For publication

Bedford Borough Council – Report to the Mayor

Date - November 2019

Report by the Chief Officer Planning and Highways

Subject: CARLTON AND CHELLINGTON NEIGHBOURHOOD PLAN

1. Executive Summary

Neighbourhood plans are statutory development plans produced by parish/town councils or neighbourhood forums. Carlton and Chellington Parish Council has produced a neighbourhood plan for the Carlton and Chellington parish area.

The Plan was submitted to Bedford Borough Council on 5th April 2019 and, in line with regulatory requirements, was subject to a six-week consultation (12th June to 25th July 2019). It has since been formally examined by R J Yuille MSc DipTP MRTPI who is an independent examiner.

The examiner has produced a report (Appendix A) which recommends that the Plan is modified in order to meet legal requirements and is then progressed to a referendum of people who live within the designated neighbourhood area.

Bedford Borough Council must decide:

• whether to progress the Plan to a referendum and • whether to modify it (in the ways recommended by the examiner or otherwise) or • whether to refuse the Plan.

The Council must consider each of the examiner’s recommendations on the content of the Plan and decide what action to take. If the Plan is to progress to referendum, the council must also decide whether the referendum area should be extended beyond the neighbourhood area, which in this case is Carlton and Chellington Parish.

2. Recommendations (1) Neighbourhood planning/executive decision/referendum Nov2019

The Mayor is asked to consider this report and if satisfied agree:

• To make modifications to the Carlton and Chellington Neighbourhood Plan in line with the recommendations set out in the examiner’s report (Appendix A) and that as modified (Appendix B), the Plan meets the basic conditions

• That the formal Decision Statement (Appendix C) be published by 19th November 2019 in order to comply with the statutory deadline, and to inform those interested about the Council’s decision

• To make arrangements to progress the Plan to the referendum stage of plan preparation

• That the designated Carlton and Chellington Neighbourhood Area represents the appropriate geographical area to be covered by the referendum

3. Reasons for Recommendations

To give information about the outcome of the Carlton and Chellington Neighbourhood Plan examination and to secure agreement to progress the Carlton and Chellington Neighbourhood Plan to referendum, which is the next stage of the plan-making process.

4. Key Implications

(a) Policy

Neighbourhood plans are examined to ensure that they meet the ‘Basic Conditions’ which are set out in Paragraph 8(2) of Schedule 4B to the Town and Country Planning Act 1990 (as amended). The ‘Basic Conditions’ ensure, amongst other things, that appropriate regard has been had for local and national policies. In order to meet the Basic Conditions, the neighbourhood plan must:

- Have regard to national policies and advice contained in guidance issued by the Secretary of State;

- Contribute to the achievement of sustainable development;

- Be in general conformity with the strategic policies of the development plan for the area (in this case saved policies in the Local Plan 2002, policies in the Core Strategy & Rural Issues Plan 2008 and the Allocations and Designations Local Plan 2013); (2) Neighbourhood planning/executive decision/referendum Nov2019

- Be compatible with and not breach European Union (EU) obligations; and

- Meet prescribed conditions and comply with prescribed matters.

Regulation 32 of the Neighbourhood Planning (General) Regulations 2012 (as amended) prescribes a further Basic Condition for a neighbourhood plan. This requires that the making of the neighbourhood plan does not breach the requirements of Chapter 8 of Part 6 of the Conservation of Habitats and Species Regulations 2017.

(b) Legal Issues

The scope of a neighbourhood plan examination is set out in Paragraph 8(1) of Schedule 4B to the Town and Country Planning Act 1990 (as amended). The examiner must consider:

• Whether the plan meets the Basic Conditions;

• Whether the plan complies with provisions under s.38A and s.38B of the Planning and Compulsory Purchase Act 2004 (as amended). These are:

- it has been prepared and submitted for examination by a qualifying body, for an area that has been properly designated by the local planning authority; - it sets out policies in relation to the development and use of land; - it specifies the period during which it has effect; - it does not include provisions and policies for ‘excluded development’; - it is the only neighbourhood plan for the area and does not relate to land outside the designated neighbourhood area; - whether the referendum boundary should be extended beyond the designated area, should the plan proceed to referendum; and

• Such matters as prescribed in the Neighbourhood Planning (General) Regulations 2012 (as amended).

The examiner must also consider if the neighbourhood plan is compatible with the Convention on Human Rights.

On receipt of the examiner’s report, the Neighbourhood Planning (General) Regulations 2012 require that a Local Planning Authority must publish a decision statement setting out what actions will be taken in response to each of the examiner’s recommendations.

(3) Neighbourhood planning/executive decision/referendum Nov2019

If the authority proposes to accept the examiner’s recommendations, a decision statement must be published within 5 weeks of receiving the examiner’s report. Arrangements for the referendum must then commence.

If the authority proposes to make a decision which differs from that recommended by the examiner, it must notify relevant people and invite representations for a period of 6 weeks. The local planning authority may, if it considers it appropriate to do so (for example if the Council’s proposed changes are significant or controversial), refer the issue to further independent examination and receive a further report. Once any period for further representations is over, the local planning authority must issue its final decision within 5 weeks and proceed to referendum.

In this case it is recommended that the examiner’s proposed amendments are accepted. If this is agreed, the decision statement relating to the Carlton and Chellington Neighbourhood Plan must be published by 19th November 2019.

The neighbourhood plan passes the referendum of local voters if it achieves a simple majority (i.e. 50% +1 or over). No minimum turn- out is required. If a plan passes referendum, the council must ‘make’ (adopt) it as soon as reasonably practicable unless the Council considers that the plan breaches EU obligations or human rights legislation. If there is a majority ‘No’ vote or a tied vote then the neighbourhood plan will not come into legal force.

The Council must hold a referendum within 56 working days from the date that the decision to take the plan forward to a referendum is published. The Council must publish notice that the referendum will take place not fewer than 28 days before the referendum date.

The Neighbourhood Planning (Referendums) Regulations 2012 (as amended) cover all aspects of organising and conducting polls.

The Referendum question is ‘Do you want Bedford Borough Council to use the neighbourhood plan for Carlton and Chellington Parish to help it decide planning applications in the Neighbourhood Area’.

Decisions to proceed to referendum and to ‘make’ the neighbourhood plan are taken by Bedford Borough Council’s Executive rather than Full Council.

Bedford Borough Council can be challenged on the making of the plan by way of judicial review. Challenges must normally be made within six weeks of the making of the plan.

(4) Neighbourhood planning/executive decision/referendum Nov2019

(c) Resource Implications

The Government provides funding to assist councils to fulfil their neighbourhood planning duties. Once the date for the referendum is published, a claim for £20,000 can be made in the next available claim window (likely to be March 2020). This represents a contribution towards the Council’s costs associated with fulfilling its duty to assist the Parish Council in the preparation of its plan, and the costs associated with the examination process (including the examiner) and the referendum. Any costs in excess of £20,000 will need to be borne by the Council, though it is not anticipated that the examination process and the referendum combined will be more than this amount. Costs associated with assisting the neighbourhood plan group to prepare their Plan are funded from the Plans and Strategies Reserve.

When the neighbourhood plan is formally ‘made’, the percentage of community infrastructure levy (CIL) receipts payable to the Parish Council arising from development within the parish will increase from 15% to 25% resulting in Bedford Borough Council’s percentage decreasing to 75%. National Planning Practice Guidance explains that parish councils must use the CIL receipts passed to them to support the development of the parish council’s area by funding the provision, improvement, replacement, operation or maintenance of infrastructure; or anything else that is concerned with addressing the demands that development places on the area.

(d) Risk Implications

The recommendations in the examination report are not binding, but if the Council chooses not to agree with the examiner’s recommendations without a sound reason, there is a risk of legal challenge which could lead to reputational damage and financial costs. Whilst there is also a risk of legal challenge if the Council does follow the examiner’s recommendations, it must be considered that the risk is lower.

Any modifications made to the content of the plan should be done so only in order to make the plan meet the basic conditions and other legislative requirements. Making modifications for any other reasons (other than formatting or spelling corrections) could lead to a legal challenge.

(e) Environmental Implications

The Carlton and Chellington Neighbourhood Plan was screened for Strategic Environmental Assessment (SEA) by Carlton and Chellington Parish Council with assistance from Bedford Borough Council. The SEA screening concluded that it was unnecessary to undertake SEA. The examiner supported this conclusion.

The Plan was further screened to determine if Habitats Regulations Assessment (HRA) was necessary. The HRA was carried out by specialist consultancy Bodsey Ecology Ltd. It concluded that the Plan would not have a significant effect on European sites either (5) Neighbourhood planning/executive decision/referendum Nov2019

alone or in combination. Natural England, which was consulted on the Plan, did not dispute this conclusion. The examiner found no reason to disagree.

Both the SEA screening and the HRA have been reviewed in light of the proposed modifications to the Plan. The conclusions of both remain unchanged.

(f) Equalities Impact

In preparing this report, due consideration has been given to the Borough Council’s statutory Equality Duty to eliminate unlawful discrimination, advance equality of opportunity and foster good relations, as set out in Section 149(1) of the Equality Act 2010.

A relevance test for equality has been completed. The equality test determined that consideration as to whether the Carlton and Chellington Neighbourhood Development Plan should progress to referendum has no relevance to Bedford Borough Council’s duty to eliminate unlawful discrimination, advance equality of opportunity and foster good relations. An equality analysis for this decision is not needed.

However, the development of the Carlton and Chellington Neighbourhood Development Plan is relevant to Carlton and Chellington Parish Council’s General Equality Duty. The Parish Council is responsible for discharging their duty. An equality analysis will be carried out by the Parish Council and the findings of the equality analysis will be reported to Bedford Borough Council, prior to the making of the Neighbourhood Plan, if the Plan is supported at the referendum.

5. DETAILS

General background Neighbourhood planning was introduced through the Localism Act 2011. New powers allow qualifying bodies (parish or town councils, or neighbourhood forums in areas without parish or town councils) to produce neighbourhood plans which enable communities to set planning policies for their area. Once adopted, neighbourhood plans become part of the Council’s statutory development plan and must be taken into account alongside Bedford Borough Council’s local plans and national policy when planning applications are determined.

Producing a neighbourhood plan allows parish and town councils to increase the amount of Community Infrastructure Levy (CIL) funds they receive from developments within their area from 15% to 25%, incentivising the production of plans, especially those that propose growth.

The stages of preparation of a neighbourhood plan are similar to those for the preparation of a local plan. They are summarised in the following table. (6) Neighbourhood planning/executive decision/referendum Nov2019

Preparing a neighbourhood plan Stage Responsibility Progress Neighbourhood Area Designation Application by parish council, publicity & decision by BBC Complete Prepare draft neighbourhood plan NP group/parish council with assistance from others Complete Pre submission consultation (Regulation 14) NP group/parish council (6 weeks minimum) Complete Finalise plan in light of comments made NP group/parish council Complete Submit plan to the local planning authority NP group/parish council Complete Pre-examination consultation(Regulation 16) BBC (6 weeks minimum) Complete Examination Examiner appointed by BBC (agreed by NP group/ parish council) Complete Consider examiner’s recommendations BBC and NP group/parish council We are here Referendum Organised by BBC Plan ‘made’ (part of the development plan) BBC

The examination Neighbourhood plans must be examined by a suitably qualified independent person, appointed by the Council and agreed by the qualifying body.

The neighbourhood plan examiner’s role is limited to considering whether the neighbourhood plan meets the basic conditions and other relevant legal requirements. The examiner does not consider whether the plan is sound. The examiner also considers whether the referendum area should be extended beyond the neighbourhood area.

Most neighbourhood plan examinations will not require a hearing session to be held though this is an option if the examiner considers it necessary.

Legislation requires that the Council considers each of the recommendations made by the examiner in his/her report and decide what action to take in response. This decision must be published within five weeks of the receipt of the examiner’s report.

However, if the authority proposes to make a decision which differs from that recommended by the examiner, it must notify relevant people and invite representations. This is further explained in the ‘Legal Issues’ section above.

If the plan proceeds to referendum and passes by a simple majority, Legislation does not allow any further amendments to be made to the plan. Therefore, the stage between examination and referendum (this stage) is the only point at which further amendments can be made. (7) Neighbourhood planning/executive decision/referendum Nov2019

The referendum Anyone who can usually vote in a local election and who is resident in the referendum area can vote in a neighbourhood plan referendum. The referendum area is usually the neighbourhood area, but the examiner may recommend that it be extended if there are matters that are of interest to nearby communities. The plan must pass by a simple majority and there is no minimum turnout. If a simple majority is achieved the Council will be required to ‘make’ (adopt) the plan unless it breaches EU or human rights legislation.

The decision on when to hold the referendum falls to the Council’s returning officer. The Council must hold a referendum within 56 working days from the date that the decision to take the plan forward to a referendum is published.

The qualifying body (the parish council or neighbourhood forum) can withdraw a plan at any time.

The Carlton and Chellington Neighbourhood Plan

Progress of Carlton and Chellington Neighbourhood Plan Neighbourhood area designated 17th March 2016 Draft plan consultation (Regulation 14) 25th May to 6 July 2018 Post submission consultation (Regulation 16) 12th June to 25th July 2019 Submitted for examination by BBC 8th August 2019 Examiner’s report received 15th October 2019

The following extract from the examiner’s report summarises his findings. The full report can be found at Appendix A.

Main Findings - Executive Summary

From my examination of the Carlton & Chellington Neighbourhood Development Plan (the Plan) and its supporting documentation including the representations made, I have concluded that subject to the policy modifications set out in this report, the Plan meets the Basic Conditions.

I have also concluded that:

- The Plan has been prepared and submitted for examination by a qualifying body – Carlton and Chellington Parish Council; - The Plan has been prepared for an area properly designated – The Parish of Carlton & Chellington as shown on Fig 1 of the Plan; - The Plan, as proposed to be amended, specifies the period to which it is to take effect – 2018 - 2030; and (8) Neighbourhood planning/executive decision/referendum Nov2019

- The policies in the Plan relate to the development and use of land for a designated neighbourhood area.

I recommend that the Plan, once modified, proceeds to Referendum on the basis that it has met all the relevant legal requirements. I have considered whether the referendum area should extend beyond the designated area to which the Plan relates and have concluded that it should not.

The examiner proposes six specific recommendations as follows:

Proposed Submitted Examiner’s Recommended Modification Reason for recommendation modification Neighbourhood number Plan Para no/ (PM) other reference PM1 Title of Contents Amend as follows: To provide clarification regarding the time period Page to be covered by the Plan (para 3.3 of the Carlton & Chellington Neighbourhood examiner’s report). Development Plan 2018 -2030. Contents Page Vision Key Themes and Core Objectives 2018 – 203530. PM2 Policy CC1 f) Amend as follows: For clarity and to correct the reference to Bedford Borough Council’s published Policies Map (para Para 3.1.2 and as identified on the Proposals Map Bedford 4.14 on the examiner’s report). Borough Council’s Policies Map are not

adversely affected. PM3 Policy CC3 Amend as follows: To reflect statutory wording in Section 69 of the Planning (Listed Building and Conservation Para 3.1.4 provided that proposals preserve or enhance the Areas) Act 1990 (para 4.18 of the examiner’s character or appearance of the Conservation 1st paragraph. report). Area. PM4 Appendix 3 Modify the Proposals Map to show the extended To show the new Settlement Policy Area boundary arising as a result of the Plan’s (9) Neighbourhood planning/executive decision/referendum Nov2019

Proposals Map Settlement Policy Area Boundary. allocations (para 4.21 of the examiner’s report).

PM5 Policy CC4 Amend as follows: To reflect policies in the current development plan (Core Strategy and Rural Issues Plan Policy 2nd paragraph Development in excess of this figure will CP17) and in emerging policy (Local Plan 2030 generally only be permitted where the proposal Para 3.1.5 Policy 6S) (para 4.22 of the examiner’s report). relates to a site within the SPA in accordance with Policy CC1. Exceptionally permission will be granted on sites immediately adjacent to the SPA for schemes providing 100% affordable housing to meet identified local needs in accordance with Core Strategy Policy CP17. PM6 Policy CC9 Amend as follows: To reflect the fact that the alternative provision of community facilities referred to may take place on Paragraph 2a a) the proposals includes alternative provision, sites outside the settlement policy area (para where possible on a site within the SPA, of 4.24 of the examiner’s report). Para 3.1.10 equivalent or enhanced facilities.

These recommendations serve to ensure that the plan meets the basic conditions. Officers therefore recommend that they are agreed and the Carlton and Chellington Neighbourhood Plan be amended accordingly.

The examiner explains that it is open to the Parish Council to make minor modifications to the Plan such as attending to typographical errors (para 4.4 of the examiner’s report). A small number of these have been identified. Officers recommend however that no further changes are required in order for the Plan to meet the basic conditions and therefore if agreed, no further consultation is necessary before proceeding to referendum.

The Carlton and Chellington Neighbourhood Plan incorporating the examiner’s proposed modifications and other minor modifications can be found at Appendix B.

Examination area

(10) Neighbourhood planning/executive decision/referendum Nov2019

The examiner considered whether or not the referendum area should be extended beyond the designated area to which the Plan relates. He concluded that the Plan as modified would have no policies or proposals which he considered significant enough to have an impact beyond the designated Neighbourhood Plan boundary. As a result he recommends that the boundary for the purposes of any future referendum on the Plan should be the boundary of the designated Neighbourhood Plan Area. Officers agree with this conclusion and recommend that the neighbourhood area as designated should be agreed as the referendum area.

Next steps Bedford Borough Council must publish a statement (Appendix C) setting out with reasons its decision on each of the examiner’s recommendations. Preparations must then be made to hold the referendum.

6. Summary of Consultations and Outcome

The Plan has been the subject of two statutory consultations. The neighbourhood plan group carried out pre-submission consultation on a draft plan, known as Regulation 14 stage, and the Council undertook post-submission consultation; the Regulation 16 stage. Details of the Regulation 14 responses are posted on the neighbourhood plan web site. The Regulation 16 responses were provided to the examiner of the Plan who considered them during the examination. They can be found on Bedford Borough Council’s web-site on the neighbourhood planning pages.

The following people have been consulted in preparing this report:

Chief Officer for Legal and Democratic Services Chief Officer for Corporate Finance and Pensions Finance - Manager (Business Partner) Environment Management Team

No adverse comments have been received.

7. Ward Councillor Views Not applicable for this report.

Report Contact Officer: Gill Cowie

File Reference: Neighbourhood Plans (11) Neighbourhood planning/executive decision/referendum Nov2019

Previous Relevant Minutes: None

Background Papers: None

Appendices: Appendix A - Examiner’s Report Appendix B - Carlton and Chellington Neighbourhood Plan showing modifications Appendix C – Decision Statement

(12) Neighbourhood planning/executive decision/referendum Nov2019 APPENDIX A

Report on the Carlton & Chellington Neighbourhood Development Plan 2018 - 2030

An Examination undertaken for Bedford Borough Council with the support of Carlton and Chellington Parish Council on the submission version of the Plan.

Independent Examiner: R J Yuille MSc DipTP MRTPI

Date of Report: 15 October 2019

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Contents

Page

Main Findings - Executive Summary 4

1. Introduction and Background 4 • Carlton & Chellington Neighbourhood Plan 2018 - 4 2030 • The Independent Examiner 4 • The Scope of the Examination 5 • The Basic Conditions 6

2. Approach to the Examination 6 • Planning Policy Context 6 • Submitted Documents 7 • Site Visit 7 • Written Representations with or without Public 7 Hearing • Modifications 8

3. Procedural Compliance and Human Rights 8 • Qualifying Body and Neighbourhood Plan Area 8 • Plan Period 8 • Neighbourhood Plan Preparation and Consultation 8 • Development and Use of Land 9 • Excluded Development 9 • Human Rights 9

4. Compliance with the Basic Conditions 9 • EU Obligations 9 • Main Issues 10 • General Issues of Compliance 10 - Regard to National Policy and Guidance 10 - General Conformity with Strategic 11 Development Plan Policies - Contribution to Sustainable Development 12 • Specific Issues of Compliance 12 - Policy CC1 – Settlement Area Boundary and 12 Design Principles - Policy CC2 – Protection of Local Green Spaces 13 - Policy CC3 – Protection of Heritage Assets 13 including Listed Buildings - Policies CC4 to CC8 – Local Housing Need 13 - Policy CC9 – Protection of Local Community 14 Services & Policy CC10 – the provision of New Community Facilities - Policy CC11 – Supporting the Development of 15 Small Businesses - Policy CC12 – Residential Parking in New 15

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Developments - Policy CC13 – Developer Contributions and 15 Community Infrastructure Levy

5. Conclusions 15 • Summary 15 • The Referendum and its Area 16 • Overview 16

Appendix: Modifications 17

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Main Findings - Executive Summary

From my examination of the Carlton & Chellington Neighbourhood Development Plan (the Plan) and its supporting documentation including the representations made, I have concluded that subject to the policy modifications set out in this report, the Plan meets the Basic Conditions.

I have also concluded that:

- The Plan has been prepared and submitted for examination by a qualifying body – Carlton and Chellington Parish Council; - The Plan has been prepared for an area properly designated – The Parish of Carlton & Chellington as shown on Fig 1 of the Plan; - The Plan, as proposed to be amended, specifies the period to which it is to take effect – 2018 - 2030; and - The policies in the Plan relate to the development and use of land for a designated neighbourhood area.

I recommend that the Plan, once modified, proceeds to Referendum on the basis that it has met all the relevant legal requirements.

I have considered whether the referendum area should extend beyond the designated area to which the Plan relates and have concluded that it should not.

1. Introduction and Background

Carlton & Chellington Neighbourhood Development Plan 2018-2030

1.1 The village of Carlton and Chellington is situated in the valley of the River Ouse some eight miles to the north west of Bedford. The village originally consisted of two settlements up until 1934 when they were combined following changes to parish boundaries.

1.2 Work on the Plan began in 2016 and has been led by the Carlton and Chellington Neighbourhood Plan Steering Group. The aim of the Plan is to create a sustainable, prosperous community which has maintained its village character in a thriving natural environment.

The Independent Examiner

1.3 As the Plan has now reached the examination stage, I have been appointed as its examiner by Bedford Borough Council (the Borough Council), with the agreement of Carlton and Chellington Parish Council (the Parish Council).

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1.4 I am a chartered town planner and former government Planning Inspector with over twenty years’ experience of examining development plans. I am an independent examiner and do not have an interest in any of the land that may be affected by the Plan.

The Scope of the Examination

1.5 As the independent examiner I am required to produce this report and recommend either:

(a) that the Plan is submitted to a referendum without changes; or

(b) that modifications are made and that the modified Plan is submitted to a referendum; or

(c) that the Plan does not proceed to a referendum on the basis that it does not meet the necessary legal requirements.

1.6 The scope of the examination is set out in Paragraph 8(1) of Schedule 4B to the Town and Country Planning Act 1990 (as amended)(‘the 1990 Act’). The examiner must consider:

• Whether the Plan meets the Basic Conditions;

• Whether the Plan complies with provisions under s.38A and s.38B of the Planning and Compulsory Purchase Act 2004 (as amended) (‘the 2004 Act’). These are:

- it has been prepared and submitted for examination by a qualifying body, for an area that has been properly designated by the local planning authority;

- it sets out policies in relation to the development and use of land;

- it specifies the period during which it has effect;

- it does not include provisions and policies for ‘excluded development’;

- it is the only neighbourhood plan for the area and does not relate to land outside the designated neighbourhood area;

- whether the referendum boundary should be extended beyond the designated area, should the Plan proceed to referendum; and

• Such matters as prescribed in the Neighbourhood Planning (General) Regulations 2012 (as amended)(‘the 2012 Regulations’).

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1.7 I have considered only matters that fall within Paragraph 8(1) of Schedule 4B to the 1990 Act, with one exception. That is the requirement that the Plan is compatible with the Human Rights Convention.

The Basic Conditions

1.8 The ‘Basic Conditions’ are set out in Paragraph 8(2) of Schedule 4B to the 1990 Act. In order to meet the Basic Conditions, the Plan must:

- Have regard to national policies and advice contained in guidance issued by the Secretary of State;

- Contribute to the achievement of sustainable development;

- Be in general conformity with the strategic policies of the development plan for the area;

- Be compatible with and not breach European Union (EU) obligations; and

- Meet prescribed conditions and comply with prescribed matters.

1.9 Regulation 32 of the 2012 Regulations prescribes a further Basic Condition for a neighbourhood plan. This requires that the making of the neighbourhood development plan does not breach the requirements of Chapter 8 of Part 6 of the Conservation of Habitats and Species Regulations 2017.1

2. Approach to the Examination

Planning Policy Context

2.1 The Development Plan for the area, not including documents relating to waste and minerals, consists of the following documents; the saved policies of the Bedford Local Plan 2002 (the Local Plan); the Core Strategy and Rural Issues Plan 2008 (the Core Strategy) and the Allocations and Designations Local Plan adopted in 2013 (the Allocations Plan). The Plan is required to be in general conformity with the strategic policies of these plans.

2.2 The Borough Council is preparing Local Plan 2030 (the emerging Local Plan). This has reached an advanced stage having been submitted for

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examination; the hearings have been held and consultations on the Main Modifications has now finished. The Plan is not tested against the policies of the emerging Local Plan but the reasoning and evidence informing that Local Plan is likely to be a relevant consideration in this examination and it is important to avoid conflict between the policies of the two plans.2

2.3 Planning policy for England is set out principally in the National Planning Policy Framework (the Framework). The Planning Practice Guidance (PPG) offers guidance on how this policy should be implemented. A revised Framework was published on 19 February 2019, and all references in this report are to the February 2019 Framework and its accompanying PPG.3

Submitted Documents

2.4 I have considered all policy, guidance and other reference documents I consider relevant to the examination, including those submitted which comprise: • the undated Submission Version of the Carlton & Chellington Neighbourhood Development Plan.; • Fig 1 of the Plan which identifies the area to which the Plan relates; • the Consultation Statement, dated April 2019; • the Basic Conditions Statement, dated April 2019; • all the representations that have been made in accordance with the Regulation 16 consultation; • The Strategic Environmental Assessment Screening Report, dated October 2018, and the Habitats Regulation Assessment, dated 8 October 2018; and • The response to the questions raised in my letter of 20 August 2019.4

Site Visit

2.5 I made an unaccompanied site visit to the Neighbourhood Plan Area on 27 September 2019 to familiarise myself with it, and visit relevant sites and areas referred to in the Plan and in the evidence.

Written Representations with or without Public Hearing

2.6 This examination has been dealt with by written representations. I considered hearing sessions to be unnecessary as the consultation responses clearly articulated the objections to the Plan, and presented

2 PPG Reference ID: 41-009-20190509. 3 See paragraph 214 of the Framework. The Plan was submitted under Regulation 15 to the local planning authority after 24 January 2019. 4 View at: https://www.bedford.gov.uk/planning-and-building/planning-policy-its- purpose/neighbourhood-planning/carlton-and-chellington-neighbourhood-development- plan/

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arguments for and against the Plan’s suitability to proceed to a referendum.

Modifications

2.7 Where necessary, I have recommended modifications to the Plan (PMs) in this report in order that it meets the Basic Conditions and other legal requirements. For ease of reference, I have listed these modifications separately in the Appendix.

3. Procedural Compliance and Human Rights

Qualifying Body and Neighbourhood Plan Area

3.1 The Plan has been prepared and submitted for examination by the Parish Council, which is a qualifying body for an area that was designated by the Borough Council on 17 March 2016.

3.2 It is the only Neighbourhood Plan for the Parish, and does not relate to land outside the designated Neighbourhood Plan Area.

Plan Period

3.3 The Parish Council has confirmed that the Plan is intended to cover the period from 2018 to 2030 but it does not clearly specify this. The Plan should be amended to do this as shown in PM1.

Neighbourhood Plan Preparation and Consultation

3.4 Work on the Plan has been directed by the Carlton and Chellington Neighbourhood Plan Steering Group which consists of Parish Councillors and local residents. The Plan is based on the views of local people and organisations whose opinions have been garnered by way of a variety of consultation methods including feedback from: Launch and Open Days; Exhibitions; Resident Surveys and Consultations. Progress on the Plan has been publicised by way of the Parish Council website and Facebook page, as well as by banners displayed in the village, posters and the distribution of newsletters.

3.5 Regulation 14 consultation took place between 25 May and 6 July 2018. The responses it elicited were considered by the Parish Council and, where it was deemed appropriate, the pre-submission version of the Plan was modified.

3.6 In its modified form the submission version of the Plan was the subject of Regulation 16 consultation between 12 June and 25 July 2019. This

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elicited 9 responses, all of which have been considered in the preparation of this report.

3.7 Bearing in mind these points, I am satisfied that the Plan has been publicised in a manner that is likely to bring it to the attention of people who live, work or carry on business in the Parish; that the consultation process has met the legal requirements and that it has had due regard to the advice on plan preparation and engagement in the PPG.

Development and Use of Land

3.8 The Plan sets out policies in relation to the development and use of land in accordance with s.38A of the 2004 Act.

Excluded Development

3.9 The Plan does not include provisions and policies for ‘excluded development’.

Human Rights

3.10 The Parish Council is satisfied that the Plan does not breach Human Rights (within the meaning of the Human Rights Act 1998), and from my independent assessment I see no reason to disagree.

4. Compliance with the Basic Conditions

EU Obligations

4.1 The Plan was screened for Strategic Environmental Assessment (SEA)5 which found that it was unnecessary to undertake SEA. None of the statutory consultees disputed this finding. Having read the screening document, I support this conclusion.

4.2 The Plan was further screened for Habitats Regulations Assessment (HRA)6 which also concluded that it would not have a significant effect on European sites either alone or in combination and an HRA was not, therefore, required. Natural England, which was consulted on the Plan, did not dispute this conclusion nor, on the basis of my independent assessment, do I see any reason to disagree.

5 Strategic Environmental Assessment Screening Report Carlton and Chellington Neighbourhood Plan October 2018. 6 Habitat Regulation Assessment for the Carlton and Chellington Neighbourhood Plan 8 October 2018. Intelligent Plans and Examinations (IPE) Ltd, 29 Monmouth Street, Bath BA1 2DL Registered in England and Wales. Company Reg. No. 10100118. VAT Reg. No. 237 7641 84 9

Main Issues

4.3 Having considered whether the Plan complies with the various legal and procedural requirements it is now necessary to deal with the question of whether it complies with the remaining Basic Conditions (see paragraph 1.8 of this report), particularly the regard it pays to national policy and guidance, whether it is in general conformity with strategic development plan policies and the contribution it makes to sustainable development.

4.4 I should say at this point that the purpose of the examination is not to delve into matters that do not fundamentally affect the Plan’s ability to meet the Basic Conditions. I do not, therefore, deal with representations which, in effect, seek to improve the Plan but which are not necessary to meet the Basic Conditions. It should also be noted that it is open to the Parish Council to make minor modifications to the Plan such as attending to typographical errors.

4.5 From my reading of the Plan, the consultation responses and other evidence, I consider that in this examination there are two main issues relating to the Basic Conditions. These are: - General issues of compliance of the Plan as a whole; and - Specific issues of compliance of the Plan’s policies.

General Issues of Compliance

Regard to National Policy and Guidance

4.6 The Plan: • defines a settlement boundary for the village and sets out various design principles (Policy CC1); • identifies a number of Local Green Spaces (Policy CC2); • seeks to protect heritage assets (Policy CC3); • seeks to ensure the delivery of housing including housing to meet local needs (Policies CC4, CC5, CC6, CC7 and CC8); • seeks to protect existing, and support the provision of new, community facilities (CC9 and CC10); • seeks to support the development of new small businesses (Policy CC11); • seeks to ensure the provision of adequate parking (Policy CC12); and • identifies priorities for the investment of the local element of the Community Infrastructure Levy (Policy CC13).

4.7 These policies are broadly consistent with the Framework, insofar as it; • seeks to achieve well designed places (for example paragraphs 124 to 127);

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• allows for the designation of Local Green Spaces (paragraphs 99 to 101; • seeks to conserve and enhance the historic environment (paragraph 185 for example); • promotes housing in rural areas that is responsive to local needs (paragraphs 77 and 78); • seeks to retain and develop accessible local services and community facilities (paragraph 83); • seeks to enable the growth and expansion of all types of business in rural areas (paragraph 83); • allows for the setting of local parking standards (paragraph 105); and • requires plans to set out the contributions expected from development (paragraph 34).

4.8 I am satisfied, therefore, that, with the modifications I propose later in this report, the policies of the Plan have regard to national policies and advice and meet the Basic Conditions in this respect.

General Conformity with Strategic Development Plan Policies

4.9 The various documents which comprise the Development Plan take a similar approach to the Plan in that they also: • identify a Settlement Policy Area boundary for Carlton and Chellington (Core Strategy Policy CP12), seek to achieve high quality design (Core Strategy Policy CP21) and identify and seek to protect Village Open Spaces (Allocations Plan Policy AD40); • Local Green Spaces, which are dealt with in Policy CC2 of the Plan, are too recent a designation to be referred to in the Development Plan documents but the approach taken in the Plan is consistent with Policy 46 of the emerging Local Plan; • seek to protect heritage assets (Core Strategy Policy CP23); • seek to meet local housing needs (Core Strategy Policy CP7); • support the development and retention of community facilities (Core Strategy Policies 14 and 18); • supports employment in rural areas (Local Plan Policy E18); • seeks to provide adequate parking (Local Plan Policy T15); and • do not preclude neighbourhood plans from identifying local priorities for infrastructure investment.

4.10 With these points in mind I am satisfied that the Plan, with the modifications I propose later in this report, is in general conformity with the strategic policies in the various development plan documents specified in paragraph 2.1 above.

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Contribution to Sustainable Development

4.11 There are three aspects to sustainable development: economic, environmental and social. The Plan seeks to meet local housing needs (Policies CC4 to CC8) and to support the development of small businesses (Policy CC11). In this manner, it makes provision for the economic aspect of sustainable development. It also seeks to protect the intrinsic value of the countryside and views of it from the village as well as providing for a high quality of design (Policy CC1) and to protect heritage assets (Policy CC3). In this manner, it fulfils the environmental aspect of sustainable development. Finally, the Plan seeks to ensure for the provision and protection of community facilities (Policies CC9 and CC10) and thus contributes to the social aspect of sustainable development.

4.12 I am satisfied therefore, that as proposed to be modified, the Plan makes a contribution to sustainable development and meets the Basic Conditions in this respect.

Specific Issues of Compliance

Policy CC1 - Settlement Area Boundary and Design Principles

4.13 The question has been raised as to whether it is appropriate for Policy CC12 to define a Settlement Policy Area Boundary. I do not share this concern. The use of such boundaries to distinguish between the main built up area of a village and its surrounding countryside is a widely used approach and I see nothing in national policy or guidance that precludes it. Moreover, in this instance the use of such a boundary is derived from strategic development plan policies (Core Strategy Policy CP12) which take a similar approach. I do not, therefore consider that the definition of a Settlement Policy Area boundary breaches the Basic Conditions.

4.14 As has already been established, the definition of design principles in Policy CC1 has regard to and is in general conformity with strategic development plan policies and with national guidance. Policy CC1 also seeks to safeguard certain views into and out of the village as defined in Policy AD40 of the Allocations Local Plan. In the interests of clarity, the policy should specify that these areas are shown on the Borough Council’s Interactive Map as shown in PM2.7

4.15 With these modifications in place I am satisfied that Policy CC1 meets the Basic Conditions.

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Policy CC2 – Protection of Local Green Spaces

4.16 Policy CC2 identifies three Local Green Spaces. The Framework acknowledges that local communities should be able to identify these but advises8 that, amongst other things, this designation should only be used where; firstly, the green space is in reasonably close proximity to the community it serves; secondly, the green space is demonstrably special to a local community and holds particular local significance; and thirdly, it is local in character and not an extensive tract of land.

4.17 Having visited all these sites I am satisfied that all three of the proposed Local Green Spaces are in or adjoining the village. I have no reason to doubt that that these spaces hold particular local significance and are demonstrably special to the local community and none of them are particularly large. I also note that the Parish Council is, in effect, the owner of two of these sites and the owner of the third was consulted at an early stage.9 I am satisfied, therefore, that Policy C2 has had regard to national policy and advice and thus meets the Basic Conditions.

Policy CC3 - Protection of Heritage Assets including Listed Buildings

4.18 Policy CC3 refers to preserving or enhancing the character of the Conservation Area. However, Section 69 of the Planning (Listed Building and Conservation Areas) Act 1990 refers to preserving or enhancing the character or appearance of such areas (my emphasis). The Parish Council accepts that as character and appearance are different things, Policy CC3 should be modified to reflect the statutory wording as shown in PM3.

4.19 In its modified form I am satisfied that Policy CC3 meets the Basic Conditions, in that it is consistent with national policy and with the strategic policies of the development plan, insofar as these seek to safeguard the historic environment.

Policies CC4 to CC8 – Local Housing Need

4.20 Policies CC4 to CC8 seek to make provision for local housing need. The Development Plan does not quantify the number of houses that are needed to meet that local need but Policy 3S of the emerging Local Plan states that in Carlton it will be necessary to identify sites for 25 – 50 new homes in and around defined Settlement Policy Area Boundaries. Following a systematic assessment of potential housing sites in and around the village, Policies CC5 to CC7 identify sites for up to 32 new dwellings. The evidence is that the sites in question are deliverable or

8 Paragraphs 99 and 100 of the Framework. 9 PPG Reference ID: 37-019-20140306. Intelligent Plans and Examinations (IPE) Ltd, 29 Monmouth Street, Bath BA1 2DL Registered in England and Wales. Company Reg. No. 10100118. VAT Reg. No. 237 7641 84 13

developable10, indeed the largest of these sites is under construction; it is perfectly legitimate for the Plan to rely on figures from the emerging Local Plan11; and the number of new housing sites identified in the Plan fall within the range specified in that emerging plan.

4.21 The supporting text to Policy CC1 states that “Carlton and Chellington is defined within the emerging Local Plan as a ‘Rural Service Centre’. A settlement boundary was defined by 2002 Adopted Local Plan (sic). The same settlement boundary has been applied in the Neighbourhood Development Plan, except where it has been extended to include the three allocated development sites as covered by Policies CC4 to CC6”. However, Fig. 2 which identifies, amongst other things, the Current Settlement Policy Area and the Proposals Map, which identifies the revised Settlement Policy Area, show identical boundaries. In the interests of clarity, the Policies Map should be modified to show the extended Settlement Policy Area Boundary as indicated in PM4.

4.22 Policy CC4 only permits housing development in excess of the proposed site allocations on sites within the Settlement Policy Area. However, both the Core Strategy (Policy CP17) and the emerging Local Plan (Policy 6S) allow for housing outside this boundary in exceptional circumstances. Indeed, it appears that one of the proposed site allocations was granted planning permission under the terms of such an ‘exceptions’ policy. The Parish Council accepts, therefore, that Policy CC4 make reference to such ‘exception’ sites as shown in PM5.

4.23 With these proposed modifications in place I am satisfied that Policies CC4 to CC8 meet the Basic Conditions in that they are consistent with national policy and with the strategic policies of the development plan, insofar as these seek to provide for local housing needs.

Policy CC9 – Protection of Local Community Services & Policy CC10 – the provision of New Community Facilities

4.24 Policy CC9 allows for the development involving the loss of specified community facilities where, amongst other things, alternative provision is made on sites within the Settlement Protection Area. However, the Parish Council acknowledges that three of these facilities (St Mary’s Church, The Chellington Centre and Emmaus Village) are outside the Settlement Policy Area and any alternative provision might need to be located likewise. In the interests of clarity, Policy CC9 needs to be amended to reflect this as shown in PM6.

10 Carlton and Chellington Neighbourhood Plan. Site Assessment Report. November 2016. 11 PPG Reference ID: 41-009-20190509. Intelligent Plans and Examinations (IPE) Ltd, 29 Monmouth Street, Bath BA1 2DL Registered in England and Wales. Company Reg. No. 10100118. VAT Reg. No. 237 7641 84 14

4.25 I am satisfied that with these modifications in place, Policies CC9 and CC10 meet the Basic Conditions in that they are consistent with national policy and with the strategic policies of the development plan, insofar as these seek to retain and develop community facilities.

Policy CC11 - Supporting the Development of Small Businesses

4.26 The Parish Council has confirmed that this policy is intended to apply both within and beyond the Settlement Policy Area boundary. The wording of the policy makes clear that it applies solely to existing rural enterprises and while it allows for an element of new build it does so only where the effect of this on the landscape and character of the area has been taken into account. In this respect Policy CC11 takes a similar approach to saved Policy E18 of the Local Plan. Policy CC11 also has regard to the Framework, insofar as this seeks to enable the growth and expansion of all types of business in rural areas. I am satisfied, therefore, that Policy CC11 meets the Basic Conditions.

Policy CC12 - Residential Parking in New Developments

4.27 I am satisfied that Policy CC12 is consistent with the aims of Saved Policy T15 of the Local Plan and of the Framework (paragraph 105), insofar as these relate to the setting of local parking standards. Policy CC12 meets the Basic Conditions.

Policy CC13 - Developer Contributions and Community Infrastructure Levy

4.28 I see nothing in national policy or advice or in the strategic policies of the development plan which prevent a neighbourhood plan from identifying, as Policy CC13 does, various priority projects towards which the local element of the Community Infrastructure Levy will be directed. I am satisfied, therefore, that Policy CC13 meets the Basic Conditions in this respect.

5. Conclusions

Summary

5.1 The Plan has been duly prepared in compliance with the procedural requirements. My examination has investigated whether the Plan meets the Basic Conditions and other legal requirements for neighbourhood plans. I have had regard for all the responses made following consultation on the Neighbourhood Plan, and the evidence documents submitted with it.

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5.2 I have made recommendations to modify a number of policies and text to ensure the Plan meets the Basic Conditions and other legal requirements. I recommend that the Plan, once modified, proceeds to referendum.

The Referendum and its Area

5.3 I have considered whether or not the referendum area should be extended beyond the designated area to which the Plan relates. The Plan as modified has no policy or proposals which I consider significant enough to have an impact beyond the designated Neighbourhood Plan boundary, requiring the referendum to extend to areas beyond the Plan boundary. I recommend that the boundary for the purposes of any future referendum on the Plan should be the boundary of the designated Neighbourhood Plan Area.

Overview

5.4 The Parish Council has identified a clear vision for the Plan area in the pursuit of which it has framed a tightly focussed group of policies each of which is derived from relevant strategic Development Plan policies and from national guidance. The result is a Plan that will be effective in guiding development in the future.

R J Yuille

Examiner

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Appendix: Modifications

Proposed Page no./ Modification modification other number (PM) reference

PM1 Title of Amend as follows: Contents Page Carlton & Chellington Neighbourhood Development Plan 2018 -2030.

Contents Vision Key Themes and Core Objectives Page 2018 – 203530. PM2 Policy CC1 f) Amend as follows:

Page 19 and as identified on the Proposals Map Bedford Borough Council’s Policies

Map are not adversely affected.

PM3 Policy CC3 Amend as follows:

Page 21 provided that proposals preserve or enhance the character or appearance 1st of the Conservation Area. paragraph.

PM4 Appendix 3 Modify the Proposals Map to show the extended Settlement Policy Area Boundary. Proposals Map

Page 33

PM5 Policy CC4 Amend as follows:

2nd Development in excess of this figure paragraph will generally only be permitted where the proposal relates to a site within Page 22 the SPA in accordance with Policy CC1. Exceptionally permission will be granted on sites immediately adjacent to the SPA for schemes providing 100% affordable housing to meet identified local needs in accordance with Core Strategy Policy CP17.

PM6 Policy CC9 Amend as follows:

Paragraph a) the proposals includes alternative 2a provision, where possible on a site within the SPA, of equivalent or Page 24

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enhanced facilities.

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APPENDIX B

Proposed new text is underlined and deletions are crossed through.

CARLTON & CHELLINGTON NEIGHBOURHOOD DEVELOPMENT PLAN 2018-2030

Contents

Preface 2

How the plan is organised 3

Section 1: Introduction 54

1.1 Introduction 1.2 What is a Neighbourhood Development Plan? 1.3 How the Neighbourhood Development Plans fits into the Planning System 1.4 The Plan and the Neighbourhood Development Plan context 1.5 Community Engagement and Consultation 1.6 About Carlton and Chellington 1.7 Demographics 1.8 Community Facilities and Services

Section 2: Vision, Key Themes and Core Objectives 2018–20350 135

2.1: Vision for Carlton and Chellington 2.2: Key Themes 2.3: The Core Objectives of the Carlton and Chellington Neighbourhood Development Plan

Section 3: The Policies of the Carlton & Chellington Neighbourhood Development Plan 179

Section 4: Non-Land Use Actions 257

Section 5: Monitoring and Review of the Plan 268

Section 6: Supporting Information 279

Appendix 1 Historic Heritage Environment 302

Appendix 2 Local Green Spaces 39 41

Appendix 3 Proposals Map 42 44

Preface

The Carlton and Chellington Neighbourhood Development Plans (CCNDP) has been produced by the Carlton and Chellington Neighbourhood Plan Steering Group, led by the Carlton and Chellington Parish Council, in consultation with the local community.

This plan is the submission version which has been informed by public consultation and supporting documents, which can be found in the Evidence Base.

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How the plan is organised

The plan is organised into five sections:

Section 1: Introduction

This section sets out:

• How the Carlton and Chellington Neighbourhood Development Plan (CCNDP) fits into the planning system.

• An overview of the initial stages of public consultation and how it has influenced the development of the CCNDP.

• About Carlton and Chellington - a brief overview of its history and how it looks today.

Section 2: Vision, Key Themes & Core Objectives 2018 - 2030

This section sets out:

• The overall vision for Carlton and Chellington in future years.

• Key concerns facing the parish.

• Core objectives of the CCNDP.

Section 3: The Policies of the Carlton and Chellington Neighbourhood Development Plan

This section sets out:

• Policies to deliver the overall vision for our community.

Section 4: Non Land Use Actions

Section 5: Monitoring and Review of the Plan

Section 6: Supporting Information

This section includes:

• Glossary of Terms.

• Acknowledgements.

• Reference Documents.

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Section 1: Introduction 1.1 Introduction

1.1.1 This document has been prepared by the Carlton and Chellington Neighbourhood Development Plan (CCNDP) Steering Group, led by the Carlton and Chellington Parish Council.

1.1.2 The CCNDP is designed to achieve the vision for Carlton and Chellington through to 2030. It is part of the Government’s new approach to planning, set out in the Localism Act 2011, and the Neighbourhood Planning (General) Regulations 2012, which aims to give local people more say about what goes on in their area.

1.1.3 In January 2016, Carlton and Chellington Parish Council applied to Bedford Borough Council (BBC) for designation as a Neighbourhood Planning Area. On 17 March 2016, BBC approved the Neighbourhood Plan Area as shown on the map attached at Fig.1 (page 6). The map attached at Fig. 2 (page 11) shows the present Settlement Policy Area and Conservation Area of the village. The village of Carlton and Chellington has been classified as a Rural Service Centre by BBC in their emerging Local Plan 2030).

1.1.4 The NDP provides a vision for the future of Carlton and Chellington and sets out clear policies to help realise this. These policies have regard to national planning policy as set out in the National Planning Policy Framework (NPPF), and are in general conformity with the strategic policies of the adopted development plan which presently comprises the Core Strategy and Rural Issues Plan 2008, the Allocations and Designations Local Plan 2013 and the ‘saved’ policies of the Bedford Local Plan 2002. In addition, BBC is preparing a new Local Plan for the Borough up to the period 2030, since this plan is at an advanced stage of preparation, this Plan also takes into account the strategic policies of ‘Local Plan 2030’.

1.1.5 This Plan has been developed through extensive consultation with the residents and others with an interest in our community. It provides local people with the opportunity to have control over where development should take place within the parish, and to influence it for the benefit of the community. It is intended that the Plan will assist not only in guiding future development, but also ensure that the Conservation Area, heritage assets, and existing designated Village Open Spaces, all of which give the village its special character, are protected. Moreover, the CCNDP has been developed with the primary aim of ensuring that the residents of Carlton and Chellington continue to enjoy the benefits of living in a compact, rural, and peaceful community, surrounded by beautiful countryside. It is a genuine community document which reflects the views of the majority of residents.

1.1.6 In order to comply with the Basic Condition relating to European obligations, a screening assessment was carried out. The conclusion of the screening report was that there were no significant environmental effects as a result of the production of the Neighbourhood Development Plan. The required consultation was carried out with the three prescribed bodies. In addition, a Habitats Regulations Assessment (HRA) screening report was prepared by Bodsey Ecology Limited. This concluded that the Plan will not have significant effects on any European sites itself or in combination with other plans.

1.1.7 A Neighbourhood Development Plan describes the area it serves and details the developments, improvements and changes that local residents, community and voluntary groups, and service providers, would like to see. This is done by:

• Forming a Steering Group • Use of consultations to reach those whose voice is not normally heard • Use of consultations to identify the most important local issues • Looking at how residents can work out practical steps to improve issues identified

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1.1.8 It is important to note and highlight the positive aspects of the local area identified by those living and working in it.

1.1.9 The final CCNDP will be adopted formally by Bedford Borough Council. Local people are given the chance to endorse the CCNDP publicly by means of a referendum, which ensures that the CCNDP has the backing of local people.

1.1.10 The Steering Group, (formed in June 2016), identified key themes which it was felt were particularly applicable to Carlton and Chellington, and which have guided both the process of the consultation and the reporting of the findings described in this document. These are:

• Housing • Infrastructure • Movement • Heritage, Countryside and Environment • Community Facilities • Employment

1.1.11 The CCNDP has been produced on behalf of the people of Carlton and Chellington. It has been developed from the views of local people and organisations using a variety of consultation methods including:

• Exhibitions • Feedback from Launch and Open Days • Residents Surveys • Regular Meetings of the Steering Group

1.1.12 A Consultation Statement detailing the consultation process has been produced to accompany the Plan, and is provided as a separate document.

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FIG 1 Parish Boundary and designated Neighbourhood Plan Area FIG 1 Designated Neighbourhood Plan Area ----- Designated Neighbourhood Plan Area SPA boundary

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1.2 What is a Neighbourhood Development Plan

1.2.1 The Neighbourhood Development Plan (NDP) is a plan for the community as a whole. It looks at a wide range of issues including:

• The development of housing (location, type, tenure etc.) • Transport and access- connectivity (roads, cycling, walking etc.) • The protection and creation of open spaces (allotments, open spaces, play areas etc.) • The protection of important buildings and heritage assets

1.3 How the Neighbourhood Development Plan fits into the Planning system

1.3.1 Although the Localism Act 2011 aims, via the NDP, to give local people the power to decide what happens in their community it also sets out a number of ‘basic conditions’ that must be met. These are:

• having regard to national policies and advice contained in guidance issued by the Secretary of State; • contribute towards the achievement of sustainable development; • in general conformity with the strategic policies contained within the development plan for the area, or any part of the area; • is compatible with EU obligations; and • prescribed conditions are met in relation to the plan and prescribed matters have been complied with in connection with the proposal for the neighbourhood plan1.

1.3.2 The production of a NDP gives the local community the power to decide where new housing, infrastructure and any community facilities should go and how the village should develop.

1.3.3 The NDP will be subject to an independent examination. An independent examiner will be appointed by Bedford Borough Council in consultation with the Parish Council. The appointed examiner will assess whether the plan meets the ‘basic conditions’ and if found to be meet these the plan can proceed to the local referendum. The referendum will give all eligible voters in the Parish the opportunity to vote and decide if the Carlton and Chellington Neighbourhood Development Plan should form part of the development plan and to be used in the determination of planning applications.

1.3.4 This NDP has been prepared to generally conform with the strategic policies of the development plan. Neighbourhood Plans do not cover minerals and waste matters and that development plan policy for such matters is contained within the Bedfordshire and Luton Minerals and Waste Local Plan prepared by Bedford Borough Council, Central Bedfordshire Council and Luton Borough Council.

1.3.5 The NDP has been prepared for the period to 2030 in accordance with BBC’s emerging Local Plan 2030. The policies in the NDP should be read and adhered to as a whole, alongside the policies of Bedford Borough Council. Planning applications will still be determined by Bedford Borough Council.

1.3.6 Once adopted the CCNDP will form part of the statutory development plan for the area. Planning applications are determined in accordance with the development plan unless other material

1 The prescribed condition is that the ‘making’ of the neighbourhood plan is not likely to have a significant effect on a European site (as defined in the Conservation of Habitats and Species Regulations 2012) or a European offshore marine site (as defined in the Offshore Marine Conservation (Natural Habitats, &c.) Regulations 2007) (either alone or in combination with other plans or projects). 6

considerations indicate otherwise. Material considerations include the National Planning Policy Framework (NPPF).

1.4 The Plan and the Neighbourhood Development Plan Context

1.4.1 The Core Strategy and Rural Issues Plan was adopted in April 2008. It sets out the basis for future development in the Borough for the period to 2021. The Core Strategy and Rural Issues Plan provides a clear spatial context for development in the Plan area.

1.4.2 Within this broader strategic objective BBC is working to bring forward a new Local Plan for the Borough. The emerging local plan, ‘Local Plan 2030’ is expected to be submitted for examination in May 2018 adopted in winter 2019/20.

1.4.3 Until such time as ‘Local Plan 2030’ is adopted, the development plan comprises the Core Strategy and Rural Issues Plan, the Allocations and Designations Local Plan 2013 and the saved elements of the Bedford Local Plan 2002.

1.4.4 The Basic Conditions Statement will maps the various policies in the submitted Neighbourhood Development Plan against the policies in the current development plan. In summary, the following policies have been particularly important in underpinning the Neighbourhood Development Plan policies:

Core Strategy and Rural Issues Plan

CP1 Spatial Strategy CP2 Sustainable Development Principles CP7 Meeting Housing Needs CP12 Settlement Policy Areas CP13 The Countryside and Development Within It CP14 Location of Development in the Rural Policy Area CP16 Housing in the Rural Policy Area CP21 Designing in Quality CP22 Green Infrastructure CP23 Heritage CP24 Landscape Protection and Enhancement CP30 Developer Contributions

Allocations and Designations Local Plan

AD1 Sustainable Development AD2 Sustainable Design and Construction AD40 Village Open Spaces and Views

Saved Bedford Local Plan

BE9 Protecting the character of Conservation Areas BE11 Setting of Conservation Areas BE15 Protecting Views and Open Spaces BE19 Alterations to listed buildings BE21 Setting of listed buildings BE23 Archaeology BE24 Archaeology BE25 Archaeology BE29 High Standard of Design BE32 Development on the Edges of Urban Areas and Villages

1.4.5 In regard to the policies of the emerging ‘Local Plan 2030’, the following policies have been taken into account in resolving the Neighbourhood Development Plan policies:

Local Plan 2030

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2S Spatial Strategy 3S Amount and Distribution of Housing Development 4 Development in Villages with a Settlement Policy Area 6 Development in the Countryside 29S Place Making 30 Design Quality and Purpose 31-34 The Impact of Development 36S Green Infrastructure 38 Landscape Character 39 Landscaping in New Development 40 Retention of Trees 41 Hedgerows 42 Historic Environment and Heritage Assets 43S Protecting biodiversity and geodiversity 44 Enhancing biodiversity 45 River Great Ouse 46 Local Green Spaces 51S Water Resources 52S Climate Change Strategic Approach 55 Energy efficiency 59S Affordable housing 60S Housing Mix 90S Delivering Infrastructure 92 Impact of transport on people, places and environment 96 Flood risk

1.4.6 It is clear that the Plan has been prepared within the context of the existing development plan and the evolving new Local Plan. This is good practice and reflects key elements within the Planning Practice Guidance on this matter.

1.5 Community Engagement and Consultation

1.5.1 The CCNDP has been produced on behalf of the residents of the parish of Carlton and Chellington. It has been developed from the views of local people using a variety of consultation methods including:

• Launch exhibition • Survey of all residents • Survey of individual groups within the village • Regular meetings of the CCNDP Steering Group • Feedback from stall at Village Fete • Production of leaflets and feedback via dedicated email address • Website

1.5.2 A draft Plan was shared informally with BBC in March 2018. Following receipt of comments by BBC Officers, amendments were made, and a draft was prepared for public consultation which was endorsed by the CCNDP Steering Group. The Pre-Submission Draft was discussed at a Parish Council meeting on 14 May 2018. The Parish Council resolved that the plan be agreed for Pre- Submission consultation. The Pre-Submission consultation period ran for 6 weeks from 25 May 2018 to 6 July 2018.

1.5.3 A Consultation Statement detailing the consultation process has been produced to accompany the Plan, and is provided as a separate document.

1.6 About Carlton and Chellington

1.6.1 Carlton and Chellington village is situated just south of the River Great Ouse eight miles north west of Bedford. The now almost entirely deserted medieval settlement of Chellington lies on higher ground to the east.

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1.6.2 Until 1934 there were two separate parishes of Carlton and Chellington. The boundary line ran down the middle of Bridgend, with one side in Chellington Parish and one side in Carlton Parish.

1.6.3 Until about 60 years ago, Carlton and Chellington was a community centered on some 16 farms located both within and around the village, although today only 3 of these farms remain active. The village originally comprised two main stone-built settlements dating from the 15th and 16th centuries in Bridgend and the High Street, which were separated from one another by farm land. Following development infilling which took place in the 1960s and 1970s, the two older areas of the village have become joined to form a continuous settlement. The village is now laid out in a rectangular pattern formed by Bridgend, The Causeway, the High Street, and The Moor (including The Marsh). Just under 10% of the properties are listed buildings. See Appendix 1 Heritage Environment.

1.6.4 The Parish has a church, a school, a village shop and Post Office, and two public houses. The Playing Field is located in Rectory Close, and includes the great Carlton Oak tree - for many years the village symbol. The extensive Allotments Gardens are situated on land owned by the Diocese of St. Albans to the north of The Moor. The school playing fields, Carlton Playing Fields, and the Allotment Ggardens, along with two areas along The Causeway are all designated Village Open Spaces. There is also a village green located on The Causeway, where there is a war memorial monument and this is the central focus for Parish’s remembrance service each year.

1.6.5 Carlton lies on reasonably level ground which slopes gently towards the river. The soil is largely clay with a subsoil of gravel. The slope of the ground surrounding Carlton is irregular, with the highest ground being to the east and south. Its natural drainage system, created many years ago to serve the needs of farmland through a pattern of open ditches, now eventually runs through the village towards the allotment gardens before continuing on to river flood plains. Chellington is situated on higher ground to the east.

FIG2 Current Settlement Policy Area, Open Spaces and Conservation Areas

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Key

------: Current SPA ------: Line Conservation areas

Open Views/Local Green Spaces

Current SPA

- - - Conservation areas

Village Open Spaces/View/Local Green Spaces

1.7 Demographics

1.7.1 The information contained in this section is a synopsis of the population and household characteristics in the parish taken from the 2011 census. This information has been used by the

1.7.2 The table shows age breakdown of residents within the parish of Carlton and Chellington. Source 2011 census

0-15 16-29 30-49 50-64 65+ All ages 152 91 218 195 218 874 17.4% 10.5% 24.9% 22.3% 24.9% 1005 100%

1.7.3 This table shows the total of population change within the parish of Carlton and Chellington. The 1901 census data is omitted as the two parishes of Carlton and Chellington combined in 1934. Source 1951-2011 census

1951 Census 1991 Census 2001 Census 2011 Census 520 912 828 874

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1.7.4 Carlton and Chellington has an older age profile than the Borough with the 2011 Census showing 25% of the residents are over 65. Pensioners form a third of all households.

1.8 Community Facilities and Services

1.8.1 Education

Carlton Primary School is a Church of England school for 4-11 year old children. It is a small friendly village school with 72 children that values standards and achievements in all areas and received a 2013 Ofsted report assessment of Outstanding in All Areas. The school holds a breakfast/before school club and an after school club up to 5:30pm.

Carlton Pre-School is held within the Village Hall, and is for children from the age of 2 to school age. It runs Monday, Tuesday and Thursday 9-3pm and Wednesday and Friday 9-1pm.

Carlton Parent and Toddler Group is held in the Village Hall (co-located with the school) once a week on a Friday morning 10-11:30am.

The primary destination for secondary education is the Sharnbrook Academy, located 4 miles from Carlton and Chellington in the village of Sharnbrook. A second option in the North Beds villages is Lincroft School, located 6 miles from Carlton in the village of Oakley. Bedford has a range of both state and independent (Harpur Trust) secondary schools.

Carlton Village Hall occupies the same site as Carlton Primary School and has its own Village Hall management committee. The hall can be booked for weekend, weekly and monthly gatherings (weekday evenings only after 6pm) and is busy most of the week. Although accessed separately from the school, the school also makes use of the hall for serving lunch and as a sports hall which highly restricts its availability for residents during school hours.

1.8.2 Local Businesses

The Chellington Centre is a residential youth venue in the de-consecrated Church of St. Nicholas in Chellington. It provides an inspiring exclusive environment, and the peaceful surrounding countryside is a perfect backdrop for groups to bond as a team, to learn and develop.

The centre works with a number of providers who offer activities both onsite and close by, such as forest skills, water activities and archery. The Chellington Centre can accommodate small, medium and large groups and organisations of all types, including schools, youth groups, business and special interest groups running their own courses, holidays, seminars and conferences, and can also be hired for day use as well as residential. There are 30 beds, and with camping options they can accommodate up to 56. It can also be hired by people from the village for parties, meetings and social events.

Emmaus Village Carlton occupies the site of what was originally the Bedford Reformatory School for Boys, later the Carlton Approved School. The site was redeveloped in the 1970’s when it became a Community Home with Education (CHE) and it is in these buildings that the present day Emmaus Village is located. Emmaus is an international homelessness charity that offers their companions a home, meaningful work and a sense of belonging.

Emmaus Village features a furniture shop, bric-a-brac store, a boutique and a bistro offering homemade meals, cakes and snacks. The facilities are staffed both by the resident Emmaus companions and also a number of employees. Emmaus also hold events for the public throughout the year, such as Easter egg hunts, a Halloween scavenger hunt and a carols service.

Carlton Village Shop and Post Office is small, family run shop and sub-post offices, both of which provide an invaluable service to Carlton and Chellington as well as surrounding villages. The post office provides a useful banking service since the nearest major high street banks are over 9 miles

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away in Bedford. The shop provides the village with essential groceries, fresh bread and vegetables and a small delicatessen.

Ouse Valley Dairy, located at Church Farm in Carlton, sells milks and creams directly from their dairy herd. Bevistan Dairy, located across the road at Valley View Farm in Carlton, sell a range of sheeps’ sheep’s milk, yoghurts and cheeses.

1.8.3 Public Houses

The Fox Inn is a traditional village freehouse pub offering home cooked meals and real ales. The pub holds a monthly coffee morning, weekly quiz night, beer festivals and regular music nights. Most big sporting events, major rugby and football matches, are shown on big screens. The pub was awarded the North Beds CAMRA Country Pub of The Year in 2016 and 2017. The pub runs both skittles and darts teams in the local mid-week leagues.

The Royal Oak is a modern country freehouse pub, serving freshly prepared seasonal food. It is a beautiful Victorian red brick building with part of an old stone coaching inn on the side. It reopened in 2016 after an extensive redevelopment, having fallen into disuse for a number of years prior as the previous owners, Charles Wells, sought to reduce its property holdings.

1.8.4 Clubs and Organisations

The Carlton and Chellington Woman’s Institute meets on the 2nd Thursday of the month in the Village Hall. As well as their monthly meetings, the W.I. hold social events and trips throughout the year.

The Carlton Historical Society meet on the 3rd Thursday of the month in the Village Hall. As well as their monthly meetings, they organise visits to interesting places and hold social events.

The Carlton Allotment Society have use of a good number of allotments in the village on land owned by the Diocese of St. Albans. The society holds an annual show each year in the Village Hall and various other events such as plant sales and coffee mornings.

In the next village of Harrold there are further clubs and societies that many residents of Carlton participate in: bowls club, snooker club, tennis club, amateur dramatics club, Cubs, cricket club, junior football club and art club. There are also various events held monthly for older people at the United Reform Church in Harrold.

1.8.5 Sports Facilities and Outside Spaces

Carlton has a children’s playing field which was gifted to the children of Carlton and is managed by the Carlton Children’s Playing Field cCharity, of which the sole trustees are the Parish Council. There is a limited amount of equipment in the field and many residents would like to see more. Within the last year the trustees have had to remove one very large climbing apparatus and one swing due to safety concerns. Neither has been replaced due to a lack of funds. The playing field also has a pair of goal posts with nets. As part of the playing field there is a large stone barn which is rented to a local grounds maintenance business, this rent providing the only regular income the playing field receives. Other funds come through grants from the Parish Council budget and fund raising by the trustees.

Carlton Squash Club maintains two squash courts for its members, located on the Emmaus site. The Emmaus site also has a football field that it encourages the public to make use of for sports such as junior football and touch rugby.

Carlton Village Green is situated at the top end of the village. It is an enclosed space with seats and Carlton’s War Memorial, a nice peaceful place to be able to sit and contemplate. It also contains a very large horse chestnut tree.

Harrold and Odell Country Park, on the site of an old gravel works, is located a mile away in Harrold. This park is owned and managed by Bedford Borough Council. It has a selection of outside

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gym equipment and a perimeter walking path offering 144 acres of beauty and tranquillity. With free parking available, Its its main features are two picturesque lakes, river meadows alongside the River Great Ouse, a Nature Reserve and a range of managed habitats. Refreshments are available in the Café, located in the Visitor’s Centre where both indoor and outdoor seating areas are available.

1.8.6 Worship

St. Marys Church is situated on the outskirts of the village and is part of the Churches Together group in Harrold, Odell and Carlton. It was built in 950 i.e. before Westminster Abbey. A parish magazine, “The Bridge”, is published every 2 months and contains details of church news, services and village news from not only Carlton but Harrold and Odell as well.

1.8.7 Public Transport

There is a regular Monday to Saturday bus service to Bedford provided by Grant Palmer, and Stagecoach operate early morning and evening services to Bedford.

Carlton is also served by the community bus called The Villager which is operated by volunteers and does a weekly trip to Olney Market and goes twice monthly to Sainsbury’s in Bedford and twice monthly to Northampton. They also run monthly trips to Milton Keynes and Peterborough.

1.8.8 Medical Care

The nearest doctors surgeries are in Harrold and Sharnbrook, both of which offer a wide range of medical services and have pharmacies on site. The nearest NHS hospital is in Bedford. There is also a private hospital in Biddenham, the BMI The Manor Hospital.

1.8.9 Externally Provided Services

The mobile library currently visits Carlton fortnightly and stops in two locations. The library stays for 20 minutes in each location. A visiting fishmonger comes to Carlton on Wednesday evenings, and a milkman delivers milk and other groceries to Carlton and is an invaluable service to many residents who struggle to get to the village shop.

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Section 2: Vision, Key Themes, and Planning Objectives

2.1 Vision for Carlton and Chellington

By 2030 we aim to have created a Carlton and Chellington that will: • be a sustainable, thriving and prosperous community; • have maintained its village character within its rural surrounding by preserving the heritage of the village and protecting areas of archaeological significance; • with have a thriving natural environment promoting biodiversity and have seen changes that will have benefited the whole community.

The Carlton and Chellington Neighbourhood Development Plan (CCNDP) will:

• Ensure new development contributes to the necessary infrastructure improvements and secures open areas (including Open Green Spaces and designated open views) woodlands and the networks of footpaths and bridleways • Improve and enhance the local street scenes and protect the environment of the local countryside • Conserve and further promote the heritage assets of the community

We will achieve the vision by focusing on:

• Developing and deploying a strategic level of thinking enabling a coordinated approach to any future development within the parish • All developments will be in keeping with current construction materials within the village of mainly limestone rubble or traditional brick, and protect a notable feature of the village - the granite kerb stones • Retaining the open countryside, developing footpaths and bridleways, protecting local green spaces and our heritage assets as defined by both National Heritage and residents of Carlton and Chellington- see Appendix 1 Heritage Environment • Providing community infrastructure to ensure all residents needs are met

2.2 Key Issues

Movement

2.2.1 We have identified 3 main areas that residents are concerned with relating to movement within our village. a) Speeding and parking b) Pedestrian safety, road congestion and road maintenance standards c) Safe walks to school, footpath provision and footpath standards, HGV traffic, and through traffic 2.2.2 Residents are less concerned regarding the frequency of the local bus service, while the lack of safe cycle routes are not deemed a priority. Nearly all residents travelled by car (a total of 599 cars owned in Carlton and Chellington was recorded in the 2011 Census), with about 20% using their cars to travel around the village as opposed to the 80% who choose to walk.

Congestion at The Causeway/Bridgend Congestion at Bridgend

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2.2.3 Flash flooding remains a very real concern particularly at Bridgend and along parts of The Causeway and The Moor.

Facilities

2.2.4 High speed broadband has now been installed throughout the village.

2.2.5 Ensure the existing businesses continue to be viable and sustainable and encourage more business activity in the village.

2.2.6 Maintain and enhance facilities that enable residents to participate in village life and activities.

2.2.7 Encourage Bedford Borough Council to provide sufficient capacity within Carlton Primary School for the children of the village.

Green Spaces and Heritage

2.2.8 To maintain the existing views and vistas and Rights of Way.

2.2.9 To ensure that we are sympathetic to the protection of nature conservation sites, local wildlife and habitats, and to preserve hedgerows and trees from further loss. We will ensure that there are no likely significant effects on European sites designated under European Directive (92/43/EEC) downstream of the village along the River Great Ouse.

2.2.10 To improve footways and bridleways, recreating wildlife meadows, and developing Parish walks with parking, and with the provision of new footpaths and improved signage/accessibility to the surrounding landscape.

2.2.11 To improve the provision of allotments, landscaping of public areas, formal/informal green spaces and better play areas for children.

2.2.12 To protect the current village open spaces and protect the village from the building of industrial wind turbines and solar farms. This should be prohibited around the Carlton and Chellington Parish.

2.2.13 To ensure that all applications for development, be that new or extended development of a property within the conservation area, provide a heritage statement with each application. For not only listed buildings but also where development may affect known archeological sites. For example in land around Carlton St Mary’s church and the Chellington Centre.

2.2.14 To ensure that any development in the village is sympathetic to the village’s heritage in terms of style and feel of the village. There was great sentiment on the feedback from the launch and the survey that we did not wish to lose the feel of the village - this is its heritage. To become a larger village for example such as Harrold would impact on the ‘feel’ and therefore the ‘heritage’ of the village. Policy CC3 has been written with this in mind to protect Carlton and Chellington’s feel in any future development.

Employment

2.2.15 Employment opportunities are extremely limited due to the very nature of the businesses here already- namely Farms, one village shop, Emmaus, The Chellington Centre and two pubs.

2.2.16 There is limited opportunity for any expansion by the building of business units due to the infrastructure and lack of suitable sites.

Housing

2.2.17 Carlton and Chellington’s heritage and environmental character should not be damaged through new development.

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2.2.18 Development should be limited to areas within the Settlement Policy Area and a limited natural extension to the built up area.

2.2.19 New housing should comprise a variety of sized dwellings, including bungalows and retirement homes. There is strong resistance to flats/apartments or three story housing.

2.2.20 There is strong support for low density housing. (less than 20 dwellings hectare).

2.2.21 Development on the Causeway was viewed as most acceptable, with development off The Marsh and The Moor viewed as the most unacceptable.

2.3 The Core Objectives of the Carlton and Chellington Neighbourhood Development Plan

2.3.1 The core objectives are based on the key issues raised by local people and have been summarised to form the basis of the CCNDP.

Environment/Green Spaces:-

a) Conserve and enhance Carlton and Chellington’s rural character, heritage and seeks to protect and improve features which contribute to this village environment b) Preserve and improve access to green spaces and the surrounding countryside together with the protection and enhancement of green infrastructure and biodiversity of the surrounding area and the River Great Ouse c) Preserving views into and from the village

Housing:-

d) To ensure new housing is small in scale within the settlement boundary e) To ensure that any housing proposals are proportionate in scale and provide a range of different types and size of accommodation to meet the needs of the community, and are of a design which is consistent with the identity and character of the village f) To meet the objectives of the Borough’s housing land supply to the period 2030, the Plan will allocate development for up to 32 dwellings as a Group 2 Village, within the defined settlement boundary boundaries

Services/Facilities

g) To maintain and enhance the provision of existing facilities and public services (e.g. schools) and ensure appropriate new provision is made for any future developments both within the Parish and in the surrounding areas

Employment

h) To continue to support the local economy, sustaining existing businesses where possible and providing opportunities for new small and suitable businesses

Transport

i) Highway safety, traffic congestion and parking will be addressed to improve movement and safety in and around the village for all road users, including private cars, public transport, cyclists and pedestrians

Infrastructure

j) Providing community infrastructure to ensure all residents’ needs are met

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2.3.2 The delivery of the actions arising will be achieved in partnership with public sector, private bodies and stakeholders such as landowners, developers and the community.

2.3.3 The Plan fully meets the requirements for public consultation as set out in the Localism Act. Details of the consultation are recorded in the Consultation Statement which accompanies the Plan.

2.3.4 For a locally distinctive plan it is right that a range of locally specific objectives should be developed. These will underpin the policies whose use and implementation will support and deliver the objectives and contribute to sustainable development within the Parish. The objectives intend that the plan should:

• Provide a framework within which decisions on planning will be made for the benefit of continuing sustainability across the Parish • Encourage provision of housing, including affordable housing and homes for the elderly to meet identified housing needs where doing so would not significantly affect the quality of the local environment • Conserve and enhance the landscape, biodiversity, natural habitats and cultural heritage of the Parish

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Section 3: The Policies of the Carlton and Chellington Neighbourhood Development Plan

3.1.1 This section sets out the planning policies of the Carlton and Chellington Neighbourhood Development Plan. The policies have been developed from the issues, evidence, vision and objectives as detailed in this document. These policies will be used to determine planning applications in the Parish and to shape the future of the parish as a place to live and work in, and to visit.

3.1.2 Policy CC1 – Settlement Policy Area Boundary and Design Principles (Objectives a, b and c)

The Neighbourhood Development Plan defines the Carlton and Chellington Settlement Policy Area boundary, as shown on the Proposals Map, to shape the physical growth of the village over the plan period.

There is a presumption in favour of sustainable development within the settlement boundary, subject to development complying with the provisions of this plan and the development plan.

Development proposals within the village should demonstrate that each of the following design principles are met as and where applicable:

a. the scale, form and character of the existing settlement is maintained;

b. new development shall be of a scale to complement the traditional character and historic core of the village;

c. building line should respect the character of the street scene

d. buildings should be no more than two storeys high

e. not affecting open land which is of particular significance to the form and character of the village;

f. development on prominent sites on the edge of the village should be avoided to protect the profile and skyline of the village and to ensure views into and out of the village as identified in [saved] Policy AD40 of the Allocations and Designation Local Plan and as identified on the Bedford Borough Council’s Policies Map are not adversely affected;

g. landscaping and boundary treatments should use native species and, where practical and possible retain mature trees. However, where this is not possible, non-native species which are beneficial for wildlife will be acceptable alternatives;

h. protect residents’ amenity and the landscape character from any noise, light or other pollution; and

i. existing local habitats and wildlife corridors should be protected and enhanced, and new ones created where practical and possible.

j. not in areas at risk of flood

k. the River Great Ouse and groundwater resources will be protected from any excessive run-off, pollution and invasive non-native species in order to protect vulnerable European sites downstream.

Local Evidence: Due consideration has been given to whether the settlement boundary should be changed to include new development allocations proposed by the Neighbourhood Development

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Plan. Local residents strongly agreed that the Parish should retain its existing environmental and heritage features that give the Parish its special character. There was a clear preference for new development to take place on land which represents a limited natural extension to the existing built up area. In addition, there was strong support for protecting nature conservation, local wildlife and habitats together with preserving hedgerows and trees from further loss. Maintaining existing village views was also regarded as being of equal importance.

Technical Evidence: National planning policy acknowledges that good design is a key aspect of sustainable development, creates better places in which to live and work and helps make development acceptable to communities. The NPPF confirms that neighbourhood plans can play an important role in identifying the special qualities of each area and explaining how this should be reflected in development.

Carlton and Chellington is defined within the emerging Local Plan as a ‘Rural Service Centre’. A settlement boundary was defined by the 2002 Adopted Local Plan. The same settlement boundary has been applied in the Neighbourhood Development Plan, except where it has been extended to include the three allocated development sites as covered by Policies CC4 to CC6.

This policy is further supported within the requirements of Policies CP12, CP21 and CP24 of the Core Strategy and Rural Issues Plan; Policy AD40 of the Allocations and Designations Local Plan; Saved Policy BE15 of the Bedford Local Plan; and Emerging Polices 3S, 29S and 30 of the Local Plan 2030.

3.1.3 Policy CC2 – Protection of Local Green Spaces (Objectives a and b)

The following parcels of land as shown on the Proposals Map and in the more detailed maps at Appendix 2 are designated as Local Green Spaces:

a. The Allotment Gardens (LGS 1).

b. The Playing Field (LGS 2).

c. The Green (LG 3).

Development on land designated as Local Green Space will only be permitted in exceptional circumstances where it can be clearly demonstrated that the development will not conflict with the purpose of the designation.

Local Evidence: The residents’ survey demonstrated that open space protection was of great importance and in addition both the allotment gardens and the Playing Field were considered to be important, or very important village facilities. In addition, following comments received during the consultation of the Pre-Submission Version of the Plan, The Green was considered to be protected as a Local Green Space and this was ratified by the CCNDP Steering Group.

Technical Evidence: Paragraph 99 of the NPPF advises that ‘the designation of land as Local Green Space through local and neighbourhood plans allows communities to identify and protect green areas of particular importance to them’. Designating land as Local Green Space should be consistent with the local planning of sustainable development and complement investment in sufficient homes, jobs and other essential services.

Paragraph 100 of the NPPF goes on to add that ‘the Local Green Space designation should only be used where the green space is:

• in reasonably close proximity to the community it serves; • demonstrably special to a local community and holds a particular local significance, for example because of its beauty, historic significance, recreational value (including as a playing field), tranquility or richness of its wildlife; and • local in character and is not an extensive tract of land.

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This policy is further supported within the requirements of Policy 46 of the Local Plan 2030.

See Appendix 2 for how proposed local green spaces meet the criteria.

3.1.4 Policy CC3 – Protection of Heritage Assets including Listed Buildings (Objective a)

Planning permission will normally be granted for developments within the Carlton and Chellington Conservation Area that lies within the SPA, provided that proposals preserve or enhance the character or appearance of the Conservation Aarea.

Proposals for the demolition, redevelopment or substantial alterations to important character buildings and sites should demonstrate the consideration that has been given to retaining:

a. The important character of the building or site itself;

b. Its most distinctive and important features;

c. The positive elements of its setting and its relationship to its immediate surroundings;

d. The contribution that the building or the site and its setting makes to the character of the local area; and

e. Archaeological evaluation and excavation must be undertaken prior to development where there is likelihood of archaeological remains.

Local Evidence: Local residents strongly agreed that the Parish should retain its existing environmental and heritage features that give the Parish its special character. The continued protection of important built heritage assets was supported within the residents’ survey because of their contribution to the historic and natural environment. Appendix 1 of the Plan provides a detailed list of the Parish’s Heritage Environment.

Technical Evidence: Paragraph 193 of the NPPF states that when considering the impact of a proposed development on the significance of a designated heritage asset, great weight, should be given to the asset’s conservation (and the more important the asset, the greater the weight should be).

Both designated and non-designated heritage assets and their settings contribute much towards the character of the village and will be conserved and enhanced in recognition of their individual and cumulative significance. This is further supported within the requirements of Policy CP23 of the Core Strategy and Rural Issues Plan; and Emerging Policy 42 of the Local Plan 2030.

3.1.5 Policy CC4 – Housing Delivery (Objective f)

Provision will be made over the plan period for up to 32 homes as proposed within site specific policies CC5 to CC7.

Development in excess of this figure will generally only be permitted where the proposal relates to a site within the SPA in accordance with Policy CC1. Exceptionally permission will be granted on sites immediately adjacent to20 the SPA for schemes providing 100% affordable housing to meet identified needs in accordance with Core Strategy Policy CP17.

Local Evidence: There was support for small scale development in the Parish with over 35% agreeing the need for up to 25 new homes and 34% for up to 50. The overriding consideration was the need to ensure that further development should not damage the environmental and heritage features that give the Parish its special character.

Technical Evidence: Carlton and Chellington is defined within the emerging Local Plan as a ‘Rural Service Centre’. Emerging Policy 3S states for the village, it will be necessary to identify sites to meet the provision of 25-50 new homes in the plan period.

When considering locations for new development, an assessment of potential housing sites was undertaken. The Site Assessment report is provided in the Evidence Base. The Neighbourhood Development Plan makes three allocations for new housing on the edge of the village. These sites were subject of a public consultation event in July 2017.

3.1.6 Policy CC5 – Land at the Causeway (Objective f)

A residential development of up to 10 dwellings on land at The Causeway as identified on the Proposals Map will be supported subject to the following criteria:

a. a) the design and layout respects or enhances the surrounding natural, built and historic environment;

b. b) it can be demonstrated that the mix and tenure proposed meets an identified need; and

c. c) parking provision is provided in accordance with Policy CC12.

3.1.7 Policy CC6 – Land at 55 Causeway (Objective f)

A residential development of up to 18 dwellings on land at The Causeway as identified on the Proposals Map will be supported subject to the following criteria:

a. a) the design and layout respects or enhances the surrounding natural, built and historic environment;

b. b) it can be demonstrated that the mix and tenure proposed meets an identified need; and

3.1.8 Policyc. CC c)7 parking– Land provisionnorth of the is providedMoor (Objective in accordance f) with Policy CC12.

A residential development of up to 4 dwellings on north of the Moor as identified on the Proposals Map will be supported subject to the following criteria:

a. a) the design and layout respects or enhances the surrounding natural, built and historic environment;

b. b) it can be demonstrated that the mix and tenure proposed meets an identified need; and 21

c. c) parking provision is provided in accordance with Policy CC12.

Local Evidence: The Parish Council consider that the three development allocations will assist in meeting the broad objectives of the Neighbourhood Development Plan and will not conflict with the broader and emerging strategic objectives of the development plan.

Technical Evidence: Carlton and Chellington is defined within the emerging Local Plan as a ‘Rural Service Centre’. Emerging Policy 3S states for the village, it will be necessary to identify sites to meet the provision of 25-50 new homes in the plan period.

3.1.9 Policy CC8 – Local Housing Needs (Objective e)

To meet defined local housing needs, all housing development will be particularly supported to provide a mix and range of house types and tenures, ensuring provision of affordable housing and housing designed to meet the needs of the elderly, the disabled and the vulnerable.

Local Evidence: The residents’ survey demonstrated strong support for more affordable homes for sale or rent, both for young people and the elderly. Self and custom build housing is housing built by individuals or groups for their own use, either by building the home on their own or by working with builders. The Government recognises that this provides a more affordable route to home ownership. The Parish Council is keen to encourage self-build developments within the SPA, creating the opportunities for people to build their own home as well as local builders and contractors to develop small sites, thereby sustaining or creating local jobs and contributing to the local economy.

Technical Evidence: A comprehensive Housing Survey was completed by Bedfordshire Rural Community Charity in 2016. Analysis of this survey identified 1 potential need for starter home, 4 for shared ownership, 3 for shared ownership for over 55’s, 1 for rent and 2/3 on the open market.

This policy is further supported within the requirements of Policies CP7 of the Core Strategy and Rural Issues Plan; and Emerging Policy 60S of the Local Plan 2030.

3.1.10 Policy CC9 – Protection of Local Community Services (Objective g)

1. The identified community facilities are:

a) St Mary’s Church b) Carlton VC C of E Primary School c) Carlton Pre School d) The Village Hall e) The Post Office and Village Shop f) The Fox Inn Public House g) The Royal Oak Public House h) The Chellington Centre i) Emmaus Village 22

2. Development that would result in the loss of these community facilities will not be td l th f ll i b d t td

Local Evidence: Local residents value the community assets and facilities that the Parish offers; 100% of respondents to the Residents Survey regarded the village shop/post office, the village hall, the play area, the playing field, the allotment gardens, the church and the two village pubs as important, or very important. This policy seeks to protect community assets within the village and reflects the views expressed within the Resident Survey.

Technical Evidence: The “golden thread” running through national planning policy is the promotion of sustainable development. This has economic, environmental and social dimensions. The maintenance and enhancement of the village’s range of social and community assets will allow the village to function and allow for some growth provided it is modest in scale and proportion to the whole village. Specifically, in rural areas, national planning policy promotes the retention and development of local services and community facilities in villages, such as local shops, meeting places, sports venues cultural buildings, public houses and places of worship (para. 83 of the NPPF). This policy seeks to protect community assets within the village and reflects the views expressed within the Resident Survey. Policy CC9 is therefore consistent with the provisions of the NPPF and Emerging Policy 86 of the Local Plan 2030.

3.1.11 Policy CC10 – The Provision of New Community Facilities (Objective g)

Proposals that diversify or enhance the range of community facilities will be supported provided that the development:

a. a)will not result in unacceptable traffic movements, noise, fumes, smell or other disturbance to residential properties;

b. b) will not generate a need for parking that cannot be adequately catered for; and

c. c) is of a scale appropriate to the needs of the locality and conveniently accessible for residents of the village wishing to walk or cycle. Local Evidence: Within the Residents Survey, additional or improved facilities for young people, play areas for children, upgraded park equipment, childcare/nursery facilities and a village hall facility (independent of the school) were afforded the highest priority.

Technical Evidence: Within rural areas, national planning policy promotes to deliver the social, recreational and cultural facilities and services the community needs (para.92 of the NPPF). This policy seeks to address the potential for new community facilities within the village and reflects the views expressed within the Resident Survey.

3.1.12 Policy CC11 - Supporting the Development of Small Businesses (Objective h)

(i) Proposals for the development of small business will be supported where they involve:

a. 1.a) New builds or the conversion of existing23 buildings; and

b. b) The diversification of existing rural enterprises.

Local Evidence: Most residents who are in employment work outside of the village. However, residents support the development of small businesses in the village and many already operate from home. It is important to support the opportunities that exist, e.g. homeworking, rural diversification, and small-scale businesses, in order to ensure that the village does not become a purely residential community.

Technical Evidence: The NPPF seeks to encourage economic growth and identifies how planning policy can support economic growth in rural areas in order to create jobs and prosperity by taking a positive approach to sustainable new development (paragraph 83). It is also compatible with the NPPF objective of promoting a strong rural economy through neighbourhood planning.

Policy CC11 conforms with the provisions of the NPPF, Saved Policy E18 of 2002 Local Plan and Emerging Local Plan 2030, Policy 68.

3.1.13 Policy CC12 – Residential parking in new developments (Objective i)

The need for parking provision within new residential developments will be assessed against the Council’s Adopted Parking Standards for Sustainable Communities. Proposals should:

a. a)provide sufficient parking to meet the assessed need;

b. b)ensure that any additional on-street parking does not result in significant congestion for other road users or a serious threat to road safety; and

c. c) avoid the creation of car-dominated environments through the appropriate location, layout and detailed design of the parking spaces.

Local Evidence: Within the Residents Survey, residents were concerned about parking in the village. Whilst on-street parking can bring activity to the street and help to calm traffic speeds, inadequate off-street parking can result in an environment dominated by cars, restricted traffic movements and unsafe conditions for pedestrians and cyclists. Providing an appropriate balance between the amount, type and form of car parking is therefore a key factor in designing a quality development.

Technical Evidence: The NPPF indicates that parking standards are influenced by the accessibility of the development, the availability of public transport, the size and type of property and local levels of car ownership. BBC’s Parking Standards for Sustainable Communities sets out the overarching vision for parking within the Borough.

Policy CC12 conforms with the provisions of the NPPF, Saved Policy T15 of 2002 Local Plan and Emerging Local Plan 2030, Policy 32.

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3.1.14 Policy CC13 – Developer Contributions and Community Infrastructure Levy (Objective j)

The following projects are identified as priorities for investment in local community infrastructure:

a. a) Enhancement of footways within the Parish with improved surfaces and lighting.

b. b) Improvement of facilities at the existing playing field.

c. c) Contribution to traffic surveys and implementation of improved traffic management in the village

d. d) Enhancement to Community facilities

e. e) Flash flooding prevention and alleviation measures to ensure that there are no adverse impacts on the surrounding natural, built and historic environment

f. f) Improvements to communications infrastructure.

Monies from the local element of the Community Infrastructure Levy will be applied to these various priority projects.

Local Evidence: The listed projects have been derived from the outcome of the Residents Survey. Additional or improved facilities for young people, play areas for children, upgraded play park equipment, childcare facilities and a village hall facility (independent of the school) were afforded the highest priority in the survey. In addition, concerns and matters raised included improvement of footways, flooding and improvement of traffic management within the village.

Technical Evidence: Paragraph 34 of the NPPF states that plans should set out the contributions expected from development. This should include setting out the levels and types of affordable housing provision required, along with other infrastructure (such as that needed for education, health, transport, flood and water management, green and digital infrastructure). The NPPF supports the use of CIL to improve and provide community infrastructure. Emerging Policy 90S of the Local Plan 2030 states that new development will be required to provide, or contribute towards the provision of, measures to directly mitigate its impact on existing infrastructure.

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Section 4 - Non-land Use Actions

4.1 Issues

4.1.1. A few issues have been raised whilst preparing the Neighbourhood Development Plan that are not directly related to land-use matters (although they might indirectly relate to the use of land in some form). As such, they are not matters that can be addressed directly by the provision of a planning policy in the Neighbourhood Development Plan. However, these are matters that are important to the residents of the parish. These matters together with actions for dealing with them are detailed below. If implemented they will help to achieve the vision and objectives of the Neighbourhood Development Plan.

4.2 Traffic and Transport.

4.2.1 The layout of the main streets within the village and the design of many of the properties abutting them, together with the increased ownership of motor vehicles, has the effect of making these roads predominantly single track, requiring vehicles to pull in or reverse to allow oncoming traffic to pass. Parking restrictions do not represent an effective way of preventing the problem as there is no adequate enforcement and nowhere for displaced vehicles to park elsewhere.

4.2.2 The Residents Survey showed clearly that local residents regarded traffic congestion and parking within the village as a current important issue which needs to be addressed.

4.2.3 The Parish Council will work together with the Highway Authority, public transport providers and other relevant agencies to develop a long term sustainable strategy for improvements to the existing highway network to: alleviate local traffic congestion, secure traffic calming measures and manage car parking in and around village to mitigate the impact of development on the community.

4.2.4 In addition, the Parish Council will seek to ensure the retention of a valued bus service that provides important access and employment and is a distinct dependency for members of the village for such services. Where possible review the current limited service should the bus service providers find it economical to do so, with the aim to reduce car usage.

4.2.5 This strategy will include the following areas identified for improvement:

• Support for average speed cameras, reduced speed limits and on-street parking, and improved highway/footpath maintenance standards. • More designated footways, traffic calming, and improved disabled access attracted lesser support, although a significant number of responses were neutral. • Upgrading and extending footways. • Introducing white lines along the side of roads to mark recommended places for pedestrians and cyclists.

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Section 5: Monitoring and Review of the Plan

5.1 The CCNDP Steering Group will ensure that the Plan is actively managed over the next 12 years. The CCNDP will be reviewed periodically to ensure that it addresses any changes in both national and local planning policies.

5.2 Responsibility for providing the leadership for the CCNDP will rest with Carlton and Chellington Parish Council. Each Annual parish Council meeting, after the Plan implementation will include a detailed report ‘Update to CCNDP’. This will monitor the progress of the Plan in the previous year and the likely implications and impact of the Plan for the forthcoming year.

5.3 The Parish Council website https://carltonandchellington.bedsparishes.gov.uk/will carry an up to date report on progress with the Plan during its lifetime.

5.4 In 2023 and 2028 there will be thorough five year reviews of progress by the CCNDP Steering Group which has a wider community base. The purpose of these reviews will be to guide the Parish Council in its stewardship of the CCNDP and to consider whether a review of, or amendment to the Plan needs to be proposed to Bedford Borough Council.

5.5 In 2030, the Parish Council will recruit a new CCNDP Group to undertake a review and decide on the need for a subsequent Neighbourhood Development Plan. If it is decided that a new plan is required the CCNDP Group will develop it so that it is effective from 2031.

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Section 6: Supporting Information

6.1 Glossary of Terms

Affordable Housing Social rented, affordable rented and shared ownership housing provided to eligible households whose needs are not met by the current market. Eligibility is determined with regard to local incomes and local house prices. Affordable housing should include provision to remain at an affordable price for future eligible households or for the subsidy to be recycled for alternative affordable housing provision.

Archaeological interest There will be archaeological interest in a heritage asset if it holds, or potentially holds, evidence of past human activity worthy of expert investigation at some point.

Consultation Statement Consultation statements explain and demonstrate how engagement took place with the community and others to shape the development of the neighbourhood development plan. The consultation statement will include and summarise all the statutory (i.e. the pre-submission consultation) and non-statutory consultation that has taken place with the community, organisations and other relevant bodies to develop the plan.

Core Strategy A Development Plan Document (DPD) setting out the spatial vision and strategic objectives of the planning framework for the area.

Designated heritage asset A World Heritage Site, Scheduled Monument, Listed Building, Protected Wreck Site, Registered Park and Garden, Registered Battlefield or Conservation Area designated under the relevant legislation.

Development Plans This includes adopted Local Plans, neighbourhood plans and is defined in Section 38 of the Planning and Compulsory Purchase Act 2004.

Flood Risk Assessment An assessment of the likelihood of flooding in a particular area so that development needs and mitigation measures can be carefully considered.

Green Infrastructure A network of multi-functional green space, urban and rural, which is capable of delivering a wide range of environmental and quality of life benefits for local communities.

Heritage Asset A building, monument, site, place, area or landscape identified as having a degree of significance meriting consideration in planning decisions, because of its heritage interest. Heritage asset includes designated heritage assets and assets identified by the local planning authority (including local listing).

Highway Authority Highways authorities are responsible for producing the local transport plan and for managing existing or proposed new local roads in the area. Bedford Borough Council is the local highway authority.

Historic environment All aspects of the environment resulting from the interaction between people and places though time, including all surviving physical remains of past human activity, whether visible, buried or submereged, submerged and landscaped and planted or managed flora.

Infrastructure Basic services necessary for development to take place: for example roads, electricity, sewerage, water, education and health facilities.

Listed Building. A building of special architectural or historic interest. Listed buildings are graded I,II* or II with Grade I being the highest. Listing includes the interior as well the exterior of the building and any buildings or permanent structures within the curtilage of that listed building.

Local Planning Authority the public authority whose duty it is to carry out specific planning functions for an area. The Local Planning Authority is Bedford Borough Council.

Local Plan A plan for the future development of a local area, drawn up by the local planning authority in consultation with the community. In law this is described as the development plan documents adopted 28

under the Planning and Compulsory Purchase Act 2004. A local plan can consist of either strategic or non- strategic policies, or a combination of the two.

Localism Act The Localism Act has devolved greater powers to councils and neighbourhoods and given local communities more control over housing and planning decisions.

Material Consideration A matter that should be taken into account in deciding a planning application or an appeal against a planning decision.

National Planning Policy Framework (NPPF) The NPPF sets out the Government’s planning policies for England and how these are expected to be applied. It sets out the Government’s requirements for the planning system only to the extent that it is relevant, proportionate and necessary to do so. It provides a framework within which local people can produce their own Neighbourhood Development Plans.

Neighbourhood Plan A plan prepared by a Parish Council or Neighbourhood Forum for a particular Neighbourhood (made under the Planning and Compulsory Purchase Act 2004).

Open Space All open space of public value, including not just land, but also areas of water (such as rivers, canals, lakes and reservoirs) which offer important opportunities for sport and recreation and can act as a visual amenity.

Parish Council Parish Councils are the first tier of Local governance, and the closest to the community. Parish Councils are elected bodies and have the power to raise taxes via the precept. Their responsibilities vary.

Planning Condition A condition imposed on a grant of planning permission (in accordance with the Town and Country Act 1990) or a condition included in a Local Development Order or Neighbourhood Development Order.

Planning Obligation A legal agreement entered into under Section 106 of the Town and Country Planning Act 1990 to mitigate the impacts of a development proposal.

Planning Permission Formal approval sought from a local planning authority allowing a proposed development to proceed. Permission may be sought for in principle through outline planning applications, or sought in detail through full planning applications.

Public Open Space Urban space, designated by a council, where public access may or may not be formally established, but which fulfils or can fulfil a recreational or non-recreational role (for example amenity, ecological, educational, social or cultural images).

Rural Exception Site Small sites used for affordable housing in perpetuity where sites would not normally be used for housing. Rural exception sites seeks to address the needs of the local community by accommodating households who are either current residents or have an existing family or employment connection. A proportion of market homes may be allowed on the site at the local planning authority’s discretion, for example where residential to enable the delivery of affordable units without grant funding.

Saved Policies/Saved Plan Policies within unitary development plans, local plans and structure plans that are saved for a time period during replacement production of Local Development Documents.

Section 106 Agreement A legal agreement under section 106 of the 1990 Town and Country Planning Act. Section 106 agreements are legal agreements between a planning authority and a developer, or undertaking offered unilaterally by a developer, that ensure that certain extra works related to a development are undertaken.

Setting of a heritage asset The surroundings in which a heritage asset is experienced. Its extent is not fixed and may change as the asset and its surroundings evolve. Elements of a setting may make a positive or negative contribution to the significance of an asset, may affect the ability to appreciate that significance or may be neutral.

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Supplementary Planning Documents (SPD) Documents which add further detail to the policies in the Local Plan. They can be used to provide further guidance for development on specific sites, or on particular issues, such as design. Supplementary planning documents are capable of being a material consideration in planning decisions but are not part of the Development plan.

Supplementary Planning Guidance (SPG) Supplementary Planning Guidance may cover a range of issues, both thematic and site specific and provide further detail of policies and proposals in a development plan.

Sustainability Appraisal An appraisal of the economic, environmental and social effects of a plan, from the outset of the preparation process to allow decisions to be made that accord with sustainable development.

Windfall Site Sites which have not been specifically identifieds as available in the Local Plan process. They normally comprise previously developed sites that have unexpectedly become available.

6.2 Acknowledgements

The Parish Council would like to thank all those who have been involved with the preparation of the Neighbourhood Development Plan and in particular:-

• Members of the Steering Group - Natalie Yeo, Mandy Wilson, Jason Julyan, Nick Henwood, Norman Devereux, Stuart Devonshire, Tony Joyce, Anne Geerts, Graham Chapman, Erik Mul, Peter Planterose and Lisa Dixon • Officers of Bedford Borough Council for their co-operation through the neighbourhood plan process. • Appointed Consultants, Trevor Roff of Regeneration Positive and Sally Stroman of APC Planning • All residents, local group and organisations that completed and returned survey forms as well as those attending consultation events and giving valuable feedback.

6.3 Reference documents

• Town and Country Planning Act 1990 • Localism Act 2011 • Neighbourhood Planning (General) Regulations 2012 • National Planning Policy Framework • National Planning Practice Guidance • ‘Saved Policies’ of the Bedford Local Plan (October 2002) • Core Strategy and Rural Issues Plan (April 2008) • Allocations and Designations Local Plan (July 2013) • Emerging Bedford Borough Local Plan 2030

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Appendix 1: Carlton and Chellington Parish- Heritage Environment

Monument Data

SMR Site Name Description Number MBD58 ROMAN ROAD, A Roman road, traced running from Irchester to (Viatores no 170a) Kempston. MBD540 CROPMARKS, North of A scatter of large and small discrete enclosures, Carlton a ring ditch, and a pit alignment. MBD547 RING DITCHES, North Series of ring ditches running approx W-E on S West of Red Barn side of River Ouse. Defined to south by pit alignment. MBD603 LIMESTONE Probable Post Medieval quarries are visible as QUARRIES, North of earthworks on lidar imagery, north of Lavendon. Carlton Hall The individual quarries, of which there are fourteen, are small, averaging about 60metres across. MBD711 CHELLINGTON A polyfocal village, preserved as an extensive DESERTED MEDIEVAL area of earthworks & associated roads and ridge VILLAGE & furrow. MBD992 MOAT, Carlton Hall Sub-rectangular medieval moated site, with 3 attached enclosures and fishpond. Dovecote survives as standing building within moat. MBD1617 CROPMARKS Linear cropmark at right angles to River Ouse. MBD1781 LINEAR & Extensive area of regular linear cropmarks, with RECTILINEAR surface finds indicating presence of substantial CROPMARKS AND Roman buildings.

ROMAN OCCUPATION, West of Carlton MBD2554 CHURCHYARD CROSS, A very worn churchyard cross is recorded at Carlton Carlton. MBD2824 HOLLOW WAY The remains of a hollow way of medieval date, part of the old route to St Mary's Church. Seen on historical mapping and mid-20th century aerial photography, now remains only as a slight dip defined by weed growth. A dip believed to be a part of the monument was recently infilled. MBD3221 RIDGE AND FURROW, Ridge and furrow recorded from aerial Chellington historic photographs, in the area of the deserted parish settlement at Chellington. MBD5103 RIDGE AND FURROW, Ridge and furrow in the parish of Carlton. Carlton historic parish MBD5154 HOLLOW WAY, South Suggested route of former hollow way. East of Chellington MBD6795 ROMAN SLAG PATCH, Concentrated slag patch, in area where a Roman South East of Carlton pottery sherd was found while digging a hole for Hall a gate post. MBD7116 BRICKFIELD Site of former brickworks in operation 1882 – 1916. MBD8705 LINEAR Cropmarks representing a trackway and possible CROPMARKS/TRACK ponds/pits and other linear cropmarks. South of Carlton Hall MBD8870 BAPTIST Post Medieval? Baptist Churchyard. CHURCHYARD MBD8871 St. MARY'S PARISH Medieval Parish Churchyard. CHURCHYARD

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MBD8872 St. NICHOLAS' PARISH Post medieval churchyard. Church now CHURCHYARD, redundant. Gravestone toppled to create Chellington footpath. MBD10448 ROAD METALLING Roman Road. MBD13088 CARLTON HALL An ancient woodland. WOOD, Ancient Woodland MBD13092 FREER'S WOOD, An ancient woodland, deemed to be of local Ancient Woodland interest. MBD14729 CROPMARK North West Rectangular cropmarks seen at this location, of Northey Farm unlikely to be archaeological. MBD14730 CROPMARKS, South An area of indistinct cropmarks. West of Carlton Church MBD16448 CROPMARK, South East Small sub-rectangular cropmark. of Carlton village MBD16449 ENCLOSURE AND Cropmarks of an enclosure and a linear feature LINEAR CROPMARK, with an unclear relationship. South of Freer's Wood MBD16450 MULTI-PERIOD A probable Iron Age to Roman multiphase ENCLOSURE settlement site is visible as cropmark on aerial CROPMARKS, North of photographs to the northwest of New Barns New Barns Farm Farm. The site comprises curvilinear enclosures, boundary ditches, a rectilinear enclosure and possible trackway or field system. MBD16451 CROPMARK, East of A possible Iron Age or Roman rectilinear Carlton School enclosure is visible as a cropmark on aerial photographs. The possible settlement enclosure, measuring 52metres by 48metres, is located south of Fishers Farm. A linear feature is also visible to the north east of the enclosure and may be associated. MBD16452 IRON AGE/ROMANO- A possible Iron Age to Roman boundary ditch BRITISH CROPMARKS; with at least two adjoining small curvilinear N of Hooper's Spinney, enclosures is visible as cropmarks on aerial Carlton photographs. The features are located southeast of New Barns Farm. MBD16453 SETTLEMENT The cropmarks of possibly Iron Age boundary CROPMARKS; NE of ditches and settlement enclosures are located Hooper's Spinney, south of New Barns Farm and are visible on Carlton aerial photographs taken in 1996 and 2005. They show a number of conjoined curvilinear enclosures and linear features. MBD16483 CURVILINEAR A possible Bronze Age and/or Iron Age ENCLOSURE curvilinear enclosure is visible as a cropmark on CROPMARKS; SE of aerial photographs. The possible settlement New Barns Farm, enclosure is located southeast of New Barns Carlton Farm. There is a possible entrance on the south side, as well as two projecting linear ditches. MBD16484 IRON AGE/ROMANO- The cropmarks of two phases of probable Iron BRITISH SETTLEMENT Age and Roman settlement enclosures are CROPMARKS; E of New visible on aerial photographs, southwest of The Barns Farm, Carlton Spinney. A possible Banjo type enclosure which connects to curving boundary ditches and associated smaller curvilinear enclosures likely represents the earlier phase of the site. A large possibly Roman rectilinear enclosure appears to overlie the banjo-type enclosure and has a possible entrance on its east side. MBD16485 D-SHAPED The cropmark of a D-shaped enclosure of ENCLOSURE probable Iron Age or Roman date is visible on

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CROPMARK; NE of New aerial photographs. There is a terminally-defined Barns Farm, Carlton entrance in the NE side, opposite the longer straight side of the enclosure. The site is surrounded by faint traces of further ditches and possible enclosures which may be associated with the enclosure. MBD16894 CARLTON MEDIEVAL The medieval settlement at Carlton was mainly a VILLAGE linear settlement that has expanded to the south within the post medieval and modern periods. MBB21801 SECOND WORLD WAR Site of searchlight battery from the Second World – SEARCHLIGHT War. BATTERY MBB21831 MEDIEVAL ROUTE Remains of a medieval track connecting Harrold FROM HARROLD TO Bridge to Pavenham via Chellington deserted PAVENHAM IN medieval village, vestiges of which seen as a CARLTON AND hollow way, tracks and enclosure field CHELLINGTON PARISH boundaries. MBB21832 MEDIEVAL ROUTE Former road running from Carlton (Bridgend) to FROM CARLTON TO Stevington (West End). STEVINGTON MBB21861 FORMER CARLTON TO The road connecting Carlton to Turvey from the TURVEY ROAD end of what is now The Marsh through to Spring Close Farm. The road is shown on maps around the mid-18th century, and its exact route established using lidar data. MBB21863 Former Road(s) from The routes, identified from historical mapping Carlton and Chellington and lidar, of the road from Carlton via Chellington to Felmersham to Felmersham. These ran along the area between the modern road and the Great Ouse. MBB21866 GREEN LANE AND A probable track running through the Moor open PRE-ENCLOSURE field prior to Enclosure in 1806. Its route leads TRACK NORTH OF from close to Victoria Farm on the Moor out to CARLTON Wigney Meadow. The western part of its course remains as a green lane, the eastern half as a field boundary. MBB21869 CHELLINGTON The site of Chellington Rectory, or Parsonage PARSONAGE SITE AND House, based upon multiple items of mapping ENCLOSURE and documentary evidence. MBB21872 LATE Cropmarks of a possible later prehistoric or PREHISTORIC/ROMAN Roman settlement enclosure visible on aerial SETTLEMENT photographs. The enclosure is rectilinear and ENCLOSURE; S of defined by a single ditch. The eastern and Blackwell Spinney, northern sides are less regular in shape and the Carlton entire enclosure is sub-divided NW-SE by a parallel ditches and there is a hint of a further sub-division of the northern half. There is also a possible pit visible as a dark cropmark in the northern corner. MBB21873 IRON AGE/ROMAN A small circular enclosure or ring ditch, attached DITCHED to a length of linear ditch and possibly dating the ENCLOSURES; SW of Bronze Age or Iron Age, is visible as cropmarks Midway House, Carlton on aerial photographs taken in 2011. MBB21874 POSSIBLE RING A possible ring ditch visible on historical aerial DITCH; NE of Great photographs and previously thought to be Oaks Wood, Carlton archaeological in nature, though it is likely to be natural, possibly a fungus ring (also known as fairy rings), which can show as darker rings of grass within pasture.

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National Designated Heritage Assets

Listed Buildings (marked as triangles on the map below).

Name: PARISH CHURCH OF SAINT MARY Designation Type: Listing Grade: I

Name: FISHERS FARM BARN Designation Type: Listing Grade: II

Name: BRAEHEAD Designation Type: Listing Grade: II

The Marsh Name: MARSH FARMHOUSE Designation Type: Listing Grade: II

Name: STONEHAVEN Designation Type: Listing Grade: II

Name: FAULKNER'S FARMHOUSE Designation Type: Listing Grade: II

High Street Name: 2, HIGH STREET Designation Type: Listing Grade: II

Name: THE ANGEL PUBLIC HOUSE Designation Type: Listing Grade: II

Name: KNOWLE COTTAGE Designation Type: Listing Grade: II

Name: 25, HIGH STREET Designation Type: Listing Grade: II

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Name: LYE COTTAGE Designation Type: Listing Grade: II

Name: HOMESTEAD Designation Type: Listing Grade: II

Name: STAYESMORE MANOR Designation Type: Listing Grade: II

Name: ROWAN COTTAGE Designation Type: Listing Grade: II

Name: TWILDO Designation Type: Listing Grade: II

Name: 28, HIGH STREET Designation Type: Listing Grade: II

Name: 26, HIGH STREET Designation Type: Listing Grade: II

Name: 24, HIGH STREET Designation Type: Listing Grade: II

The Causeway

Name: BAPTIST MEETING HOUSE Designation Type: Listing Grade: II

Pavenham Road Name: 21, PAVENHAM ROAD Designation Type: Listing Grade: II

Bridgend Name: CROSSWAYS Designation Type: Listing Grade: II

Name: LABURNHAM HOUSE Designation Type: Listing Grade: II

Name: CARLTON POST OFFICE AND VILLAGE STORES Designation Type: Listing Grade: II

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Name: 10, BRIDGEND Designation Type: Listing Grade: II

Name: THE DEN Designation Type: Listing Grade: II

Name: CHELLINGTON HOUSE Designation Type: Listing Grade: II

Name: 8, BRIDGEND Designation Type: Listing Grade: II

The Moor

Name: 7, THE MOOR Designation Type: Listing Grade: II

Name: 25, THE MOOR Designation Type: Listing Grade: II

Name: MOORFIELD Designation Type: Listing Grade: II

Chellington Name: MONUMENT TO SIR ROBERT DARLING, 1 1/2 METRES FROM SOUTH EAST CORNER OF CHANCEL, ST NICHOLAS CHURCH Designation Type: Listing Grade: II

Name: Tri-Focal Deserted Medieval village, Chellington. (marked in red on the map below) Designation Type: Scheduling Grade: Not Applicable to this List Entry

Name: ST NICHOLAS CHURCH Designation Type: Listing Grade: I

Map showing Listed Buildings and Scheduled Monuments – source Historic England

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Key

Listed Building

Scheduled Monument

Non Designated Heritage Assets In addition to the formal listed buildings those listed below are listed within Bedford Borough Councils Monument under various designations including 18th and 19th Century houses/cottages, post medieval buildings or deemed of local interest:

The Moor • 51 The Moor • 17 The Moor • 15 The Moor • 19-21 The Moor • 41-45 The Moor

The Marsh • Marsh Cottage • 27 The Marsh • The Grange

High Street • The Yews, 4 High Street • 27 High Street

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• Barn rear of 29 High Street • 34-36 High Street • 37 High Street • 40 &42 High Street • 41 &43 High Street • 45 & 47 High Street

Felmersham Road • Barn and Dovecote, Lodge Farm • Lodge Farm threshing barn • Hill Farmhouse • Farm Cottage, Village Farm

Pavenham Road • 3-9 Pavenham Road • 2 Pavenham Road • 20 Pavenham Road • 22 Pavenham Road • Village Farmhouse

Bridgend • Converted Barn 1 Bridgend • 2 and 4 Bridgend • 5-11 Bridgend • 6 Bridgend • The Old Brewhouse, rear of 12-13 Bridgend • Old Village School 14 Bridgend • 16 Bridgend • 18 Bridgend • 25 Bridgend • 29 Bridgend • 33 Bridgend

Edens Lane • Nicholas Farmhouse

Rectory Close • Carlton Cooperage

The Causeway

• The Fox Inn

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• Jeddah Cottage • Stable 3 The Causeway

Turvey Road

• Barn Carlton Hall

In addition the properties listed below are considered to be part of the character and landscape of the village and are locally designated heritage assets

• 1 Pavenham Road • Hill House Farm farmhouse Pavenham Road • Bunker near Hill House Farm at top of Pavenham Hill • Abandoned farmhouse near Freer's Wood • Royal Oak Public House, Bridgend • Hall Farm Dovecote • Oak Tree at the Playing Field • Harrold/Carlton Bridge and the raised causeway leading up to it

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Appendix 2: Local Green Spaces

Table 1 – Local Green Space Assessment

Name of LGS Reasonably Close Demonstrably Special Local in Character and Proximity to the to the Local not an Extensive Tract Community Community of Land

1.The Allotment Located off The Moor, The allotments are well On the edge of the Gardens close to the Village used and in active village and measures Hall and the Primary community use. 1.2685 ha. School. The site is Valuable community located within close asset run by Carlton proximity to the Allotment Society community it serves. 2. The Playing Field Located off The Important for its It is an integral part of Causeway and is recreational value. It is the village and easily accessed by used by village groups. measures 1.4360 ha. residents of the village. Residents walk, picnic and play there. It is important to the health and well-being of the village. It is the site of the Carlton Oak which is over 200 years old and the tree symbol is often used in branding including by the School and the Parish Council. 3. The Green Located at the It is important to the It is an integral part of intersection of the High village since it is the the village and 0.0542 Street and The focus for the annual ha. Causeway at the edge remembrance service. of the village and is It is a grassed area easily accessible by with seating as well as residents of the village. the village memorial.

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Map of Green Spaces in Carlton

The Green OS License 100053076

Carlton Playing Field OS License 100053076

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The Allotments OS License 100053076

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Appendix 3: Proposals Map

Map showing proposed sites for development and revised Settlement Policy Area

OS License 100053076

Key

------: Proposed SPA ------: Line Conservation areas

Proposed sites. (Please note that the site at 51-55 The Causeway is partly within the current SPA and partly out as permission has been granted as an exception site under current Borough Council Policy

Proposed Sites. (Please note that the site at 51-55 The Causeway is partly within the current SPA and partly out as permission has been granted as an exception site under current Borough Council Policy.

New SPA Boundary, only change is by The Old Chapel, see page 9 for previous SPA

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APPENDIX C

Bedford Borough Council Carlton and Chellington Neighbourhood Plan POST- EXAMINATION DECISION STATEMENT

Regulation 18 of the Neighbourhood Planning (General) Regulations 2012 (as amended)

This document is the decision statement required to be prepared under Regulation 18(2) of the Neighbourhood Planning Regulations 2012 (as amended). It sets out the response of Bedford Borough Council (“the Council”) to each of the recommendations contained within the independent examination report of the Carlton and Chellington Neighbourhood Plan (“the Plan”) by independent examiner Mr R J Yuille MSc DipTP MRTPI, which was received by the Council on 15th October 2019.

This decision statement, the independent examiner’s report and the submission version of the Carlton and Chellington Neighbourhood Plan and supporting documents can be viewed on the neighbourhood planning pages of the Council’s website.

Paper copies of this decision statement and the independent examiner’s report can be viewed at the following locations during normal opening hours:

• Customer Service Centre, Horne Lane, Bedford • Bedford Central Library, Harpur St, Bedford

BACKGROUND

Under the Town and Country Planning Act 1990 (as amended), the Council has a statutory duty to assist communities in the preparation of neighbourhood plans and to take plans through a process of examination and referendum. The Localism Act 2011 (Part 6, Chapter 3) sets out the Local Planning Authority’s neighbourhood planning responsibilities.

This statement confirms that the modifications proposed in the examiner’s report have been considered and accepted and that subject to making the recommended modifications (and other minor modifications) the Carlton and Chellington Neighbourhood Plan may now be submitted to referendum.

The Carlton and Chellington Neighbourhood Plan relates to the area that was designated by the Council as a Neighbourhood Area on 17th March 2016. This area is coterminous with the boundary of the parish of Carlton and Chellington and is entirely within the Local Planning Authority’s area.

Between 25th May 2018 and 6 July 2018 Carlton and Chellington Parish Council undertook consultation on the draft Plan in accordance with Regulation 14.

Following the submission of the Carlton and Chellington Neighbourhood Plan to the Council in April 2019, the Council publicised the draft Plan for a six-week period and representations were invited in accordance with Regulation 16. This consultation took place between 12th June 2019 and 25th July 2019.

INDEPENDENT EXAMINATION

The Council appointed Mr R J Yuille MSc DipTP MRTPI, with the agreement of Carlton and Chellington Parish Council, to undertake the independent examination of the Carlton and Chellington Neighbourhood Plan and to prepare a report of the independent examination. The examiner examined the Plan by way of written representations supported by an unaccompanied site visit of the Neighbourhood Plan Area on 27th September 2019.

The examiner’s report was formally received by the Council on 15th October 2019. The report concludes that subject to making the modifications recommended by the examiner, the Plan meets the basic conditions set out in the legislation and should proceed to referendum. The examiner also recommends that the referendum area should be the same as the designated Neighbourhood Area, which is the same as the administrative boundary for Carlton and Chellington parish.

Following receipt of the examiner’s report, legislation requires that the Council considers each of the modifications recommended, the reasons for them, and decides what action to take. The Council is also required to consider whether to extend the area to be covered by the referendum.

DECISION AND REASONS

Having considered each of the recommendations made in the examiner’s report and the reasons for them, the Council has decided to accept all of the examiner’s recommended modifications to the draft Plan. These are set out in Table 1 below.

The Council considers that, subject to the modifications being made to the Plan as set out in Table 1 below, the Carlton and Chellington Neighbourhood Plan meets the basic conditions explained in paragraph 8(2) of Schedule 4B of the Town and Country Planning Act 1990 (as amended), is compatible with the Human Rights Convention and that the requirements of paragraph 8(1) of Schedule 4B to the Town and Country Planning Act 1990 (as amended) have been met.

The examiner recommended that the Plan should proceed to a referendum based on the designated Neighbourhood Area. The Council has considered this recommendation and the reasons for it, and has decided to accept it. The referendum area for the final Carlton and Chellington Neighbourhood Plan will therefore be based on the designated Carlton and Chellington Parish Neighbourhood Area.

These decisions were made by the Mayor on behalf of the Council’s Executive on the 8th November 2019.

As a consequence of the required modifications, the Council will alter the Carlton and Chellington Neighbourhood Plan in order that it can proceed to referendum. The Neighbourhood Plan document will be re-titled Referendum Version. The date for the referendum and further details will be publicised shortly once a date is set by the Council.

Table 1: Decisions on the Examiner’s Recommended Modifications to the Carlton and Chellington Neighbourhood Plan

Proposed Carlton and Chellington Examiner’s Recommended Modification and Reason Bedford Borough Modification Neighbourhood Plan Report Council Number Reference Reference Decision/reasoning PM1 Title of contents page. Paragraph 3.3 Amend as follows: Agree with the modifications for the Carlton & Chellington Neighbourhood reasons set out in the Development Plan 2018 -2030. examiner’s report

Contents page Vision Key Themes and Core Objectives 2018 – 203530.

To provide clarification regarding the time period to be covered by the Plan. PM2 Policy CC1 f) Paragraph Amend as follows: Agree with the 4.14 modification for the Para 3.1.2 and as identified on the Proposals Map Bedford reasons set out in the Borough Council’s Policies Map are not adversely examiner’s report affected.

For clarity and to correct the reference to Bedford Borough Council’s published Policies Map. PM3 Policy CC3 Paragraph Amend as follows: Agree with the 4.18 modification for the Para 3.1.4 provided that proposals preserve or enhance the reasons set out in the st character or appearance of the Conservation examiner’s report 1 paragraph. Area.

To reflect statutory wording in Section 69 of the Planning (Listed Building and Conservation Areas) Act 1990. PM4 Appendix 3 Paragraph Modify the Proposals Map to show the extended Agree with the 4.21 Settlement Policy Area Boundary. modifications for the Proposals Map reasons set out in the To show the new Settlement Policy Area boundary examiner’s report arising as a result of the Plan’s allocations. PM5 Policy CC4 Paragraph Amend as follows: Agree with the

nd 4.22 modifications for the 2 paragraph Development in excess of this figure will reasons set out in the generally only be permitted where the proposal examiner’s report Para 3.1.5 relates to a site within the SPA in accordance with Policy CC1. Exceptionally permission will be granted on sites immediately adjacent to the SPA for schemes providing 100% affordable housing to meet identified local needs in accordance with Core Strategy Policy CP17.

To reflect policies in the current development plan (Core Strategy and Rural Issues Plan Policy CP17) and in emerging policy (Local Plan 2030 Policy 6S). PM6 Policy CC9 Paragraph Amend as follows: Agree with the 4.24 modification for the a) the proposals includes alternative provision, Paragraph 2a reasons set out in the where possible on a site within the SPA, of examiner’s report Para 3.1.10 equivalent or enhanced facilities.

To reflect the fact that the alternative provision of community facilities referred to may take place on sites outside the settlement policy area

November 2019