range the settlement hierarchy are particularly and quality of shopping appropriate to relevant to shopping provision. To meet its size and function. Also in applying the Plan's objectives and be consistent the sequential approach, full regard with the Plan’s strategy, policies seek to should be given to the need for encourage the highest level of shopping flexibility in format, design and scale provision in each settlement, consistent (including car parking) of development with its potential shopping role and its proposals. The policy principles apply catchment population. Defining a rigid equally to newer retail formats such as retail hierarchy is not considered Factory Outlet Centres (FOCS). appropriate given the similarities in scale and function of many of Cornwall's towns; in addition it may unnecessarily constrain the ability of centres to adjust to changing opportunities and needs. Nonetheless major proposals should support the role of the Strategic Urban Centres (SUCs). Truro should sustain and enhance its already established role as a sub- regional centre; at the same time the other SUCs need to strengthen their retail role. The County Council will work with the relevant District Councils to ensure that the inter-relationships between centres are properly considered and that both the above aims are achieved. 88. Policy 14 gives strong emphasis to the role of retailing and other activities in sustaining and enhancing the vitality and viability of existing centres. The priority must be to meet needs in existing centres wherever feasible and where the town centre environment can be improved. The policy embraces the sequential approach to site selection, a fundamental part of national policy to support town centres. The principles apply to a range of activities and have particular significance in respect of retailing. County-wide Policies Section One: Cornwall Structure Plan 42 2004

Policy 15 Implementation, Monitoring and Review Development should make best use of existing infrastructure and ensure that the necessary improvements to infrastructure are made. Development should be located and, where necessary, phased to ensure that it can be adequately supported by necessary transport provision, physical infrastructure, education and other services. Development should contribute to the provision of such infrastructure and services or mitigate any adverse effects arising, where it is necessary to enable the development to proceed.

90. The implications of the policies and quality of development and enable proposals in this Plan must be proposals to go ahead which might considered in relation to the resources, otherwise be refused. in the public and private sector, to 93. The County Council will work with implement them. The level of the District Councils to ensure that population growth expected in the Plan consistent guidance is given on the period has important implications for circumstances when Planning resources devoted to maintaining, Obligations should be sought, and that changing and developing the wide this should be made clear in Local range of services whose availability and Development Documents. quality have a major impact on community life. This includes 94. The process and machinery for education, health and social services, as monitoring and review of the Plan is set well as essential infrastructure such as out in the Monitoring document water supply and sewerage. published alongside this Plan. The basic process will be that individual policies 91. In broad terms, it is considered that will be monitored in terms of key this Plan ensures that its policies and contextual changes, and also the actual proposals are realistic and do not hinder performance and implementation of the the proper provision of key social and policy itself. physical infrastructure. Moreover the housing and settlement strategy is 95. ”Plan, Monitor and Manage” is a strongly focused on the larger towns concept that the County Council is keen which will facilitate the most efficient to pursue energetically in partnership and economic provision of a whole with the District Councils. The range of services. transparency of showing how policies are to be evaluated is set out in the 92. In certain circumstances, Monitoring and Implementation developers should contribute to the Framework and involves the publication provision of infrastructure or community of an Annual Monitoring Report for the

County-wide Policies services and facilities. Properly used expected life of the Plan (three years). Planning Obligations may enhance the Section One: Cornwall Structure Plan 2004 43

Spatial Strategy 2 Spatial Strategy Section Two: Cornwall Structure Plan 44 2004

Policy 16 Overall Distribution of Development

Most development will be in, or well integrated with, the existing built up areas of towns, according to their role and function and should not harm their character. Development should be focused on the Strategic Urban Centres (Bodmin, Camborne-Pool-Redruth, Falmouth-Penryn, Newquay, Penzance, St Austell and Truro) according to their role and function, and on Saltash and Torpoint in South East Cornwall. The role and function of other main towns and local centres will be supported to meet the needs of their population and surrounding areas. In rural areas, there will be an emphasis on meeting development needs arising from the existing population and the diversification of the economy, having full regard to local character.

96. Cornwall has a dispersed of their resident population. Such needs settlement pattern9. This has a key include jobs, homes, education, influence on journey distances and facilities, services and shops. Other travel modes. Cornwall's larger urban important elements of sustainability centres of Penzance, Camborne-Pool- include the opportunity to travel by Redruth, Falmouth-Penryn, Newquay, non-car modes and how development St. Austell, Bodmin and Truro, have a can improve our environment. Balanced concentration of people, jobs and development, focused mainly on the facilities that provide better Strategic Urban Centres but also on opportunities for more sustainable Cornwall's other main towns, gives the patterns of living. They are defined in best opportunity to move towards this Plan as Strategic Urban Centres sustainability and the overall spatial (SUCs). The Plan's spatial strategy aims strategy is based on this. to build on the characteristics of these 98. Where we live, work, shop and SUCs and at the same time make all spend our leisure time, is reflected in places more self-contained. Cornwall's broad settlement hierarchy. 97. In simple terms, a measure of Truro's sub-regional role as the main sustainability is how self-contained retail and commercial centre for places are in terms of serving the needs Cornwall is complemented by the Spatial Strategy

9About 34% live in the Strategic Urban Centres, a further 28% in towns and larger villages (over 3000 in population) and about 38% elsewhere. Section Two: Cornwall Structure Plan 2004 45

importance of the other Strategic Urban the docks and the hub of the Combined Centres and main towns in their own University in Cornwall at Falmouth- areas. Each place provides a core set of Penryn. Taking account of their facilities, services and jobs but also has particular needs and other factors, a unique character and role for including how these areas relate to each Cornwall as a whole. The strategy will other and the location of existing ensure that the more rural areas are also commitments, a significant proportion supported through appropriate of new houses should be built in or development. adjacent to these Strategic Urban 99. The strategy aims to provide a Centres. balance between jobs and people in the 102. The distribution of other housing towns, villages and more rural areas, in will be dependent on the detailed a way that reduces the overall need to considerations in Local Development travel and allows places to develop, Documents. The expectation will be while keeping their special qualities. that an increasing proportion of The Plan also provides a co-ordinated development will be related to other approach between land use and main towns and local centres. In transport. addition, the Plan looks at an area of 100.With sustainability as its starting south-east Cornwall and its relationship point, the Plan's spatial strategy with Plymouth. The existing role of recognises the many differences Saltash and Torpoint is important given between places in Cornwall and how their close links with the city. However they relate to each other and makes their capacity to provide for further adjustments that enhance the expansion is limited given transport and effectiveness of their roles. The strategy, environmental constraints. and how it distributes new housing, builds on the approach set out in Population Distribution previous Structure Plans. 101. The spatial strategy also places a county-wide importance on the balanced development of Truro as the retail and commercial heart of Cornwall, the regeneration of Camborne-Pool-Redruth (a regional priority), St. Austell (taking account of its economic regeneration and brownfield land potential), Newquay, Bodmin and Penzance and the opportunities presented by

the future development of Spatial Strategy Section Two: Cornwall Structure Plan 46 2004

Policy 17 Camborne-Pool-Redruth

Camborne-Pool-Redruth is a strategic priority for regeneration and growth. Development for employment uses will be encouraged and will be provided on a range of sites. The Pool/Tuckingmill area should be the focus for business growth and housing. Opportunities related to the Combined Universities in Cornwall should be developed along with further development for business uses on the edges of the urban area where it would not conflict with the enhancement of the town centres or other regeneration priorities. Better retail provision in the town centres will be supported. Development in the regeneration area should complement the existing centres. The number of new homes for Camborne-Pool-Redruth over the period 2001-2016 will be about 3,400 dwellings. This should be phased to facilitate the regeneration priorities of the area and be supported by improvements in local transport, particularly the enhancement of public transport links.

103. Camborne-Pool-Redruth is the they function as a larger single urban largest urban and industrial area in area. It is the home of Cornwall Cornwall, covering a continuous College, one of the largest providers of corridor of urban development for over further education in the UK, and will be five miles. The area has suffered years a 'rim' site for the Combined of industrial decline and lack of Universities in Cornwall. investment. This has, in the past, led to 105. The area's mining origins are low wages, high unemployment, reflected in an unusually prominent derelict and contaminated land and position in the landscape with a empty buildings. Unemployment is high backdrop of the historic Carn Brea to and some wards are amongst the most the south and the A30 to the north. Past deprived both in the South West Region mining has left large areas of derelict and nationally. land. Whilst some of this can contribute 104. Both Camborne and Redruth, to the potential availability of together with Pool, have independent brownfield land, much of it would be histories and local associations with difficult to redevelop and other areas separate town centres but, generally are increasingly recognised for their Spatial Strategy Section Two: Cornwall Structure Plan 2004 47

heritage value. The brownfield potential in the urban area could account for as little as a quarter of the proposed new homes. 106. A major aim of the Plan is to enhance the environment of the area as a place to live, work and invest and Camborne-Pool-Redruth is recognised in RPG as a Principal Regeneration Area. There is a major opportunity to create and deliver a range of employment space integrated into the regenerated communities of Camborne- Pool-Redruth through the better use of land and premises appropriate to infrastructure and labour supply in the area. 107. A single strategic employment site - as envisaged in RPG - is not proposed. Instead the objectives for the area are better served by a regeneration focus across the urban area and covering a range of different sites. This may need to be complemented by further land releases around the edge of the urban area if justified and shown to be consistent with the regeneration priorities of the urban area. 108. Overall, the area will be a focus for regeneration through a mixed use strategy10 for economic restructuring. This is supported by a transport strategy that improves public transport within the urban area and links with other strategic urban areas. The context provided by the Plan will need to recognise the key role which Camborne-Pool-Redruth can play in Cornwall as a whole. Spatial Strategy

10The Camborne-Pool-Redruth Urban Framework Plan was prepared in 2001 for Cornwall County Council, Kerrier District Council, the South West Regional Development Agency and the Prince's Foundation. An Urban Regeneration Company (CPR Regeneration) has been formed to deliver its proposals. Section Two: Cornwall Structure Plan 48 2004

Policy 18 Falmouth-Penryn

Development should support and sustain the prosperity of the maritime, industrial and tourist economy while protecting important aspects of the marine environment. It should also accommodate and capitalise on deep water facilities as a port and opportunities arising from the proposal for the Combined University in Cornwall. The number of new homes for Falmouth-Penryn over the period 2001- 2016 will be about 1,700. Specific transport initiatives are to improve the rail link to and from Truro, and improve access to the port facilities. A longer term aim will be to develop a road link to improve accessibility to the A30.

109. Falmouth-Penryn is one of 111. The policy thrust is to sustain the Cornwall's larger urban areas with a local economy and accommodate the diverse economic base of maritime and hub of the Combined University in other industrial activity and a strong Cornwall and its associated economic tourism economy, as well as being the spin offs. The related themes of County's second largest shopping maritime industry and maritime heritage centre. Falmouth hosts the National are extremely important to the future of Maritime Museum and the historic town this area and both require appropriate of Penryn is the central location, or investment and development to make 'hub', for the Combined Universities in the most of this area's inherent Cornwall. Levels of unemployment advantages. remain higher than the rest of Cornwall. 112. Development is constrained by 110. In Cornish terms, the water and the estuary of the , and the seafront provide a unique maritime Area of Outstanding Natural Beauty. asset, both for industry and tourism. Locally important landscapes make it Unfortunately, these advantages are off- necessary to consider carefully the set by some serious weaknesses in the future growth of the urban area. There basic economic, business and transport is scope to accommodate most new infrastructure and significant new homes on previously developed land investment is required if new but any green-field expansion is likely to opportunities are to be developed. cross the administrative boundary of Carrick into Kerrier District and future planning requires full co-operation between the two Districts. Spatial Strategy Section Two: Cornwall Structure Plan 2004 49

Policy 19 Newquay

Development should support and sustain the tourism industry and the restructuring of the economy to provide more balanced employment opportunities. Priorities for new business and employment development will be in relation to planned urban expansion of the town and opportunities arising from the expansion of services at Newquay (Cornwall International) Airport. The number of new homes for Newquay over the period 2001-2016 will be about 2,100 dwellings. Development should be supported by necessary community and physical infrastructure related in particular to the planned expansion of the town.

113. The coastal town of Newquay is 115. Newquay's growth is limited to an important centre for Cornwall's the north and west by the sea, but there tourist industry. Its 20,000 population is considerable potential for grows to 100,000 in the peak of the development on brownfield land within season with a mixture of broad resort the urban area. In addition, land for popularity and special events linked to urban expansion, linked to economic surfing and outdoor pursuits. development, has already been 114. It has many problems and identified in the Local Plan. opportunities in common with other 116. The key policy aim is to enable seaside resort towns. The key factor, its the local economic base to diversify economic reliance on tourism, makes it whilst fully supporting imaginative and very vulnerable and therefore a focus popular developments to further on broadening the economic base is underpin tourism. central to its future strength. There are particular opportunities for Newquay to develop in relation to Newquay (Cornwall International) Airport and the town's association with surfing. Spatial Strategy Section Two: Cornwall Structure Plan 50 2004

Policy 20 St. Austell

Development should support priorities to broaden the area's economic base, strengthening its links with the coast and nearby ports at Par and Fowey, and the regeneration of the town centre. The number of new homes for St. Austell over the period 2001-2016 will be about 2,200 dwellings. Development opportunities associated with the Eden project should be focused on St. Austell, including improved and more sustainable transport in and around the town.

117. The second largest urban centre town centre will enhance its retail role in Cornwall in terms of population, St. which has experienced decline and Austell merges with an almost suffers from a poor physical continuous built up area that includes environment in some parts. St. Blazey, Charlestown, Tywardreath 119. The clay industry has left a and Par. It has key links with the china landscape that is radically altered but is clay settlements to the north and more still dramatic and distinctive. The more recently with the Eden project. The traditional rural landscape immediately growth of the town was based on the around St. Austell provides a local china clay industry and, although context for the urban area. employment levels have fallen due to Environmental resources, to be modern technologies, the current considered in any future expansion of employer, Imerys, is still one of the urban area, are of local rather than Cornwall's largest employers. Further county-wide importance and brownfield restructuring of the industry would have land is potentially available for about a major effect and a more diverse two thirds of the proposed new homes economic base should be developed. within the urban area. 118. The legacy of the industry 120. St. Austell benefits from good dominates the landscape to the north of public transport connections to the St. Austell in a dramatic fashion. There other main settlements, mainly east- should be an emphasis on regeneration west, with regular bus and train and growth to ensure maximum spin-off services. The key transport proposal is, benefit from the Eden project . to improve the A391 road link between Improvements to the road infrastructure St. Austell and the A30. and links to the town centre should also be prioritised. Redevelopment of the Spatial Strategy Section Two: Cornwall Structure Plan 2004 51

Policy 21 Penzance

Development should support the maritime and tourist industries and complement the role of the town as the major service and retail centre of Penwith. Priorities for regeneration will be the harbour areas of Penzance and , where provision for the fishing industry will be supported. Development must respect the environmental qualities that provide a special setting for the town.

121. Penzance has a major role as the 122. Penzance benefits from a number main centre for services and of employment estates that provide a employment in Penwith. It also has a relatively high concentration of jobs. vital role in providing transport links to Within a Cornish context it has the Isles of Scilly. Its physical capacity to relatively few larger employers but its expand is relatively constrained by its business sector services the fishing port setting, landscape and high quality of Newlyn. agricultural land. Together with Gulval, 123. The Plan will aim to focus Heamoor and Newlyn these settlements employment and retail provision in and the town form a continuous urban Penzance and strengthen its important area which ranks as fourth biggest in role in the west of the county. It will be comparison with others in Cornwall. necessary to capitalise on the varied Distribution, hotels and restaurants transport terminals and development dominate the economy. Improvements possibilities in the area which especially were made to the retail infrastructure in focus on maritime, rail and air and in the 1990’s and more recently there has improving the pedestrian accessibility of been a greater focus on regeneration Penzance and its environs. It's maritime including maritime and environmental and tourism potential are important to enhancements. its future economic success. Spatial Strategy Section Two: Cornwall Structure Plan 52 2004

Policy 22

Bodmin

Development should consolidate the current employment and retail function of the town, maintaining a balance of homes and jobs.

124. In population terms Bodmin is the 126. Development should continue to largest settlement in North Cornwall consolidate Bodmin's important role as and middle-ranking in Cornwall as a a centre for employment and services, whole. The town occupies an important with relatively good transport links strategic position roughly halfway compared with other the other main between Truro and Plymouth and near towns in North Cornwall. In this part of the convergence of the A30 and A38 the County the town can help continue principal routes into and through to provide for sustainable development, Cornwall. The main line rail station at providing services and facilities for its Bodmin Parkway lies a short distance to rural hinterland. the south west. 125. Manufacturing and business support are important parts of the economy. Bodmin boasts several of Cornwall's largest employers and has the third highest accessibility ranking in Cornwall of jobs in relation to economic activity. Industrial estate numbers have continued to grow through the 1990s and into the Millennium. Spatial Strategy Section Two: Cornwall Structure Plan 2004 53

Policy 23 Truro

Development should support and enhance Truro's sub-regional role and provide for greater balance between jobs and homes. Truro's role as the County's major retail and commercial centre should be sustained and enhanced without adverse effects on nearby centres; provision should be made for business opportunities arising from the Combined Universities in Cornwall and the Peninsula Medical School projects. The number of new homes for Truro over the period 2001-2016 will be about 3,500 dwellings. The location and phasing of proposals should facilitate mixed use development with integration and support for improvements to transport (particularly public transport, cycling and walking) and other infrastructure. Transport improvements will be a priority to ease congestion in the City and provide enhanced opportunities for public transport within the city and links to the neighbouring Strategic Urban Centres.

127. The retail and administrative where they work. At the same time, the importance of Truro makes it highly very important role of Truro as attractive for private investment. It has a Cornwall’s retail and commercial centre significant mismatch between the should be sustained and enhanced, number of jobs in the City and the ensuring as far as possible that this does number of people living there. This not adversely affect other centres and inevitably results in a lot of daily regeneration priorities in the County. commuting into the City. This leads to 129. The primary thrust for Truro congestion and pollution, which will should be as an area for urban growth only be exacerbated unless a more that integrates housing, employment balanced approach to homes and jobs and transport infrastructure, alleviates is sought. congestion and includes transport links 128. The main aim for Truro, therefore, with the other SUCs in a planned way. should be to provide a more sustainable The situation needs a strong policy balance between jobs and people, so stance to reduce the daily level of that in the long term there is more commuting. Tackling this issue for the opportunity for people to live nearer to long term benefit of the City and wider Spatial Strategy Section Two: Cornwall Structure Plan 54 2004

area it influences, requires development to be planned in a comprehensive way and linked to key transport improvements, particularly in public transport. 130. There are clear opportunities for sensitive mixed-use developments to integrate homes, jobs and services. The location of part of the proposed Peninsula Medical School is a major opportunity for Truro as is the development of Truro College as part of the "rim" of the University proposals. 131. Truro is largely contained within a landscape bowl, particularly the older parts of the urban area, and has relatively little brownfield land available for development. Its further expansion, therefore, requires creative solutions which should include consideration of the nearby settlement at that functions as part of the urban area. A master planning approach to possible urban extensions is encouraged, with development and sustainable transport measures viewed in tandem. Spatial Strategy Section Two: Cornwall Structure Plan 2004 55

Policy 24 South East Cornwall (Saltash and Torpoint)

Development should contribute to sustainable development in relation to Plymouth and its wider area of influence by improvement to employment and services to meet local needs and improved public transport links to the city. The focus for development should be Saltash and Torpoint where about 1,000 houses will be provided over the period 2001-2016. Employment provision should be for local needs. facilities will be provided in the vicinity of the A38/A388 junction. The enhancement of local facilities and services is a priority.

132. The land use and transport more jobs, strengthening the role of planning issues in South-East Cornwall local centres and increasing prosperity. are more related to the effects of 135. RPG requires definition of the Plymouth than the rest of the County. It Plymouth Urban Area (PUA) for policy must be borne in mind that Plymouth purposes and future monitoring. This City itself has a population equal to half has been considered as part of a study of Cornwall and the wider area around carried out jointly by the strategic Plymouth has nearly as many jobs as the planning authorities. whole of Cornwall. 136. This study formed the background 133. The main issue is how the level to the consideration of issues at a joint and distribution of development should session of the Examination in Public in relate to the wider area. An aspect of respect of both the Cornwall and Devon this is the large number of people that Structure Plans. The conclusions commute to Plymouth for employment. reached were that Saltash and Torpoint Congestion is caused by this commuting should, because of their close ties with over the Tamar. The crossings are near Plymouth, be considered as part of the capacity and this is a major Plymouth Principal Urban Area for the consideration in the future pattern of purposes of RPG, although this should development in the wider area. be a matter of survey rather than 134. The aspirations for South East because of any intrinsic policy Cornwall should be to reduce the consideration. In respect of meeting dependence on Plymouth by providing needs relating to the wider PUA, neither Spatial Strategy Section Two: Cornwall Structure Plan 56 2004

Saltash or Torpoint are appropriate to provide sustainable options for Joint Working expansion of the PUA. This applies to Cornwall County Council and the both housing and major employment Joint Structure Plan Authorities in proposals, taking account of Devon, have conducted a study to environmental, transport and economic interpret Regional Planning Guidance considerations. for the Plymouth area and South-East 137. The housing provision for the two Cornwall, examining options for towns set out in Policy 24 therefore sustainable patterns of development allows for current planned provision and ensuring consistency of approach and for development within the existing to the area in the respective Structure built up areas. Due to the lack of scope Plans. The study report (July 2002) is for further expansion it will be published as a background paper. particularly important that the affordable housing element of future provision is maximised. It would be contrary to the aims of the RPG if development relating to the PUA were spread further away in South East Cornwall, with the likelihood of increased commuting distances to the city. For these reasons a redistribution of housing development from Cornwall to Devon was considered appropriate and this is reflected in the provision put forward in this Plan. For the same reasons it will be important that development elsewhere in Caradon is focused primarily on where it can strengthen the role of the town (in line with Policy 25) and avoid undue dependency on Plymouth for jobs and services. Spatial Strategy Section Two: Cornwall Structure Plan 2004 57

Policy 25 Other Main Towns & Local Centres

Development should be in, or well integrated with, the built-up areas, and support the role and function of centres in meeting the needs of their own populations and surrounding areas to reduce the need to travel. The level of development in the main towns and local centres will be assessed against their ability to consolidate their roles and functions and to support balanced growth through jobs, services and transport infrastructure. Local plans should identify: • Main Towns, over a population of about 5,000, with established roles and function serving an identifiable hinterland and having well developed transport nodes; and • Local Centres, with an approximate population of between 2,000 and 5,000, providing basic shopping needs serving a smaller hinterland. Employment provision should focus on the needs of the local area and on opportunities relating to local characteristics and distinctiveness.

138. About a third of Cornwall's as leisure and tourist destinations. These population lives in towns and larger centres have the capacity to meet the villages (as defined in Policy 25) other needs of their surrounding areas as well than the seven Strategic Urban Centres. as their own population. They all have important roles in meeting 140. The remaining development needs in their local areas. The aim is to should be concentrated on these towns reinforce the role of these centres giving and villages, according to their priority to the larger market towns. particular roles and local assessment of 139. The other main towns- , their varying capacity to support and St.Ives in West Cornwall, housing and employment growth. Bude, Launceston, and in 141. The precise nature and scale of North Cornwall and Liskeard in East the roles of these centres varies a great Cornwall - along with smaller towns and deal. The Structure Plan's main policy some larger villages, play an important drive is to reinforce their existing roles role as local centres for shopping, and strengthen their economic, social employment, community facilities and and transport infrastructure. Spatial Strategy Section Two: Cornwall Structure Plan 58 2004

Policy 26 Rural areas

Development should support the continued social and economic viability of rural areas. Local plans should identify the appropriate level of housing in villages to meet local community needs and make a comparative assessment of housing locations taking account of the capacity of villages to provide for further growth in terms of their character, the availability of the public transport links to nearby towns and the range of services and facilities available to avoid undue dependency on larger settlements. Development outside villages should be controlled to protect the countryside and requires special justification. Employment provision should focus on the needs of the local area and on opportunities relating to local characteristics and distinctiveness. In the more remote rural areas particular consideration should be given to the need to locate development to serve a local community or catchment where it can most effectively do so. This should be in or adjacent to existing settlements and reflect opportunities for shared or joint use of services and facilities and scope to improve public transport.

142. Housing in villages should be 144. In some cases there will be tailored towards the needs of the local potential on previously developed land area, with the scale of development in villages. This should not override the well related to the availability of jobs considerations set out in Policy 10 but and facilities locally. contribute to meeting needs assessed 143. It will be important for Local against that policy. Where demonstrated Development Documents to assess the in Local Development Documents as impact of alternative options against a contributing to the most sustainable number of issues giving considerable pattern of development , such sites weight to the impact on travel patterns should be given preference over overall. Development in villages likely to alternatives. increase commuting by car should be 145. Geographically, areas around avoided. Isolated development must Bodmin Moor and parts of the Lizard, remain strictly controlled and related to Penwith and the Roseland stand out special economic or social justification. Spatial Strategy Section Two: Cornwall Structure Plan 2004 59

because of their remoteness or simply how sparsely populated they are. The small villages and often dispersed population give these areas particular characteristics. These rural settlements are less able to be self-sustaining in the way that larger settlements can provide for their communities' needs. 146. Research suggests that these communities and their local facilities are continuing to decline. Sustaining the social and economic fabric of these communities is, however, vital to wider social issues faced by the County. 147. Local Development Documents will need to address the needs of these areas in a comprehensive way, looking in particular at shared solutions to the provision of services and facilities locally as well as options for improving access to larger centres. It is important that these rural areas can continue to thrive both economically and socially. Development that provides homes and employment meeting needs arising from these rural communities should be encouraged. Spatial Strategy Section Two: Cornwall Structure Plan 60 2004 Spatial Strategy Section Two: Cornwall Structure Plan 2004 61

Transport & Accessibility 3 Transport and Accessibility Transport Section Three: Cornwall Structure Plan 62 2004

Policy 27 Transport Strategy (and Proposals)

Development and transport should contribute to a more effective, more environmentally friendly and safer transport system. Transport priorities and provision will: • support and be fully integrated with the land-use strategy; • maintain and enhance the Strategic Public Transport Network (SPTN), and develop other alternatives to the private car to provide access to jobs, services and facilities; • seek to reduce the adverse effects of transport upon health and the natural and built environment; • support economic and social well-being by enabling the efficient and effective movement of people and goods within Cornwall and between Cornwall and the rest of the United Kingdom and Europe by rail, road, sea and air; and • maintain and enhance highway infrastructure to improve environmental conditions and road safety. The key measures will be: a) Local Area Transport Strategies for the main towns, giving priority to the Strategic Urban Centres, widening travel choices and improving public transport provision. b) Specific improvement, in other areas, to the SPTN with a priority on frequency, quality and co-ordination between networks, linked with community transport and demand-responsive public transport in the more rural areas. Transport and Accessibility Transport Section Three: Cornwall Structure Plan 2004 63

STRATEGIC TRANSPORT PROPOSALS: ANTICIPATED COMPLETION DATE:

INTEGRATED STRATEGIES Truro 2011 Camborne-Pool-Redruth 2011

PUBLIC TRANSPORT Mainline rail improvements 2004 Truro-Falmouth branch line 2006 Maintain and enhance the SPTN Ongoing

ROADS A30 Bodmin-Indian Queens bypass 2007 A38 Dobwalls bypass 2008 A39 Distributor Road 2007 A30 Temple to Higher Carblake 2008 A30 to Chiverton 2010 A391 St.Austell-Innis Downs link 2008/09 PORTS Improvements at Par 2006 Falmouth 2011 Truro 2011 Penzance 2011 AIR Improvements to Newquay Airport 2011 LONGER TERM STRATEGIC AIMS Roads Falmouth Penryn to A30 (new road link) 2011-16 Truro to A30 (improved A39 Truro - Trispen) 2011-16 Newquay to A30 (improved A392 Mountjoy - Carworgie) 2011-16 Public Transport St Austell - Newquay (diversion of Newquay branch-line) 2011-16

148.Transport is vital for our daily Kingdom. This dependence also has a needs: work, services, schools, shops cost. It causes pollution, congestion and and leisure. It is the backbone of the considerable hardship for those without County's economic and social well- cars. Cornwall's geography poses being. Travel in Cornwall is highly particular problems and these are dependent on the private car, more so compounded by a large seasonal influx than in many other parts of the United of tourist traffic. Transport and Accessibility Transport Section Three: Cornwall Structure Plan 64 2004

149. The need to enhance the This network will be developed over the efficiency of the transport system in the plan period to respond to transport County and, at the same time, reduce needs as appropriate. the need to travel, are two of the main 151. This Plan sets out a broad transport building blocks of the Structure Plan's approach in relation to development and sustainability objectives. The local major proposals, including the longer infrastructure also needs to support term aims that underpin the land use important national and international strategy. In addition to strategic proposals links for the County. there are a number of schemes, such as 150. The County's Strategic Transport village by-passes, that have a more local Network underpins the majority of focus including A39 Playing Place - travel and includes the Strategic Public Carnon Gate, A388 St Mellion Bypass, Transport Network (SPTN), Strategic A390 Grampound Bypass, A394 Road Network and the major ports. The Trewennack/Clodgey Lane Bypass and Strategic Transport Network links all the A3058 Trewoon Bypass. These need to County's SUCs and the majority of the be kept under the review as part of the other main towns. The transport Local Transport Plan process. approach to support the spatial strategy is four fold. This is: Other Local Transport Schemes • integrated strategies for the key A39 Playing Place-Carnon Gate towns where development will be A388 St Mellion Bypass focused. There will be an emphasis on an enhanced role for public A390 Grampound Bypass transport, walking and cycling, and A394 Trewennack/Clodgey Lane Bypass network management including A3058 Trewoon Bypass parking, park and ride and consistency of charges. • an integrated public transport system, The Regional Transport Strategy linking the main settlements based (RTS) upon the SPTN comprising the rail The RTS, within RPG, provides a network, bus branch lines, core bus strategic transport framework for Local corridors (an hourly weekday service) Transport Plans. and waterborne transport. The needs Key Objectives of the RTS are: of the more rural areas will be met • to support the spatial strategy of the through the provision of local bus RPG services, demand responsive and • to reduce the impact of transport community based transport. on the environment • major scheme proposals to improve • to secure improved accessibility to links between the County's main work, shopping, leisure and towns, along with maintenance of services by public transport, the highway infrastructure for safety walking and cycling and environmental reasons. • to create a modern efficient and • improvements at key ports and integrated transport system airports to improve links beyond the • to ensure the safe use of the County.

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Policy 28 Accessibility

Consideration should be given to the overall impact on travel patterns and the availability of alternative locations for development in order to minimise the need to travel and to increase choice of travel by walking, cycling and public transport. Development should ensure: • opportunities to optimise walking, cycling and public transport are reflected in the scale, location and form of proposals; • the effective management and safe movement of traffic; and • future opportunity for the use of railways, for passengers and freight, is not harmed. Appropriate accessibility assessments should be carried out for new and existing development allocations and new proposals for housing, employment and other development with significant travel implications. Local plans should identify the most accessible sites for uses that generate large amounts of travel and where appropriate retain them for such development. Local plans will set out accessibility criteria based on: • potential journeys generated by development; and • the opportunity for people to walk, cycle and use public transport to get to and from development. This will inform the consideration of travel plans and parking provision as part of a wider strategy.

152. Accessibility is a measure of how accessibility. It is, therefore, important easy it is to get to where we want to go. that new development is well located in Planning policies need to address the order to reduce the need to travel in location of different activities and how the first instance, or to provide the people move between them. The opportunity to use more sustainable relationship between the start and end ways of travel. point of the journey and how the journey can be made affects Transport and Accessibility Transport Section Three: Cornwall Structure Plan 66 2004

153. People's general levels of proposals or inform individual planning accessibility vary a lot across the decisions. This work will also help County. These are dependent, for inform appropriate travel plans and car example, on location, age, income or parking requirements. mobility impairment. The principle to be followed is that the most accessible Car Parking site to facilitate sustainable travel should 155. The availability of car parking has be preferred wherever it is appropriate a major influence on the means of to meet the development need. In transport people choose for their some cases, the most accessible sites are journeys. The reduction of car parking is limited and may need to be protected a key part of the strategy to reduce the through the planning system. This could use of the private car. The County include land or buildings that have Council's current parking standards are potential to increase the future use of set out below; these are in line (or in the railway or ensuring that key sites some cases stricter) than the guidance close to transport nodes are used for in PPG13 and RPG. The accessibility travel intensive purposes. assessment referred to above will consider the need to review these 154. The County Council will work countywide standards in different with the District Councils to develop locations. Parking charges also have an appropriate accessibility criteria. This important part to play; the Local will provide more detailed guidance Transport Plan will need to address the (including the relationship to both the importance of consistency in parking strategic and local transport networks) charges as part of an integrated strategy. to assess particular development Transport and Accessibility Transport Section Three: Cornwall Structure Plan 2004 67

County Council Parking Guidelines (Maximum Standards) Food Retail 1 sp/14 sqm GFA Non-food retail 1 sp/25 sqm GFA D2 including leisure 1 sp/25 sqm GFA B1 including offices 1 sp/35 sqm GFA B2 Employment 1 sp/50 sqm GFA B8 Warehousing 1 sp/200 GFA Hospitals 1 sp/4 staff + 1 sp/3 visitors + Higher and further education 1 sp/2 Staff + 1 sp/15 total Possible students All other schools 1 sp/2 staff other spaces will require justification Stadia 1 sp/15 seats Cinemas/ conference/ places of worship 1 sp/5 seats Community centres 1 sp/5 sqm public floor space Food and Drink 1 sp/5sqm public floor space Housing 1 sp/unit where highly accessible 2 spaces/unit elsewhere 1½ spaces/unit not to be exceeded overall larger developments Studios/ bedsits 1 sp/3 units Sheltered Housing 1 sp/4 units Old peoples homes 1 sp/6 residents + 1 space/2 staff Hotels 1 sp/bedroom allowance made for other facilities Disabled parking spaces 5% (min) of all uses Cycle provision 4% (min) of all uses Motorcycle/ moped provision 2% (min) of all uses

GFA - gross floor area. Transport and Accessibility Transport Section Three:

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