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Cherwell Green Belt Study Cherwell Green Belt Study Final Report Prepared by LUC April 2017 Project Title: Cherwell Green Belt Study Client: Cherwell District Council Version Date Version Details Prepared by Checked by Approved by V1 14/03/17 Draft Cherwell Green Belt Sarah Young Sarah Young Sarah Young Study Richard Swann V2 17/03/17 Final Draft Sarah Young Richard Swann Sarah Young Richard Swann V3 18/04/17 Final Sarah Young Richard Swann Sarah Young Richard Swann Cherwell Green Belt Study Final Report Prepared by LUC April 2017 Planning & EIA LUC BRISTOL Offices also in: Land Use Consultants Ltd th Registered in England Design 12 Floor Colston Tower London Registered number: 2549296 Landscape Planning Colston Street Bristol Glasgow Registered Office: Landscape Management BS1 4XE Edinburgh 43 Chalton Street Ecology T +44 (0)117 929 1997 London NW1 1JD Mapping & Visualisation [email protected] FS 566056 EMS 566057 LUC uses 100% recycled paper Contents 1 Study Objectives 1 Introduction 1 Background 1 Study Objectives 2 Report Structure 3 2 Study Context 4 Introduction 4 National Planning Policy 4 Housing White Paper 5 The Oxford Green Belt 6 Oxford Green Belt Study 7 Local Planning Policy 7 3 Assessment Methodology 9 Introduction 9 Assessment Approach 9 Task 1: Subdivision of Assessment Sites 9 Task 2: Assessment of Green Belt Contribution 10 Task 3: Assessment of Harm to Green Belt 14 Task 4: Assessment of Potential Alternative Boundaries 15 Task 5: Identification of Potential Mitigation 15 Output Format 15 4 Summary of findings 17 Introduction 17 Role of Green Belt Harm Assessment 17 Findings of the Assessment 17 Possible Scenarios for Accommodating a Share of Oxford’s Housing Need 23 Consideration of Green Belt Outer Extents 24 5 Mitigation and Enhancement of Beneficial use 29 Introduction 29 Mitigation to Reduce Harm to Green Belt 29 Beneficial Use of Green Belt 31 Specific Mitigation / Beneficial Use 33 Making Changes to the Green Belt 34 Appendix 1: Detailed Site Assessments 35 1 Study Objectives Introduction 1.1 LUC were commissioned by Cherwell District Council (CDC) in December 2017 to undertake a partial review of the Green Belt within Cherwell District. The review appraises strategic development sites within the District against the five nationally defined purposes of the Green Belt as set out in the NPPF. It also draws conclusions on the relative harm (or otherwise) to the Green Belt that may result from their potential release for development. The review will inform the preparation of the Partial Review of Cherwell Local Plan Part 1 and the Cherwell Local Plan Part 2. More specifically, it will provide evidence to enable Cherwell District Council to consider whether the Green Belt boundaries should be altered through the Local Plan process, to enable existing Green Belt land to contribute to meeting Oxford’s unmet housing need. 1.2 This chapter sets out the background to the study, the key study objectives and the structure of the remaining report. Background 1.3 In 2013, the Oxfordshire Local Planning Authorities commissioned a new strategic housing assessment (SHMA), to establish the appropriate level of planned growth across the Oxfordshire Housing Market Area and the level of housing need arising in each District. In April 2014 the Oxfordshire Local Authorities published the Strategic Housing Market Assessment (SHMA) for Oxfordshire. The document suggested that 100,060 additional new homes were needed in Oxfordshire between 2011 and 2031. 1.4 In November 2014, the Oxfordshire Growth Board commissioned a Project team to address the unmet housing needs of Oxford. This project team considered the implications of the SHMA and how best to meet the identified unmet housing need of Oxford. In September 2016 the Growth Board (with the exception of South Oxfordshire DC) endorsed the proposed apportionment across the Districts using a working figure of 15,000 homes. The agreed apportionment for Cherwell District was 4400 homes. 1.5 The Cherwell Local Plan Part 1 was adopted in July 2015. It plans for growth to fully meet Cherwell’s development needs to 2031. The Local Plan also committed the Council to work towards addressing the unmet objectively assessed housing need from elsewhere in the Oxfordshire Housing Market Area (HMA), particularly from Oxford City. 1.6 Work has commenced on the Partial Review of the adopted Local Plan (Part 1) specifically to meet Oxford’s unmet housing need. An Issues Consultation document was published in January 20161. The publication of the Issues Paper was accompanied by a “Call for Sites”, and a number of site submissions were received promoting development sites in the Green Belt. An Options Paper was also published for formal public consultation in November 2016. It is intended that a proposed Submission Partial Review document will be published for consultation in May 2017 and a final Submission Plan submitted to the Secretary of State in September 2017. 1 Available to view on http://www.cherwell.gov.uk/index.cfm?articleid=11346. Cherwell Green Belt Study 1 April 2017 1.7 The key focus of the Partial Review document is the identification and assessment of strategic development sites to meet the agreed apportionment for Cherwell of 4400 dwellings. In the adopted Local Plan, strategic development in the Green Belt was not required to meet Cherwell’s housing needs. However, as the Green Belt, by definition, immediately adjoins Oxford, the development of land within the Green Belt has to be considered as a possibility in meeting the City’s unmet housing need. Early work undertaken to inform the Partial Review Options Paper suggest that the areas closest to Oxford are the most sustainable areas of search. 1.8 Approximately 14% of the Cherwell District lies within the Oxford Green Belt. A large number of villages in the District are washed over by the Green Belt and the villages of Kidlington, Yarnton and the eastern side of Begbroke are surrounded by the Green Belt. Other villages lie partly within and partly outside the Green Belt. 1.9 The Planning Inspector who examined the Cherwell Local Plan in 2014 considered that there needed to be: ‘….a formal commitment from the Council, together with other relevant Council’s, to undertake a joint review of the boundaries of the Oxford Green Belt, once the specific level of help required by the city of Oxford to meet its needs that cannot reasonably be met within its present confines, is fully and accurately defined.’ 1.10 A Green Belt Study on behalf of The Oxfordshire Growth Board was completed by LUC, in October 2015. It assesses the extent to which land within the Oxford Green Belt performs against each of the purposes of Green Belts as defined in the NPPF. The Study divided the Green Belt in to parcels for assessment purposes: broad areas of Green Belt and smaller parcels adjacent to settlements inset within the Green Belt (including Oxford City). The broad areas and land parcels were assessed as to whether their contribution to each of the Green Belt purposes was high/medium/low or no contribution. The Study emphasised that where a piece of land performs less well against the Green Belt purposes, this does not in itself justify release of the land from the Green Belt. 1.11 LUC were asked not to advise on the suitability or potential of land in the Oxford Green Belt for development. However, the findings of the study were considered by the Oxfordshire Growth Board on 26 September 2016 as a strand of the work that informed the apportionment decision. In commissioning the study, it was clear that should individual Councils conclude that there were ‘exceptional circumstances’ for making alterations to the existing Green Belt boundaries, these changes, including any allocations of land for development, would be taken forward through the respective Local Plan-making process. 1.12 This Green Belt Study has been commissioned by Cherwell District Council to assess the suitability of the strategic sites being promoted for development against the five purposes of the Green Belt. This will enable Cherwell District Council to consider whether there are ‘exceptional circumstances’ (under paragraph 83, NPPF) to justify altering Green Belt boundaries through the Local Plan process, i.e. to enable existing Green Belt land to contribute to meeting Oxford’s unmet housing need. The study is also required to establish whether there is any local justification to amend outer boundaries of the Green Belt, for example where there are anomalies due to changes of circumstance since the boundaries were approved (for example, through the construction of the M40 motorway). Study Objectives 1.13 The objectives of the study were to: • Appraise the strategic sites against the five nationally defined purposes of the Green Belt as set out in the NPPF, ensuring consistency with the Oxford Green Belt assessment. • Provide clear conclusions on the relative performance of the Green Belt and the potential degree of harm that may result from their release. • Recommend where defensible Green Belt boundaries should be drawn. Cherwell Green Belt Study 2 April 2017 • Consider whether there is justification for amendments to be made to the outer Green Belt boundary, to extend the designation where it would strengthen its strategic role, or where there are anomalies. • Outline what mitigation measures in the form of ‘design principles’ should be applied where land may be suitable for release to minimise potential harm to the wider Green Belt and to enhance potential beneficial use of Green Belt. Report Structure 1.14 The remainder of this report is structured as follows: • Chapter 2 summarises national planning policy with regard to Green Belt assessment and alteration, sets out in more detail the Cherwell local planning policy that has resulted in this Green Belt review.
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