5. The Spatial Strategy & Key Diagram – where should growth happen?

Introduction

5.1 The location of new development is a key issue for sustainability. It shapes the communities that exist within and around new development and thereby influences travel patterns. It is probably the most important influence of the planning system in creating sustainable development and sustainable communities.

5.2 The preferred options outlined below are based on the principles that the Council believes are needed to promote sustainable development across the Growth Area. This means setting out how and where development should take place that meets the needs of the present but does not damage the environment for future generations. It is also about making the most of opportunities to enhance the quality of life for existing and future people through the location and form of development, as well as using land in the most efficient manner.

Objective

5.3 To plan the highest quality development in the most sustainable location.

Spatial Development Principles

5.4 The following principles summarise the joint working Council’s approach to development over the Plan period. Each element, together with the background to it, is explained in more detail later in this chapter.

Development up to 2021 will be directed in accordance with the following Spatial Development Principles:

• Deliver planned growth and provide new jobs across the Growth Area in accordance with MKSMSRS and the East of England Plan RSS (see Preferred Option CS**); • Provide for the provision of appropriate urban extensions to Luton, Dunstable, Houghton Regis and Leighton Buzzard/Linslade; (see Preferred Option CS **) • Protect and maintain the recast Green Belt; (see Preferred Option CS**) • Identify a hierarchy of rural settlements and urban centres; (see Preferred Option CS**) • Concentrate development in and on the edge of large urban areas: (see Preferred Option CS**);

7/15 • Deliver planned growth and provide new homes and jobs, principally in the main urban areas of Luton, Dunstable, Houghton Regis and Leighton Buzzard/LinsIade (see Preferred Option CS**); • Consolidate and develop the role of Luton as the sub-regional service centre (see Preferred Option CS**); • Consolidate and develop Dunstable, Leighton Buzzard and Houghton Regis town centres, together with the major defined suburban centres as district service centres recognising the need to maintain the separate identity and character of these centres (see Preferred Option CS**); • Encourage development in the defined rural service centres to serve the needs of the population in their rural catchment areas (see Preferred Option CS**); • Limit development outside these locations and protect the countryside (see Preferred Option CS**).

***Include Key Diagram here****

CS ** Distribution of Development

Introduction

5.5 Development will be focused in and on the edge of the principal urban areas of the Growth Area: Luton, Dunstable, Leighton Buzzard/Linslade and Houghton Regis. The development will be delivered through a combination of:

• expansion of town centres; • maximising the redevelopment potential of existing urban areas; and • carefully planned sustainable urban extensions.

5.4 This will be complimented by modest growth in and on the edge of rural settlements that will support existing local services and facilities such as local schools and shops. In the rural area as a whole outside the main urban and rural settlements opportunities for development will be limited in accordance with the Spatial Vision and Strategic Objectives. New built development in the open countryside outside sustainable urban extensions will be strictly controlled.

5.5 In meeting development needs for housing and other uses; the priorities will be to reuse previously developed land and buildings (‘brownfield’ sites) that are suitable, available and capable of being developed within urban areas, this will be followed by other such land in urban areas and finally suitable sites adjoining the main urban areas and principal rural

7/16 settlements. Sites should be served, or be capable of being served by public transport and other alternatives to the private car. Monitoring and analysis of past development and potential sources of housing land suggest that, between 2001 and 2021, around 60% of new housing could be built on “brownfield” sites across the Growth Area, with around 40% in the period beyond up to 2031. Preferred Option CS*** sets out this target. The extent to which this target is achieved will vary across the Growth Area with Luton Borough expected to achieve more with South Bedfordshire less. The Annual Monitoring Report will track performance in different parts of the Growth Area and this will enable targets to be reviewed as appropriate. The monitoring areas will be:

• Luton Borough; • the Dunstable, Leighton Buzzard and Houghton Regis urban areas; • each principal rural settlement; and • the rest of the rural area.

5.6 In parallel with the development of “brownfield” sites, it is necessary to plan for significant development of housing, employment and other uses on “greenfield” sites. Rather than spread this around thinly, the strategy aims to focus this development into strategic, sustainable urban extensions to Luton, Dunstable and Houghton Regis. It may also be necessary as a contingency measure to deliver such extensions around Leighton Buzzard/Linslade. Concentrating resources on a limited number of sites will ensure that major developments can be implemented effectively, bringing forward necessary supporting infrastructure quickly whilst minimising disruption to existing and new communities.

5.7 Sustainable urban extensions will be of sufficient scale to include a mix of homes, jobs and other uses and to deliver the high quality supporting infrastructure, facilities and environment needed to support a step – change in the rate of housing development and to create thriving communities where people want to live and work. The Sustainable urban extensions will predominantly include “greenfield” land and, where possible, will be linked to facilitating the regeneration of adjoining existing urban areas; a key aim of the MKSMSRS. Further guidance on the sustainable urban extensions is provided in preferred option CS **.

5.8 The Key Diagram identifies the broad locations of potential sustainable urban extensions on the edges of the principal urban areas in the period up to 2026. It also identifies further urban extension ‘headroom’ for the period beyond up to 2031, more on this on the Green Belt section below. These locations have been assessed in the light of environmental and infrastructure constraints and opportunities as well as their present and likely future accessibility to key services and facilities, including public

7/17 transport and other non-private car modes. Locations for potential urban extensions are indicative and do not mean that these areas have automatically passed any further environmental or sustainability tests needed for planning permissions to be granted. The precise boundaries and the impacts of development in these locations will be evaluated in greater detail through subsequent local development documents (LDDs).

5.9 By focusing on major, strategic “greenfield” sustainable urban extensions and ensuring that sufficient land is available for development in the period up to 2026 with ‘headroom’ land available for the period up to 2031, smaller “greenfield” releases are considered unnecessary. These urban extensions will each contain sufficient ‘critical mass’ to provide the required mix of development, supporting infrastructure and facilities, together with a high quality environment. Such facilities will need to be provided in a timely way that meets the emerging community needs of a development in parallel with its delivery. Smaller developments in the principal rural settlements must also make appropriate contributions to local and strategic infrastructure provision in their local area. Where discussions between landowners and the Joint Technical Unit are well advanced, a master planning approach can be pursued early on to ensure an early start to be made on strategic urban extensions and deliver development from this source in accordance with the timescales set out in the published housing trajectory. However, there is the need to release smaller amount of “greenfield” land on the edges of principal rural settlements in order to ensure they remain vibrant and the requirements of the East on England Plan Regional Spatial Strategy (RSS14) are fully met.

Options Considered

5.10 The Core Strategy Issues and Options Paper, June 2007, set out five pairs of options each one with a maximum and minimum land take derived from varying both the density and the amount of development each potential urban extension could accommodate. These options are available to view on the South Bedfordshire District Council website: www.southbeds.gov.uk. Details about what the Issues and Options consultation told us regarding these options, together with what the sustainability appraisal told us may be found in the ‘Providing New Homes’ chapter at paragraphs ** - **.

Conclusions

5.11 Up to around 2012 – 13 the joint working Councils will meet MKSM residential targets and requirements through encouraging and managing the delivery of residential development already committed, as set out in the up to date housing trajectory. From this date an incrementally increasing amount of new residential development will come in the form of

7/18 sustainable urban extensions in the preferred locations set out in this Core Strategy Preferred Options document for such development.

7/19 Preferred Option CS ** – Spatial Development Principles

The Luton and South Bedfordshire preferred option is to:

Plan for the continued delivery of housing and employment growth, together with associated supporting development in order to deliver the regeneration of the Growth Area in accordance with the East of England Plan RSS and the MKSMSRS. New development will be primarily focused within existing urban areas up to the year 2012/13. Following this the incremental release of sustainable urban extensions to Luton, Dunstable, Houghton Regis and Leighton Buzzard/Linslade will commence with a phased amount of residential development (specified at CS Preferred Option **) to be delivered in each preferred extension up to the end of the plan period in 2031. The urban extensions will also contain a range of new employment provision, supporting transport and other essential infrastructure to enable the extensions to function in a sustainable manner.

New development will be distributed to strengthen the network of settlements as set out in CS Preferred Option **. New development in open countryside outside the sustainable urban extensions will be strictly controlled in accordance with the principles of development in the green belt.

Priority will be given to the reuse of suitable previously developed land and buildings within the urban areas, followed by other suitable land in urban areas. The joint working Councils will prepare housing land availability assessments and implement ‘brownfield’ development strategies to ensure at least 40% of the overall housing requirements for the Growth Area are delivered on previously developed land and buildings.

Preference will be given to locations that are accessible by a choice of means of travel. In particular town centres and other defined sub-urban centres will be strengthened as the focus of retail, employment, leisure and other uses that attract a lot of people. Area Action and Master Plans will be prepared to enable the town centres of Luton, Dunstable, Houghton Regis and Leighton Buzzard to accommodate significant new development.

Development requirements that cannot be accommodated within existing urban areas will be focused on a small number of strategic urban extensions as follows and as shown on the key diagram on page **:

• north and east Luton, • north of Dunstable,;

7/20 • north of Houghton Regis; and • east and north east of Leighton Buzzard.

Subsequent Development Plan Documents will identify opportunities for smaller scale sustainable urban extensions on the edge of smaller rural settlements across the Growth Area.

Monitoring Indicator

5.12 Progress on the implementation of the implementation of the Core Strategy through the AMR. The indicator for this preferred option are:

• The amounts of land developed by type in the MKSM Growth Area and the ‘residual’ area surrounding it on previously developed and Greenfield land and the extent to which projected development targets in the published housing trajectory are met.

Housing

5.13 The distribution of housing aims to achieve a sustainable pattern of development, working within the constraints of the regional and sub – regional strategies and recognising that development patterns in the immediate future will be partly governed by the supply of housing already ‘in the planning pipeline’, for example, in the form of existing planning permissions and the potential to use ‘brownfield’ sites. Existing local plan allocations also need to be taken into account, although although these will be reviewed by each joint working Council in the light of the objectives of this Core Strategy specifically in relation to sustainability and deliverability objectives. The housing figures set out in Table ** include an indicative figure for the rural area. This is based on an assessment of past rates of development and the requirements of the East of England RSS. These indicative figures are a realistic estimate of potential supply consistent with the urban focused strategy set out in the Providing New Homes chapter.

5.14 The housing distribution seeks to:

• Reflect the current and planned roles for the existing urban areas, ensuring that new and existing residents have good access to jobs, services and facilities; • Allow for limited development to meet the needs of rural communities, with a strong focus on the identified principal rural settlements;

7/21 • Focus new investment and population where it is most needed to regenerate areas, strengthen and improve local services and the environment; • Give good accessibility to public transport and allow efficient use of the transport network; • Avoid directing unacceptable development pressures to the places with the most sensitive built or natural environments; • Avoid overloading existing services and facilities whilst ensuring that new development will support new facilities; • Have regard to reality ‘on the ground’ in terms of the supply of housing land and local knowledge including views on infrastructure constraints and greenfield development opportunities.

5.15 Given the close physical and functional relationship between Luton, Dunstable and Houghton Regis, as well as between Leighton Buzzard and Linslade, combined housing figures are given. This leaves the detailed distribution between the two ‘sets’ of closely related towns to be determined by the joint working Councils in the light of local studies and consultation.

Preferred Option CS** - Distribution of Housing

Luton and South Bedfordshire’s Preferred Option is to:

Ensure that new housing is focused in and around Luton, Dunstable and Houghton Regis as well as Leighton Buzzard and Linslade, limited development in the villages and restricted development in the open countryside. Development plan documents will make provision for the amount of housing development (net new dwellings) in the named settlements set out in Table **. This provision will be reviewed in the light of progress with the delivery of associated infrastructure and employment provision as required.

Table ** Distribution of Housing (*N.B. TO be Completed*)

Group of Settlements Indicative Housing Of which Requirement Housing Completions Luton, Dunstable and Houghton Regis Leighton Buzzard and Linslade Rural Settlements (see

7/22 table ** for list of these) South Bedfordshire District Council Total Luton Borough Council Total

Monitoring Indicator

5.16 Progress on the implementation of the Core Strategy will be monitored through the AMR. The indicators for this preferred option are:

• The extent to which the allotted strategic level distribution of housing is achieved in each of the settlement groups.

Employment

5.17 A major plank of the strategy for generating new and better jobs will be the provision of the right kind of land in the right place, of the right type and the right amount. ‘Employment land’ in this instance refers to those uses falling within the planning B uses classes, that is offices (B1), manufacturing (B2) and warehousing and distribution (B8). These B uses classes account for around ** (proportion to be added)** of forecast new jobs in the Growth Area to 2021 and (proportion to be added)** of forecast new jobs to 2031.

5.18 The joint working councils will plan for economic development and regeneration on the basis of achieving the net increase in jobs set out in CS preferred option **. The job creation targets reflect the preferred strategy of seeking to diversify the economy across the growth area whilst building on existing strengths and skills. These targets are based on the MKSMSRS as increased by the East of England RSS. The new jobs target alone has gone up from 12,600 to 23,000, this does not address existing deficiencies across the growth area: the legacy of the managed decline in traditional industries stored up over recent years, this must also be addressed in employment growth. There is forecast to be a continuing decline in the general industrial, including the manufacturing sector, but this does not necessarily mean that less land is needed for these uses (particularly for expanding local companies) as they still exist and will continue to make a major contribution to the economy of the Growth Area. In translating jobs targets into requirements for land, the joint working Councils have undertaken a comprehensive employment land and premises review in line with published Government guidance and best practice, taking into account the potential for future losses of existing employment land and/or floor space. As with planning for new housing a flexible approach will need to be taken, with some over-allocation in the system to allow for contingency, development time lags as well as to

7/23 provide a margin for choice and uncertainty. Given the area’s status as a growth area and the nature of much existing supply, this over-allocation should be of 5-years demand (gross take up).

5.19 Given the complexity of employment patterns, it is not practical to break Growth Area wide targets down into targets for individual settlements. The general approach is for employment development to be predominantly focused at the two principal urban areas of Luton, Dunstable and Houghton Regis together with Leighton Buzzard and Linslade as well as within the sustainable urban extensions. Employment at an appropriate scale will also be encouraged at the smaller rural service centres, particularly locations such as Toddington, Caddington and Barton-le-Clay, which have high levels of out-commuting at present. Diversification of the rural economy will be supported, in particular through the conversion of redundant commercial buildings within rural settlements to economic reuse.

5.20 Existing employment sites, areas and premises provide the main core supply of employment land. Those which the employment land and premises review demonstrates have a useful role to play in the future will be safeguarded from change to other uses to maintain the supply of employment land and retain older mixed use areas within towns, thereby allowing for journeys to work by foot or cycle. Those sites that have been demonstrated to no longer have a useful role to play, as they are perhaps not suited to modern commercial needs or where conflicts between existing uses have arisen, for example where HGV access is causing congestion, road safety or air pollution issues within older terraced streets, will be permitted to be redeveloped for other appropriate uses.

5.21 The four town centres are the preferred locations for the focus of new office development followed by other locations with good public transport connectivity. However, the town centres cannot entirely accommodate the amount of land envisaged as being required for office-based uses. Furthermore, in view of the need to bring about economic growth certain types of business use (such as research and development) may find more commercially attractive locations within the sustainable urban extensions or other prominent sites at the edge of the two principal urban areas. These will need to be in locations that are, or can be made, highly accessible by a range of transport modes particularly by alternatives to the private car.

5.22 Initiatives such as the Luton and Dunstable Economic Partnership, Bedfordshire and Luton Economic Development Partnership (BLEDP) together with Assisted Area and Priority Area for Economic Regeneration (PAER) status for part of the Growth Area each aim to provide an impetus to the economy of the Growth Area. One of the key aims is to ensure the

7/24 economy becomes more knowledge-based through the focused provision of commercial property space and business support services of a quality conducive to higher value added commercial activities. In order to create linkages between business, provide supporting infrastructure and to embed the economic activity within their locality, the location of this provision is proposed to be focused at two ‘hubs. One will be within an urban extension around proposed junction 11a whilst the other will build on the considerable employment mass around London Luton Airport to the east and south east of Luton. These sites will be identified in development plan documents and will be capable of accommodating:

• The development of flexible, future-proof buildings (including modular construction); • The development of a ‘ladder’ of accommodation that can support occupiers from start-up, through successive follow-on space to maturity; • Building and external space design that maximises formal and informal interaction; and • Striking, cutting-edge and innovative architecture; • Appropriate broadband telecommunications and ICT infrastructure.

5.23 The strategic location of the Growth Area has made it a centre for the distribution industry. Large-scale development for strategic distribution (use class B8) development has taken place in recent years predominantly on previously developed employment land within existing urban areas once used by manufacturing industry. This has generated significant investment and a range of jobs but has involved the use of large areas of existing employment land for relatively low levels of new jobs compared to what previously existed. This trend has also put significant demands on transport infrastructure. Also, whilst the distribution sector can offer a broad range of jobs, many of those created have been relatively low skilled.

5.24 Strategic distribution will remain important to the economy of the Growth Area. However, new approaches are needed to maximise the benefits of this growth sector, particularly in order to:

• Contribute to a modal switch away from road based freight transport (maximising opportunities for rail and water based distribution); • Secure a greater range of jobs (including office-based employment); and • Improve the design and environmental performance of warehouse developments.

7/25 5.25 Recent studies have indicated that large scale strategic distribution activity (with buildings greater than 25,000 square metres floor space) should be focused in locations that are attractive to the logistics industry, offer at least 50 hectares of development land; have rail access with a generous loading gauge and the capacity to operate freight trains) good access to the national highway network; good access to labour. Within the Growth area there are currently no locations available that fully satisfy these requirements. Proposed development around junction 11a and at Sundon Quarry to the north will go some way to filling the gap in terms of these missing employment and commercial opportunities. The Sundon Quarry development in particular will have high quality rail connection infrastructure available. However, not all of this greater strategic employment hub will be permitted to be developed for distribution type uses. An appropriate balance with other higher employment generating, high skill knowledge a technology industries will also have significant and strong representation.

5.26 It is anticipated in the Regional Freight Strategy that upgrading of the wider rail network will come forward and it is also reasonable to suppose that such an upgrade will be completed to allow for port expansion in the Haven Ports and on the Thames to the east of London where a growth in rail freight is anticipated. The junction 11a/Sundon Quarry development will add justification for advancing national rail freight objectives, as well as broader concepts of sustainable road transport. The main rail corridor through Luton has long been identified as having the potential to accommodate some rail-related development although of a more limited nature and some infrastructure already exists.

5.27 Existing planning permissions, allocations and safeguarded designations allow for some smaller scale strategic distribution development elsewhere across the Growth Area. Distribution developments should be in locations and of a scale where buildings are not visually prominent, unless they are of exceptional design and build quality. Development should be sensitively designed to reduce its impact on the local townscape and landscape and to achieve high standards of safe public realm layout and environmental performance. Where appropriate, developments should contribute towards enhancing the wider Green Infrastructure network.

5.28 Traffic impact, particularly in relation to issues over the capacity of junctions on strategic roads across the Growth Area, will be a fundamental consideration in respect of acceptability of proposals. The impact of HGV parking arising from such development will also need to be addressed. Development should safeguard land to provide facilities for transferring freight delivery from road to rail and water (along the Grand Union canal for example) wherever practical.

7/26 Options

5.29 The Core Strategy Issues and Options paper, June 2007, asked where employment uses should be concentrated. Should they be concentrated on existing employment areas, with development intensified at these areas including the redevelopment of poor quality employment sites for new employment purposes with employment provision on other sites seen as a last resort? Alternatively should employment provision be encouraged within the proposed urban extensions combined with redeveloping existing, poor quality or underused employment sites for other uses? Details about what the Issues and Options consultation told us regarding these options, together with what the sustainability appraisal informed us is set out in the ‘Our Economy and Employment Needs’ chapter at paragraphs ** - **

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Preferred Option CS** Distribution of Jobs

Luton and South Bedfordshire’s preferred option is to:

a) Regularly review the quantity and quality of existing employment sites, allocations and safeguarded designations in the light of job creation and regeneration targets;

b) Safeguard existing employment land and premises as well as allocated employment sites and safeguarded designations for employment use, unless an alternative use would;

• Not be detrimental to the overall supply and quality of employment land across the Growth Area, and /or • Resolve existing conflicts between land uses.

c) New sites will be allocated to meet any identified shortfall in supply. These will be within or adjoining the main urban areas, the sustainable urban extensions, or areas that presently have a low jobs/worker balance and are in locations that are capable of being accessed by a choice of means of transport. The four town centres and other areas with good public transport connections will be the preferred locations for new office development.

d) Large-scale strategic distribution will be concentrated in the new strategic employment location around proposed junction 11a and Sundon Quarry to the north east of Luton. Other distribution sites should be located close to the strategic transport network, with priority given to areas served or potentially served by rail or water;

e) Employment sites will be identified in and around the two principal conurbations to meet the twin aims of increasing the Growth Area’s knowledge and technology offer that are capable of providing the quality of environment and property product necessary to attract and develop more knowledge and technology intensive economic activity and generally raise skill levels;

f) Sites demonstrated as being no longer suited to employment uses will be de-allocated and allocated for alternative uses;

g) Within rural areas, new employment development will be directed to the rural and local service centres. The conversion

7/28 of existing buildings and infrastructure for employment and tourism related development will be encouraged in locations within and adjoining settlements. In order to support farm diversification in the open countryside, conversion to employment uses of buildings worthy of retention will be supported where proposals are in accordance with the criteria set out Preferred Option CS **.

Monitoring Indicators

5.30 Progress on the implementation of the Core Strategy will be monitored through the AMR. The indicators for this preferred option are:

• The extent to which the allotted strategic level distribution of jobs growth is achieved in each of the settlement groups. • The extent to which a step-change in the delivery of knowledge and technology based skill levels and associated jobs is achieved across the Growth Area.

Retail, Leisure and Culture

5.31 Retail development will be concentrated within existing town and other suburban and rural service centres as defined in development plan documents. The sustainable urban extensions will include hierarchy of urban centres of an appropriate scale that balances and builds upon the level of provision in the existing urban areas. Each new centre will contain a mix of convenience and comparison shops together with other facilities appropriate in centres such as medical facilities, including ‘super surgeries’ and schools to meet the everyday needs of residents. These new centres will not provide significant convenience and comparison-shopping provision or other facilities serving a wider catchment: such provision is better located in town centres. Any proposals outside of town or other centres will be subject to the sequential test in order to determine whether the development is best placed within the existing town centre (guidance on applying the sequential test is set out in PPS6, ‘Planning for Town Centres’). A balanced four-way network of town centres will be supported as outlined in figure ** below.

5.32 The two principal urban areas will be the focus of development, with Luton remaining the principal retail centre in accordance with its sub-regional role, with Dunstable, Leighton Buzzard and Houghton Regis also accommodating a level of growth that complements and secures their roles as supporting town centres

7/29 serving more local markets. The Luton and South Beds Retail Study gives the following indicatives ranges of net increases in comparison shopping floor space that should be planned for in the period 2010 2031 depending on economic growth rates:

• Luton Borough: 140,400 – 191,100m2; • Dunstable: 55,600 – 69,000m2; • Leighton Buzzard and Linslade: 29,100 – 36,100m2; and

The demand is lower in Houghton Regis and only known up to 2016. This is: 500 – 600m2. These figures are in addition to existing commitments or proposals, the lost significant being the Power Court and Mall Extension schemes that are imminent in Luton Town Centre. They represent a step-change in the comparison retail offer in all four-town centres.

5.33 Preferred option CS** sets out the minimum quantum of additional comparison floor space that should be planned for in order to increase trade retention across the Growth Area and improve the retail offer together with the vitality and viability of all four growth area town centres. These strategic level quantums will act as a guide for the preparation of more detailed plans such as the site allocations development plan document, area action and master/framework plans.

5.34 Development will proceed at different rates in the four town centres in response to market demands and regeneration needs as sites become available. The enhancement of Luton Town centre is about to commence and its completion early in the plan period is key to regenerating the town and the wider Luton, Dunstable and Houghton Regis conurbation. This will help to stem the loss of trade from the area to places such as Milton Keynes, Hemel Hempstead and Watford. The scale or pace of development in any of the four Growth Area towns will be held back only if it is clear that it would threaten the long terms vitality and viability of another town or urban centre, or the retention of expenditure in the Growth Area. Accordingly, proposals that comprise all or part of major retail development (1,000m2 or more gross floor area) will need to include an assessment of impacts on adjacent town centres in order to ensure that the town centres compliment each other. The retail strategy will be reviewed in the light of continually changing market conditions and monitoring of delivery.

7/30 Figure ** Town Centres: A Balanced Network Approach Luton Focus on Development Strong Sub- Expanded Town Centre focused on regional an enlarged Mall new Power Court centre development, redesigned principal public transport node and regenerated pubic realm. Leighton Focus on Development Buzzard District Other key foci of town centre uses, centre on the in need of expansion to serve scale of a increasing population in the Smiths market town Meadow area between Leighton Buzzard and Linslade whilst retaining market town atmosphere.

Houghton Focus on Development Regis (comparison goods only) District Other main town centre, in need of centre on expansion to serve increasing scale of population westwards along High major Street. suburban district centre Dunstable Consolidation Under- Other key foci of town centre uses, performing in need of some consolidation to district combat under performance. centre on scale of a market town Barton-le Consolidation Clay Maintain considerable local services and facilities in compact local centre. Caddington Consolidation Maintain considerable local services in compact local centre in pleasant setting. Eaton Bray Consolidation Maintain a few dispersed units serving a localised customer base.

7/31 Heath and Consolidation Reach Maintain small local facilities in compact setting. Slip End Consolidation Maintain key limited services and facilities. Toddington Consolidation Maintain a vibrant and active local centre in a pleasant setting n this former market town.

5.35 In terms of convenience floor space, in Luton there is a need for an extra 10,700 square metres in the period up to 2016. In Leighton Buzzard there is a need for around 1,000 sq metres, whereas there is forecast to be an oversupply in Dunstable and Houghton Regis and no further provision is necessary. Some ‘organic’ growth may be needed in rural service centres associated with some minor growth at these settlements associated with the delivery of the East of England Pan RSS.

5.36 The town centres also need to expand and improve the range of employment, leisure and housing on offer to meet the needs of a growing population. For example Dunstable Town Centre is planned to consolidate in terms of retail, therefore it should deliver more in terms of residential development. This would serve to regenerate Dunstable Town Centre and ensure that the remaining retail services and facilities remain well used and the town centre regains its vibrancy.

5.37 Leisure, cultural and heritage provision across the Growth Area will encompass a wide range of activities and facilities in order for people to participate in sport, recreation, arts, cultural and heritage activities. Their inclusion in future planning for the area is crucial in making the four Growth towns and their surrounding catchments a vibrant, exciting and exceptional place to live and work. The delivery of suitable facilities will need to support the development of a balanced network of centres.

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Preferred Option CS ** Distribution of Retail Development

The Luton and South Bedfordshire preferred option is to:

Strengthen and regenerate the town centres of Luton, Dunstable, Leighton Buzzard and Houghton Regis as the foci of sustainable communities. In the period to 2021 development plan documents will make provision, in addition to existing commitments, for a minimum of net increase in comparison shopping floor space of:

• Luton: 84,000m2; • Dunstable: 35,000m2; • Leighton Buzzard: 18,300m2; • Houghton Regis: (by 2016) 600m2.

In the period 2021 – 2031 a further net increase in comparison floor space of:

• Luton: 93,300m2; • Dunstable: 34,000m2; • Leighton Buzzard: 17,800m2; • Houghton Regis: not known.

Development of an appropriate scale that enhances the mainly convenience retail offer of the rural service centres and enables them to consolidate their role as local convenience shopping and local centres will be supported. Local deficiencies in convenience retail provision will be addressed by provisions made through detailed development plan documents.

Where retail development, for which there is an identified need, cannot be accommodated within the defined town centres, a sequential approach will be followed with preference first to well-connected edge of town-centre locations followed by suburban district and local centres, including those in the sustainable urban extensions, finally existing retail areas that are well served by a choice of means of transport, particularly alternatives to the private car will be favoured.

The scale of retail development should be appropriate to the role and function of the centre where it is located. Accordingly, proposals for major retail development and their phasing will be assessed to ensure they do not have an adverse impact on the long term vitality and viability of other town centres or the ability of the Growth Area as a whole to retain expenditure.

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Monitoring Indicators

5.38 Progress on the implementation of the Core Strategy will be monitored through the AMR. The indicators for this preferred option are:

• The extent to which the additional retail floor space and other associated development is delivered on time; • The extent to which success is achieved in maintaining/restoring the vibrancy and vitality of the town and other centres across the Growth Area.

CS**: Green Belt

5.39 Green Belt has been a well established across the rural parts of the Growth area, its boundary being determined through adopted local plan documents. The main aim of designating Green Belt is to preserve the openness of the area and this is achieved through restrictions on development as set out in PPG2: Green Belts. The primary reasons for the designation of Green Belt in the Growth Area are two fold: • To prevent neighbouring towns from merging into each other: and • to assist in safeguarding the countryside from encroachment;

5.40 Settlements that lie within the Green Belt fall into two categories. Some are inset into the Green Belt and are defined by settlement envelopes. Others are ‘washed over’ by the designation. Some of the villages ‘washed over’ by Green Belt have defined ‘infill only’ boundaries. Within these boundaries, proposals for infill development will be considered acceptable in principle. (‘Infill development’ comprises small-scale development utilising a vacant plot for no more than two dwellings, which reflects the surrounding pattern of development). The category a settlement falls within is indicated on the accompanying key diagram. The detailed boundaries of the Green Belt and infill boundaries will be shown on the subsequent site allocations proposals map.

5.41 The MKSMSRS recognises that to deliver the amount of growth allocated to the Growth Area a review of the Green Belt will be required around the principal existing urban areas. This preferred option Core Strategy sets out the strategic level results of this review and consequently the strategic level locations for strategic urban extensions.

5.42 The strategy makes specific strategic development decisions in the period up to 2026 and also sets aside a further element of ‘white land’; land treated as Green Belt for now but recognised as being required for development beyond this date, to accommodate development up to 2031.

7/34 This white land is mainly located on the northern edge of the proposed urban extensions to the north of the Luton, Dunstable and Houghton Regis conurbation.

5.43 It is proposed that there be four strategic green belt land releases in the period up to 2031, including the provision of ‘white land’ beyond 2026, these are set out in CS ** above.

Options

5.44 Five pairs of options for sustainable urban extensions were set out in the Core Strategy Issues and Options paper, June 2007, all of which involve a review of the Green Belt. It is considered that the four chosen Green Belt releases and associated Green Belt reviews represent the most sustainable options in terms of accessibility by a range of transport modes, other supporting infrastructure and the contribution that development in these locations can make to securing the regeneration of the existing urban area.

Conclusions

5.45 There are clear exceptional circumstances to review the Green Belt to allow the development of sustainable urban extensions across the Growth Area. The principles of the Green Belt, outlined in paragraph 7.0 above have been respected and fully considered as part of the exercise undertaken to identify the most appropriate places to remove land from the Green Belt.

5.46 In the light of this it is considered that the following areas, shown on the key diagram and referred to in CS ** ‘Spatial Development Principles’ above, be removed from the Green Belt to enable the development of sustainable urban extensions:

• north and east Luton, • north of Dunstable,; • north of Houghton Regis; and • east and north east of Leighton Buzzard.

5.47 Other minor reviews of the Green Belt may be necessary around the rural settlements excluded from the Green Belt in order to accommodate a scale of growth appropriate to the scale of the settlement concerned. These smaller scale green belt reviews will emerge through the forthcoming Site Allocations Development Plan Document. The rural area outside of the preferred areas for sustainable urban extensions will remain designated Green Belt.

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Preferred Option CS ** - Green Belt

Luton and South Bedfordshire’s preferred option is to:

Review the existing extent of the South Bedfordshire Green Belt to allow the accommodation of four strategic urban extensions to the Luton, Dunstable, Houghton Regis and Leighton Buzzard/Linslade urban areas.

Delete Green Belt designation from the areas shown on the key diagram at the following locations:

A) North and East of Luton; B) North of Dunstable; C) North of Houghton Regis; and D) East and North East of Leighton Buzzard.

Review the extent of the South Bedfordshire Green Belt around rural settlements excluded from the Green Belt through the forthcoming Site Allocations Development Plan Document and delete Green Belt designation from areas of land to allow the growth of rural settlements at an appropriate scale to the settlement concerned.

Ensure the rest of the rural area retains its Green Belt designation.

Monitoring Indicator

5.48 Progress on the implementation of the Core Strategy will be monitored through the AMR. The indicators for this preferred option are:

• Progress towards delivering sustainable urban extensions in the areas that have had their Green Belt designation deleted; and • The number and type of planning permissions/refusals in the remaining and recast Green Belt.

CS**: Settlement Hierarchy

5.49 In helping to direct where new development should take place, the Council believes it is helpful to set out a settlement hierarchy. A hierarchy of settlements is already established taking account of local sustainability credentials such as access to services and facilities (schools, shops and public transport links etc). This hierarchy will provide a framework for site-

7/36 specific allocations through the LDF process and for decisions on individual planning applications. The boundaries of settlements may be usefully defined to differentiate between the settlements and open countryside.

Options

5.50 The Core Strategy Issues and Options paper sought to continue with the settlement hierarchy already established through existing local plans. No other option was considered appropriate for the Growth Area. The existing settlement hierarchy is;

• Luton: Sub – regional centre; • Dunstable, Leighton Buzzard/Linslade & Houghton Regis: – District Centres; • Barton-le Clay, Caddington, Eaton Bray, Heath and Reach, Slip End, Toddington: – Rural Centres; and • Chalton, Kensworth, Stanbridge: Limited infill settlements (able to accommodate up to two contiguous dwellings in a small infill gap in an otherwise continuous built residential frontage)

5.51 All other settlements are completely washed over by the Green Belt and are therefore subject to the national policy governing development in the Green Belt set out in PPG 2 ’Green Belts’.

Conclusions

5.52 The existing settlement hierarchy set out in adopted local plans is based on the existing characteristics and facilities of each settlement, their access to local transport and hence their suitability to accommodate growth. In the context of MKSMSRS and the East of England Plan RSS, it is appropriate to differentiate between larger and smaller centres and specifically identify in the manner set out in paragraph 8.1 above. This approach serves to clarify the role of each scale of rural settlement and establishes a template through which an appropriate scale of development can be determined that each scale of settlement can sustainably accommodate.

Preferred Option CS** - Settlement Hierarchy

Luton and South Bedfordshire’s preferred option is to:

Develop a clear settlement hierarchy that identifies settlements as follows:

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• Sub – Regional Centre: Luton; • District Centres: Dunstable, Leighton Buzzard/Linslade and Houghton Regis; • Rural Centres: Barton-le-Clay, Caddington, Eaton Bray, Heath and Reach, Slip End, and Toddington; • Limited infill settlements: Chalton, Kensworth and Stanbridge.

All other settlements are wholly within the Green Belt and consequently are subject to the national policy governing development in Green Belts set out in PPG2 ‘Green Belts’.

The boundaries of all identified settlements will be defined for policy purposes with a Settlement Envelope boundary.

Monitoring Indicator

5.53 Progress on the implementation of the Core Strategy will be monitored through the AMR. The indicator for this preferred option is:

• Percentage of development within defined Settlement Envelopes.

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